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A-2 Boston Public Health Commission Regulation
Waste Container Lot,Junkyard and Recycling
how to access Facilities
health care
Introduction
office of .
.the director
1. Definitions
2. Conditionally Exempt Operations
3. Temporary Permits for Community Recycling
links Events
4. Application for Installation Permit-Criteria
5. Operation Plan -Equipment
6. Operation Plan -Weighing Facilities
7. Operation Plan -Fire Protection
8. Operation Plan -Access Facilities
9. Operation Plan -Unloading Procedure
10. Operation Plan -Control of Wind blown Litter
11. Operation Plan -Screening and/or Fencing
12. Operation Plan -Open Burning
13. Operation Plan -Solid Wastes, Special Wastes,
Hazardous Wastes and Hazardous Materials
Recycling
14. Operation Plan- Processing of Bulky Recyclables
15. Operation Plan- Dust Control Planning
16. Operation Plan - Insect and Rodent Control and
Planning
17. Operation Plan-Accident Prevention Planning
18. Operation Plan-Supervision of Operation
19. Operation Plan -Operational Records and Plan
Execution
20. Operation Plan -Emergency Contingency Plan
21. Operation Plan -Temporary Vehicle and
Container Layovers
22. Closure
Introduction. The following guidelines are issued
pursuant to Section 2.01 of the Boston Public Health
Commission Regulation titled"Waster Container Lot,
Junk Yard and Recycling Facilities."
1. Definitions. The following words when used herein,
except as otherwise required by the context, shall have
the following meaning:
• Adverse Impact: means an injurious impact that is
significant in relation to the public health, safety,
or environmental interest being protected.
• Agricultural Waste: means discarded organic
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materials produced from the raising of plants and
animals as part of agronomic, horticultural or
silvicultural operations, including, but not limited
to,animal manure, bedding materials, plant stalks,
leaves, other vegetative matter and discarded by
products from the on farm processing of fruits and
vegetables.
• Applicant: means the person named in the
application as the owner of a property interest in
the site or the operator of the proposed facility
where the owner has entered into an agreement
with an operator at the time the application is filed.
• Area of Critical Environmental Concern (ACEC):
means an area designated by the Secretary of the
Executive Office of Environmental Affairs pursuant
to 301 CMR 12.00: Areas of Critical
Environmental Concern.
• Asphalt, Brick, and Concrete Rubble: means
rubble that contains only weathered (cured)
asphalt, clay bricks and attached mortar normally
used in construction, or concrete that may contain
rebar. The rubble shall not be coated or
impregnated with any substance.
• Backyard Composting: means the composting of
organic solid waste, such as grass clippings,
leaves or brush generated by a homeowner or
tenant of a single or multi family residential unit or
an apartment complex unit,where composting
occurs at that dwelling place.
• Board of Health: means the Boston Public Health
Commission or its authorized agent.
• Compostable Material: means an organic
material, excluding waste water treatment
residuals, that has the potential to be composted,
which is pre sorted and not contaminated by
significant amounts of toxic substances.
• Commission: means the Boston Public Health
Commission.
• Composting: means a process of accelerated
biodegradation and stabilization of organic
material under controlled conditions yielding a
product which can safely be used.
• Construction and Demolition Waste: means the
waste building materials and rubble resulting from
the construction, remodeling, repair or demolition
of buildings, pavements, roads or other
structures. Construction and demolition waste
includes but is not limited to, concrete, bricks,
lumber, masonry, road paving materials, rebar
and plaster.
• Disposal: means the final dumping, landfilling or
placement of waste into or on any land or water or
the incineration of waste.
• Downgradient: means
a. in reference to surface water,the direction
perpendicular to lines of equal elevation
over a distance in which elevation
continuously decreases, measured from
the point or area in question;or
b. in reference to groundwater, the direction
perpendicular to lines of equipotential over
a distance in which total head continuously
decreases, measured from the point or
area in question.
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• Dumpster: means container for solid wastes,
recyclable materials, or junk that is customarily
moved and emptied using heavy equipment.
• Emptied Container: means that, as to any type of
container, regardless of the contents,the contents
has been dumped out and there is no visible,
odoriferous or putrescent material remaining.
• Expand a Site: means to move a facility's
operation to a previously unpermitted site that is
contiguous to the original site or to modify a
facility's operations causing it to exceed any
capacity or total volume limit stated in its current
permit or operation plan.
• Facility: means a site or works, and other
appurtenances thereto,which is or will be used as
a waste container lot,junk yard or recycling
facility, including all land, structures and
improvements thereon.
• Handling Area: means an area used for dumpster
storage or the transfer, storage, processing or
treatment of solid waste,junk, or recyclable
materials, including weigh stations or on-site
access roads.
• Infectious Waste: means"Infectious Waste or
Physically Dangerous Medical or Biological
Waste" as defined in 105 CMR 480.000,
Department of Public Health, Stale Sanitary Code
and includes: blood and blood products;
pathological waste; cultures and stocks of
infectious agents and associated biologicals;
contaminated animal carcasses, body parts and
bedding; sharps; and biotechnological by product
effluents.
• Interim Wellhead Protection Area (IWPA): means
an area extending to a%mile radius from a public
water supply wellhead which is intended to protect
the wellhead pending the delineation of its Zone II.
• Junk: means old or scrap recyclable copper,
brass, rope, rags, batteries, paper, rubber,debris,
asphalt, brick, and concrete rubble, or junked,
dismantled, or wrecked automobiles, or parts
thereof, iron, steel, and other old or scrap ferrous
or nonferrous material, or recyclable materials.
• Junkyard: means an establishment or place of
business which is maintained,operated, or used
for recycling, storing, keeping, buying, selling, or
processing junk.
• Landfill: means a waste facility or part of a waste
facility established in accordance with a valid site
assignment for the disposal of solid waste into or
on land.
• MADEP: means the Massachusetts Department
of Environmental Protection.
• MADEP Report on Suitability: means the report
issued by the MADEP pursuant to M.G.L. c. 111,
§ 150A, stating whether a site proposed for a solid
waste management facility in an application for a
site assignment is suitable.
• Operator: means any person who has care,
charge or control of a facility subject to these
regulations, including without limitation, an agent,
lessee of the owner or an independent contractor.
• Person(s): means any individual, partnership,
association, firm, company, corporation,
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department, agency, group, public body(including
a city,town, district,county,authority, state,
federal, or other governmental unit)or any other
entity responsible in any way for an activity
subject to these regulations.
• Post Consumer Recyclables: means the following
materials which have served their intended end
use and have been pre sorted:
a. containers,films and wraps and other
forms of packaging made from metal,
glass, plastic or paper; and
b. newspaper, office paper, cardboard and
other grades of paper.
• Potential Private Water Supply: means a Class I
aquifer as defined at 314 CMR 6.03: Ground
Water Quality Standards, as may be amended,
capable of yielding water of sufficient quality and
quantity which is located under a parcel of land
that at the time of the earlier of the following two
filings, the Site Assignment Application or,where
applicable, the Massachusetts Environmental
Policy Act Environmental Notification Form, is:
a. zoned residential or commercial;
b. not served by a public water supply; and
c. (c) subject to a subdivision plan or a
building permit application approved by the
appropriate municipal authority.
• Potential Public Water Supply: means a drinking
water source which,at the time of the earlier of
the following two flings, the Site Assignment
Application,or where applicable,the
Massachusetts Environmental Policy Act
Environmental Notification Form, has been
determined to be capable of yielding water of
sufficient quality and quantity for future
development as a public water supply, and either:
a. has been designated and received MADEP
approval under the"Guidelines and
Policies for Public Water Systems", as
amended; or
b. has had the necessary documentation
submitted on its behalf for determination as
a Potential Public Water Supply as defined
by the MADEP's Division of Water Supply.
• Pre Sort: means to segregate a material for reuse,
recycling or composting by preventing the material
from being commingled with solid waste at the
point of generation or to separate and recover the
material from solid waste at a processing facility.
Pre sorting does not require the recovery or
separation of non recyclable components that are
integral to a recyclable product(e.g. insulation or
electronic components in white goods).
• Private Water Supply: means a well used as a
source of drinking water supplying a non public
water system with any volume of groundwater
from any source.
• Processing: means the use of any method,
technique or process to reduce the volume or alter
the physical characteristics of solid waste or
recyclable or compostable materials through any
means, including,without limitation, separating,
baling, shredding, crushing or reworking.
• Public Water Supply: means a source of drinking
water supplying a public water system as defined
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in 310 CMR 22.00, as may be amended.
• Recyclable or Recyclable Material: means a
material or junk that has the potential to be
recycled and which is pre sorted and not
contaminated by significant amounts of non-
recyclable substances.
• Recycle: means to recover materials or by
products which are:
a. reused; or
b. (b) used as an ingredient or a feedstock in
an industrial or manufacturing process to
make a marketable product; or
c. (c) used in a particular function or
application as an effective substitute for a
commercial product or commodity.
• 'Recycle"does not mean to recover energy from
the combustion of a material.
• Recycling Drop Off Center: means a location
where pre sorted post consumer recyclables are
deposited by the generators of the recyclables for
collection and transfer to a facility for processing
or directly to a market.
• Residue: means all waste remaining after
treatment or processing and includes,without
limitation, ash, material which is processed for
recycling or composting but is unmarketable or
speculatively accumulated due to its inferior
quality and other solid waste which is not
recovered. Non recyclable material which is
integral to a pre sorted recyclable product shall
not constitute residue for the purpose of
calculating residue generation rates.
• Roll-off Container: means a metal container with
rails for solid wastes or recyclable materials that is
customarily moved and emptied using heavy
equipment such as but not limited to roll-off hoist
equipped trucks.
• Site Assignment: means a determination by a
board of health or, in the case of state-owned
land, by the MADEP, as specified in M.G.L. c.
111, § 150A, designating an area of land for one
or more solid waste uses or activities.
• Sludge: means the accumulated solids and/or
semisolids deposited or removed by the
processing and/or treatment of gasses, water or
other fluids.
• Sole Source Aquifer: means an aquifer so
designated by the U.S. Environmental Protection
Agency, or by the MADEP under the authority of a
state program as may be established,that
supplies 50% or more of the drinking water for the
aquifer service area, and the volume of water
which could be supplied by alternative sources is
insufficient to replace the petitioned aquifer should
it become contaminated.
• Solid Waste: means useless, unwanted or
discarded solid, liquid or contained gaseous
material resulting from industrial, commercial,
mining, agricultural, municipal or household
activities that is abandoned by being disposed or
incinerated or is stored,treated or transferred
pending such disposal, incineration or other
treatment, but does not include:
a. hazardous wastes as defined and
regulated pursuant to 310 CMR 30.000;
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b. sludge or septage which is land applied in
compliance with 310 CMR 32.00;
c. waste water treatment facility residuals and
sludge ash from either publicly or privately
owned waste water treatment facilities that
treat only sewage,which is treated and/or
disposed at a site regulated pursuant to
M.G.L. c. 83, §§6&7 and/or M.G.L. c.21,
§§26 through 53 and the regulations
promulgated thereunder, unless the waste
water treatment residuals and/or sludge
ash are co disposed with solid waste;
d. (d) septage and sewage as defined and
regulated pursuant to 314 CMR 5.00, as
may be amended, and regulated pursuant
to either M.G.L. c. 21, §§26 through 53 or
310 CMR 15.00, as may be amended,
provided that 310 CMR 16.00 does apply to
solid waste management facilities which co
dispose septage and sewage with solid
waste;
e. ash produced from the combustion of coal
when reused as prescribed pursuant to
M.G.L. c. 111, § 150A;
f. solid or dissolved materials in irrigation
return flows;
g. source, special nuclear or by product
material as defined by the Atomic Energy
Act of 1954, as amended,
h. those materials and by products generated
from and reused within an original
manufacturing process; and
i. compostable or recyclable materials when
composted or recycled in an operation not
required to be assigned pursuant to 310
CMR 16.05(2)through (5).
• Speculative Accumulation: means the
accumulation or storage of a recyclable or
compostable material when the recycling or
composting of the material is not now, or cannot
reasonably be expected to be, occurring.
Speculative accumulation shall be deemed to be
occurring when:
a. the material cannot feasibly be recycled or
composted; or
b. less than 75% by weight or volume as
appropriate of the recyclable or
compostable material is utilized, sold or
transferred off site in a manner which does
not constitute disposal or handling pending
disposal within a time frame to be
determined by the MADER
• Storage: means the temporary containment of
recyclable materials in a manner which does not
constitute disposal or speculative accumulation.
• Storage Facility: means a facility where recyclable
materials are temporarily stored in a manner not
constituting recycling.
• Transfer Station: means a handling facility where
solid waste is brought, stored and transferred from
one vehicle or container to another vehicle or
container for transport off-site to a solid waste
treatment, processing or disposal facility.
• Treatment: means the use of any method,
technique or process to change the chemical, or
biological character or composition of any solid or
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hazardous waste;to neutralize such waste,to
render such waste safer to transport, store or
dispose;or make such waste amenable to
recovery, storage or volume reduction.
• Upgradient: means:
a. in reference to surface water, the direction
perpendicular to lines of equal elevation
over a distance in which elevation
continuously increases, measured from the
point or area in question; or
b. in reference to groundwater,the direction
perpendicular to lines of equipotential over
a distance in which total head continuously
increases, measured from the point or area
in question.
• Waste Container Lot: means a location for the
storage or repair of empty or loaded dumpsters,
roll-off containers, and other solid waste,junk, or
recyclable material containers,whether located on
vehicles, on the ground, or within a building.
• Wood Waste: means discarded material
consisting of trees, stumps and brush, including
but not limited to sawdust, chips, shavings and
bark.Wood waste does not include new or used
lumber or wood from construction and demolition
waste and does not include wood pieces or
particles containing or likely to contain asbestos,
or chemical preservatives such as creosote or
pentachlorophenol,or paints, stains or other
coatings.
• Yard Waste: means deciduous and coniferous
seasonal deposition (e.g., leaves), grass
clippings,weeds, hedge clippings, garden
materials and brush.
2. Conditionally Exempt Operations. The following
recycling operations or activities do not require a permit
provided the operation incorporates good management
practices, is carried out in a manner that prevents an
unpermitted discharge of pollutants to air,water or other
natural resources of the Commonwealth and results in
no public nuisance or negative health impact:
a. Containers at the Department of Public Works.
Dumpsters, roll offs, or other temporary storage
containers located at, and used exclusively for the
solid waste or recyclable materials generated and
collected by the Boston Department of Public
Works;
b. Containers at the Location of Waste Generation.
Dumpsters, roll offs, or other temporary storage
containers located at, and used exclusively for the
collection of solid waste or recyclable materials
generated by a residence, school, recreational
area, industrial or commercial establishment,
farm, construction site, demolition site or prison;
and
c. Hospitals, Health Centers and Laboratory
Infectious Waste Storage Areas. Hospitals,
licensed health centers, medical laboratories and
biotechnology companies which accept for
storage, pending off-site treatment or disposal,
infectious waste generated on-site by the hospital,
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medical laboratory or biotechnology company, or
infectious waste generated off-site, provided:
1. the hospital, health center, biotechnology
company or laboratory has sufficient
properly designed and operated infectious
waste storage areas and manages all
infectious waste in compliance with the
Regulations for Storage and Disposal of
Infectious or Physically Dangerous Medical
or Biological Waste, State Sanitary Code
Chapter VIII, 105 CMR 480.000; and
2. the hospital, health center, biotechnology
company or medical laboratory accepts
and stores off-site generated infectious
waste with on-site generated infectious
waste only as follows:
A. Hospitals and Health Centers.
Collects and stores infectious waste
generated off-site from hospitals,
health centers or clinics which the
hospitals owns, or from hospitals,
health centers, clinics or physicians
with whom the hospital or health
center has a professional affiliation
for the provision of medical services.
B. Medical Laboratories. Collects and
stores infectious waste generated
off-site from laboratories it operates,
or generated off-site by customers to
whom the laboratory provides
laboratory services and only to the
extent that the infectious waste
collected from such customers and
stored does not, on a daily basis,
exceed the amount of infectious
waste generated on-site from the
laboratory's own laboratory
activities.
C. Biotechnology Companies. Collects
and stores infectious waste
generated off-site from the
company's biotechnology operations
conducted at buildings owned or
leased by the company.
D. the infectious waste storage area
would not otherwise require a site
assignment or solid waste
management facility permit pursuant
to 310 CMR 16.00 and 310 CMR
19.000, respectively.
d. Residential Disposal of Wood Wastes. Disposal
of wood wastes at a single family residence or
farm where the wood wastes are generated and
disposed within the boundaries of such residence
or farm;
e. Wood Chipping and Shredding Operations. Wood
chipping and wood shredding operations at the
site of generation when:
1. only brush, stumps, lumber ends and
trimmings,wood pallets, bark,wood chips,
shavings, slash and other clean wood,
which are not mixed with other solid
wastes, are processed;
2. no wood containing or likely to contain
asbestos,glues, or chemical preservatives
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such as creosote, pentachlorophenol,
paints, stains or other coatings is
processed;
3. at least thirty(30) days prior to
commencement of operations,the operator
notifies the Commission, using a form
supplied by the Commission.
f. Hazardous Waste Facilities. Facilities that
manage only hazardous wastes or which are
processing only recyclable materials regulated
pursuant to 310 CMR 30.000;
g. Waste Water Treatment Residuals Facilities.
Facilities which manage waste water treatment
plant residuals subject to the siting process
pursuant to M.G.L. c. 83, §6 and regulated
pursuant to 314 CMR 12.00;
h. Temporary Solid Waste or Recyclable Materials
Vehicle and Container Layover. Commercial truck
stops and repair facilities where trucks,trailers
and other materials handling and transfer
equipment including those containing enclosed
loads of solid waste or recyclable materials are
occasionally parked for refueling or emergency
repair while en-route to a solid waste
management or recycling facility or other
destination. This exemption shall not apply to
locations without site assignment where waste or
waste loaded containers are unloaded from
vehicles.This exemption shall not apply to
locations where recyclable materials or recyclable
material loaded containers are unloaded from
vehicles. This exemption shall not apply to sites
where an operator's trucks or containers with
waste or recyclable materials are routinely parked
or garaged as part of a solid waste or recycling
business. Solid waste or recyclable material
containers shall not be stored or placed into
service on city streets and sidewalks without
applicable permits from the Boston Department of
Public Works.
i. Manufacturing and Industrial Operations. The
following classes of manufacturing or industrial
operations which temporarily store and/or utilize
pre sorted recyclable materials in the
manufacturing or industrial process, including:
1. paper mills, including de inking plants and
paperboard manufacturers;
2. steel mills;
3. aluminum smelting operations and mills;
4. glass manufacturing plants,
5. plastic manufacturing plants;
6. tire re capping plants;
7. de tinning plants,
8. asphalt batching plants;
j. Bottle Bill Drop Off Centers. Bottle Bill drop-off
centers which are an accessory supporting a retail
beverage business. This exemption shall not
apply to Bottle Drop-off Centers whose primary
business is the collection of bottles with an
incidental retail sales of beverages.
k. Recycling Operations at the Location of
Generation. Operations involving processing,
transferring or temporarily storing recyclables at
the site of original generation provided that:
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1. there is no speculative accumulation of any
material. Speculative accumulation shall
be presumed to occur if materials,whether
in their as received, in process or
processed condition, are stored for more
than thirty(30) days from the date of their
receipt at the recycling operation. This
time limit may be exceeded in the case of
storage of a processed material pending
accumulation of a transportable load (one
full truck load).
2. accurate records are maintained and
certified reports are submitted every ninety
(90) days for the first year of operation and
once a year thereafter which provide
information to enable the Commission to
determine that the operation has complied
with exemption conditions.
I. Composting Operations. The following
composting operations and activities do not
require a permit provided the operation
incorporates good management practice, is
carried out in a manner that prevents an
unpermitted discharge of pollutants to air,water or
other natural resources of the Commonwealth and
results in no public nuisance:
m. Backyard Composting. The composting of
organic vegetative solid waste, such as grass
clippings, leaves or brush generated by a
homeowner or tenant of a single or multi family
residential unit or an apartment complex unit,
where composting occurs at that dwelling place.
n. Agricultural Waste Composting. A composting
operation for agricultural wastes,when located on
a farm engaged in"agriculture"or"farming"as
defined in M.G.L. c. 128, § 1A. Such composting
operation may utilize only the following
compostable materials, provided the operation is
registered with and complies with policies of the
Department of Food and Agriculture:
A. leaf and yard waste;
B. wood wastes;
C. clean shells and bones;
D. non agricultural sources of manures and
animal bedding materials.
E. not more than ten tons per day of
compostable material composed of
generator pre sorted produce, and/or
generator pre sorted vegetative residues
from food or beverage processing that
consists solely of materials from plants,
(e.g., husks, leaves, skins, sediments and
roots)and other plant by products from fruit
or vegetable canning,freezing or
preserving operations; and
3. Temporary Permits for Community Recycling
Events
a. The Commission may issue a Temporary
Recycling Permit in lieu of an Installation Permit
and an Annual Permit to Operate for sites used by
government and non-profit groups holding
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community recycling events.
b. Temporary Recycling Permits shall be site, date,
and time specific and shall not exceed one(1)
day.
c. Provisions applicable to an Installation Permit and
an Annual Use Permit shall not apply to
applications for Temporary Permits.
d. Applicants shall demonstrate through the
application for the operation of a temporary
recycling event that the event will not adversely
impact on the public health, public safety, or the
environment.
e. The event operator shall provide sealable
containers or vehicles into which the recyclable
material shall be placed immediately on its
receipt.
f. The event operator shall prevent releases of the
recyclable material to the environment and any
other nuisances or threats to the public health,
public safety, and the environment.
g. By the time of the expiration of the temporary
permit,the event operator shall have removed all
recyclable materials from the event site and
cleaned up any materials related to the event
restoring the site to a clean and sanitary condition.
4. Application for Installation Permit-Criteria
a. Site Suitability Criteria. The following Site
Suitability Criteria shall apply to all facilities.
1. Agricultural Lands. No site shall be
determined to be suitable or be permitted
as a facility if within five hundred (500)feet
of active farmland or a community garden
provided that such garden existed prior to
the date of the completed application.
2. Traffic and Access to the Site. No site shall
be determined to be suitable or be
permitted as a facility where traffic impacts
from the facility operation would constitute
a danger to the public health,taking into
consideration the following factors:
A. traffic congestion;
B. pedestrian and vehicular safety;
C. road configurations;
D. alternate routes; and
E. vehicle emissions
3. Potential Air Quality Impacts. No site shall
be determined to be suitable or be
permitted as a facility where the anticipated
emissions from the facility would not meet
required slate and federal air quality
standards or criteria or would otherwise
constitute a danger to the public health,
taking into consideration:
A. the concentration and dispersion of
emissions
B. the number and proximity of
sensitive receptors; and
C. the attainment status of the area.
4. Potential for the Creation of Nuisances. No
site shall be determined to be suitable or
be permitted as a facility where the
establishment or operation of the facility
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would result in nuisance conditions which
would constitute a danger to the public
health,taking into consideration the
following factors:
A. noise;
B. litter;
C. vermin such as rodents and insects;
D. odors;
E. bird-related nuisances;
F. the cumulative impacts of the facility
and other nuisance sources; and
G. other nuisance problems.
5. Size of Facility. No site shall be
determined to be suitable or be permitted
as a facility if the sizelof the proposed site
is insufficient to properly operate and
maintain the proposed facility. In making
this determination, the distance of the
material handling area or storage area from
the property boundary shall be taken into
account.
6. Proximity to Sensitive Receptors. No site
shall be determined to be suitable or be
permitted as a facility if there is a
reasonable likelihood that it will cause an
adverse impact on sensitive receptors
including, but not limited to, schools,
community gardens, parks, playgrounds,
day care facilities, health care facilities,
nursing homes, and residences, provided,
if the facility is not otherwise causing a
nuisance, that such receptors existed prior
to the date of the completed application.
7. Maximum Facility to Land/Population
Ratio. There shall be a rebuttable
presumption that no facility except a
recycling drop off center shall be installed
after August 20, 1998 in any neighborhood
where the ratio of the aggregate fraction of
post-1980 and currently existing city
transfer stations, container lots, and
recycling facilities in that neighborhood
exceeds the average of the fraction of
neighborhood land area and the fraction of
the city's resident population living in that
neighborhood by a factor of 2.0 or more.
[(No. of post-1980 and current transfer stations,
container lots, and recycling facilities in neighborhood)/
(No.of post-1980 and current transfer stations,
container lots, and recycling facilities in Boston)]/
[(neighborhood land area/city land area + neighborhood
population/city population)/2] <2.0.
Facility lists and neighborhood population and land area
data can be obtained by clicking here, or from the Office
of Environmental Health.
b. No site shall be determined to be suitable as a
facility where:
1. a materials handling area would be within
the Interim Wellhead Protection Area
(IWPA)or a Zone II of an existing public
water supply well or a potential public water
supply,unless necessary restrictions are
imposed to minimize the risk of an adverse
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impact to the groundwater; and either:
A. the proponent can demonstrate to
the satisfaction of the Commission
that the facility cannot reasonably be
sited outside the IWPA or Zone II; or
B. there would be a net environmental
benefit to the groundwater by siting
the facility within the Zone II or the
IWPA where the site has been
previously used for similar activities.
2. the materials handling area would be less
than five hundred (500)feet upgradient of a
surface drinking water supply as defined by
groundwater flow or surface water
drainage;
3. the materials handling area would be less
than five hundred (500)feet downgradient
of a surface drinking water supply as
defined by groundwater flow or surface
water drainage;
4. the materials handling area would be within
five hundred (500)feet of an existing or
potential private water supply well.
5. the maximum high groundwater table
would be within two(2)feet of the ground
surface in areas where materials handling
is to occur unless it is demonstrated that a
two foot separation can be designed to the
satisfaction of the Commission; or
6. the materials handling area would be within
five hundred (500)feet of a sensitive
receptor, included but not limited to, an
occupied residential dwelling, prison, health
care facility, nursing home, lower
educational institution, children's preschool,
park , or playground, provided, however,
that the applicant may show a valid option
to purchase the restricted area, the
exercise of which shall be a condition of
any permit.
c. Copies of the completed Application for
Installation Permit will be furnished by the
applicant to the Inspectional Services Department,
Fire Department, and Boston Water and Sewer
Commission. The Installation Permit is required in
addition to Inspectional Services Department
Building Permits. It is the responsibility of the
applicant to consult the Inspectional Services
Department, Fire Department and Boston Water
and Sewer Commission to determine if additional
permits, requirements, or conditions apply to
installation or operation of the facility.
d. Each Application for an Installation Permit shall at
a minimum, incorporate provisions addressing all
requirements of these regulations including the
following:
1. the property owner's name, address, and
telephone number.
2. the operator's name, address and
telephone number.
3. the contractor's name and proof of valid
state registration.
4. a plan with a specified scale, signed by a
registered surveyor or engineer, showing
the location of the proposed facility in
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relation to existing above or below ground
structures.
5. a description and detailed map indicating
the location of visible prior and current land
uses within six hundred(600)feet of the
proposed location including but not limited
to the following:
A. existing and proposed building
structures;
B. parks, schools, health care facilities,
residences, and nursing homes;
C. fuel storage tanks, excluding those
that meet the following three
criteria: they are i) less than two
hundred and eighty(280) gallons, ii)
above ground and iii) used for
residential purposes
D. private and public ways;
E. utility rights-of-way; and
F. any other potential sources of
pollution;
6. proof that all owners of any property
abutting the applicant's property have been
notified of the applicant's intention to
construct a facility.
7. proof that the proposed location meets any
MADEP criteria for facility siting.
8. proof that the proposed location meets any
ISD/BZA criteria for facility siting.
9. the permit fee required by Section 2.13.
5. Operation Plan -Equipment
a. The operator shall provide the necessary,
appropriate type and size equipment for the
proper operation of the facility in accordance with
good engineering practice and in compliance with
the applicable regulations and these guidelines.
As to any processing unit for which a replacement
is not readily available within one units(1)
business day,the processing unit shall be in
duplicate with each unit capable of handling the
expected design tons per day. However, only one
processing unit shall be satisfactory,where:
1. the facility will handle under one hundred
and fifty(150)tons per day; or,
2. adequate facilities to continue operation
and/or an alternate method to handle all
incoming material in a sanitary manner
approved by the BPHC in the event of a
failure or breakdown is provided.
b. The operator shall make provisions for the routine
maintenance of equipment to assure satisfactory
performance capability for the various operations
of the facility.
c. The operator shall provide at the site suitable
protection for all equipment and necessary service
supplies used in connection with the facility.
6. Operation Plan -Weighing Facilities. The operator
should make provision on a continuous or intermittent
basis for the weighing or measuring of materials
delivered to the facility. Scales or other measuring
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devices may be required by the Commission.
7. Operation Plan -Fire Protection. The operator shall
take suitable measures for the prevention and control of
fres at the facility by complying with at least the
following:
a. Make available at the facility an adequate supply
of water under pressure with sufficient fire hose,
and building sprinkler systems, if sprinklers are
required by the fire department;
b. Hot loads shall not be accepted at the facility;
c. Arrange for the fire department to provide
emergency service whenever called, and
d. Mount detachable fire extinguishers, maintained in
working order, on all vehicles and in all buildings.
8. Operation Plan -Traffic and Access to Facilities.
Traffic control, including hours of operation, shall be
addressed and shall include the following:
a. The operator shall provide and maintain in good
repair access roads at the facility. Such access
roads shall be paved to minimize dust and
designed and constructed so that traffic will flow
smoothly and will not be interrupted by inclement
weather.
b. The operator shall limit access to the facility to
such periods of time as an attendant is on duty
and to those persons authorized to use the facility.
c. The operator shall prominently post at the
entrance to the facility the hours of operation and
all limitations and conditions of access.
d. The operator shall provide suitable barrier or
fencing and gates to limit unauthorized persons
from access to the facility and for the gate to be
open only when an attendant or equipment
operator is on duty. The gate shall be closed and
locked at all other times.
e. The operator shall sweep and wash access roads
and facility operational areas whenever necessary
to control dust generation.
9. Operation Plan -Unloading and Containing
Emptying Procedure. The operator shall provide for
continuous supervised unloading of materials from
incoming vehicles and shall post appropriate signs or
other means to indicate clearly where incoming vehicles
are to unload by direction of the attendant or equipment
operator on duty. Such procedures shall be described in
the Operation Plan.
10. Operation Plan -Control of Wind blown Litter.
a. The operator shall have a detailed Litter Control
Program.
b. The operator shall take effective measures to
prevent the scattering of wind blown litter.
c. Wherever feasible, materials shall be unloaded,
processed, and stored indoors to prevent the wind
scattering of litter.
d. The operator shall provide for routine
maintenance and general cleanliness of the entire
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facility. Such provisions are to be detailed on the
engineering plans or written operating procedures.
11. Operation Plan -Screening and/or Fencing.
a. The Operation Plan shall contain provisions to
protect junk and recyclable materials from
precipitation runoff and wind scatter through
indoor unloading, processing, and storage
wherever feasible.
b. The facility shall be suitably screened by a
building, aesthetically inoffensive fencing,
landscaping, or other approved methods,to shield
adjoining properties from adverse impacts.
12. Operation Plan -Open Burning. No open burning
of any refuse, including brush,wood or diseased trees
shall be permitted at the facility at any time of the year.
13.Operation Plan -Solid Wastes,Special Wastes,
Hazardous Wastes,and Hazardous Materials
Recycling.
a. Solid, special, hazardous wastes and hazardous
materials shall not be received at the facility
except when approved in writing by the
Commission under such conditions as the
Commission may reasonably require. Approval
shall be requested within the Application for
Installation Permit or Operation Permit, as
applicable.
b. Provisions for the safe recovery and processing of
residual waste materials present in recyclable
materials shall be incorporated into the Operation
Plan (i.g.waste oil, gasoline, antifreeze, etc.from
car wrecks).
14. Operation Plan -Processing of Bulky
Recyclables and Other Special Recyclable Materials
a. If necessary to protect public health,the
Commission may specify the maximum size of
large, heavy, or bulky items to be accepted for
recycling at the facility and may prohibit altogether
the receipt, processing, and storage of certain
items.
b. If brush is accepted at the facility, provisions
should be made for the brush to be received in
bundles no larger in size than can be handled in
an acceptable and sanitary manner by the specific
equipment. Brush should not be allowed to
accumulate beyond forty-eight(48) hours after
deposition at the facility.
c. Approval to process bulky recyclables shall be
requested within the Application for Installation
Permit or Operation Permit, as applicable.
15. Operation Plan -Dust Control Planning
a. The operator shall provide a detailed Dust Control
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Program in the Operation Plan.
b. Wherever feasible, materials shall be unloaded,
processed, and stored indoors to prevent the wind
scattering of dust.
c. Facility operational areas shall be paved or
covered with material approved by the BPHC.
d. The operator shall undertake suitable and
effective measures to control dust at the site, the
access road, and any other areas related or under
control of the facility operator.
16. Operation Plan -Insect and Rodent Control and
Planning
a. The Operation Plan shall provide a detailed Insect
and Rodent Control Program which will cause
routine facility operations to be carried out
promptly in a systematic manner and shall provide
for preventative measures to maintain conditions
unfavorable for the production of insects and
rodents.
b. The Commission requires a routine program for
the control and elimination of insects and rodents
at the facility site. The operator shall cause
supplemental control measures, including but not
limited to the use of effective insecticides and
rodenticides, to be implemented when necessary.
c. The application of pesticides shall be made only
by a pesticide operator licensed by the
Massachusetts Pesticide Board.
d. The operator shall maintain the services of a
pesticide
17.Operation Plan -Accident Prevention Planning
a. All employees shall be instructed in the principles
of first aid and safety and in the specific
operational procedure necessary to prevent
accidents.
b. The operator shall provide and maintain adequate
first aid supplies at the site at all times.The
operator shall maintain written records of
employee training received.
16. Operation Plan -Supervision of Operation
a. The operator of the facility shall be under the
overall supervision and direction of an engineer or
other person qualified and experienced in
handling the types of materials and equipment
used at the facility.
b. The operator of the facility shall be knowledgeable
of these regulations,and of the general operating
procedure and plans as prescribed by the design
engineer.
c. The operator shall be required to demonstrate
familiarity and capability to operate equipment at
the facility.
19. Operation Plan -Operational Records and Plan
Execution. The facility operator shall maintain a daily
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Boston Public Health Commission Page 18 of 19
log to record operational information, including the type
and quantity of materials received, the equipment,
maintenance performed, personnel used, and any
deviations made from the approved plan and
specifications submitted to the Commission.
20. Operation Plan -Emergency Contingency Plan
a. An emergency contingency plan, approved by the
Commission, providing for an alternative disposal
method in the event of mechanical breakdown or
other cause preventing the normal operation of
the subject facility, shall be filed with the
Commission and implemented whenever needed
as conditions of health and public safety may
require. Whenever the emergency plan is
implemented the Commission shall immediately
be notified.
b. The Emergency Contingency Plan shall
incorporate Material Safety Data Sheets for all
hazardous materials at the facility.
c. The Emergency Contingency Plan shall establish
provisions for addressing foreseeable releases of
hazardous materials on site. Such provisions
shall comply with the Massachusetts Contingency
Plan, 310 CMR 40.000.
21. Operation Plan -Temporary Vehicle and
Container Layovers
The Operation Plan shall set forth procedures for
compliance with Regulation sec. 2.06(1), including but not
limited to specification of vehicle and container layovers,
their locations on site,their contents, the maximum
number allowed at any one time, the days of the week
on-site, the times of the day on-site, and the maximum
duration of layover.
22.Closure
a. The owner and/or operator shall notify the
Commission no later than six (6)months prior to
the date that the facility will stop accepting
materials.
b. Closure activities shall be carried out in
compliance with all applicable regulations and the
permit.
c. A facility shall be deemed closed on the date of
the Commission's written determination that the
closure of the facility has been completed in
accordance with the final closure plan.
d. An owner or operator of a proposed facility shall
prepare and submit to the Commission, as a part
of the permit application a written estimate,
unadjusted for time, inflation, return on invested
funds, or other purely financial factors, of the cost
of a third party closing. This estimate shall be
based upon the closure plans for the facility and
equal the cost of closing the facility at that point in
the facility's active life when the manner and
extent of its operations would make closure and
post closure most expensive.
Regulation on Waste Container Lot,Junkyard and
Recycling Facilities
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Page 1 of 3
Joanne Scott
From: Sharon Byrne Kishida [skishida@beverlyma.gov]
Sent: Tuesday, August 14, 2007 2:37 PM
To: Joanne Scott
Cc: Wayne Attridge; Julie Rose
Subject: Site assignments, conditions
Importance: High
Attachments: anti-idling law with penalties.doc; Engine idling fact sheet.doc
Joanne:
Site assignments, operating permits questions can be best be answered by checking in with Steve
Kerrigan NERO Solid Waste Section Chief(DEP Northeast Regional Office in Wilmington) at 978 694
3299. Wayne Attridge, as WE all know is another great resource and has hands on experience, so you
might make him your first call.
Here is my limited knowledge (again check with eitheriboth resources above) as well as some conditions
you might consider. (I also plan to ask colleagues for assistance on the latter)
Local BOH issues the site assignment, after which DEP issues the operating permit. Having said that
the DEP must first okay site suitability before municipality can issue site assignment. It is shared
authority.
Perhaps most relative to our discussion this am was a response to a recent hypothetical question I asked
about RESCO. DEP's response is italicized. It points up the importance of getting conditions into site
assignment.
If"asbestos laced" fill (my words ) is approved by the DEP as alternative daily cover(BUD - Best Use
Determination) for Wheelabrator Saugus' landfill, who has ultimate authority? Town or DEP?
The town has input and can add conditions to the site assignment restricting asbestos (for example) and
other materials, but if there are no exclusions in the site assignment, DEP could authorize.
Some initial thoughts on conditions
Anti-Idling conditions - see attached Massachusetts anti-idling law and Engine Idling Health Impacts
Fact Sheet (City can also request anti-idling items, including signs for the Transfer Station on the DEP
grant application).
Diesel Retrofit Requirement for existing trucks and off road equipment
here are links to 2 types of retrofit technologies fact sheets including health effects of diesel exhaust
www.epa/gov/otaq/retrofit/documents/f03016.pdf Diesel Oxidation Catalyst(DOC)
www.eua/ ovg /otaq/retrofit/documents/Ib3017.pdf Diesel Particulate Matter Filter (DPF)
Vendor will come to install the retrofits on vehicles and will educate on maintenance.
The benefits of diesel retrofit technology are in reducing exterior and in cab PM (particulate matter),
ozone precursors, and other pollutants. (see info below about a school bus retrofit program that
8/14/2007
Page 2 of 3
` is available to Mass municipalities. I have also sent to Julie Rose and asked her to
forward).
Engine warranty—follows CARB standards—doesn't negate warranty
Fuel issues: Ultra low sulfur diesel is available statewide due to new regulations that took effect
October 2006.
For more information, DEP contact is Susan Lyon 617 556 1101
Massachusetts Diesel School Bus Retrofit Program (please forward to appropriate person)
• On December 18, 2006, EOT (Exec Office of Transportation) agreed to fund $18
million to reduce air pollution from public school buses to offset pollution from the Big Dig.
Goal: Retrofit all eligible school buses in Massachusetts by fall 2010.
Benefits: Decrease exterior and in-cabin PM pollution and reduce negative health
impacts to children.
School bus retrofits available through a rebate process on a rolling first-come, first-
served basis.
• Program available to municipalities who own/operate school buses and school bus
contractors.
Targeting fall 2007 to roll out program and begin retrofit installations.
Contact Richard Blanchet at 617.654-6585 for more information on school bus
retrofits.
Other conditions:
You might also request that he accept items not accepted as part of your
curbside collection (I am assuming with this new contract he will be open to
anyone, not just Salem residents, correct?) So, for example, you could require
that he accept and RECYCLE tires, propane tanks and/or that he would accept
for free all "illegally dumped tires / propane tanks that municipal crews have
picked up around the city.
require that he offer free drop off recycling of paper and glass, metal and
plastics 1-7 containers (scrap metal - no freon) and maybe share in the revenue
from sale of paper and scrap metal
require that he provide monthly tonnage reports of all items accepted
(preferably accompanied with weight slips)
I hope this is helpful and in time for your meeting tonight. I will continue to
work on this; please let me know if you need help in the interim or have any
questions / corrections on the above.
sharon
8/14/2007
Page 3 of 3
Sharon Byrne Kishida
Regional Recycling Coordinator
DEP Northeast District 2
Email: skishida@beverlyma.gov
tel (978) 921-83oo ext. 4
fax (978) 921-6118
NEW! Direct line: (978) 605 2409
8/14/2007
Risk Reduction Plan to Reduce
Particulate Matter Emissions from
Diesel-Fueled Engines and Vehicles
� i
California Environmental Protection Agency
0= Air Resources Board
Stationary Source Division
Mobile Source Control Division
October 2000
Prepared by
Stationary Source Division
Mobile Source Control Division
Contributors
Compliance Division
Mobile Source Operations Division
Planning and Technical Support Division
Research Division
Office of Environmental Health Hazard Assessment
Acknowledgements:
In appreciation of their participation, the Air Resources Board staff extends its
appreciation to the members of the Advisory Committee, Risk Management
Subcommittee, Stationary Source Subcommittee, Mobile Source Subcommittee, and
Fuels Subcommittee.
TABLE OF CONTENTS
Contents Page
I. Executive Summary..............................................................................................1
II. Background...........................................................................................................3
A. How is this report structured?.....................................................................4
B. What does this report contain and how was it developed? ........................5
III. Diesel-Fueled Engines: Definition and Uses........................................................6
A. How is "diesel-fueled engine" defined? ......................................................6
B. What categories of diesel-fueled engines and vehicles
were evaluated in this report?....................................................................6
C. What are mobile engines? .........................................................................8
D. What are stationary engines?.....................................................................8
IV. Summary of Existing and Proposed Regulations..................................................9
A. What current federal, state, or local regulations address diesel PM
emissions from mobile diesel-fueled engines?...........................................9
B. What current federal, state, or local regulations address diesel PM
emissions from stationary and portable diesel-fueled engines?...............10
C. What current federal, state or local regulations address diesel fuel
formulation? .............................................................................................10
V. Emission Inventory and Risk...............................................................................11
A. What are the estimated diesel PM emissions for
1990, 2000, 2010, and 2020? .................................................................. 11
B. What are the estimated statewide potential cancer risks
associated with diesel PM emissions?..................................................... 13
C. How much of the estimated statewide potential cancer risk
level from air toxics is due to diesel PM emissions? ................................15
D. What are the potential cancer risks associated with some
typical activities where diesel-fueled engines are used?.......................... 16
VI. Control Technology and Fuel Options................................................................. 19
A. Has ARB identified control technology options that can further
reduce diesel PM emissions from diesel-fueled engines and vehicles?... 19
B. What are the costs associated with the control technology options? .......20
VII. Alternative Technologies.....................................................................................22
A. What alternatives to diesel-fueled engines and vehicles exist
today that would result in lower diesel PM emissions? ............................22
TABLE OF CONTENTS (cont.)
Contents Page
VIII. Staffs Recommendation.....................................................................................23
A. What measures does ARB recommend be developed to further
reduce diesel PM emissions from mobile diesel-fueled engines
andvehicles?...........................................................................................24
B. What measures does ARB recommend be developed to further
reduce diesel PM emissions from stationary and off-road portable
diesel-fueled engines? .............................................................................27
C. What measures does ARB recommended regarding diesel fuel
reformulation?..........................................................................................30
D. What impact will the recommended measures have on diesel PM
emissions and risk?..................................................................................31
E. What other expected benefits are associated with implementing
the recommended measures ?.................................................................33
F. What possible adverse impacts may be associated with the
recommended measures?........................................................................33
G. What actions should the U.S. EPA pursue to support the
ARB staffs recommended measures?.....................................................33
Appendix I: Glossary of Terms and Acronyms
Appendix ll: Stationary and Portable Diesel-Fueled Engines: Appendix to the Diesel
Risk Reduction Plan, September 2000
Appendix III: Mobile Diesel-Fueled Engines: Appendix to the Diesel Risk Reduction
Plan, September 2000
Appendix IV: Fuels Report: Appendix to the Diesel Risk Reduction Plan,
September 2000
Appendix V: Summary of Existing Regulations
Appendix VI: Methodology for Estimating the Ambient Concentrations of Particulate
Matter from Diesel-Fueled Engines and Vehicles
Appendix VII: Risk Characterization Scenarios
Appendix VIII: Health and Safety Code Section 39665
Appendix IX: Diesel PM Control Technologies
iii
I. EXECUTIVE SUMMARY
Particulate matter emissions from diesel-fueled vehicles and engines are about
28,000 tons per year in California. These emissions come from a wide variety of
sources including over one million on-road and off-road vehicles, about
16,000 stationary engines, and close to 50,000 portable engines. On-road engines
account for about 27 percent of the emissions, off-road engines about 66 percent, with
the remaining 7 percent from stationary and portable engines. With full implementation
of the current vehicle standards on the books and vehicle turnover, diesel particulate
matter (diesel PM) will still be about 22,000 tons per year in 2010 and about 19,000 tons
per year in 2020.
In 1998, following an exhaustive 10-year scientific assessment process, the Air
Resources Board (ARB or Board) identified particulate matter from diesel-fueled
engines as a toxic air contaminant (TAC). On a statewide basis, the average potential
cancer risk associated with these emissions is over 500 potential cases per million. In
the South Coast Air Basin, the potential risk associated with diesel PM emissions is
estimated to be 1,000 per million people. Compared to other air toxics the Board has
identified and controlled, diesel PM emissions are estimated to be responsible for about
70 percent of the total ambient air toxics risk. In addition to these general risks, diesel
PM can also present elevated localized or near-source exposures. Depending on the
activity and nearness to receptors, these potential risks can range from small to 1,500
per million or more. As a result of this significant potential risk, when the Board
identified diesel PM as a TAC, it directed staff to convene an advisory committee of
interested parties to engage in a dialogue on the steps that can be taken to reduce
these emissions.
This plan, the Diesel Risk Reduction Plan or Diesel RRP, represents the staffs
proposal for a comprehensive plan to significantly reduce diesel PM emissions. The
basic premise behind the staff proposal is simple: to require all new diesel-fueled
vehicles and engines to use state-of-the-art catalyzed diesel particulate filters (DPFs)
and very low-sulfur diesel fuel. Further, all existing vehicles and engines should be
evaluated, and wherever technically feasible and cost-effective, retrofitted with DPFs.
As with new engines, very low-sulfur diesel fuel should be used by retrofitted vehicles
and engines. In short, the staffs proposed plan contains the following
three components:
1. New regulatory standards for all new on-road, off-road, and stationary
diesel-fueled engines and vehicles to reduce diesel PM emissions by
about 90 percent overall from current levels;
2. New retrofit requirements for existing on-road, off-road, and stationary
diesel-fueled engines and vehicles where determined to be technically
feasible and cost-effective; and
1
3. New Phase 2 diesel fuel regulations to reduce the sulfur content levels of
diesel fuel to no more than 15 ppm to provide the quality of diesel fuel
needed by the advanced diesel PM emission controls.
Diesel PM filter control technology is now available and has been demonstrated
in over 40,000 applications worldwide. It is staffs vision that well before the end of this
decade these filters will become as commonplace on diesel-fueled engines as catalysts
are now on gasoline-fueled vehicles.
Upon the Board's approval of this comprehensive plan with its various control
measures, staff will begin the full regulatory process to develop the actual regulations
envisioned by this plan. During the regulatory development process, the details
associated with each specific regulation will be fully developed. Over the next several
years, staff will be developing these regulations and bringing them to the Board for
consideration of adoption. To assist staff in evaluating retrofit applications and provide
technical advice to staff, the Board created an Advisory Committee on Toxic Air
Contaminant Emissions from Diesel-Fueled Engines and Vehicles.
While the principal focus of this plan is the reduction in emissions of diesel PM,
staff are well aware that there are a number of viable alternative technologies, such as
compressed natural gas and electrification that in many cases could be used to
accomplish the same results. It is staffs full intent, as it develops the regulations
proposed in this plan, to fully explore and engage in dialogue with interested parties
concerning opportunities for using these alternatives to reduce diesel PM emissions.
The projected emission benefits associated with the full implementation of this
plan, including proposed federal measures, are reductions in diesel PM emissions and
associated cancer risks of 75 percent by 2010 and 85 percent by 2020. The measures
recommended in this plan will have a great impact on reducing the localized risks
associated with activities that expose nearby individuals to diesel PM emissions.
Further, there are other benefits associated with reducing diesel PM emissions. These
include reduced ambient fine particulate matter levels, increased visibility, less material
damage due to soiling of surfaces, and reduced incidences of noncancer health effects,
such as bronchitis and asthma. Staff expects that the costs associated with carrying out
this plan will be significant and will be on the order of the costs associated with other
major ARB programs.
2
II. BACKGROUND
The public's exposure to TACs is a significant public health issue in California. In
1983, the California Legislature enacted a program to identify the health effects of TACs
and to reduce exposure to these contaminants to protect the public health (Assembly
Bill (AB) 1807: Health and Safety Code sections 39650-39674). The Legislature
established a two-step process to address the potential health effects from TACs. The
first step is the risk assessment (or identification) phase. The second step is the risk
management (or control) phase of the process.
In August 1998, the ARB identified diesel PM as a TAC, following a 10-year
review process. This marked the completion of the identification phase of the process
to address the potential for adverse health effects associated with diesel PM emissions.
This Diesel RRP is the first formal product of the risk management phase of the
AB 1807 process. This report presents information that identifies the available options
to reduce diesel PM, and identifies recommended control measures to achieve further
reductions. The recommended control measures would be developed as mobile source
regulations or stationary source airborne toxic control measures (ATCMs).
The next step in the AB 1807 process, following approval of this plan by the
Board, is the development of the specific ATCMs and fuel or vehicular emissions
regulations designed to reduce diesel PM emissions. The goal of each regulation is to
reduce diesel PM to the greatest extent feasible. These regulations must be technically
feasible and be cost-effective, and they will provide an opportunity to address issues
associated with the application of controls on a specific source categories. In
developing rules to implement the Diesel RRP, the staff will consider the availability and
cost of engine modifications, add-on control technology, changes in fuel parameters,
alternative fuels, and alternative methods of performing the function of the diesel engine
application. Thus, although most of the Board's regulatory activities are expected to be
focused on emission controls that can be added to or built into diesel-fueled engines,
staff will also fully integrate alternative "non-diesel" technologies (e.g., electrification and
compressed natural gas (CNG)) as possible control options for reducing diesel PM
emissions.
ARB staff will develop the ATCMs and regulations with full public involvement
and dialogue through public workshops and meetings with groups and individuals. Draft
versions of the ATCMs and regulations will be presented to the public for review and
comment, and final draft versions will be presented to the Board for approval.
Public outreach is an essential element in the development of any ATCM or regulation
to ensure that all affected and interested parties have full opportunity to provide input
and shape rules that are both effective and workable.
As part of the identification process, the Office of Environmental Health Hazard
Assessment (OEHHA) evaluated the potential for diesel exhaust to affect human health.
The OEHHA found that exposures to diesel PM resulted in an increased risk of cancer
and an increase in chronic noncancer health effects including a greater incidence of
3
cough, labored breathing, chest tightness, wheezing, and bronchitis. The OEHHA
estimated that based upon available studies, the potential cancer risk from exposure to
diesel PM in concentrations of one microgram per cubic meter ranged from 130 to
2400 excess cancers per million. The Scientific Review Panel (SRP) approved the
OEHHA's determinations concerning health effects and approved the range of risk for
particulate matter from diesel-fueled engines. The SRP concluded that a value of
300 excess cancers per million people, per microgram per cubic meter of diesel PM,
was appropriate as a point estimate of unit risk for diesel PM.
The OEHHA also concluded that exposure to diesel PM in concentrations
exceeding 5 micrograms per cubic meter can result in a number of long-term (chronic)
noncancer health effects including greater incidence of cough, phlegm, and bronchitis.
The 5 microgram per cubic meter value is referred to as the Chronic Reference
Exposure Value (REL) for diesel PM. The SRP supported the OEHHA's conclusion and
noted that the REL may need to be lowered further as more data emerge on potential
adverse noncancer effects of diesel PM.
As part of its formal identification of diesel PM as a TAC, the Board accepted the
OEHHA and SRP's conclusions and directed the ARB staff to begin the risk
management process. The staff was directed to develop control measures to reduce
both diesel PM and other potentially harmful pollutants. The staff was also directed to
form a diesel risk management working group to advise the staff during its risk
management efforts. This working group, the Advisory Committee and subcommittees,
are discussed in Section B., below.
A. How is this report structured?
This report consists of a main report and appendices that summarize and discuss
the proposed Diesel RRP to reduce emissions, exposure, and potential cancer risk
associated with particulate matter from diesel-fueled engines.
The main report provides the following information:
♦ defines the term "diesel-fueled engine" and identifies the categories of
diesel-fueled engines and vehicles evaluated in this report;
♦ summarizes current regulations that address diesel PM emissions from
diesel-fueled engines and vehicles;
♦ presents diesel PM emission inventory estimates, estimated ambient
concentrations, and associated potential cancer risk information for the years
1990, 2000, 2010, and 2020;
♦ presents current near-source diesel PM emissions exposure and potential
cancer risk estimates;
♦ discusses available diesel PM emissions control technology options;
♦ present's ARB staffs recommendation, based upon the above information, to
further control particulate matter emissions from diesel-fueled engines and
vehicles;
4
♦ estimates the reduction in diesel PM emissions, exposure, and risk by 2010
and 2020 that could be achieved if all recommended measures were
implemented; and
♦ recommends specific measures to be developed to further reduce diesel PM
emissions from diesel-fueled engines and vehicles.
Appendix I is a list of terms, definitions and acronyms used in both the main
report and appendices. Appendix II is a report on the need for further regulation of
stationary and portable diesel-fueled engines. Appendix III is a report on the need for
further regulation of mobile on-and off-road diesel-fueled engines (excluding portable
equipment, which is addressed in Appendix II). Appendix IV is a report on the need for
further regulation of diesel fuel. Appendix V is a summary of existing regulations
addressing diesel-fueled engines, vehicles, and diesel fuel. Appendix VI is a discussion
of the methodology for estimating the ambient concentrations of diesel PM emissions
from diesel-fueled engines and vehicles. Appendix VII is a discussion of the potential
risks associated with typical activities where diesel-fueled engines and vehicles are
used (risk characterization scenarios). Appendix VIII is Health and Safety Code
Section 39665, which identifies the requirements this report must meet. Appendix IX is
a discussion of diesel PM control technologies.
B. What does this report contain and how was it developed?
In accordance with California Health and Safety Code Section 39665 (see
Appendix VIII), this report includes the following information:
♦ number (population) and categories of diesel-fueled engines and vehicles;
♦ consideration of all past and current measures for reducing diesel PM;
♦ emissions and associated ambient and near-source potential risk levels for
diesel PM;
♦ available technologies for reducing diesel PM;
♦ initial estimates for the costs of reducing diesel PM;
♦ alternative methods of emission reductions;
♦ recommended measures to be developed to reduce emissions and potential
risk;
♦ potential adverse health, safety, or environmental impacts from
implementation of the recommended measures; and
♦ impact of the recommended measures on diesel PM emissions and potential
risk.
While the above items are addressed in this plan, staff will further refine and
update this information as it develops the various control measures identified in this
plan.
To ensure full opportunity for public consultation and input in developing this
report, an Advisory Committee was created to serve as a forum for on-going
communication, cooperation, and coordination in identifying opportunities to reduce
5
diesel PM emissions. The Advisory Committee consists of the Stationary Source,
Fuels, Mobile Source/Alternative Strategies, and Risk Management subcommittees.
The Advisory Committee and each of the four subcommittees include representatives
from industry, local districts, environmental organizations, ARB, the United States
Environmental Protection Agency (U.S. EPA), and the public.
ARB staff presented a draft of this document to each of the four subcommittees
and the Advisory Committee for review and comment. All comments were considered
and the draft report was revised in a number of ways to reflect these comments.
III. DIESEL-FUELED ENGINES: DEFINITION AND USES
A. How is "diesel-fueled engine" defined?
For purposes of this report, a diesel-fueled engine is defined as any internal
combustion, compression-ignition (diesel-cycle) engine. It is generally assumed that the
engine will be using diesel fuel. However, diesel-cycle engines using alternative fuels or
fuel reformulation (e.g., jet fuel, biodiesel, CNG, and diesel/water mixtures) will also be
addressed during the development of each specific ATCM or regulation.
B. What categories of diesel-fueled engines and vehicles were evaluated in
this report?
Staffs goal in this plan was to address all diesel-fueled engines in California.
Figure 1 identifies the specific categories of diesel-fueled engines and vehicles
evaluated in this report. The following paragraphs provide a brief description of each
category. Detailed descriptions can be found in Appendix II for Stationary Engines and
in Appendix III for Mobile Engines.
6
Figure 1: Diesel-Fueled Engines and Vehicle Categories
Cars
On-Road Trucks
Buses
Mobile ,
Vehicles&
Equipment
aDiesel Engines =ortible
�4
Prime Engines
Stationary
\ Emergency/
Standby
7
C. What are mobile engines?
Mobile engines can be divided into two categories: on-road vehicles and off-road
engines and vehicles.
On-Road Vehicles: Diesel-fueled engines are used in every category of on-road
vehicles except motorcycles, and include light to heavy-duty trucks, school buses, urban
buses, and passengers vehicles. In California, the majority of on-road diesel-fueled
engines are found in the heavy-duty vehicles with a gross vehicle weight rating (GVWR)
greater than 14,000 pounds. There are approximately 700,000 on-road diesel-fueled
vehicles currently in use in California.
Off-Road Engines and vehicles: Diesel-fueled off-road engines comprise over
100 individual off-road vehicle and equipment types classified into 17 equipment
categories. Engine sizes range from under 15 horsepower to over 10,000 horsepower.
These equipment categories include agriculture, airport ground support, construction
and mining, commercial, industrial, logging, transportation refrigeration units, lawn and
garden, commercial marine vessels, pleasure craft, and locomotives. Many of the
off-road categories contain equipment types that are classified as portable (equipment
of 25 horsepower or greater that is designed and capable of being carried or moved
from one location to another). There are approximately 550,000 off-road diesel-fueled
engines and vehicles currently in use in California. A more detailed breakdown is
presented in Appendix III.
D. What are stationary engines?
Stationary engines can be divided into two categories: emergency/standby
engines and prime engines.
Emergency/standby engine: Emergency/standby engines are typically used for
emergency back-up electric power generation or the emergency pumping of water.
Sizes range from 50 to 6,000 horsepower, depending on the needs of the user. There
are over 11,000 diesel-fueled emergency/standby engines in use in California.
Emergency/standby engines make up about 70 percent of the total number of stationary
engines throughout the State. Several local air pollution control and air quality
management districts (districts) have rules that regulate NOx and CO emissions, but not
PM from internal combustion engines. However, some districts currently exempt
emergency/standby engines from complying with these requirements.
Prime Engines: Prime engines are stationary engines that are not used in an
emergency back-up or standby mode. There are approximately 5,000 diesel-fueled
prime engines currently in use in California. Examples include diesel-fueled engines
that are used to power compressors, cranes, generators, pumps, and grinders. Prime
engines make up about 30 percent of the total stationary engine inventory throughout
the State.
8
Of the prime engines operating throughout the State, about 70 percent are agricultural
irrigation pump engines.
IV. SUMMARY OF EXISTING AND PROPOSED REGULATIONS
The ARB has the responsibility for control of emissions from mobile sources.
The local air districts have the primary responsibility for control of air pollution for all
sources, other than emissions for mobile sources. State law, however, provides the
South Coast AQMD with the authority to require fleets of 15 or more vehicles to
purchase clean vehicles when adding or replacing vehicles, authority which they have
recently exercised.
There are certain categories of mobile sources, however, for which ARB lacks
direct authority to regulate. The federal Clean Air Act Amendments of 1990 (CAA)
preempt state and local authorities from the control of emissions from new farm and
construction equipment under 175 horsepower and from new locomotives or locomotive
engines (CAA Section 209(e)(1)(A)); only the U.S. EPA has the authority to establish
emission standards for those engines. In addition, heavy-duty diesel vehicles that travel
in California but are registered in other states are subject only to federal emission
certification standards; these vehicles contribute approximately 25 percent of the heavy
heavy-duty vehicle-miles-traveled in California.
The CAA also requires California to receive authorization from the U.S. EPA for
controls over on-road (CAA Section 209(b)(1)) and the non-preempted off-road sources
(CAA section 209(e)(2)(A)). Overall these provisions make the U.S. EPA an important
partner in control of emissions from diesel engines.
The following sections briefly describe the existing federal, state, and local
programs that currently apply to diesel-fueled engines and vehicles operating in
California. A more detailed summary of the statutes and regulations may be found in
the tables in Appendix V.
A. What current federal, state, or local regulations address diesel PM
emissions from mobile diesel-fueled engines?
Virtually all new diesel-fueled on-road and off-road motor engines and vehicles
sold in California are required to meet both federal and state emission certification
requirements. Preempted engines, as noted above, must meet only the federal
requirements. In most cases, California's motor vehicle and diesel-fueled engine
programs are designed to be consistent with the federal programs. To ensure the
on-road engines continue to have functional controls and proper maintenance,
California has implemented Heavy-Duty Vehicle Inspection and Periodic Smoke
Inspection Programs to reduce excessive smoke emissions and tampering with on-road
diesel-fueled vehicles over 6,000 pounds gross vehicular weight for both in-state and
out-of-state registered heavy-duty diesel vehicles. Non-regulatory strategies, which
9
include incentives and voluntary agreements with vehicle and engine manufacturers,
have also been implemented in California to accelerate reductions in certain criteria
pollutants.
B. What current federal, state, or local regulations address diesel PM
emissions from stationary and portable diesel-fueled engines?
In California, the local air pollution control and air quality management districts
(Districts) establish rules and regulations for controlling emissions from new and
existing stationary sources of air contaminants. These rules and regulations address
both criteria and toxic air contaminant emissions.
District preconstruction and operating permit programs implement the local,
State, and federal air pollution control requirements applicable to new or modified
sources of air pollution. Larger new or modified sources located in a nonattainment
area must apply the Lowest Achievable Emission Rate control technology to minimize
emissions, and they must "offset" the remaining emissions with reductions from other
sources when appropriate. A new or modifying source located in an attainment or
unclassified area must apply the Best Available Control Technology and meet additional
requirements aimed at maintaining the region's clean air. In addition, "major sources" of
air pollution must obtain federal Title V operating permits that govern continuing
operation.
Many Districts have also adopted, pursuant to the California Health and Safety
Code, Reasonably Available Control Technology/Best Available Retrofit Control
Technology requirements that apply to existing sources located in nonattainment,
attainment, and unclassified areas. These requirements are also implemented through
the district's permit program.
Pursuant to State law, the ARB has established the Portable Equipment
Registration Program (PERP) which is a voluntary program for the registration and
regulation of portable engines and associated equipment. Several Districts have
implemented similar registration programs. Portable equipment not registered through
the ARB or a local district may be subject to District stationary source permit
requirements, depending on the size of the engine. In addition, the U.S. EPA and ARB
have established engine certification standards for new off-road engines (of which
portable engines are a subset). These engines are available for use in portable
equipment.
C. What current federal, state or local regulations address diesel fuel
formulation?
Current federal U.S. EPA regulations establish fuel registration and formulation
requirements. All diesel fuels and all additives for on-road motor vehicles are required
to be registered with the U.S. EPA. The ARB has established California fuel formulation
requirements, applicable to all motor vehicles, that either meet or exceed existing
10
t
federal formulation requirements. In addition, ASTM D 975 specifies standards which
diesel fuels should meet to ensure safety, reliability, and performance. Generally,
alternative diesel fuels do not meet all of the ASTM specifications.
Since 1993, the sulfur content limit of California diesel (as well as diesel fuel sold
to on-road vehicles nationwide) has been set at a maximum 500 parts per million by
weight (ppmw). However, the average sulfur content of complying fuel formulations
currently being sold in California is about 140 ppmw.' Further, California's diesel fuel
specifications include an aromatics limit and the fuel specifications apply to both
on-road and off-road vehicles (EPA's fuel sulfur requirements only apply to on-road
vehicles). Although stationary engines are not required to use fuel that meets California
Air Resources Board diesel (GARB diesel) formulation requirements, virtually all use
complying fuel because of California's single fuel distribution network. Also, under state
law, districts have the authority to establish formulation requirements for fuels to be
used in stationary engines. To date, several districts have established diesel-fueled
engine best available control technology requirements specifying the use of CARB
diesel. Portable engines registered under ARB's Statewide Portable Equipment
Registration program are required to use CARB diesel. Beginning July 1, 2002,
medium and larger transit agencies must use diesel fuel with a sulfur content no greater
than 15 ppmw in all diesel buses.
V. EMISSION INVENTORY AND RISK
This section summarizes the statewide diesel PM emissions inventory from
diesel-fueled engines and provides ambient and near-source potential cancer risk
estimates for those emissions. A detailed description of how the inventory, ambient
concentration, and ambient risk values listed in Tables 1 through 5 of this chapter were
determined is presented in Appendix VI.
A. What are the estimated diesel particulate matter emissions for 1990, 2000,
2010, and 2020?
Table 1 lists the estimates for the statewide diesel PM emissions inventory from
diesel-fueled engines and vehicles for 1990. Tables 2, 3, and 4 provide similar
estimates for 2000, 2010, and 2020. The relative contribution of the major
subcategories of engines and vehicles that comprise the stationary and mobile
categories are also shown. All tables take into account growth in engines due to
population and economic growth and emission reductions due to both federal and state
regulations in effect at the time of the inventory estimate. These estimates do not
include proposed recommended measures discussed in Chapter Vlll, including the
recently proposed 2007 federal on-road and diesel fuel standards.
141 ppmw is the volume-weighted average determined by the California Energy Commission's
1997 California refiner survey. (See Appendix IV.)
11
Table 1: Estimated Statewide Diesel PM Emissions Inventory —
Diesel-Fueled Engines and Vehicles (1990)
of Total
Engine Diesel PM Diesel PM
Category Population (tons per year) Emissions
STATIONARY
Prime 4,6001 4001 0.9
Emergency Stand-by 1 10,2001 1241 0.3
MOBILE
On-road 606,700 18,400 39.7
Off-road (Excluding Portable Equipment) 476,300 25,300 54.5
Portable 47,600 2,200 4.7
TOTAL 1,145,300 46,400 100.0
Table 2: Estimated Statewide Diesel PM Emissions Inventory —
Diesel-Fueled Engines and Vehicles (2000)
%of Total
Engine Diesel PM Diesel PM
Category Population (tons per year) Emissions
STATIONARY
Prime 4,8001 420 1.5
Emergency Stand-by 11,3001 1381 0.5
MOBILE
On-road 687,200 7,500 26.8
Off-road (Excluding Portable Equipment) 498,200 18,500 66.1
Portable 49,200 1,400 5.0
TOTAL 1,250,700 28,000 100.0
Table 3: Estimated Statewide Diesel PM Emissions Inventory —
Diesel-Fueled Engines and Vehicles (2010)
%of Total
Engine Diesel PM Diesel PM
Category Population (tons er ear) Emissions
STATIONARY
Prime 4,400 360 1.6
Emergency/Standby 12,300 143 0.6
MOBILE
On-road 643,900 5,2001 22.9
Off-road (Excluding Portable Equipment) 521,300 15,900 70.0
Portable 53,600 1,1001 4.9
TOTAL 1,235,500 22,7001 100.0
12
Table 4: Estimated Statewide Diesel PM Emissions Inventory —
Diesel-Fueled Engines and Vehicles (2020)
%of Total
Engine Diesel PM Diesel PM
Category Population tons per ear Emissions
STATIONARY
Prime 4,400 350 1.9
Emergency/Standby 13,200 149 0.8
MOBILE
On-road 610,200 4,9001 26.0
Off-road (Excluding Portable Equipment) 527,800 12,8001 67.9
Portable 55,200 6601 3.5
TOTAL 1,210,800 18,9001 100.0
The current inventory of diesel PM emissions in Table 2 shows that there are
about 28,000 tons per year of diesel PM that can potentially be reduced from a variety
of sources. The inventory also shows that the sources are numerous, with over
1.25 million diesel-fueled engines operating statewide. Comparing the statewide diesel
PM emissions in Table 1 (1990) and Table 2 (2000), shows that significant progress has
been made to reduce diesel PM emissions in California.
The bulk of the 30 percent decrease in diesel PM emissions from 2000 to 2020 is
due to currently adopted on-road standards and fleet turn-over as new vehicles with
controls replace older vehicles with little or far less effective controls. Proposed federal
standards for diesel-fueled engines are not considered in this inventory, but would
reduce total diesel PM in California by approximately 3,500 tons per year (or an
additional 15 percent when compared to year 2000 emissions) in 2020. Some reduction
in diesel PM emissions is due to a slight decrease in the on-road engine population.
B. What are the estimated statewide potential cancer risks associated with
diesel PM emissions?
Table 5 lists the estimates for the statewide population-weighted annual outdoor
average diesel PM concentrations and corresponding percent change in the
concentration for the years 1990, 2000, 2010, and 2020 resulting from diesel PM
emissions. These estimates are based on the emission inventory estimates presented
in Tables 1 through 4.
The Proposed Identification of Diesel Exhaust as a Toxic Air Contaminant
Appendix III, Part A, Exposure Assessmen (ID Report) reported the statewide
population—weighted annual outdoor average diesel PM concentration as 3.0 µg/m3 for
1990. The ARB staff reviewed studies conducted in the San Joaquin Valley, the South
2 As approved by the Scientific Review Panel on April 22, 1998.
13
Coast Air Basin, and the city of San Jose to obtain more complete PM,o ambient data.
These data, along with routinely collected ambient PMto monitoring network data and
the 1990 PM,Oemissions inventory, were used in a receptor model to estimate the
statewide outdoor concentration of diesel PM in 1990.
We estimated the statewide outdoor concentration of diesel PM for 1990, 2000,
2010, and 2020 by assuming that the ambient concentration is proportional (linearly) to
the statewide emissions. The ratio of the ambient concentration to statewide emissions
was assumed to remain constant for the years 1990, 2000, 2010, and 2020. For 1990,
this ratio was determined by using the ambient concentration from the ID report
(3.0 µg/m3) and the statewide emission estimate for 1990 from Table 1 (46,400 TPY).
Using the 1990 ratio and the statewide emissions estimates for 2000, 2010, and 2020
from Tables 2, 3, and 4, the ambient concentration estimates for 2000, 2010, and 2020
were estimated. These are presented in Table 5.
Table 5: Statewide Population-Weighted Annual Outdoor
Average Diesel PM Concentration for 1990, 2000,
2010, and 2020
1990 2000 2010 2020
Concentration /m3 3.0 1.8 1.5 1.2
Percent Reduction in
Diesel PM from 1990 N/A 40% 50% 60%
Concentration
The ID Report provided estimates of indoor and total exposure to diesel PM.
Applying the 1990 ratio to the estimated population-weighted annual outdoor average
diesel PM concentrations for 2000, 2010, and 2020 results in the following indoor
exposure estimates, respectively: 1.2 g/m3, 1.0 iu/m3, and 0.8 µ/m3. Total exposure
estimates for 2000, 2010, and 2020 are 1.3 lu/m3, 1.1 g/m3, and 0.84 µ/m3. The
potential risk was estimated by multiplying the statewide ambient concentration by the
unit risk factor of 300 excess cancers per million people per microgram per cubic meter
of diesel PM.3 This information, along with the estimated potential cancer risk values, is
summarized in Table 6.
3 The full range of unit risk factors identified by the SRP is 130 to 2400 excess cancers per million per
microgram per cubic meter of diesel particulate matter. The 300 value was recommended by the
SRP for use as a point estimate of the unit risk.
14
Table 6: Estimated Exposure of Californians to Diesel PM for 2000, 2010
and 2020
Estimated 1990 ;1.
ated Average Air Exposure Concentration
Average Air Ratio (µg/m')and Potential Risk
Exposure (excess cancers/million
Concentration 00 2010 2020
—1990 µg/m' Risk Conc. Risk Conc. Risk
Outdoor
Ambient 3.0 540 1.5 450 1.2 360
Estimate
Total Indoor
Exposure 2.0 2.0/3.0 1.2 360 1.0 300 0.8 240
Estimate
Total
Exposure 2.1 2.1/3.0 1.26 380 1.05 315 0.84 252
Estimate
C. How much of the estimated statewide potential cancer risk level from air
toxics is due to diesel PM emissions?
To provide a perspective on the contribution that diesel PM has on the overall
statewide average ambient air toxics potential cancer risk, ARB staff evaluated risks
from other compounds using data from ARB's ambient monitoring network. ARB
maintains a 21 site air toxics monitoring network which measures outdoor ambient
concentration levels for approximately 60 air toxics.
Table 7 shows the potential cancer risk from the top ten inhalation risk
contributors that the State of California has identified as TACs and routinely monitors.
The diesel PM values are calculated based on the procedure discussed in the previous
section. The risk values for the other compounds are based on the annual average
concentration (determined from ambient monitoring) multiplied by the unit risk factor for
each compound. Table 7 also shows that for the top ten risk contributors, diesel PM
contributes over 70 percent of the state estimated potential cancer risk levels.
15
Table 7: Estimated Statewide Average Potential Cancer Risk from
Outdoor Ambient Levels of Air Toxics for the year 2000
Potential Cancer Risk',' Percent Contribution to
Compound Excess Cancers/Million Total Risk
Diesel Exhaust Min 540 71.2
1,3-Butadiene 74 9.8
Benzene 57 7.5
Carbon Tetrachloride 30 4.0
Formaldehyde 19 2.5
Hexavalent Chromium 17 2.2
para-Dichlorobenzene 9 1.2
Acetaldehyde 5 0.7
Perch loroeth lene 5 0.7
Methylene Chloride 2 0.3
TOTAL 758 100
1. Diesel exhaust PM,u potential cancer risk based on 2000 emission inventory estimates presented in Table 5. All other
potential cancer risks based on air toxics network data. Used 1997 data for para-Dichlorobenzene. Used 1998
monitoring data for all others.
2. Assumes measured concentrations are equivalent to annual average concentrations and duration of exposure is
70 years,inhalation pathway only.
The South Coast Air Quality Management District also conducted a study of air
toxics in the South Coast Air Basin (Multiple Air Toxics Exposure Study II (MATES-II)) in
1998 and 1999. The MATES-II study estimated that the average basin wide potential
cancer risk from diesel PM was about 1,000 excess cancers per million, or 71 percent of
the average cancer risk from all air toxics in the South Coast Air Basin.
ARB staffs findings are consistent with the MATES-II study in that diesel PM is a
major contributor to potential ambient risk levels and accounts for approximately 70
percent of the ambient air toxics cancer risk. Our analysis also indicates that average
ambient concentrations of air toxics are higher in the South Coast Air Basin than
elsewhere in the state, resulting in higher estimates of risk for residents of that air basin.
Staff concludes that reducing the risk from diesel PM is an essential element in reducing
the public's overall ambient exposure to air toxics.
D. What are the potential cancer risks associated with some typical activities
where diesel-fueled engines are used?
ARB staff estimated the range of potential cancer risks from seven common
activities or situations to determine if the concentrated operation of diesel-fueled
engines could expose nearby individuals to locally elevated diesel PM concentrations
higher than average regional concentrations. The specific situations investigated
included idling school buses, truck stops, freeways, emergency and standby diesel
engine operations, prime engine operations, and warehouse distribution center
operations. Figure 2 shows the range of potential cancer risk, above background levels,
estimated for each type of activity. The risk estimate for each activity does not account
for the risk from any other diesel-fueled engines or vehicles and assumes a 70-year, or
lifetime, exposure. For more detailed information regarding each activity and the
methodology used to derive the estimates, see Appendix VII.
16
Figure 2: Potential Cancer Risk Range of Activities
Using Diesel-Fueled Engines
! The ranges within each activity result from
variations of operating times and durations,
Idling School Buses stack parameters,facility sizes, numbers and
sizes of equipment,and meteorological
conditions. The estimated 70-year cancer
risks occur at the point of maximum off-site
impact(PMI). PMI is the off-site location
Emergency/Standby Engine closest to the emission source that shows the
highest modeled concentration of diesel PM.
PMI can be located as close as 20 meters
from the emission source.
i I I
i
Truck StopI,
Low Volume Freeway
a . r to
Distribution Center
i
I I �
Prime
k'm '° °"• i ' :xq*k . - Engine
1,700
High Volume Freeway .
0 100 200 300 400 500 600 700 800 900
Potential Excess Cancers
(Chances per million based on 70-years exposure)
17
Risk is a function of the lifetime average daily dose and the carcinogenic potency
of the compound. The potential risks reported here were estimated by multiplying the
modeled concentration of a toxic compound by the carcinogenic potency value, also
known as the unit risk factor. The unit risk factor is defined as the estimated probability
of a person contracting cancer as a result of constant exposure to an ambient
concentration of 1 µg/m3 over a 70-year lifetime. This approach and the use of a
70-year lifetime is consistent with the OEHHA/ARB methodology for evaluating the
potential risk from exposure to air toxics.
We expect the estimated 70-year potential cancer risk range for each of these
activities will fall within the ranges in Figure 2. Each range assumes a 70-year
exposure to diesel PM emissions at current levels, and uses SRP's diesel PM unit risk
factor point estimate of 300 excess cancers per million people per microgram per cubic
meter of diesel PM. The ranges within each activity result from variations in
assumptions of operating times and durations, stack parameters, facility sizes, numbers
and sizes of equipment, and meteorological conditions. For example, in the Idling
School Buses scenario the activity ranged from five buses idling two minutes each twice
per day to 20 buses idling 15 minutes each twice per day for 180 days per year.
The estimated 70-year potential cancer risks in Figure 2 are based on the
modeled diesel PM concentrations at the point of maximum impact (PMI). PMI is the
off-site location closest to the emission source that shows the highest modeled
concentration of diesel PM. The PMI can be located as close as 20 meters from the
emission point. The diesel PM concentrations and associated potential risk decreases
as one moves away from the point of maximum impact. For example, the potential
cancer risk at the point of maximum impact for the Low-Volume Freeway scenario is
estimated to be 200 excess cancers per million if a residence were located 20 meters
away. For a residence located 500 meters away, the estimated potential cancer risk
drops to 30 excess cancers per million.
The estimated risks presented in Figure 2, and the assumptions used to
determine these risks, are not based on a specific source of diesel PM. Instead,
general assumptions bracketing a fairly broad range of possible operating scenarios
were used. The estimated risks are based on the diesel PM concentration at the point
of maximum impact as determined using air dispersion modeling. The estimated risk
ranges are used to provide a "qualitative' assessment of potential risk levels near
sources of diesel PM. These estimates are based on the risk assessment methodology
and assumptions identified in Appendix VII. Actual risk levels from these types of
sources at any individual site will vary due to site specific parameters, including
equipment technologies and emission rates, fuel properties, operating schedules,
meteorology, and the actual location of off-site receptors.
Figure 2 shows that each of the investigated activities has the potential of
significant increases in potential cancer risk under certain circumstances. The potential
cancer risk associated with these activities, combined with the high statewide ambient
18
risk levels reported earlier, provide additional evidence that all categories of
diesel-fueled engines should be subject to further control requirements.
VI. CONTROL TECHNOLOGY AND FUEL OPTIONS
A. Has ARB identified control technology options that can further reduce
diesel PM emissions from diesel-fueled engines and vehicles?
Yes. The ARB has evaluated various types of control options identifying the
control efficiency, description of technology, cost, and source test data. Technical
evaluations of the control technologies, including summaries of the available emission
test information, are included in Appendix IX. Because emission test information was
deemed essential for a thorough evaluation of diesel PM control technologies, detailed
technical evaluations were not performed where the technology proponent did not
provide adequate emission test information. The most effective control technologies
evaluated by ARB staff are catalyst-based diesel particulate filters (catalyst-based
DPFs).
Catalyst-based DPFs use catalyst materials to reduce the temperature at which
collected diesel PM oxidizes. The catalyst material can either be directly incorporated
into the filter system, or can be added to the fuel as a fuel-borne catalyst (FBC-DPF).
Although catalyst-based DPFs can be used with diesel fuels of varying sulfur content,
the greatest reductions come from using very low-sulfur fuels. Used with very low-sulfur
(<15 ppmw sulfur) diesel fuel, catalyst-based DPFs have been reported to reduce diesel
PM emissions by over 85 percent.
Table 8 provides a description and range of control efficiencies of catalyst-based
DPFs and new diesel-fueled engines. The control efficiency information is based on
available test information summarized in Appendix IX. As shown, the range of control
efficiencies for catalyst-based DPFs is 85 to 97 percent.
Table 8: Control Technology Efficiencies
Diesel PM Control Description
Control Technolo Efficiency
Particulate filter system where the
Catalyst-Based DPFs/ catalyst material is either
Very low-sulfur Fuel 85% -97% incorporated into the filter or added
to the fuel; Diesel fuel with a sulfur
content < 15 ppmw.
Replaces existing engines with
New Engine Up to 85% engines certified to meet ARB/U.S.
EPA off-road engine emission
standards.
19
For existing diesel engine applications, catalyst-based DPFs have been shown to
be effective in reducing diesel PM emissions. Worldwide, DPFs have been used in over
20,000 applications. In several European countries, catalyst-based DPFs have been
installed on more than 6,500 buses, heavy-duty trucks, and municipal vehicles. In the
United States, the application of catalyst-based DPF's is less prevalent, but several
demonstration projects have been initiated. In California, diesel-fueled school buses
and tanker trucks have been retrofitted with catalyzed DPFs as part of a program to
evaluate the effectiveness of a refiner's low-sulfur diesel formulation. In New York, the
New York City Transit Authority's fleet demonstration program will test the effectiveness
of catalyzed DPF's on 50 diesel-fueled buses.
For new diesel engine applications, catalyst-based DPF technology is playing a
key role in both establishing and complying with new more stringent diesel PM
standards. The U.S. EPA recently announced its proposed regulation for heavy-duty
engine and vehicle standards and highway diesel fuel sulfur control requirements. A
diesel PM emission standard of 0.01 g/bhp/hr is proposed. This proposed standard is
based on the anticipated emission reductions from low-sulfur diesel fuel and the use of
a catalyst-based diesel particulate filter. To comply with a 2005 European Union (EU)
emission standard for diesel fueled vehicles, the French automaker, Peugeot Citroen,
recently unveiled a diesel PM catalyst-based DPF system which is expected to go into
production in the year 2000.
B. What are the costs associated with these control technology options?
Tables 9a through 9d present information on the costs associated with applying
catalyst-based DPFs° to stationary, off-road, and on-road diesel engines, including both
retrofit and new engine applications. Table 9a provides information on the capital costs
associated with retrofitting stationary diesel engines with catalyst-based DPFs. This
information was obtained from representative catalyst-based DPF manufacturers and is
intended to represent the range in the retail costs at this time. These cost estimates are
mostly consistent with the $30 to $50 per horsepower range reported by the
Manufacturers of Emission Controls Association (MECA) in "Emission Control
Technology for Stationary Internal Combustion Engines' dated July 1997.
Table 9a: Stationary Engines - Current Catalyst-Based DPF Retrofit
Costs
Technology 40 hp 100 hp 275 hp 400 hp 1,400 hp
Capital Cost $1,300 - $2,000- $3,500 - $7,000— $30,000-
$5,000 $7,500 $9,000 $10,500 $44,000
Some Catalyst-Based DPFs require, and all Catalyst-Based DPF's will benefit from, the use of very
low-sulfur fuel. The incremental cost of this fuel is projected to be less than $ 0.05 per gallon and is
discussed further in Appendix IV.
20
The costs associated with retrofitting off-road engines with catalyst-based DPFs
are presented in Table 9b. This information also assumes a cost of$30 to $50 per
horsepower, as reported by MECA representatives in "Exhaust Controls Available to
Reduce Emissions from Non-road Heavy-Duty Engines."
Table 9b: Off-Road Engines - Current Catalyst-Based DPF Retrofit
Costs
Technology 190 hps 275 hp 475 hp
Catalyst-Based DPF $5,700-9,500 $8,250-13,750 $13,500- 23,750
Table 9c provides an estimate of the current cost to retrofit on-road engines and
vehicles with catalyst-based DPFs. This information assumes a cost of$10 to $20 per
horsepower, as reported by MECA in "Emission Control Retrofit of Diesel-Fueled
Vehicles" dated March 2000.
Table 9c: On-Road Engines - Current Catalyst-Based DPF Retrofit
Costs
Vehicle Class LHD MHD HHD
Average Horsepowers 190 hp 250 hp 475 hp
Capital Cost $1,900 - $3,800 $2,500 - $4,750 -
$5,000
4,750 -$5,000 $9,500
In contrast to the retrofit costs presented in Tables 9a — 9c, Table 9d presents
the U.S. EPA's estimate of the future (2007) costs of applying catalyst-based DPFs to
new on-road engines and vehicles. The U.S. EPA estimates are based on higher
production volumes, and they are similar to the future cost projections presented by
MECA in "Emission Control Retrofit of Diesel-Fueled Vehicles (March 2000)."
Table 9d: On-Road Engines - Future (2007) Catalyst-Based DPF Costs
Vehicle Class LHD MHD HHD
Average Horsepower' 190 hp 250 hp 475 hp
Catalyst-Based DPF Costs8 $670 $890 $1,100
5 The power range noted has been selected to facilitate comparison with on-road costs.
6 The average horsepower was derived from the U.S. EPA's engine certification database for LHDD,
MHDD, and HHDD engines for model years 1999 and 2000.
The engine horsepower ranges were derived from the U.S. EPA's engine certification database for
LHDD, MHDD, and HHDD engines for model years 1999 and 2000.
s The U.S. EPA Catalyst Based-DPF cost estimates include both fixed costs (e.g., tooling, research
and development, and certification) and variable costs(e.g., hardware, assembly and markup).
21
There is a stark difference between the current costs associated with retrofitting
existing engines and the future costs associated with applying catalyst-based DPFs to
new engines and vehicles. However, we expect these costs to decline as production
volumes and experience increase. ARB staff expects that, over the next few years, the
retrofit costs presented in Tables 9a- 9c will approach the new engine costs presented
in Table 9d.
Detailed cost and cost-effectiveness analyses will be completed during the
preparation of each control measure. However, staff expects that the costs associated
with carrying out this plan will be significant and will be on the order of the costs
associated with other major ARB programs. In addition, ARB staff recognize that there
may be unique situations that require a special evaluation of the feasibility and/or
cost-effectiveness of applying catalyst-based DPF technology. These issues will be
fully investigated and considered during the development of the specific control
measures.
VII. ALTERNATIVE TECHNOLOGIES
A. What alternatives to diesel-fueled engines and vehicles exist today that
would result in lower diesel PM emissions?
Diesel-fueled engines are extensively used throughout California in equipment
and vehicles that provide for the transportation of goods, construction of homes, and
emergency power generation. (See Chapter III for more information on the uses of
diesel-fueled engines.) Diesels are the engines of choice for most "heavy-duty"
applications. However, for a significant number of applications, lower PM emitting
alternatives to existing diesel-fueled engines exist. As ARB staff develop the control
measures recommended in this report, the feasibility and cost of these alternatives will
be evaluated and considered. In most cases, it is expected that well controlled diesel
engines using very low-sulfur fuel will have equivalent PM emissions as benchmark
gasoline or CNG fueled engines. Where this is true, it is envisioned that regulations
would be structured to provide a choice of fuels. In cases where alternatively-fueled
engines offer emission performance that cannot be matched by diesel-fueled engines,
the feasibility and costs of setting standards based on the capability of alternatively
fueled engines will be assessed.
Current alternatives to diesel-fueled vehicles and equipment include:
♦ natural gas fueled vehicles and equipment;
♦ gasoline-fueled vehicles and equipment;
♦ dual-fueled vehicles and equipment;
♦ electrically-powered vehicles and equipment;
♦ fuel cell technology; and
♦ other alternatively fueled (e.g., Bio-diesel) vehicles and equipment.
22
The next step in the AB 1807 process, following approval of this report, is the
development of the specific ATCMs and regulations designed to reduce diesel PM
emissions from diesel-fueled engines and vehicles. Chapter VIII identifies the specific
control measures we currently recommend be developed. As part of the process in
developing these recommended measures, where appropriate, the ARB staff will
thoroughly evaluate available alternatives to diesel-fueled engines and diesel fuel.
Criteria evaluated by the ARB staff when considering the recommendation of alternative
technologies include:
♦ reduction in emissions of air toxics;
♦ the availability and quality of source test information;
♦ cost and cost-effectiveness of the alternative technology; and
♦ operation or design constraints associated with the alternative.
In summary, diesel-fueled engines have established themselves for a variety of
reasons as the preferred power source for many functions in our industrial society.
However, cleaner alternatives do exist which ARB staff will consider when developing
the measures recommended in this report.
ARB staff will develop the ATCMs and regulations in an open and public process.
Draft versions of ATCMs and regulations will be presented to the public for review and
comment, and a final draft version will be presented to the Board for approval. Public
outreach is an essential element in the development of any ATCM or regulation to
ensure that all affected and interested parties have full opportunity to provide input and
shape rules that are both effective and workable.
VIII. STAFF'S RECOMMENDATION
In August 1998, the ARB identified particulate matter emissions from diesel
fueled engines as a TAC, and staff was directed to begin the risk management process.
A working group was convened to advise the staff with its risk management efforts.
Since October 1998, staff has been working with the advisory committee to develop this
report on the need for further control of particulate emissions from diesel engines. Staff
finds that:
1. The current inventory of diesel PM emissions, as presented in Chapter V of
this report, demonstrates that stationary and mobile diesel engines currently
emit over 28,000 tons per year of diesel PM in California;
2. The current statewide population-weighted annual outdoor and indoor risk
from exposure to diesel PM emissions, as presented in Chapter V of this
report, is estimated at over 500 and 350 potential excess cancers per million
people, respectively; and
3. The evaluation of available diesel PM control technologies and strategies, as
presented in Appendix II, Appendix III, and Appendix IX to this report,
23
demonstrates that technically feasible and commercially available diesel PM
control measures are available for diesel-fueled engines and vehicles.
Therefore, we recommend that the Board direct staff to develop measures to
reduce diesel PM emissions from all diesel-fueled engines and vehicles. Measures that
we recommend to be developed are presented below. None of the recommended
measures will result in an increase in NOx emissions above applicable NOx emission
certification levels.
The recommended measures for regulation development are discussed in
sections A, B, and C below. Section D discusses the actions we believe the U.S. EPA
needs to pursue to support our recommendations and to reduce diesel PM emissions in
California. Section E discusses possible adverse impacts associated with the
recommended measures. A more detailed description of each recommended measure
and the associated emission reduction, risk reduction, cost analysis, and proposed
implementation date for each measure can be found in Appendices ll, III, and IV.
A. What measures does ARB recommend be developed to further reduce
diesel PM emissions from mobile diesel-fueled engines and vehicles?
Table 10 summarizes the recommended measures for all mobile sources except
for retrofit of off-road portable equipment, which is discussed in the next section.
Together, these measures comprise a comprehensive program to be implemented in
California to control and reduce potential cancer risk from exposure to diesel particulate
matter from mobile sources. These measures are further subcategorized for on-road
and off-road applications. Alternative strategy applications, which are non-regulatory,
are also part of the comprehensive program. They are discussed later in this section.
As discussed in Chapter ll, the recommended measures will be developed in
accordance with the requirements of AB 1807. The specific control requirements of
each measure will be developed in an open and public process. Details concerning
each specific recommended measure, which include the cost and cost-effectiveness of
controls and the availability of alternative technologies, will be explored as each
recommended measure is developed.
24
Table 10: Recommended Measures to Reduce Diesel PM from Mobile Sources
Proposed Proposed Est. PM.;- Est. PM
sea
Measures Board IPropo Reduction, Reduction, Est. cost
Adoption ed tons per tons per per Unit, $
tation Date
Date year
ear
On-Road Measures 2010 2020
Supplemental test
procedures HDV 2000 2005n/a n/a to be
certification determined
Lower emission
standards for new 2001 2007 1,600 3,500 670-1,100
HDV engines
Control of emissions
from existing engines 2002 2002-2008 1,870 280 1,900-9,500
(retrofit)
Solid waste
collection vehicles 2002
Other public 2002
HDV fleets
Other public&
private HDV 2003-2008
fleets
Control of HDV
in-use emissions 2003 2005 n/a n/a 130-150
Off-Road Measures
Lower emission
standards for new 2002 2006-2008 910 3,600 1,300-1,800
engines
Control of emissions
from existing engines 2002 2002-2008 6,000 1,500 5,700-23,800
retrofit
Public fleets 2002-2003
Other off-road 2006-2008
fleets
Control of in-use2003 2006-2008 n/a n/a to be
emissions determined
PM standards for
new diesel pleasure 2002 2005 g 24 to be
craft engines determined
Federal Measures
Locomotive retrofit 860 760 to be
determined
Commercial marine to be
vessels retrofit 3900 4500 determined
25
On-Road
The recommended measures for diesel-fueled on-road mobile vehicles listed in
Table 10 address both new and existing vehicles. The proposed implementation dates
listed in Table 10 are tentative. The actual implementation dates may vary based on
engine type or service and on the availability of very low-sulfur fuel. For new vehicles,
ARB staff is proposing new engine diesel PM standards that will reduce diesel PM
emission by at least 90 percent from the current on-road standards. This proposal is
based upon the U.S. EPA's proposed heavy-duty engine and vehicle standards and
highway diesel fuel sulfur control requirements rule, and the expected engine, fuel, and
control technology development needed to meet the proposed standards. For existing
vehicles, ARB staff is proposing diesel PM emissions be reduced, for almost all
(90 percent) engines, by at least 85 percent. This equates to an overall diesel PM
emission reduction of 75 percent from existing vehicles. This reduction can be achieved
through the addition of after-treatment technology, or replacement of existing engines
with new technology or alternatively fueled engines. The details of each of the
recommended measures will be addressed during the actual regulation development
process. In-use compliance programs will be implemented or enhanced to maintain the
diesel PM emission reductions achieved through cleaner new engine standards and
retrofits.
Off-Road
The recommended measures for diesel-fueled off-road engines are similar to
those for on-road vehicles: more stringent diesel PM standards, after-treatment control
retrofit requirements, and in-use compliance programs. In contrast, to on-road vehicles,
most off-road engines are not registered by the State, with the exception of portable
engines, boats, and off-highway motorcycles that are permitted and/or registered by
local districts or the State. Therefore, to ensure the application of recommended
measures such as inspection and maintenance programs, in-use compliance testing, or
mandatory retrofitting of older equipment, the ARB and district staff may rely on
mechanisms such as warranty registration, local operating permits, and contract
requirements.
Non-Regulatory Strategies
Non-regulatory strategies for mobile sources include guideline development,
voluntary memoranda of understanding, and non-regulatory incentive programs. A
variety of voluntary and incentive programs are being proposed to achieve reductions
beyond those California can achieve through regulatory action. These are activities the
ARB does not currently have the authority to regulate and for which regulations may not
be the most effective action. While pursuing these non-regulatory strategies, ARB staff
will work with the appropriate stakeholders to achieve voluntary reductions in diesel PM.
The non-regulatory strategies being considered by the ARB staff include:
26
♦ the voluntary application of diesel particulate filters for locomotives;
♦ the voluntary application of diesel particulate filters for commercial marine
vessels;
♦ developing a memorandum of understanding (MOU) for the retrofit of airport
ground support equipment;
♦ the voluntary retrofit of emergency vehicles; and
♦ implementing transportation control measures — idling restrictions;
B. What measures does ARB recommend be developed to further reduce
diesel PM emissions from stationary and off-road portable diesel-fueled
engines?
Table 11 summarizes the recommended measures designed to reduce diesel
PM emissions from stationary and off-road portable diesel-fueled engines. The
proposed implementation dates listed in Table 11 are tentative. The actual
implementation dates may vary based on engine type or service and on the availability
of very low-sulfur fuel. The measures identified in this section are discussed in more
detail in Appendix II. For new engines, the recommended control measures presented
in Table 11 require the application of catalyst-based DPFs or a similar technology that
will reduce diesel PM emissions by at least 90 percent from uncontrolled levels. For
existing vehicles, ARB staff is proposing diesel PM emissions be reduced, for almost all
(90 percent) engines, by at least 85 percent. This equates to an overall diesel PM
emission reduction of 75 percent from existing vehicles. This reduction will be achieved
through the addition of after-treatment technology, replacement of older technology
engines with new technology or alternatively fueled engines, or restrictions placed on
the operation of existing equipment. The details of each of the recommended measures
will be addressed during the development of each of the air toxic control measures and
regulations. Because of the variety of existing engines, as well as the multitude of
applications, staff expects that no single control technology will be universally applicable
to all retrofit applications.
Tables 9a and 9b presented information on the costs associated with applying
catalyst-based DPFs on both new and retrofit stationary and portable engines. The
preliminary cost-effectiveness for the control measures identified in Table 11 ranges
from 5 to 200 dollars per pound of diesel PM reduced. The cost per pound of diesel PM
reduced reflects the predicted costs associated with purchasing, installing, and
maintaining a catalyst-based DPF on each of the diesel-fueled engines addressed by
the recommended measures. We believe these cost-effectiveness estimates similar to
the cost-effectiveness estimates for regulations developed to reduce other particulate
compounds that have been identified as toxic air contaminants (e.g., hexavalent
chromium and lead).
27
Table 11: Recommended Measures to Reduce Diesel PM from Stationary and
Off-Road Portable Sources
Proposed Board Proposed Estimated PM Estimated PM
Control Measure Adoption Date Implementation Reduction Reduction
Date 2010 TPY 2020 TPY
Stationary Engine
New Engines 2002 2002 33 21
Prime Engine Retrofit 2002 2003 70 66
Emergency Standby 2002 2003 105 105
Retrofit
Off-Road Portable Engine 2002 2003-2005 712 252
Retrofit
Agricultural Engine 2002 2003-2005 297 197
Retrofit
Stationary
The recommended measures for stationary diesel-fueled engines listed in
Table 11 address both new and existing engines. For new engines, the ARB staff
recommends an ATCM be developed based on the requirements of the ARB's
permitting guidance document, Risk Management Guidance for the Permitting of New
Stationary Diesel-fueled Engines, (September 2000). (See Appendix II for a more
detailed description of Guidance requirements.) Diesel PM emission reductions from
new stationary diesel-fueled engines will be accomplished by requiring these engines to
meet either specific technology requirements (i.e., stringent diesel PM engine
certification levels, usage of low-sulfur diesel fuel, and application of catalyst-based
DPFs); or an equally stringent performance standard.
For existing prime (non-emergency) engines and emergency standby engines,
ARB staff recommends the development of ATCMs that define retrofit control
requirements. As shown in Table 11, ARB staff predicts the implementation of the
prime engine and emergency standby engine ATCMs by 2003 will result in diesel PM
reductions of up to 70 tons and 105 tons in 2010, respectively. To achieve this
reduction, ARB staff is proposing diesel PM emissions be reduced, for almost all
(90 percent) engines, by at least 85 percent. This represents a 75 percent reduction in
diesel PM emissions from engines in these categories. The details of each of the
recommended measures will be addressed during the development of the regulations.
Although catalyst-based DPFs are available, for these sources, this technology may not
prove to be cost-effective for all engines especially smaller engines with limited hours of
operation. During the ATCM development process, the ARB staff will conduct a more
detailed cost-effectiveness analysis to help in determining the appropriateness of these
controls. It is anticipated that both of these ATCMs would be fully implemented prior to
2010.
28
There are over 6,000 agricultural irrigation pump engines in California,
representing about 11 percent of the total stationary and portable engine inventory.
Because of the high use of these engines, they are a significant source of diesel PM
and contribute about half of the diesel PM emissions from the entire stationary engine
category. In addition, agricultural irrigation pumps tend to be concentrated in specific
regions of the State, contributing proportionally higher emissions within these regions.
H&SC section 42310(e) prohibits districts from requiring a permit for most
equipment used in agricultural operations. However, the State and districts may
establish emission control requirements for stationary agricultural equipment.
Therefore, ARB staff recommends working with the agricultural community to develop a
comprehensive program to reduce emissions from engines used in agricultural
operations. This program should evaluate both the substitution of diesel engines with
electrically driven equipment and a comprehensive retrofit element.
ARB staff predicts a reduction of diesel PM from agricultural irrigation pumps of
up to 297 tons per year by 2010 and 197 tons per year by 2020. To achieve this
reduction, ARB staff is proposing diesel PM emissions be reduced, for almost all
(90 percent) engines, by at least 85 percent. This represents a 75 percent reduction in
diesel PM emissions from the engines in this category. This reduction will be achieved
through the addition of after-treatment technology, replacement of older technology
engines with new technology engines, use of alternative-fueled engines, or
electrification. The details of each of the recommended measures will be addressed
during the development of each of the regulations.
Off-Road Portable
Staff recommends that the ARB develop regulations to reduce diesel PM
emissions from existing off-road portable diesel engines. New engines for off-road
portable equipment will be regulated by the off-road rules discussed above. The ARB
currently administers the Statewide Portable Equipment Registration Program
(Statewide Registration Program) Regulation (Title 13 California Code of Regulation
§2450 - 2466), which is a voluntary program for the statewide registration and regulation
of off-road portable engines. To date, approximately 12,000 off-road portable engines
have been registered. The staff recommends that the Statewide Registration Program
Regulation be amended to include requirements for reducing diesel PM emissions from
portable diesel engines through the application of catalyst-based DPFs, electrification
where feasible, and consideration of alternate fuels. In addition, staff recommends the
development of an ATCM, for implementation by local districts, consistent with
amendments to the PERP regulation. Staff predicts compliance with the ATCM would
reduce diesel PM emissions up to 712 tons per year in 2010 and up to 252 tons per
year by 2020. To achieve this reduction, ARB staff is proposing diesel PM emissions be
reduced, for almost all (90 percent) engines, by at least 85 percent. This represents a
75 percent reduction in diesel PM emissions the engines in this category. This
reduction will be achieved through the addition of after-treatment technology,
replacement of existing engines with new technology or alternatively fueled engines, or
29
T �
restrictions placed on the operation of existing equipment. The details of each of the
recommended measures will be addressed during the development of the regulations.
C. What measures does ARB recommend regarding diesel fuel reformulation?
Table 12 summarizes the recommended measures regarding diesel fuel
reformulation. The measures identified in this section are discussed in more detail in
Appendix IV.
Table 12: Summary of Recommendations
Emission
Reduction (%) Incremental Implementation
Recommendation Diesel PM Cost($/gal) or Issue Date
Very low-sulfur CARB diesel
(< 15 ppmwS 90 * < 0.05 2005-2006
Guidance on alternative"diesel" 20 • < 0.18 ** 2001
fuels
Emission reductions with after-treatment.
Estimated for emulsions of water in CARB diesel.
ARB staff recommends that a regulation be adopted in 2001 that requires very
low-sulfur CARB diesel for all diesel-fueled engines statewide, effective in 2006. ARB
also recommends that programs be developed to ensure the adequate supply of very
low-sulfur diesel fuel for vehicle fleets and stationary engines that are required through
state or local rules to install catalytic add-on controls prior to 2006. The U.S. EPA has
published proposed regulations which would require that all diesel fuel sold for use in
on-road vehicles have a sulfur content no greater than 15 ppmw, beginning June 1,
2006. It is envisioned that the ARB regulation would apply to on-road and off-road
sources but would otherwise be consistent with the U.S. EPA's efforts and enable the
retrofit of off-road and stationary diesel engines with catalyst-based after-treatment
control technologies.
ARB staff is also proposing to develop guidance on synthetic or alternative diesel
fuel options. Synthetic or alternative diesel fuels may cost more than reformulated very
low-sulfur CARB diesel, but should be considered if shown to be cost-effective for
reducing diesel PM. These alternatives may result in significant benefits for
higher-emitting categories, such as off-road engines. Synthetic or alternative diesel
fuels may also prove to be part of the preferred control strategy for diesel-fueled
engines or vehicles that result in relatively high risk, or where control retrofit options are
very expensive or difficult to implement.
The guidance will identify alternative diesel fuels and provide information on
associated emission reductions and cost. The guidance would assist local districts in
their permitting of fleets and equipment, and may be especially useful in cases where
control equipment retrofits are impractical.
30
D. What impact will the recommended measures have on diesel PM emissions
and risk?
As illustrated in Figures 3 and 4, ARB staff estimates the full implementation of
the recommended measures, including retrofit of locomotives and commercial marine
vessels, will result in an overall 75 percent reduction in the diesel PM inventory and the
associated potential cancer risk for 2010, and an 85 percent reduction for 2020, when
compared to today's diesel PM inventory and risk. These reductions will occur through
the combined actions of both California and the U.S. EPA to adopt and implement rules
that reduce diesel PM.
From 2000 to 2010, ARB staff predicts diesel PM emissions and risk would
decrease by only about 20 percent if the recommended measures are not implemented.
This reduction would result from the implementation of existing federal and state
regulations and the attrition of older diesel-fueled passenger cars and light-duty trucks
from the on-road fleet. The U.S. EPA has proposed new, lower emission standards for
heavy-duty trucks for 2007 and lower sulfur limits for diesel fuel (on-road vehicles only)
in 2006. The benefits of these proposed rules are not included as existing measures
because they have not been adopted as of the date of this Plan.
The recommended measures can be grouped as follows: measures addressing
on-road vehicles; measures addressing off-road equipment and vehicles, and measures
addressing stationary and portable engines. These measures include the U.S. EPA
proposed 2007 new heavy-duty truck standards and the proposed 2006 low-sulfur fuel
limits. Figure 4 illustrates the impact of each of these groups of measures on projected
diesel PM emission levels for 2010 and 2020. As shown, off-road recommended
measures have the largest impact. Of the off-road recommended measures, the retrofit
measures (see Table 10) result in over 90 percent of the diesel PM reductions
associated with all of the off-road measures.
31
Figure 3: Projected Percent Reduction in Diesel PM Cancer Risk from year 2000 Levels With and Without
ARB Risk Reduction Plan(RRP)Implemented
100
sa
ao
x 20
a
so
U
50
7
L 40
F
20
Y
g �
10
o
2000 2010(w/.RRP) 2010(w RRPa 2020(w RRP)
Year
Figure 4: Projected Diesel PM Emission Levels With and Without ARB Risk Reduction Plan
(RRP)Implemented
20,000
18,000
16,000
14,000
`0
12,000
0 0
n 10,000 as
E
a_ 8,000
m
0
6,000
4,000
2.000
.:.._ #:as..
0
2000 2010(wlo RRP) 2010(w/RRP) ".020(wlo RRP) 2020(w/RRP)
Year
DOR-Road ■On-Road Oglationary€Portable
32
E. What other expected benefits are associated with implementing the
recommended measures?
As discussed in the previous two sections, full implementation of the measures in
this plan will result in significant reductions in diesel PM emissions and the associated
risk. There are additional benefits associated with reducing diesel PM emissions.
These include:
♦ Increased visibility;
♦ Less material damage due to "soiling" of surfaces with diesel PM;
♦ Decreased noncancer health effects associated with diesel PM; and
♦ Decreased deposits of diesel PM and toxic chemicals on to surface water.
F. What possible adverse impacts may be associated with the recommended
measures?
Most recommended measures require the use of add-on control devices, engine
modifications, catalysts, low-sulfur diesel fuel and/or alternative fuel formulations. ARB
staff has identified possible adverse environmental and safety impacts associated with
the recommended measures. Each of these impacts will be fully investigated and
addressed during the rulemaking process. Possible adverse impacts are identified
below.
♦ Potential for decrease in fuel economy;
♦ Potential for increases in emissions of hydrocarbons (HC), oxides of nitrogen
(NOx), and carbon monoxide (CO);
♦ Potential for changes in composition of diesel exhaust that could result in an
increase in emissions of other toxic air pollutants.
• Potential for contamination of ground and surface waters;
♦ Potential safety issues due to use and handling of gaseous-fuels; and
♦ Potential increase in hazardous waste from the disposal of spent catalyst
material.
G. What actions should the U.S. EPA pursue to support the ARB staff's
recommended measures?
ARB staff recommends that the U.S. EPA adopt standards and regulations
applicable to all 50 states that are similar in both scope and stringency to the measures
in this plan. Further, ARB staff recommends the U.S. EPA take the following actions to
support the measures in this plan and to reduce diesel PM emissions nationwide.
♦ The U.S. EPA should implement more stringent emission standards for diesel
PM in the Tier 3 rulemaking than are currently envisioned in the Off-Road
Statement of Principles.
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Currently, the federal Clean Air Act preempts California from regulating new
construction and farm equipment below 175 horsepower, new locomotives
and locomotive engines, and commercial marine engines. Preempted
off-road vehicles and equipment generate approximately 60 percent of the
diesel PM emissions from off-road sources, thus limiting California's ability to
achieve significant emission reductions on its own. Recent developments
suggest that off-road engine control can move directly to after-treatment
technology-based standards with higher emission reductions, on a
cost-effective per engine basis. The U.S. EPA should, therefore, consider
accelerating the implementation of emission standards based on
after-treatment technologies with the goal of reducing diesel PM emissions by
90 percent from engines in these categories.
♦ Require all diesel-fueled on-road and off--road engines and vehicles to use
very low-sulfur diesel fuel (<15 ppm).
The U.S. EPA has proposed regulations that would require all very low-sulfur
diesel fuel to be sold for use in on-road vehicles beginning June 1, 2006, but
has not proposed to extend this requirement to off-road sources. ARB staffs
recommended measures for off-road engines are based on the use of very
low-sulfur diesel fuel and the use of exhaust after-treatment devices which
would require low-sulfur fuel. It is critical that very low-sulfur diesel fuel be
required to be sold nationwide for use in both on-road and off-road engines
and vehicles. If not, California-only off-road regulations should be developed,
but issues concerning the cost-effectiveness of developing California-only
engine/after treatment systems and the compatibility of those systems with a
higher sulfur national off-road diesel fuel need to be explored.
♦ The U.S. EPA should require more stringent control of PM emissions from
commercial marine vessels through retrofit of existing engines.
Emissions from commercial marine vessels, which include ocean-going
vessels, tugboats, fishing boats, cruise ships, and other large ships, are a
major source of diesel PM which is expected to grow from 2000 to 2010. A
program to retrofit existing engines could provide significant benefits over the
adopted controls for new engines recently adopted by the U.S. EPA. The
U.S. EPA should, therefore, develop standards to reduce diesel PM
emissions from these engines.
♦ The U.S. EPA should require the implementation of a retrofit program to
reduce diesel PM from locomotives.
The current national rule only affects particulate matter emissions from model
year 2005 and later locomotives and does not significantly reduce PM
emissions from older locomotives. Recent developments in diesel particulate
filter technology suggest that a locomotive retrofit program may be feasible
and cost-effective. The U.S. EPA should, therefore, develop retrofit standards
to reduce diesel PM emissions from engines in these categories.
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