Control of Emissions From New Marine Compression-Ignition Engines at or Above 30

171 Pages·2016·3.66 MB·English

Friday,
April 30, 2010
Part II
Environmental
Protection Agency
40 CFR Parts 80, 85, 86, et al.
Control of Emissions From New Marine
Compression-Ignition Engines at or Above
30 Liters per Cylinder; Final Rule
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22896 Federal Register/Vol. 75, No. 83/Friday, April 30, 2010/Rules and Regulations
ENVIRONMENTAL PROTECTION reductions. We are adopting further from 8:30 a.m. to 4:30 p.m., Monday
AGENCY provisions under the Act to Prevent through Friday, excluding legal
Pollution from Ships, especially to holidays. The telephone number for the
40 CFR Parts 80, 85, 86, 94, 1027, 1033, apply the emission standards to engines Public Reading Room is (202) 566–1744,
1039, 1042, 1043, 1045, 1048, 1051, covered by MARPOL Annex VI that are and the telephone number for the EPA–
1054, 1060, 1065, and 1068 not covered by the Clean Air Act, and HQ–OAR–2007–0121 is (202) 566–1742.
to require that these additional engines
[EPA–HQ–OAR–2007–0121; FRL–9097–4] FORFURTHERINFORMATIONCONTACT:
use the specified fuels (or equivalents).
Amy Kopin, U.S. EPA, Office of
RIN 2060–AO38 The final regulations also include
Transportation and Air Quality,
technical amendments to our motor
Control of Emissions From New Marine Assessment and Standards Division
vehicle and nonroad engine regulations;
Compression-Ignition Engines at or (ASD), Environmental Protection
many of these changes involve minor
Above 30 Liters per Cylinder Agency, 2000 Traverwood Drive, Ann
adjustments or corrections to our
Arbor, MI 48105; telephone number:
AGENCY: Environmental Protection recently finalized rule for new nonroad
(734) 214–4417; fax number: (734) 214–
Agency (EPA). spark-ignition engines, or adjustment to
4050; e-mail address:
ACTION: Final rule. other regulatory provisions to align with [email protected], or Assessment and
this recent final rule.
SUMMARY: EPA is finalizing emission Standards Division Hotline; telephone
DATES: This final rule is effective on number: (734) 214–4636.
standards for new marine diesel engines
June 29, 2010. The incorporation by
with per-cylinder displacement at or SUPPLEMENTARYINFORMATION:
reference of certain publications listed
above 30 liters (called Category 3 marine
in this regulation is approved by the General Information
diesel engines) installed on U.S. vessels.
Director of the Federal Register as of
These emission standards are equivalent Does This Action Apply to Me?
June 29, 2010.
to those adopted in the amendments to
Annex VI to the International ADDRESSES: EPA has established a This action affects companies that
Convention for the Prevention of docket for this action under Docket ID manufacture, sell, or import into the
Pollution from Ships (MARPOL Annex No. EPA–HQ–OAR–2007–0121. All United States new marine compression-
VI). The emission standards apply in documents in the docket are listed on ignition engines with per cylinder
two stages—near-term standards for the http://www.regulations.gov Web displacement at or above 30 liters for
newly built engines will apply site. Although listed in the index, some use on vessels flagged or registered in
beginning in 2011; long-term standards information is not publicly available, the United States; companies and
requiring an 80 percent reduction in e.g., CBI or other information whose persons that make vessels that will be
NO emissions will begin in 2016. We disclosure is restricted by statute. flagged or registered in the United States
X
are also finalizing a change to our diesel Certain other material, such as and that use such engines; and the
fuel program that will allow for the copyrighted material, is not placed on owners or operators of such U.S.
production and sale of 1,000 ppm sulfur the Internet and will be publicly vessels. Additionally, this action may
fuel for use in Category 3 marine available only in hard copy form. affect companies and persons that
vessels. In addition, the new fuel Publicly available docket materials are rebuild or maintain these engines.
requirements will generally forbid the available either electronically in http:// Finally, this action may also affect those
production and sale of other fuels above www.regulations.gov or in hard copy at that manufacture, import, distribute,
1,000 ppm sulfur for use in most U.S. the EPA–HQ–OAR–2007–0121 Docket, sell, and dispense fuel for use by
waters, unless alternative devices, EPA/DC, EPA West, Room 3334, 1301 Category 3 marine vessels. Affected
procedures, or compliance methods are Constitution Ave., NW., Washington, categories and entities include the
used to achieve equivalent emissions DC. The Public Reading Room is open following:
Category NAICS Codea Examples of potentially affected entities
Industry .................................... 333618 Manufacturers of new marine diesel engines.
Industry .................................... 336611 Manufacturers of marine vessels.
Industry .................................... 811310 Engine repair and maintenance.
Industry .................................... 483 Water transportation, freight and passenger.
Industry .................................... 324110 Petroleum Refineries.
Industry .................................... 424710, 424720 Petroleum Bulk Stations and Terminals; Petroleum and Petroleum Products Wholesalers.
Industry .................................... 483113 Coastal and Great Lakes Freight Transportation
Industry .................................... 483114 Coastal and Great Lakes Passenger Transportation
Note:
aNorth American Industry Classification System (NAICS).
This table is not intended to be carefully examine the applicability B. Why Is EPA Making This Rule?
exhaustive, but rather provides a guide criteria in 40 CFR 80.501, 94.1, 1042.1, C. Statutory Basis for Action
for readers regarding entities likely to be and 1065.1, and the final regulations. If II. Air Quality, Health and Welfare Impacts
S_2 regulated by this action. This table lists you have questions, consult the person A. Public Health Impacts
ULE the types of entities that EPA is now listed in the preceding FORFURTHER B. Environmental Impacts
with R aware will be regulated by this action. INFORMATIONCONTACTsection. CD.. AEmir iQssuioalnisty F Mroomd eSlhinipgs R Wesiuthlt sC ategory 3
PROD Otatbhleer m tyapye asl soof ebnet rietigeusl natoetd l.i sTteod in the Table of Contents Engines
XX6B1 determine whether your company is I. OAv. eWrvhiaetw A re the Elements of EPA’s III.A E. nWgihnaet SCtaatnedgoarryd s3 Marine Engines Are
D regulated by this action, you should
K1 Coordinated Strategy for Ships? Covered?
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Federal Register/Vol. 75, No. 83/Friday, April 30, 2010/Rules and Regulations 22897
B. What Standards Are We Finalizing for diesel engines, including those used in mobile source NO , PM , and SO
X 2.5 X
Newly Manufactured Engines? highway (66 FR 5001, January 18, 2001), emissions, respectively in 2020, growing
C. Are the Standards Feasible? nonroad (69 FR 38957, June 29, 2004), to 40 percent, 48 percent, and 95
IV. Fuel Standards
locomotive, and marine applications (73 percent respectively in 2030. The
A. Background
FR 25098, May 6, 2008). When fully coordinated emission control strategy
B. Diesel Fuel Standards Prior to This Final
phased in, these programs will will lead to significant reductions in
Rule
C. Applicability significantly reduce emissions of these emissions and important benefits
D. Fuel Sulfur Standards harmful pollutants from these categories to public health.
E. Technical Amendments to the Current of engines and vehicles. This final rule The evolution of EPA’s strategy to
Diesel Fuel Sulfur Program Regulations sets out the next step in this ambitious control mobile source diesel emissions
V. Emission Control Areas for U.S. Coasts effort by addressing emissions from the has followed a technology progression,
A. What Is an ECA? largest marine diesel engines, called beginning with the application of high-
B. U.S. Emission Control Area Designation Category 3 marine diesel engines. These efficiency advanced aftertreatment
C. Technological Approaches To Comply
are engines with per-cylinder approaches and lower sulfur fuel
With Fuel Standards
displacement at or above 30 liters per requirements first to highway vehicles,
D. ECA Designation and Foreign-Flagged
Vessels cylinder, which are used primarily for then to nonroad engines and equipment,
VI. Certification and Compliance Program propulsion power on ocean-going followed by locomotives and smaller
A. Compliance Provisions for Category 3 vessels (OGV).1 marine diesel engines. The benefits of
Engines Emissions from Category 3 engines this approach include maximizing air
B. Compliance Provisions To Implement remain at high levels. These engines use quality benefits by focusing on the
Annex VI NOXRegulation and the NOX emission control technology that is largest populations of sources with the
Technical Code comparable to that used by nonroad shortest service lives, allowing engine
C. Changes to the Requirements Specific to
engines in the early 1990s, and use fuel manufacturers to spread initial research
Engines Below 30 Liters per Cylinder
that can have a sulfur content of 30,000 and development costs over a larger
D. Other Regulatory Issues
ppm or more. As a result, these engines population of engines, and allowing
E. U.S. Vessels Enrolled in the Maritime
Security Program emit high levels of pollutants that manufacturers to address the challenges
VII. Costs and Economic Impacts contribute to unhealthy air in many of applying advanced emission controls
A. Estimated Fuel Costs areas of the U.S. Nationally, in 2009, on smaller engines first.
B. Estimated Engine Costs emissions from Category 3 engines This approach also allowed us and
C. Cost Effectiveness account for about 10 percent of mobile the shipping community sufficient lead
D. Economic Impact Analysis source emissions of nitrogen oxides time to resolve technical issues with the
VIII. Benefits
(NO ), about 24 percent of mobile use of advanced emission control
A. Overview X
source diesel PM emissions (with technology and lower-sulfur fuel on the
B. Quantified Human Health Impacts 2.5
PM referring to particles with a largest of these engines on vessels
C. Monetized Benefits 2.5
D. What Are the Limitations of the Benefits nominal mean aerodynamic diameter engaged in international trade. To that
Analysis? less than or equal to 2.5 μm), and about end, EPA has been working with engine
E. Comparison of Costs and Benefits 80 percent of mobile source emissions manufacturers and other industry
IX. Public Participation of sulfur oxides (SO ). As we look into stakeholders for many years to identify
X
X. Statutory and Executive Order Reviews the future, however, emissions from and resolve challenges associated with
A. Executive Order 12866: Regulatory Category 3 engines are expected to applying advanced diesel engine
Planning and Review
become an even more dominant technology to Category 3 engines to
B. Paperwork Reduction Act
inventory source. This will be due to achieve significant NO emission
C. Regulatory Flexibility Act X
both emission reductions from other reductions and using lower-sulfur fuels
D. Unfunded Mandates Reform Act
E. Executive Order 13132: Federalism mobile sources as new emission to achieve significant PM and SOX
F. Executive Order 13175: Consultation controls go into effect and to the emission reductions. This work was
and Coordination With Indian Tribal anticipated activity growth for ocean fundamental in developing the emission
Governments transportation. Without new controls, limits for Category 3 engines that we are
G. Executive Order 13045: Protection of we anticipate the contribution of finalizing in this action and informed
Children From Environmental Health Category 3 engines to national emission the position advocated by the United
and Safety Risks inventories to increase to about 24 States in the international negotiations
H. Executive Order 13211: Actions That
percent, 34 percent, and 93 percent of for more stringent tiers of international
Significantly Affect Energy Supply,
engine emission limits.
Distribution, or Use
I. National Technology Transfer 1This final rule generally applies to vessels with Our coordinated strategy to control
Advancement Act the largest marine diesel engines, which are called emissions from ocean-going vessels
Category 3 engines in our regulations. In this
J. Executive Order 12898: Federal Actions consists of actions at both the national
preamble, we often refer to vessels using these
To Address Environmental Justice in engines as Category 3 vessels. We also refer to them and international levels. It includes: (1)
Minority Populations and Low-Income as ocean-going vessels although this intended to be The engine and fuel controls we are
Populations only a descriptive term. While the large majority of finalizing in this action under our Clean
K. Congressional Review Act these vessels operate in the oceans, some operate Air Act authority; (2) the proposal2
XI. Statutory Provisions and Legal Authority solely in our internal waters such as in the Great
Lakes. Therefore, we do not use the term ocean- submitted by the U.S. Government to
going vessels to exclude the few vessels with the International Maritime Organization
I. Overview
ES_2 This final rule is part of a coordinated Claakteesg oorry r i3v eernsg oinr etso tehxactl oupdeer oatcee aonn-lgyo iinn gfr veeshss-ewlsa ter (IMO) to amend Annex VI of the
UL with Category 2 or Category 1 engines, but rather
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22898 Federal Register/Vol. 75, No. 83/Friday, April 30, 2010/Rules and Regulations
International Convention for the estimated to annually prevent between the vessel owners and manufacturers,
Prevention of Pollution from Ships 12,000 and 30,000 PM-related and in a way that is consistent with the
(MARPOL Annex VI) to designate U.S. premature deaths, between 210 and 920 international requirements for these
coasts as an Emission Control Area ozone-related premature deaths, vessels.
(ECA)3in which all vessels, regardless 1,400,000 work days lost, and 9,600,000 The human health and welfare
of flag, would be required to meet the minor restricted-activity days. The impacts of emissions from Category 3
most stringent engine and marine fuel estimated annual monetized health vessels, along with estimates of their
sulfur requirements in Annex VI; and benefits of this coordinated strategy in contribution to national emission
(3) the new engine emission and fuel 2030 would be between $110 and $270 inventories, are described in Section II.
sulfur limits contained in the billion, assuming a 3-percent discount The new tiers of engine emission
amendments to Annex VI that are rate (or between $99 and $240 billion standards under the Clean Air Act for
applicable to all vessels regardless of assuming a 7-percent discount rate). The addressing these emissions, and our
flag through the Act to Prevent Pollution annual cost of the overall program in justifications for them, are discussed in
from Ships (APPS), as well as 2030 would be significantly less, at Section III. Section IV contains changes
clarification on implementation of those approximately $3.1 billion. to our existing marine diesel fuel
standards, application to domestic and program. In Section V, we describe a
A. What Are the Elements of EPA’s
foreign-flagged vessels in internal key component of the coordinated
Coordinated Strategy for Ships?
waters, and application to nonparty strategy: The recently-submitted
foreign-flagged vessels. Our coordinated strategy for ocean- proposal to amend MARPOL Annex VI
The amendments to APPS to going vessels, including the emission to designate U.S. coasts as an ECA, as
incorporate Annex VI require standards finalized in this action under well as the IMO amendment process.
compliance with MARPOL Annex VI by the Clean Air Act, continues EPA’s In addition to the new emission
U.S. and foreign vessels that enter U.S. program to progressively apply limits, we are finalizing several
ports or operate in U.S. waters. In light advanced aftertreatment emission revisions to our Clean Air Act testing,
of this, we are deciding not to revisit our control standards to diesel engines and
certification, and compliance provisions
existing approach with respect to reflects the evolution of this technology
to better ensure emission control in use.
foreign vessels in this rule. However, from the largest inventory source
We are also finalizing regulations for the
the MARPOL Annex VI Tier III NO and (highway engines), to land-based
X purpose of implementing MARPOL
stringent fuel sulfur limits are nonroad engines, to locomotives and
Annex VI pursuant to the Act to Prevent
geographically based and would not marine diesel engines up to 30 liters per
Pollution from Ships (33 U.S.C. 1901 et
become effective absent designation of cylinder. The results of these forerunner
seq.). These revisions are described in
U.S. coasts as an ECA. As noted above, programs are dramatic reductions in
Section VI. Sections VII and VIII present
the United States forwarded a proposal NOXand PM2.5emissions on the order the estimated costs and benefits of our
to IMO to amend Annex VI to designate of 80 to 90 percent, which will lead to
coordinated program to address OGV
U.S. coasts as an ECA. This proposal to significant improvements in national air
emissions.
amend Annex VI was approved in quality.
principle and circulated for adoption. The combination of controls in the (1) What CAA Standards Is EPA
We expect the proposed ECA coordinated strategy for ocean-going Finalizing?
amendment will be adopted at MEPC vessels will provide significant We are finalizing new tiers of
60, in March 2010. If this amendment is reductions in PM2.5, NOX, SOX, and Category 3 marine diesel engine
not adopted in a timely manner by IMO, toxic compounds, both in the near term standards under our Clean Air Act
we intend to take supplemental action (as early as 2011) and in the long term. authority, as well as certain revisions to
to control emissions from vessels that These reductions will be achieved in a our marine fuel program.
affect U.S. air quality. manner that: (1) Is very cost effective Category 3 Engine Standards.
Our coordinated strategy for ocean- compared to additional controls on Previous standards for Category 3
going vessels will significantly reduce portside vehicles and equipment and engines were adopted in 2003. These
emissions from foreign and domestic other land-based mobile sources that are Tier 1 standards are equivalent to the
vessels that affect U.S. air quality, and already subject to stringent technology- first tier of MARPOL Annex VI NO
the impacts on human health and forcing emission standards; (2) leverages X
limits and require the use of control
welfare will be substantial. We project the international program adopted by
technology comparable to that used by
that by 2030 this program will reduce IMO to ensure that all ships that operate
nonroad engines in the early 1990s. We
annual emissions of NOX, SOX, and in areas that affect U.S. air quality are did not adopt PM standards at that time
particulate matter (PM) by 1.2 million, required to use stringent emission because the vast majority of PM
1.3 million, and 143,000 tons, control technology; and (3) provides the emissions from Category 3 engines are
respectively, and the magnitude of these lead time needed to deal with the the result of the sulfur content of the
reductions would continue to grow well engineering design workload that is residual fuel they use and because of
beyond 2030.4These reductions are involved in applying advanced high- measurement issues.5The combination
efficiency aftertreatment technology to
of the engine and fuel standards we are
3For the purpose of this final rule, the term these very large engines. Overall, the finalizing and the U.S. Government
‘‘ECA’’ refers to both the ECA and internal U.S. coordinated strategy constitutes a
proposal for ECA designation will
waters. Refer to Section VI.B. for a discussion of the comprehensive program that addresses
application of the fuel sulfur and engine emission
S_2 limits to U.S. internal waters through APPS. the problems caused by ocean-going 5As explained in the proposed rule leading to the
ULE 4These emission inventory reductions include vessel emissions from both a near-term 2003 final rule, there were concerns about
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Federal Register/Vol. 75, No. 83/Friday, April 30, 2010/Rules and Regulations 22899
require all vessels that operate in coastal Category 3 engines. As explained in devices, procedures, or compliance
areas that affect U.S. air quality to Section III.B.1, below, we are not setting methods that achieve equivalent
control emissions of NOX, SOX, and PM. a standard for PM emissions for emission control as operating on 1,000
We are revising our engine Category 3 engines. However, significant ppm sulfur fuel.
requirements under the Clean Air Act to PM emissions control will be achieved
include two additional tiers of NOX through the ECA fuel sulfur (2) What Is the U.S. Government
standards for new Category 3 marine requirements that will apply through Proposal for Designation of an Emission
diesel engines installed on vessels APPS to ships that operate in areas that Control Area?
flagged or registered in the United affect U.S. air quality. We are also
MARPOL Annex VI contains
States. The near-term Tier 2 standards requiring engine manufacturers to
international standards for air emissions
will apply beginning in 2011 and will measure and report PM emissions
from ships, including NO , SO , and
require more efficient use of engine pursuant to our authority in section 208 X X
PM emissions. The Annex VI NO and
technologies being used today, of the Clean Air Act. X
SO /PM limits are set out in Table I–1.
including engine timing, engine cooling, Fuel Sulfur Limits. We are finalizing X
Annex VI was adopted by the Parties in
and advanced computer controls. The fuel sulfur limits under section 211(c) of
1997 but did not go into force until
long-term Tier 3 standards will apply the Clean Air Act that match the limits
2005, after it was ratified by fifteen
beginning in 2016 and will require the that apply under Annex VI in ECAs.
countries representing at least 50
use of more advanced technology such First, we are revising our existing diesel
percent of the world’s merchant
as selective catalytic reduction. fuel program to allow for the production
shipping tonnage. These Annex VI NO
Because much of the operation of U.S. and sale of 1,000 ppm sulfur fuel for use X
standards currently apply to all engines
vessels occurs in areas that will have in Category 3 marine vessels. This will
above 130 kW installed on a ship
little, if any, impact on U.S. air quality, allow production and distribution of
constructed on or after January 1, 2000
our Clean Air Act program will allow fuel consistent with the new sulfur
and reduce NO emissions by about 30
the use of alternative emission control limits that will become applicable, X
percent from uncontrolled levels. As
devices (AECDs) that will permit a ship under Annex VI, in ECAs beginning in
originally adopted, Annex VI included
to meet less stringent requirements on 2015. Our current diesel fuel program
two fuel sulfur limits: A global limit of
the open sea. The use of these devices sets a sulfur limit of 15 ppm that will
45,000 ppm and a more stringent 15,000
will be subject to certain restrictions, be fully phased-in by December 1, 2014
ppm limit for SO Emission Control
including a requirement that the AECD for land-based nonroad, locomotive, and X
Areas (SECAs). This approach ensures
not disable emission controls while marine (NRLM) diesel fuel produced for
that the cleanest fuel is used in areas
operating in areas where emissions can distribution, sale and use in the United
that demonstrate a need for additional
reasonably be expected to adversely States. Without this change to our
SO reductions, while retaining the
affect U.S. air quality, and that the existing diesel fuel regulations, fuel X
ability of ships to use higher-sulfur
engine is equipped with a NO emission with a sulfur content of up to 1,000 ppm
X residual fuel on the open ocean.
monitoring device. In addition, the could be used in Category 3 marine
engine will be required to meet the Tier vessels, but it could not be legally Annex VI was amended in October
2 NOXlimits when the AECD is produced in the U.S. after June 1, 2014. 2008, adding two tiers of NOXlimits
implemented, and an AECD will not be Second, we are generally forbidding the (Tier II and Tier III) and two sets of fuel
allowed on any Tier 2 or earlier engine. production and sale of fuel oil with a sulfur standards.6These amendments
In addition to the NO emission sulfur content above 1,000 ppm for use will enter into force on July 1, 2010. The
X
limits, we are finalizing standards for in the waters within the proposed ECA most stringent NO and fuel sulfur
X
emissions of hydrocarbons (HC) and (see Note 3, supra). The exception to limits are regionally based and will
carbon monoxide (CO) from new this is if the vessel uses alternative apply only in designated ECAs.
TABLE I–1—ANNEX VI NOX EMISSION STANDARDS AND FUEL SULFUR LIMITS
Less than 130 130–2,000 Over 2,000
RPM RPMa RPM
NOXg/kW-hr ............................. Tier I ......................................... b2004 17.0 45.0·n(¥0.20) 9.8
Tier II ........................................ 2011 14.4 44.0·n(¥0.23) 7.7
Tier III ....................................... 2016 3.4 9.0·n(¥0.23) 2.0
Global ECA
Fuel Sulfur ....................................................................................... 2004 c45,000 ppm 2005 c15,000 ppm
2012 c35,000 ppm 2010 c10,000 ppm
2020 cd5,000 ppm 2015 c1,000 ppm
Notes:
aApplicable standards are calculated from n (maximum in-use engine speed in revolutions per minute (rpm)), rounded to one decimal place.
bTier 1 NO standards apply for engines originally manufactured after 2004, and proposed also to certain earlier engines.
X
cAnnex VI standards are in terms of percent sulfur. Global sulfur limits are 4.5%; 3.5%; 0.5%. ECA sulfur limits are 1.5%; 1.0%; 0.1%.
dSubject to a feasibility review in 2018; may be delayed to 2025.
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DX 6Note that the MARPOL Annex VI standards are emission standards are referred to as Tiers 1, 2, and
K1 referred to as Tiers I, II, and III; EPA’s Category 3 3.
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22900 Federal Register/Vol. 75, No. 83/Friday, April 30, 2010/Rules and Regulations
‘‘U.S./Canada ECA’’ or the ‘‘North adjustments or corrections to our cost (the costs borne to society imposed
American ECA’’).7In addition, France recently finalized rule for new nonroad as a result of the activity taking place)
has joined the ECA proposal on behalf spark-ignition engines, or adjustment to is not taken into account in the total
of the Saint Pierre and Miquelon other regulatory provisions to align with cost of producing goods and services. In
archipelago. A description of this this recent final rule. this case, as described in this section
proposal and the IMO ECA designation below and in Section II, emissions from
(5) Summary
process is set out in Section V. ECA ocean-going vessels impose public
designation would ensure that ships The emission control requirements in health and environmental costs on
that affect U.S. air quality meet stringent our coordinated strategy are the society, and these added costs to society
NOXand fuel sulfur requirements while MARPOL Annex VI global Tier II NOX are not reflected in the costs of
operating within 200 nautical miles of standards included in the amendments providing the transportation services.
U.S. coasts. We expect the North to Annex VI and the ECA Tier III NO The market system itself cannot correct
X
American proposal will be adopted by limits and fuel sulfur limits that will this externality because firms in the
the Parties to MARPOL Annex VI in apply when the U.S. coasts are market are rewarded for minimizing
March 2010, entering into force as early designated as an ECA through an their production costs, including the
as 2012. If, however, the proposed additional amendment to Annex VI. The costs of pollution control. In addition,
amendment is not adopted in a timely Annex VI requirements, including the firms that may take steps to use
manner, we intend to take supplemental future ECA requirements, will be equipment that reduces air pollution
action to control harmful emissions enforceable for U.S. and foreign vessels may find themselves at a competitive
from vessels that affect U.S. air quality. operating in U.S. waters through the Act disadvantage compared to firms that do
to Prevent Pollution from Ships. not. To correct this market failure and
(3) Regulations To Implement Annex VI
We are also adopting the NO reduce the negative externality from
X
The United States became a party to emission standards for Category 3 these emissions, we are setting a cap on
MARPOL Annex VI by depositing its engines on U.S. vessels under section the rate of emission production from
instrument of ratification with IMO on 213 of the Clean Air Act. these sources. EPA’s coordinated
October 8, 2008. This was preceded by Finally, we are adopting additional strategy for ocean-going vessels will
the President signing into law the requirements that are not part of the accomplish this since both domestic
Maritime Pollution Prevention Act of Annex VI program or the ECA. These and foreign ocean-going vessels will be
2008 (Pub. L. 110–280) on July 21, 2008, are (1) limits on hydrocarbon and required to reduce their emissions to a
that contains amendments to the Act to carbon monoxide emissions for Category technologically feasible limit.
Prevent Pollution from Ships (33 U.S.C. 3 engines; (2) a PM measurement Emissions from ocean-going vessels
1901 et seq.). These APPS amendments requirement to obtain data on PM account for substantial portions of the
require compliance with Annex VI by emissions from engines operating on country’s ambient PM2.5, SOXand NOX
all persons subject to the engine and distillate fuel; and (3) changes to our levels. We estimate that in 2009 these
vessel requirements of Annex VI. The diesel fuel program under the Clean Air engines account for about 80 percent of
amendments also authorize the U.S. Act to allow production and sale of mobile source sulfur dioxide (SO2)
Coast Guard and EPA to enforce the ECA-compliant fuel. We are also emissions, 10 percent of mobile source
provisions of Annex VI against domestic changing our emission control program NOXemissions and about 24 percent of
and foreign vessels and to develop for smaller marine diesel engines to mobile source diesel PM2.5emissions.
implementing regulations, as necessary. harmonize with the Annex VI NO Emissions from ocean-going vessels are
X
In addition, APPS gives EPA sole requirements for U.S. vessels that expected to dominate the mobile source
authority to certify engines installed on operate internationally. inventory in the future, due to both the
U.S. vessels to the Annex VI expected emission reductions from
requirements. This final rule contains B. Why Is EPA Making This Rule? other mobile sources as a result of more
regulations codifying the Annex VI (1) Category 3 Engines Contribute to stringent emission controls and due to
requirements and regulations to Serious Air Quality Problems growth in the demand for ocean
implement several aspects of the Annex transportation services. By 2030, the
VI engine and fuel regulations, which Category 3 engines generate coordinated strategy will reduce annual
we are finalizing under that APPS significant emissions of PM2.5, SOX, and SO2emissions from these diesel engines
authority. Our cost and benefit analyses NOXthat contribute to nonattainment of by 1.3 million tons, annual NOX
for the coordinated strategy include the the National Ambient Air Quality emissions by 1.2 million tons, and PM2.5
costs for U.S. vessels to implement the Standards (NAAQS) for PM2.5and emissions by 143,000 tons, and those
requirements of this MARPOL Annex VI ground-level ozone (smog). NOXand reductions will continue to grow
program, including requirements that SOXare both precursors to secondary beyond 2030 as fleet turnover to the
will apply upon entry into force of the PM2.5formation. Both PM2.5and NOX clean engines continues. While a share
North American ECA. adversely affect human health. NOXis a of these emissions occur at sea, our air
key precursor to ozone as well. NOX, quality modeling results described in
(4) Technical Amendments SOXand PM2.5emissions from ocean- Section II show they have a significant
The finalized regulations also include going vessels also cause harm to public impact on ambient air quality far inland.
technical amendments to our motor welfare, including contributing to Both ozone and PM2.5are associated
vehicle and nonroad engine regulations. deposition of nitrogen and sulfur, with serious public health problems,
ES_2 Many of these changes involve minor venisvibiriolintym iemntpaali irmmpenact tasn adc rootshse trh hea Urm.Sf.u l iangcglruadvaintigo np roefm reastupriera mtoorryt aalnitdy ,
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O Particulate Matter, Submitted by the United States classic example of a negative externality emergency room visits, school absences,
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K1 ci/mepc-59-eca-proposal.pdf. negative externality, an activity’s social increased respiratory symptoms, altered
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Federal Register/Vol. 75, No. 83/Friday, April 30, 2010/Rules and Regulations 22901
respiratory defense mechanisms, and marine ports.16Of the 45 marine ports water bodies. NO , SO and direct
X X
chronic bronchitis. Diesel exhaust is of selected, the results indicate that at least emissions of PM2.5can contribute to the
special public health concern, and since 18 million people, including a substantial impairment of visibility in
2002 EPA has classified it as likely to be disproportionate number of low-income many parts of the U.S. where people
carcinogenic to humans by inhalation at households, African-Americans, and live, work, and recreate, including
environmental exposures. Recent Hispanics, live in the vicinity of these national parks, wilderness areas, and
studies are showing that populations facilities and are being exposed to mandatory class I Federal areas.17The
ambient diesel PM levels that are 2.0 μg/ deposition of airborne particles can also
living near large diesel emission sources
m3and 0.2 μg/m3above levels found in reduce the aesthetic appeal of buildings
such as major roadways, rail yards, and
areas further from these facilities. and culturally important articles
marine ports are likely to experience
Considering only ocean-going marine through soiling, and can contribute
greater diesel exhaust exposure levels
engine diesel PM emissions, the results directly (or in conjunction with other
than the overall U.S. population, putting
indicate that 6.5 million people are pollutants) to structural damage by
them at greater health risks.8910
exposed to ambient diesel particulate means of corrosion or erosion. Finally,
EPA recently updated its initial matter (DPM) levels that are 2.0 μg/m3 ozone causes damage to vegetation
screening-level analysis11of selected and 0.2 μg/m3above levels found in which leads to crop and forestry
marine port areas to better understand areas further from these facilities. economic losses, as well as harm to
the populations that are exposed to Because those populations exposed to national parks, wilderness areas, and
diesel particulate matter emissions from diesel PM emissions from marine ports other natural systems.
these facilities.12131415This screening- are more likely to be low-income and EPA has already adopted many
level analysis focused on a minority residents, these populations emission control programs that are
representative selection of national would benefit from the controls being expected to reduce ambient PM2.5and
proposed in this action. The detailed ozone levels, including the Nonroad
findings of this study are available in Spark Ignition Engine rule (73 FR
8U. S. EPA (2004). Final Regulatory Impact
the public docket for this rulemaking. 59034, Oct 8, 2008), the Locomotive and
Analysis: Control of Emissions from Nonroad Diesel
Engines, Chapter 3. Report No. EPA420–R–04–007. Even outside port areas, millions of Marine Diesel Engine Rule (73 FR
http://www.epa.gov/nonroad-diesel/2004fr.htm#ria. Americans continue to live in areas that 25098, May 6, 2008), the Clean Air
9State of California Air Resources Board. (2004). do not meet existing air quality Interstate Rule (CAIR) (70 FR 25162,
Roseville Rail Yard Study. Sacramento, CA: standards today. With regard to PM May 12, 2005), the Clean Air Nonroad
California EPA, California Air Resources Board 2.5
nonattainment, in 2005 EPA designated Diesel Rule (69 FR 38957, June 29,
(CARB). Stationary Source Division. This document
is available electronically at: http://www.arb.ca.gov/ 39 nonattainment areas for the 1997 2004), the Heavy Duty Engine and
diesel/documents/rrstudy.htm. PM NAAQS (70 FR 943, January 5, Vehicle Standards and Highway Diesel
2.5
10Di, P., Servin, A., Rosenkranz, K., Schwehr, B., 2005). These areas are composed of 208 Fuel Sulfur Control Requirements (66
Tran, H., (2006). Diesel Particulate Matter Exposure full or partial counties with a total FR 5002, Jan. 18, 2001), and the Tier 2
Assessment Study for the Ports of Los Angeles and
population exceeding 88 million. The Vehicle and Gasoline Sulfur Program
Long Beach. Sacramento, CA: California EPA,
California Air Resources Board (CARB). Retrieved 1997 PM2.5NAAQS was recently revised (65 FR 6698, Feb. 10, 2000). The
March 19, 2009 from http://www.arb.ca.gov/regact/ and the 2006 PM2.5NAAQS became additional PM2.5, SOX, and NOX
marine2005/portstudy0406.pdf. effective on December 18, 2006. As of emission reductions resulting from the
11This type of screening-level analysis is an December 22, 2008, there are 58 2006 coordinated approach described in this
inexact tool and not appropriate for regulatory
decision-making; it is useful in beginning to PM2.5nonattainment areas composed of action will assist States in attaining and
understand potential impacts and for illustrative 211 full or partial counties. These maintaining the PM2.5and ozone
purposes. Additionally, the emissions inventories numbers do not include individuals NAAQS near term and in the decades to
used as inputs for the analyses are not official living in areas that may fail to maintain come.
eesmtiimssaiotenss a bnedc aliukseel yth uenyd aerree nstoimt iantcel uosvievrea lol f all or achieve the PM2.5NAAQS in the Our air quality modeling projects that
in 2020 at least 13 counties with about
emission sources at the individual ports in the future. Currently, ozone concentrations
sample. exceeding the 8-hour ozone NAAQS 30 million people may violate the 1997
12ICF International. September 28, 2007. occur over wide geographic areas, standards for PM2.5and 50 counties
Estimation of diesel particulate matter with about 50 million people may
including most of the nation’s major
concentration isopleths for marine harbor areas and
violate the 2008 standards for ozone.
rail yards. Memorandum to EPA under Work population centers. As of December
Assignment Number 0–3, Contract Number EP–C– 2008, there are approximately 132 These numbers likely underestimate the
06–094. This memo is available in Docket EPA– million people living in 57 areas (293 impacted population since they do not
HQ–OAR–2007–0121. include the people who live in areas
full or partial counties) designated as
13ICF International. September 28, 2007. which do not meet the 2006 PM
Estimation of diesel particulate matter population not in attainment with the 8-hour ozone 2.5
NAAQS. In addition, these numbers do
exposure near selected harbor areas and rail yards. NAAQS. These numbers do not include
Memorandum to EPA under Work Assignment people living in areas where there is a not include the additional 13 million
Number 0–3, Contract Number EP–C–06–094. This people in 12 counties who live in areas
potential that the area may fail to
memo is available in Docket EPA–HQ–OAR–2007– that have air quality measurements
0121. maintain or achieve the 8-hour ozone
within 10 percent of the 1997 PM
14ICF International, December 10, 2008. NAAQS. 2.5
NAAQS and the additional 80 million
Estimation of diesel particulate matter population In addition to public health impacts,
exposure near selected harbor areas with revised there are serious public welfare and people in 135 counties who live in areas
harbor emissions. Memorandum to EPA under
environmental impacts associated with
ES_2 WEPo–rCk– A0s6s–i0g9n4m. eTnhti Ns mumembeor i2s– a9v.a Ciloanbtlrea icnt NDuocmkbeet r PM2.5and ozone emissions. Specifically, Ac1t7 aTsh tehsoes aer neaasti oarnea ld pefairnkesd e ixnc eseedctiinogn 6 1,06020 o af cthrees ,
D with RUL EEPs1tAi5m–ICHaFtQi oI–nnOt eoArfn Rda–ite2iso0en0la 7pl–.a 0Dr1tei2cc1ue.ml atbee rm 1a,t t2e0r0 8. NenniOtgrXiinfiaecnsa dtci ooSnnOt,rX aibneumdt eies utsotiro otnhpseh fairccoaimdtii odfniic eaostfei ol n, w5in,i0 le0dx0ei srantceernsecsse ,a aorennad sA aaulnlg diun smtte 7ermn, 1aot9ir7oia7nl.a pSl aeprcaktrisko esnx w 1ce6he9icd ohinf wgth eer e
O concentration isopleths near selected harbor areas Clean Air Act provides additional authority to
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X6B1P wunitdhe rr eWviosrekd Aemssiisgsnimonesn. tM Neummobrearn d1–u9m. Ctoo nEtPrAac t 16The Agency selected a representative sample afudtdurrees vs iesxibisitliintyg ivmispiabiirlmitye nimt ipna tihrme e1n5t6 annadti ponreavl ent
DX Number EP–C–06–094. This memo is available in from the top 150 U.S. ports including coastal and parks, forests and wilderness areas categorized as
K1 Docket EPA–HQ–OAR–2007–0121. Great Lake ports. mandatory class I Federal areas.
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22902 Federal Register/Vol. 75, No. 83/Friday, April 30, 2010/Rules and Regulations
that have air quality measurements Reinvestment and Recovery Act of 2009, going vessels in 2015, as would be
within 10% of the 2008 ozone NAAQS. EPA will promote and preserve jobs required through ECA designation for
The emission reductions resulting from while improving public health and U.S. coasts, we are confident the
this coordinated strategy will assist achieving significant reductions in application of advanced NO
X
these and other States to both attain and diesel emissions. technology to Category 3 marine engines
maintain the PM and ozone NAAQS. Furthermore, EPA’s National Clean will proceed at a reasonable rate of
2.5
State and local governments are Diesel Campaign, through its Clean progress and will result in systems
working to protect the health of their Ports USA program, is working with capable of achieving the finalized
citizens and comply with requirements port authorities, terminal operators, standards on schedule. Use of this lower
of the Clean Air Act. As part of this shipping, truck, and rail companies to sulfur fuel will also result in substantial
effort, they recognize the need to secure promote cleaner diesel technologies and PM emission reductions, since PM
additional major reductions in diesel strategies through education, incentives, emissions from Category 3 engines come
PM2.5, SOXand NOXemissions by and financial assistance for diesel mostly from the use of high sulfur
undertaking numerous State level emission reductions at ports. Part of residual fuel. Note that vessels may be
actions, while also seeking Agency these efforts involves clean diesel equipped with alternative devices,
action, including the Category 3 engine programs that can further reduce procedures, or compliance methods
standards being finalized in this final emissions from the existing fleet of provided they achieve equivalent
rule and the U.S. proposal to IMO to diesel engines. Finally, many of the emissions reductions.
amend Annex VI to designate U.S. companies operating in States and
C. Statutory Basis for Action
coastal areas as an ECA, and related communities suffering from poor air
certification and fuel provisions under quality have voluntarily entered into Authority for the actions proposed in
the Clean Air Act to complement that Memoranda of Understanding (MOUs) this documents is granted to the
ECA proposal. EPA’s coordinated designed to ensure that the cleanest Environmental Protections Agency by
strategy to reduce OGV emissions technologies are used first in regions sections 114, 203, 205, 206, 207, 208,
through engine emission controls and with the most challenging air quality 211, 213, 216, and 301(a) of the Clean
fuel sulfur limits will play a critical part issues. Air Act as amended in 1990 (42 U.S.C.
in State efforts to attain and maintain Taken together, these voluntary 7414, 7522, 7524, 7525, 7541, 7542,
the NAAQS through the next two approaches can augment the 7545, 7547, 7550 and 7601(a)), and by
decades. coordinated strategy and help States and sections 1901–1915 of the Act to
In addition to regulatory programs, communities achieve larger reductions Prevent Pollution from Ships (33 U.S.C.
the Agency has a number of innovative sooner in the areas of our country that 1909 et seq.).
programs that partner government, need them the most. The Agency
(1) Clean Air Act Basis for Action
industry, and local communities remains committed to furthering these
together to help address challenging air programs and others so that all of our EPA is proposing the fuel
quality problems. Under the National citizens can breathe clean healthy air. requirements pursuant to its authority
Clean Diesel Campaign, EPA promotes a in section 211(c) of the Clean Air Act,
(2) Advanced Emission Technology
variety of emission reduction strategies which allows EPA to regulate fuels that
Solutions Are Available
such as retrofitting, repairing, replacing contribute to air pollution that
and repowering engines, reducing idling Air pollution from marine diesel endangers public health or welfare (42
and switching to cleaner fuels. exhaust is a challenging problem. U.S.C. 7545(c)). As discussed previously
In 2008, Congress appropriated However, we believe manufacturers can in EPA’s Clean Air Nonroad Diesel rule
funding for the Diesel Emission apply a combination of existing and (69 FR 38958) and in Section II, the
Reduction Program under the Energy new technologies to meet the emission combustion of high sulfur diesel fuel by
Policy Act of 2005 (EPAct 2005) to standards we are adopting in this final nonroad, locomotive, and marine diesel
reduce emissions from heavy-duty rule. Optimizing air intake fuel injection engines contributes to air quality
diesel engines in the existing fleet. The systems can substantially reduce problems that endanger public health
EPAct 2005 directs EPA to break the engine-out emissions. Further NOX and welfare. Section II also discusses
funding into two different components: control can be achieved with advanced the significant contribution to these air
a National competition and a State technology such as aftertreatment quality problems by Category 3 marine
allocation program. The National devices with high-efficiency catalysts. vessels. Additional support for the
Program, with 70 percent of the funding, As discussed in greater detail in Section procedural and enforcement-related
consists of three separate competitions: III.C, the development of these aspects of the fuel controls in the final
(1) The National Clean Diesel Funding aftertreatment technologies for highway rule, including the recordkeeping
Assistance Program; (2) the National and nonroad diesel applications has requirements, comes from Clean Air Act
Clean Diesel Emerging Technologies advanced rapidly in recent years, so that sections 114(a) and 301(a) (42 U.S.C.
Program; and (3) the SmartWay Clean very large emission reductions in NO sections 7414(a) and 7601(a)).
X
Diesel Finance Program. The State Clean emissions can be achieved. EPA is finalizing emission standards
Diesel Grant and Loan Program utilizes Manufacturers might also deploy other for new Category 3 marine diesel
the remaining 30 percent of the funding. advanced technologies such as water- engines pursuant to its authority under
In the first year of the program, EPA based in-cylinder controls to reduce section 213(a)(3) of the Clean Air Act,
awarded 119 grants totaling $49.2 NO emissions. which directs the Administrator to set
X
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R country for cleaner fuels, verified required only in ECAs designated under CO for classes or categories of engines,
with technologies, and certified engine MARPOL Annex VI, and they are such as marine diesel engines, that
D
RO configurations. expected to be able to operate on ECA contribute to ozone or carbon monoxide
P
B1 Through $300 million in funding fuel meeting a 1,000 ppm fuel sulfur. concentrations in more than one
XX6 provided to the Diesel Emission With the lead time available and the nonattainment area. These ‘‘standards
D
K1 Reduction Program under the American assurance of 1,000 ppm fuel for ocean- shall achieve the greatest degree of
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Federal Register/Vol. 75, No. 83/Friday, April 30, 2010/Rules and Regulations 22903
emission reduction achievable through welfare. EPA has already found in physically diverse substances. It can be
the application of technology which the previous rules that emissions from new principally characterized as discrete
Administrator determines will be marine diesel engines contribute to particles that exist in the condensed
available for the engines or vehicles, ozone and CO concentrations in more (liquid or solid) phase spanning several
giving appropriate consideration to cost, than one area which has failed to attain orders of magnitude in size. Since 1987,
lead time, noise, energy, and safety the ozone and carbon monoxide EPA has delineated that subset of
factors associated with the application NAAQS (64 FR 73300, December 29, inhalable particles small enough to
of such technology.’’ 1999). penetrate to the thoracic region
EPA is finalizing a PM measurement The NOXand PM emission reductions (including the tracheobronchial and
requirement for new Category 3 marine achieved through the coordinated alveolar regions) of the respiratory tract
diesel engines pursuant to its authority strategy will be important to States’ (referred to as thoracic particles).
under section 208, which requires efforts to attain and maintain the Ozone Current NAAQS use PM as the
2.5
manufacturers and other persons subject and the PM2.5NAAQS in the near term indicator for fine particles (with PM2.5
to Title II requirements to ‘‘provide and in the decades to come, and will referring to particles with a nominal
information the Administrator may significantly reduce the risk of adverse mean aerodynamic diameter less than or
reasonably require * * * to otherwise effects to human health and welfare. equal to 2.5 μm), and use PM as the
10
carry out the provisions of this part (2) APPS Basis for Action indicator for purposes of regulating the
* * *’’ coarse fraction of PM (referred to as
EPA is also acting under its authority EPA is finalizing regulations to 10
thoracic coarse particles or coarse-
to implement and enforce the Category implement MARPOL Annex VI
fraction particles; generally including
3 marine diesel emission standards. pursuant to its authority in section 1903
particles with a nominal mean
Section 213(d) provides that the of the Act to Prevent Pollution from
aerodynamic diameter greater than 2.5
standards EPA adopts for marine diesel Ships (APPS). Section 1903 gives the μm and less than or equal to 10 μm, or
engines ‘‘shall be subject to Sections Administrator the authority to prescribe
PM ). Ultrafine particles are a subset
206, 207, 208, and 209’’ of the Clean Air any necessary or desired regulations to 10–2.5
of fine particles, generally less than 100
Act, with such modifications that the carry out the provisions of Regulations nanometers (0.1 μm) in aerodynamic
Administrator deems appropriate to the 12 through 19 of Annex VI.
diameter.
regulations implementing these The Act to Prevent Pollution from
Fine particles are produced primarily
sections.’’ In addition, the marine Ships implements Annex VI and makes
by combustion processes and by
standards ‘‘shall be enforced in the same those requirements enforceable
transformations of gaseous emissions
manner as [motor vehicle] standards domestically. However, certain
(e.g., SO , NO and VOC) in the
prescribed under section 202’’ of the clarifications are necessary for X X
atmosphere. The chemical and physical
Act. Section 213(d) also grants EPA implementing Regulation 13 and the
properties of PM may vary greatly
authority to promulgate or revise requirements of the NOXTechnical 2.5
with time, region, meteorology, and
regulations as necessary to determine Code with respect to issuance of Engine
source category. Thus, PM may
compliance with and enforce standards International Air Pollution Prevention 2.5
include a complex mixture of different
adopted under section 213. (EIAPP) certificates and approval of
pollutants including sulfates, nitrates,
As required under section 213(a)(3), alternative compliance methods.
organic compounds, elemental carbon
we believe the evidence provided in Clarification is also needed with respect
and metal compounds. These particles
Section III.C and in Chapter 4 of Final to the application of the Annex VI
Regulatory Impact Analysis (RIA) requirements to certain U.S. and foreign can remain in the atmosphere for days
indicates that the stringent NO vessels that operate in U.S. waters. to weeks and travel hundreds to
X
thousands of kilometers.
emission standards finalized in this
II. Air Quality, Health and Welfare
final rule for newly built Category 3 Impacts (a) Health Effects of PM
marine diesel engines are feasible and
reflect the greatest degree of emission The coordinated strategy will Scientific studies show ambient PM is
reduction achievable through the use of significantly reduce emissions of NOX, associated with a series of adverse
technology that will be available in the PM, and SOXfrom ocean-going vessels. health effects. These health effects are
model years to which they apply. We Emissions of these compounds discussed in detail in EPA’s 2004
have given appropriate consideration to contribute to PM and ozone Particulate Matter Air Quality Criteria
costs in finalizing these standards. Our nonattainment and environmental Document (PM AQCD) and the 2005 PM
review of the costs and cost- effects including deposition, visibility Staff Paper.181920Further discussion of
effectiveness of these standards indicate impairment and harm to ecosystems
that they are reasonable and comparable from ozone. In addition diesel 18U.S. EPA (2004). Air Quality Criteria for
to the cost-effectiveness of other mobile particulate matter is associated with a Panadrt iVcuolluatme eM IaI tEtePrA. 6V0o0lu/Pm–e9 9I /E0P0A2b6F0.0 R/Pe–tr9i9ev/0e0d2 oanF
source emission reduction strategies host of adverse health effects, including March 19, 2009 from Docket EPA–HQ–OAR–2003–
that have been required. We have also cancer. 0190 at http://www.regulations.gov/.
reviewed and given appropriate This section summarizes the general 19U.S. EPA (2005). Review of the National
health and welfare effects of these Ambient Air Quality Standard for Particulate
consideration to the energy factors of
emissions and the modeled projections Matter: Policy Assessment of Scientific and
this rule in terms of fuel efficiency as Technical Information, OAQPS Staff Paper. EPA–
of changes in air quality due to the
well as any safety and noise factors 452/R–05–005a. Retrieved March 19, 2009 from
ES_2 assTohceia itnefdo rwmitahti othne isne Ssteacntdioanrd IIs .a nd caoreo rednicnoauteradg setdra ttoe greyf.e Irn ttoe rtehsete RdI Are afodre rs hptmtps:t/a/fwfpwawp.eerp_a2.0g0o5v1/t2t2n1/n.padafq. s/standards/pm/data/
D with RUL CAhnaaplytesris 2 r eogf atrhdei nFgin aailr Rqeugauliltayt oarnyd I mpact mA.o Preu binli-cd Hepetahl tdhi sImcupsasicotsn s. thhee2a0 lEtThPh Aeef ifPseM ccto sNn, iAsniAdcelQuriSdn iigns g ac liuln rafrvoearnmitllaaybt iluoenn sd cweireh nrieccvhei oehwna s P aMnd
O public health impacts provides strong been published since 2004, in the development of
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K1 adversely impact public health or a broad class of chemically and Continued
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22904 Federal Register/Vol. 75, No. 83/Friday, April 30, 2010/Rules and Regulations
health effects associated with PM can extension of the American Cancer After being emitted in the engine
also be found in the RIA for this rule. Society Study shows an association exhaust, diesel exhaust undergoes
Health effects associated with short- between PM and sulfate dilution as well as chemical and
2.5
term exposures (hours to days) to concentrations and lung cancer physical changes in the atmosphere.
ambient PM include premature mortality.27 The lifetime for some of the compounds
mortality, aggravation of cardiovascular present in diesel exhaust ranges from
(b) Health Effects of Diesel Particulate
and lung disease (as indicated by hours to days.29
Matter
increased hospital admissions and
(i) Diesel Exhaust: Potential Cancer
emergency department visits), increased Marine diesel engines emit diesel
Effects
respiratory symptoms including cough exhaust (DE), a complex mixture
and difficulty breathing, decrements in composed of carbon dioxide, oxygen, In EPA’s 2002 Diesel Health
lung function, altered heart rate rhythm, nitrogen, water vapor, carbon monoxide, Assessment Document (Diesel HAD),30
and other more subtle changes in blood nitrogen compounds, sulfur compounds exposure to diesel exhaust was
markers related to cardiovascular and numerous low-molecular-weight classified as likely to be carcinogenic to
health.21Long-term exposure to PM hydrocarbons. A number of these humans by inhalation from
2.5
and sulfates has also been associated gaseous hydrocarbon components are environmental exposures, in accordance
with mortality from cardiopulmonary individually known to be toxic, with the revised draft 1996/1999 EPA
disease and lung cancer, and effects on including aldehydes, benzene and 1,3- cancer guidelines. A number of other
the respiratory system such as reduced butadiene. The diesel particulate matter agencies (National Institute for
lung function growth or development of (DPM) present in DE consists of fine Occupational Safety and Health, the
respiratory disease. A new analysis particles (< 2.5 μm), including a International Agency for Research on
shows an association between long-term subgroup with a large number of Cancer, the World Health Organization,
PM exposure and a subclinical ultrafine particles (< 0.1 μm). These California EPA, and the U.S.
2.5
measure of atherosclerosis.2223 particles have a large surface area which Department of Health and Human
Studies examining populations makes them an excellent medium for Services) have made similar
exposed over the long term (one or more adsorbing organics and their small size classifications. However, EPA also
years) to different levels of air pollution, makes them highly respirable. Many of concluded in the Diesel HAD that it is
including the Harvard Six Cities Study the organic compounds present in the not possible currently to calculate a
and the American Cancer Society Study, gases and on the particles, such as cancer unit risk for diesel exhaust due
show associations between long-term polycyclic organic matter (POM), are to a variety of factors that limit the
exposure to ambient PM and both all individually known to have mutagenic current studies, such as limited
2.5
cause and cardiopulmonary premature and carcinogenic properties. Diesel quantitative exposure histories in
mortality.242526In addition, an exhaust varies significantly in chemical occupational groups investigated for
composition and particle sizes between lung cancer.
review by the Clean Air Scientific Advisory different engine types (heavy-duty, For the Diesel HAD, EPA reviewed 22
Committee (CASAC) of EPA’s Science Advisory light-duty), engine operating conditions epidemiologic studies on the subject of
Board. Comments from the general public have also (idle, accelerate, decelerate), and fuel the carcinogenicity of workers exposed
been requested. For more information, see http://
formulations (high/low sulfur fuel). to diesel exhaust in various
cfpub.epa.gov/ncea/cfm/recordisplay.cfm?
deid=210586. Also, there are emissions differences occupations, finding increased lung
21U.S. EPA (2006). National Ambient Air Quality between on-road and nonroad engines cancer risk, although not always
Standards for Particulate Matter. 71 FR 61144, because the nonroad engines are statistically significant, in 8 out of 10
October 17, 2006.
generally of older technology. This is cohort studies and 10 out of 12 case-
22Ku¨nzli, N., Jerrett, M., Mack, W.J., et al. (2004).
Ambient air pollution and atherosclerosis in Los especially true for marine diesel control studies within several
Angeles. Environ Health Perspect.,113, 201–206 engines.28 industries. Relative risk for lung cancer
23This study is included in the 2006 Provisional associated with exposure ranged from
Assessment of Recent Studies on Health Effects of mortality in six U.S. cities. N Engl J Med, 329, 1.2 to 1.5, although a few studies show
Particulate Matter Exposure. The provisional
1753–1759. Retrieved on March 19, 2009 from relative risks as high as 2.6.
assessment did not and could not (given a very
short timeframe) undergo the extensive critical http://content.nejm.org/cgi/content/full/329/24/ Additionally, the Diesel HAD also relied
1753.
review by CASAC and the public, as did the PM on two independent meta-analyses,
25Pope, C.A., III, Thun, M.J., Namboodiri, M.M.,
A‘‘nQewCD’’ .s tTuhdei epsr oexvpisainonda tlh aes ssceisesnmtiefnict fionufonrdm tahtaiot nth aen d Dockery, D.W., Evans, J.S., Speizer, F.E., and Heath, which examined 23 and 30 occupational
provide important insights on the relationship C.W., Jr. (1995). Particulate air pollution as a studies respectively, which found
between PM exposure and health effects of PM. The predictor of mortality in a prospective study of U.S. statistically significant increases in
provisional assessment also found that ‘‘new’’ adults. Am. J. Respir. Crit. Care Med, 151, 669–674. smoking-adjusted relative lung cancer
studies generally strengthen the evidence that acute 26Krewski, D., Burnett, R.T., Goldberg, M.S., et al. risk associated with exposure to diesel
and chronic exposure to fine particles and acute (2000). Reanalysis of the Harvard Six Cities study
exposure to thoracic coarse particles are associated and the American Cancer Society study of exhaust of 1.33 to 1.47. These meta-
with health effects. Further, the provisional science particulate air pollution and mortality. A special analyses demonstrate the effect of
assessment found that the results reported in the report of the Institute’s Particle Epidemiology pooling many studies and in this case
studies did not dramatically diverge from previous Reanalysis Project. Cambridge, MA: Health Effects show the positive relationship between
findings, and taken in context with the findings of Institute. Retrieved on March 19, 2009 from
the AQCD, the new information and findings did http://es.epa.gov/ncer/science/pm/hei/Rean-Exec
not materially change any of the broad scientific Summ.pdf. 29U.S. EPA (2002). Health Assessment Document
conclusions regarding the health effects of PM 27Pope, C. A., III, Burnett, R.T., Thun, M.J., Calle, for Diesel Engine Exhaust. EPA/600/8–90/057F
exposure made in the AQCD. However, it is E.E., Krewski, D., Ito, K., Thurston, G.D., (2002). Office of Research and Development, Washington,
S_2 important to note that this assessment was limited Lung cancer, cardiopulmonary mortality, and long- DC. Retrieved on March 17, 2009 from http://
E
UL to screening, surveying, and preparing a provisional term exposure to fine particulate air pollution. J. cfpub.epa.gov/ncea/cfm/recordisplay.cfm?
with R aSsescetsiosmn eI.nCt ooff tthhee sper estaumdbieles .f Foro rth ree afsinoanls PoMut lNinAeAd QinS Am28. UM.Sed. .E APAss o(2c0.,0 228)7. ,H 1e1a3lt2h– 1A1s4s1es. sment Document de3id0U=2.S9.0 E6P0.A (2002). Health Assessment Document
OD rulemaking in 2006 (see 71 FR 61148–49, October for Diesel Engine Exhaust. EPA/600/8–90/057F for Diesel Engine Exhaust. EPA/600/8–90/057F
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X6B1P 1sc7i,e 2n0c0e6 p),r eEsPeAnt bedas iend t ihtes N20A0A4 QASQ dCeDc.i sion on the ODCff.i cRee otrfi eRveesdea ornch M aanrdc hD 1ev7e, l2o0p0m9 efrnotm, W hatstph:i/n/gctfopnu b. ODCff.i cRee otrfi eRveesdea ornch M aanrdc hD 1ev7e, l2o0p0m9 efrnotm, W hatstph:i/n/g ton
DX 24Dockery, D.W., Pope, C.A. III, Xu, X, et al. epa.gov/ncea/cfm/recordisplay.cfm?deid=29060. cfpub.epa.gov/ncea/cfm/recordisplay.cfm?
K1 (1993). An association between air pollution and pp. 1–1 1–2. deid=29060. pp. 1–1 1–2.
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