United States Air and Radiation EPA420-F-96-016 Environmental Protection February 1997 Agency Office of Mobile Sources &EPA Environmental Fact Sheet Summary of EPA's Nonroad Engine Control Programs In response to environmental and public health concerns, the U.S. Environmental Protection Agency (EPA) is establishing emission standards for a number of nonroad engine categories. The categories of nonroad engines currently being addressed by EPA cover a variety of applications including farm and construction equipment, lawn and garden equipment, marine vessels, and locomotives, Asa whole, EPA's nonroad programs will significantly reduce the impact of nonroad equipment on the nation's air quality. Background EPA has been regulating on-highway cars and trucks since the early 1970s and has continued to set increasingly stringent standards for such vehicles. Because much progress has been made in controlling the emissions from on- highway vehicles, EPA has begun turning its attention to nonroad categories of mobile sources which also contribute significantly to air pollution. These nonroad control programs will assist states in complying with the National Ambient Air Quality Standards (NAAQS). The 1990 Clean Air Act Amendments specifically direct EPA to study the contribution of nonroad engines to urban air pollution, and regulate them if warranted. "Nonroad" is a term that covers a diverse collection of engines, equipment, and vehicles. Also referred to as "off-road" or "off-highway," the nonroad category includes outdoor power equipment, recreational equipment, farm equipment, construction equipment, lawn and garden Recycled/Recyclable • Printed with Vegetable Oil Based inks on 100% Recycled Paper (20% Postconsumer) ------- equipment, and marine vessels. Although dealt with separately hi the Clean Air Act, locomotives and aircraft can also be considered nonroad categories of equip- ment. Except for aircraft, all categories of nonroad equipment were unregulated by EPA prior to the mid-1990s. 1994 Nonroad NOx Emissions Inventory Locomotive! 30,6% Sourc*: EPA Trends Report, 10/95 Note: 1% = 31,000 tons (Recreational Equipment Is <0.1% of inventory) In 1991, EPA released a study that docu- mented higher than expected emission levels across a broad spectrum of nonroad equipment. The EPA study showed that emissions from the various nonroad cat- egories are a significant source of oxides of nitrogen (NOx), volatile organic com- pound (VOC) and particulate matter (PM) emissions. In some areas of the country, emissions from nonroad engines represent a third of the total mobile source NOx and VOC inventory and over two-thirds of the mobile source PM inventory. In response, EPA has initiated regulatory programs for several categories of nonroad engines. The following sections summa- rize the status of EPA's regulatory pro- grams for the various nonroad equipment categories. Compression-Ignition Engines Compression-ignition (CI) engines (i.e., diesel-fueled engines) dominate the large nonroad engine market and comprise approximately 20 percent of the current mobile source NOx emissions inventory and 45 percent of the current mobile source PM emissions inventory. Examples of equipment that would fall into this cat- egory include agricultural equipment such as tractors, construction equipment such as backhoes, materials handling equipment such as forklifts, and utility equipment such as generators and pumps. Under EPA regulations, CI engines greater than 50 horsepower (hp) must comply with Tier 1 emissions standards that are being phased in between 1996 and 2000 depend- ing on the size of the engine. The Tier 1 standards apply to all CI engines greater than 50 hp except for those used in under- ground mining equipment, locomotives, and marine vessels. (The Mining Safety and Health Administration is responsible for setting requirements for underground mining equipment. Locomotives and marine vessels are covered by separate EPA programs, as described below.) Under the Tier 1 standards, EPA projects that NOx emissions from new CI nonroad equipment will be reduced by over 30 percent from the uncontrolled levels of unregulated engines. In September 1996, EPA, the California Air Resources Board (GARB), and the manufacturers of CI nonroad engines signed a "Statement of Principles" that is expected to lead to the adoption of tighter NOx plus hydrocarbon (HC) and PM emission standards for all CI nonroad ------- engines manufactured after 1999 (exclud- ing those engines used in underground mining equipment, locomotives, and marine vessels over 50 hp). This agree- ment will lead to the first set of standards for CI engines less than 50 hp, and further controls for engines greater than 50 hp. EPA issued an Advance Notice of Pro- posed Rulemaking (ANPRM) in January 1997 that contained the text of the CI engine Statement of Principles and re- quested public comment on the agreement. EPA expects to issue a Notice of Proposed Rulemaking (NPRM) for CI engines to formally propose the new emission stan- dards contained in the Statement of Prin- ciples in mid 1997. Under the standards contained in the Statement of Principles, EPA projects that emissions from new CI nonroad equipment would be further reduced by 60 percent for NOx and 40 percent for PM compared to the emission levels of engines meeting the Tier 1 stan- dards. Examples of Affected C.I. Equipment: agricultural tractors backhoes bulldozers forklifts generators pumps Spark-Ignition Engines Small spark-ignition (SI) engines (e.g., gasoline, natural gas, propane or methanol fueled engines) at or below 25 hp (19 kilowatts) comprise about 9 percent of the mobile source VOC inventory. These small engines are used primarily in lawn and garden equipment, such as lawnmowers, string trimmers, edgers, chain saws, com- mercial turf equipment, and lawn and garden tractors. Under Phase 1 of EPA's regulations, new small SI engines must comply with emission standards beginning in 1997. The Phase 1 standards apply to all SI engines at or below 25 hp except for those used in underground mining equip- ment, aircraft, marine vessels, and recre- ational equipment. EPA expects that these Phase 1 standards will result in a 32 per- cent reduction in HC emissions from small SI engines. Phase 2 regulations addressing emissions from these engines are currently under development. In May 1996, EPA and f Ave other parties signed a Statement of Prin- ciples which will form the basis of the Phase 2 proposal for new small SI engines used in handheld applications. In Decem- ber of 1996, EPA and engine manufacturers signed a Statement of Principles for small SI engines used in nonhandheld applica- tions that will form the basis of the Phase 2 proposal for such engines. EPA plans to issue an ANPRM which will contain the text of both small SI engine Statement of Principles for public review and comment in early 1997. EPA will then issue a NPRM covering both handheld and nonhandheld small SI engines in late 1997. EPA expects the Phase 2 program to reduce combined emissions of HC plus NOx from these engines by an additional 30 to 40 percent beyond Phase 1 levels. ------- SI engines above 25 hp are currently not regulated by EPA, except for those used in marine applications. In the Statement of Principles signed with the CI engine manufacturers referenced earlier, EPA and CARS noted that they intend to work with the SI nonroad engine industry to develop a Statement of Principles for SI nonroad engines above 25 hp that would establish the framework of a control program for the larger SI engines. Examples of Affected S.I. Equipment: augers brushcutters chainsaws edgers lawn mowers lawn tractors leaf blowers tillers trimmers Marine Vessels Marine vessels encompass a wide range of equipment, including everything from small outboard engines and personal watercraft, to tugboats and large oceango- ing vessels. EPA is developing emissions control programs for both gasoline and diesel marine engines. Recreational gasoline marine includes outboard engines, personal watercraft engines, jet boat engines, and sterndrive and inboard (SD/I) engines. Recreational gasoline marine engines contribute about 5 percent of the national mobile source VOC inventory. In areas with large boat popula- tions, however, the contribution of recre- ational marine engines may be in excess of 10 percent of the total HC inventory. EPA finalized regulations for the control of exhaust emissions from new SI, gasoline- fueled marine engines (the type typically used in recreational marine vessels) in July 1996. The regulations apply to outboards and personal watercraft, including jetboat engines, which typically employ simple 2- stroke technology (that has not changed in over 50 years) and emit very high rates of HC exhaust emissions. EPA is not finaliz- ing emission standards for SD/I engines at this time. The program requires increasingly strin- gent HC control over the course of a nine- year phase-in period beginning in model year 1998. By the end of the phase-in, each manufacturer must meet an HC plus NOx emission standard, on a corporate average basis, that represents a 75 percent reduction in HC compared to unregulated levels. The emission standard allows the manufacturers and the market to determine the best approach to achieving the targeted reductions over time by allowing them to phase in the types of control technologies to keep the cost increase as low as possible for boaters. Compliance with a corporate average emission standard gives manufac- turers the flexibility to build engines below and above the emission standard, provided the manufacturer's overall corporate aver- age is at or below the new standard. CI diesel-fueled marine engines are a diverse nonroad category that includes small auxiliary and propulsion engines, 4 ------- medium-sized propulsion engines on coastal and harbor vessels, and very large propulsion engines on ocean-going vessels. The contribution of this source to the average national mobile source NOx inventory is approximately 2.5 percent, although the contribution is much greater in areas with commercial ports. Emissions from diesel marine engines are virtually unregulated at this time. This will change in the near future, as a result of regulatory efforts at international and national levels. At the international level, emissions from marine vessels will be regulated by Annex VI of the International Convention on the Prevention of Pollution from Ships (MARPOL). The International Maritime Organization has been working on NOx emission standards from these vessels to be finalized in September 1997. The stan- dards will achieve a 30 percent reduction over uncontrolled levels, and will apply beginning January 1, 2000 to all engines on all vessels used in international voy- ages, as well as large engines used on marine vessels that operate only domesti- cally. On the national level, the smaller domestic vessels not covered by MARPOL will be subject to a new set of CI marine engine regulations currently being devel- oped by EPA. Locomotives Currently unregulated by EPA, locomo- tives are estimated to contribute about 9 percent of the nationwide mobile source NOx emissions inventory, making locomo- tives one of the largest remaining unregu- lated sources of NOx emissions. As directed by the Clean Air Act, EPA is developing emission standards for locomo- tives to assist states in complying with the NAAQS for ozone and PM. Because locomotive emissions have not been regulated before, EPA must create a com- prehensive program, including not only emission standards, but also test proce- dures and a full compliance program. One unique feature expected to be included for locomotives is the regulation of the engine remanufacturing process, including the remanufacture of locomotives origi- nally built prior to the effective date of this rulemaking. Regulation of the remanufacturing process is critical because locomotives are generally remanufactured 5 to 10 times during their total service lives (typically 40 years or more). 1994 Nonroad VOC Emissions Inventory Locomotives 1.9% Source: EPA Trends Report, 10/95 EPA plans to publish the locomotive NPRM in early 1997 and expects that it would take effect in 2000. When fully phased-in, EPA expects the new standards will achieve a reduction in NOx emissions of more than 60 percent from uncontrolled levels. Standards are also being considered that would reduce PM emissions from locomotives by 50 percent. ------- Aircraft Aircraft emissions comprise less than 2 percent of the mobile source NOx emis- sions inventory, but they are significant contributors to the NOx inventory in some cities. In addition, aircraft emissions are potentially important contributors to global climate change and may also contribute to the depletion of the stratospheric ozone layer. 1994 Nonroad PM-10 Emissions Inventory Cl Engines 58% SI Englnci 10% Scant. EPA Trends Report, 10/95 Note: 1% = 4,000 Emission standards for gas turbine engines that power civil aircraft have been in place for about 20 years. Such engines are used in essentially all commercial aircraft including scheduled and freight airlines. (Tvvo classes of aircraft, military and general aviation, are not covered by stan- dards.) Controls on engine smoke and prohibitions on fuel venting were instituted in 1974 and have been revised several times since then. Beginning in 1984, limits were placed on the amount of unburned HC gas turbine engines can emit per landing and takeoff cycle. EPA is currently preparing a Direct Final Rulemaking (DFRM) to adopt the existing International Civil Aviation Orga- nization (ICAO) NOx and carbon monox- ide (CO) emission standards for gas turbine engines. ICAO is the most appropriate forum for first establishing commercial aircraft engine emission standards due to the international nature of the aviation industry. EPA expects to issue the aircraft DFRM in early 1997. EPA has also explored other ways to reduce the environmental effects associated with air travel throughout the nation. Along with the Federal Aviation Adminis- tration (FAA), EPA is working to encour- age continuing progress in reducing emis- sions from airport ground service equip- ment and aircraft auxiliary power units. EPA has sponsored compilation of techni- cal data and emission inventory methods which will be used by the FAA to develop an Advisory Circular for airlines and airport authorities interested in reducing emissions from these sources. Recreational Equipment One category of nonroad engines not subject to regulation by EPA at this time is recreational nonroad equipment such as go- carts, all-terrain vehicles, and snowmo- biles. (As noted earlier, recreational marine engines are included under EPA's gasoline-fueled marine regulations.) In the future, EPA plans to study whether controls for such nonroad equipment are appropri- ate and proceed as necessary. ------- For More Information For more information on EPA's control program for nonroad engines and other mobile sources, please contact the Office of Mobile Sources by calling 313-668- 4333 or writing to: U. S. Environmental Protection Agency Engine Programs and Compliance Division 2565 Plymouth Road Ann Arbor, Michigan 48105 The Office of Mobile Sources also has information available on the EPA Internet server and via dial-up modem on the Technology Transfer Network (TTN), an electronic bulletin board system (BBS). World Wide Web: http://www.epa.gov/ OMSWWW TTN BBS: 919-541-5742 (1200-14400 bps, no parity, 8 data bits, 1 stop bit); voice helpline: 919-541-5384. Additional Fact Sheets EPA has additional fact sheets that go into more detail on these nonroad engine control programs: Nonroad Engines and Air Pollution (EPA420-F-94-003), May 1996. Control of Emissions from Nonroad En- gines (EPA420-F-96-009), July 1996. Statement of Principles for Nonroad Diesel Engines (EPA420-F-96-015), Septem- ber 1996. Statement of Principles for Small Handheld Gasoline Engines (EPA420-F-96-001), May 1996. Statement of Principles for Small Nonhandheld Spark-Ignited 'Engines (EPA420-F-97-002), January 1997. Emission Standards for New Gasoline Marine Engines (EPA420-F-96-012), August 1996. Emission Standards for New Spark-Ignition Marine Engines: Information for the Marine Industry (EPA420-F-96-013), August 1996. Boating Pollution Prevention Tips (EPA420-F-96-003), July 1996. Reducing Marine Vessel and Port Emis- sions in the South Coast (EPA420-F-96- 011), July 1996. Proposed Emission Standards for Locomo- tives (EPA420-F-97-007), February 1997. Federal Preemption of State and Local Control of Locomotives (EPA420-F-97- 008), February 1997. Environmental Benefits of Proposed Emis- sion Standards for Locomotives (EPA420- F-97-009), February 1997. Locomotive Emission Standards (EPA420- F-96-008), July 1996. Reducing Aircraft and Airport Emissions in the South Coast (EPA420-F-96-010), July 1996. 'U.S. Government Printing Office: 1997— 517-416 7 ------- vvEPA United States Environmental Protection Agency 2565 Plymouth Road Ann Arbor, Ml 48105 Official Business Penalty for Private Use $300 ------- |