NOISE EMISSION STANDARDS
     FOR SURFACE TRANSPORTATION EQUIPMENT
    INFORMATION IN SUPPORT OF
    THE PROPOSED REGULATION
        FOR TRUCK-MOUNTED
     SOLID WASTE COMPACTORS
                PARTI.
    DRAFT ENVIRONMENTAL IMPACT STATEMENT
         ECONOMIC IMPACT STATEMENT
                PART 2.
          BACKGROUND DOCUMENT
               AUGUST 1977
U.S. ENVIRONMENTAL PROTECTION AGENCY
OFFICE OF NOISE ABATEMENT AND CONTROL

        WASHINGTON, D.C. 20460

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                   FOREWORD
The Draft Environmental Impact Statement, Economic
Impact Statement, and Background Document were
prepared in support of the Environmental Protection
Agency's proposed regulation which sets noise
emission standards for newly manufactured truck-
mounted solid waste compactors.  The proposed
regulation has been published pursuant to the
mandate of Congress as expressed in the Noise
Act of 1972 (86 Stat. 1234).

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                                             EPA 550-9-77-204
         NOISE EMISSION STANDARDS FOR
      SURFACE TRANSPORTATION EQUIPMENT
INFORMATION IN SUPPORT OF PROPOSED REGULATION
  FOR TRUCK-MOUNTED SOLID WASTE COMPACTORS
                    PARTI
    DRAFT ENVIRONMENTAL IMPACT STATEMENT
          ECONOMIC IMPACT STATEMENT
                 AUGUST 1977
    U.S. ENVIRONMENTAL PROTECTION AGENCY
    OFFICE OF NOISE ABATEMENT AND CONTROL
             WASHINGTON, D.C. 20460
     This document has been approved for general availability.
    It does not constitute a standard, specification or regulation.
                           s  *******        "gencv

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                               SUMMARY SHEETS
                                     FOR
                      DRAFT ENVIRONMENTAL IMPACT STATEMENT
                                  PREPARED BY
                      OFFICE OF NOISE ABATEMENT AND CONTROL
                      U. S. ENVIRONMENTAL PROTECTION AGENCY
1.   Title of Action:  Regulation of Noise Emissions for Truck Mounted
Solid Waste Compactors.  This is an Administrative Action.
2.   Description of Action:  The Environmental Protection Agency's proposed
regulation is intended to reduce the level of noise emitted from truck mounted
solid waste compactors used in collecting solid wastes.  The regulation  is
also intended to establish a uniform national standard for this equipment
distributed in commerce, thereby eliminating inconsistent State and local
noise source emission regulations that may impose an undue burden on the truck
mounted solid waste compactor industry.  The recommended action proposes to
establish noise emission standards for newly manufactured compactors and to
establish enforcement procedures to ensure that this equipment complies with
the standard.
     The proposed regulation is based on anticipated health and welfare
benefits to the public by reducing noise emission from truck mounted solid
waste compactors.  In arriving at the proposed regulation, the Environmen-
tal Protection Agency investigated in detail the truck mounted solid waste
compactor industry, noise control technology, noise measurement methodolo-
gies, and costs of compliance.  Three major issues were identified requiring
resolution:  (1) identification of machines to be regulated, (2) measurement
methodology to be employed, and (3) noise levels and effective dates.

                                      v

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     Three types of compactors are included as subject to the proposed

regulation:  front loaders, rear loaders, and side loaders.

     The proposed noise emission standards for truck mounted solid waste

compactors and effective dates are:

                                             Maximum Steady A-Weighted
                                                   Sound Level
                                                 (dBA) @ 7 Meters

Effective Dates                              Not-to-Exceed Sound Level

January 1, 1979                                       78 decibels

January 1, 1982                                       75 decibels

     Machinery-related impulse sounds shall not exceed the maximum steady

sound level limits by more than 5 decibels.

     A two-step reduction in equipment noise levels was concluded to be

preferable to a one-step requirement that all equipment meet the most strin-

gent levels achievable and desirable.  To minimize market impacts from

substitution of unregulated machines identical effective dates were set for

all equipment subject to the standards.  The second step of the regulation is

scheduled to coincide with the second step of the noise regulation for medium

and heavy trucks on January 1, 1982.  The reduced (80 dBA) sound level limit

(at full throttle, maximum engine speed) for new trucks in 1982 should permit

attainment of the reduced (75 dBA) limit (during the compaction cycle) for

compactors with no additional application of noise control technology.

     Other provisions of the regulation relate to sound level degradation of

compactors and the proposed LNEP level.

     Following the effective date of the regulation, newly manufactured

truck-mounted solid waste compactors must be designed and manufactured to

meet the appropriate standard for a period (Acoustical Assurance Period)


                                     vi

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of 3 years of 7500 operating hours, whichever occurs first, after sale to the



ultimate purchaser, provided that the product is properly used and maintained.



     low Noise Emission Product sound level for truck-mounted solid waste



compactors is 70 dBA, effective January 1, 1978.  The reason for selecting a



IMT? level 8 dBA rather than the more usual 5 dBA below the initial standard



is that certain currently available models come close to meeting a 73 dBA



level, and therefore such a LNEP level would provide no incentive for further



development of technology.



3.  Environmental Impact:  Compliance with the proposed standard for truck



mounted solid waste compactors, when considered in combination with existing



Federal standards for medium and heavy trucks, should result in a reduction



of approximately 71 percent in the severity and extensiveness of trash collec-



tion noise impact by the year 1991, assuming 100 percent turnover of regulated



equipment to quieted units in that period.  This represents an improvement of



approximately 88 percent over the benefits that are anticipated from current



Federal noise regulation of medium and heavy trucks.



     list price increases to quiet new truck mounted solid waste compactors



are estimated to range from 6.4 to 12.8 percent (based on the complete vehicle),



depending on machine type and size.  The average list price increase for all



machines is estimated to be 10.3 percent.  This percentage increase is based



on the price of the complete compactor vehicle.



     An economic analysis of the truck mounted solid waste compactor manufac-



turing industry indicates a significant price elasticity of demand. Demand



could decrease by as much as 4 percent as a result of the proposed regulation,



but total revenues should remain constant as a result of associated price



increases.
                                     VII

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     In terms of societal resources, capital costs for the first year of
compliance are estimated at above $27 million, with annual costs (including
amortized capital cost, operation and maintenance) at $6.5 million, compared
to 1974 net sales estimated at $125 million; and costs are expected to pass
through to the end user, and ultimately the consumer of waste collection
services.  The equivalent annual costs of implementing the regulations are
estimated to be $18.7 million for the period of the complete regulatory
scenario.  Because equipment costs represent a small portion of the total
cost of solid waste collection, the consequent cost increase for service is
expected to be small, an estimated 0.5 percent.
     Mr quality, water quality, land use, solid waste disposal requirements,
employment, regional economics, foreign trade, national GNP, and energy
consumption are not expected to be significantly impacted by the noise levels
proposed.  The proposed regulation will support the efforts of the Federal
Trade Commission and other organizations to inform and protect consumers.
                                      van

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                  TABLE  OF  CONTENTS

                             PART 1

  DRAFT ENVIRONMENTAL IMPACT STATEMENT AND ECONOMIC IMPACT STATEMENT

                                                                 Page
                                                                Number

ABSTRACT                                                           1

DRAFT ENVIRONMENTAL IMPACT STATEMENT                               3

     INTRODUCTION                                                  3

     Truck Mounted Solid Waste Compactor                           4

     PROPOSED NOISE REGULATION                                     7

     Statutory Basis                                               7
     Alternatives Considered                                       7
     Proposed Regulation                                           8

          Regulatory Schedule                                      8
          Enforcement                                              9
          Production Verification                                  9
          Selective Enforcement Auditing                           9
          Relationship with Other Federal
             State and Local Government Agencies                   9
          Federal Government Agencies                              9
          State and Local Government                              10

     ENVIRONMENTAL IMPACT                 >                        11

     Impact on the Population of the United States                11
     Impact on Other Environmental Considerations                 11

          Land Use                                                11
          Water Quality                                           12
          Air Quality                                             12
          Solid Waste Disposal Requirements                       12
          Wildlife                                                12
                                IX

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                                                                 Page
                                                               Number

ECONOMIC IMPACT STATEMENT                                         13

     SUMMARY                                                      13

     ECONOMIC IMPACT ESTIMATES                                    15

     Cost of Compliance                                           15

     Effects on Manufacturers                                     15

          Demand Decline                                          15
          Profits                                                 15
          Competitive Effects                                     16

     Direct Effect of Prices                                      16

          Effect of List Prices                                   16
          Effect on End User                                      16
          Effect on Operating and Maintenance Costs               17

     Productivity Effects                                         17

     Indirect Effects                                             18

          Impact on Suppliers                                     18
          Impact on Exports and Imports                           18
          Impact on Energy Use                                    19
          Macroeconomic Assessment                                19
          Impact on Taxes                                         19

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                               PART 2
                         BACKGROUND DOCUMENT

                                                                Page
Section                                                        Number

1    INTRODUCTION                                                1-1

2    THE INDUSTRY AND THE PRODUCT                                2-1

3    TRUCK MOUNTED SOLID WASTE
     COMPACTOR NOISE LEVELS                                      3-1

4    MEASUREMENT METHODOLOGY                                     4-1

5    EVALUATION OF EFFECTS OF TRUCK MOUNTED
     SOLID WASTE COMPACTORS ON PUBLIC HEALTH
     AND WELFARE OF THE U.S. POPULATION                          5-1

6    NOISE CONTROL                                               6-1

7    ECONOMIC ANALYSIS                                           7-1

8    ENFORCEMENT                                                 8-1

9    EXISTING LOCAL, STATE AND FOREIGN
     NOISE REGULATIONS                                           9-1
                                   xi

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                    TRUCK-MOUNTED SOLID WASTE COMPACTOR




                    DRAFT ENVIRONMENTAL IMPACT STATEMENT




                                   AND




                        ECONOMIC IMPACT STATEMENT
ABSTRACT






     This Draft Environmental Impact Statement and the Economic Impact State-



ment address a proposed noise emission regulation for truck mounted solid



waste compactors.  In arriving at the proposed regulation, the Agency carried



out detailed investigations of compactor design; manufacturing and assembly



processes; noise measurement methodologies; available noise control technology;




costs attendant to noise control methods; costs to test machines for compliance;



costs of record keeping; possible economic impacts; and the potential environ-



mental and health and welfare benefits associated with the application of




various noise control measures.  Data and information generated as a result of



these investigations are the basis for the statements made in Part I of this



document.  Part I has been designed to present, in the simplest form, all



relevant information regarding the environmental and economic impacts expected



to result from the proposed action.  Where greater detail is desired, the



Agency encourages perusal of Part II, the "Background Document".
                                    - 1 -

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                    DRAFT ENVIRONMENTAL IMPACT STATEMENT






INTRODUCTION





     Congress passed the Noise Control Act  (NCA) of 1972, in part, as a result



of their findings that inadequately controlled noise presents a growing danger



to the health and welfare of the nation's population, particularly in urban



areas.  For this and other reasons, the Congress established a national policy



to "promote an environment for all Americans free from noise that jeopardizes



their health or welfare".  To further this policy, the NCA provides for the



establishment of Federal noise emission standards for products distributed in



commerce and specifies four categories of important noise sources for regulation,



of which transportation equipment is one.



     It has been estimated that over 17 million people located in urban,



suburban, and rural areas in the United States are exposed to  noise levels



form trash collection equipment that jeopardize their health or welfare.



     Inasmuch as a number of different types of transportation equipment



operates at the same time, the quieting of only one product type is often not



in itself sufficient to adequately reduce transportation noise to a level



requisite to protect health or welfare.  Accordingly, the EPA'S noise regula-



tory program has effected a coordinated approach to control overall trans-



portation noise in which various types of transportation equipment, alone or



in combination, are evaluated to assess their contribution to transportation



noise and attendant impact on the nation's population.
                                    - 3 -

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     Pursuant to the mandate of the Noise Control Act and EPA's approach to



the control of transportation noise, noise emission regulations were promul-



gated on April 13, 1976, for medium and heavy trucks (41 FR 15538).



     Ho further control transportation noise, noise emission standards for



truck mounted solid waste compactors are being proposed at this time.



Truck Mounted Solid Waste Compactors



     A truck-mounted solid waste compactor (TMSWC, or compactor) is defined,



for purposes of this regulation, as a vehicle that is comprised of a mechani-



cally powered  truck cab and chassis or trailer, and equipped with a body and



machinery for receiving compacting, transporting, and unloading solid waste.



The body, which includes a waste-receiving hopper, houses machinery which



typically consists of hydraulic actuators (rams) with requisite hydraulic



pump, valves, piping, and controls.  The hydraulic actuators operate various



components that sweep the waste matter into the container portion of the body



and compact it.  Power generally is drawn from the truck engine by means of a



power take-off (PTO) unit, coupled by gears or other mechanical connection to



the transmission, engine drive shaft, or fly wheel.  Truck-mounted solid waste



compactors are used for the collection of solid wastes in residential and



commercial areas.



     The Agency determined that regulation of truck-mounted solid waste com-



pactors is required to protect the public health and welfare.  The following



are the major types of compactors:



     1.  Front Loader.  Compactor body that utilizes front mounted hydraulic



lift arms to lift and dump waste containers into an access door in the top



of the body.  Wastes are typically ejected through a tailgate.

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     2.  Side Loader.  Compactor bodies vary; however, wastes are generally



deposited manually into a hopper through an access door in the side wall.



Packer plates sweep the wastes from the hopper into the body and compress the



materials against an interior wall, in the same manner as front loaders.



Some are also equipped to hydraulically lift and dump waste containers.



Ejection of wastes is usually through a tailgate.  Some side loader models



are not equipped for packer plate ejection, but typically, hydraulically lift



the front end of the body and dump the waste through a tailgate.



     3.  Rear Loader.  Compactor body on which the hopper is located on the



rear section.  Wastes are generally loaded manually into the hopper but some



models have the capability to hydraulically lift and dump containers.  The



packer plate sweeps the wastes from the hopper into the body and compresses



the waste against an interior wall surface.  In most models,  a hydraulically-



driven plate is used for tailgate waste ejection.



     Figure 1 shows line drawings of a front loader, a side loader and a rear



loader.  Details regarding identification of these machines as candidates



for regulation, their design features and functional characteristics are



contained in Part 2, the "Background Document".
                                     - 5

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               Front Loader
               Side Loader
                  Rear Loader
Figure 1.  Line Drawings of Types of Conpactors

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PROPOSED NOISE REGULATION



     This proposed regulation is intended to reduce the level of noise emitted



from truck mounted solid waste compactors.  It also establishes a uniform




national standard for these machines when they are distributed in commerce,



thereby eliminating differing State and local noise control  source  emission



regulations which may impose a burden on the truck mounted solid waste compactor



industry.



Statutory Basis



     The proposed action establishes noise  emission standards for newly manu-



factured truck mounted solid waste compactors and enforcement procedures



to ensure that this equipment complies with the  standard.  This  proposed



rulemaking is being issued under the authority of the Noise  Control Act of



1972 (P.L.92-574, 86 Stat. 1236).



Alternatives Considered



     Two alternatives to noise emission regulation available to EPA are:  no



action and labeling.  These actions may be  taken only if  (a) the product does



not contribute to the detriment of the public health and welfare, or  (b) in



the Administrator's judgment noise emission regulation is not feasible.



     Specialty auxiliary equipment on trucks (of which truck-mounted  solid



waste compactors are one category) was identified, pursuant  to section



5(b)(l) of the Noise Control Act of 1972, as a major noise source on  May 28,



1975 (40 FR 23069).  Subsequent to this identification comprehensive  studies



were performed to evaluate truck-mounted solid waste compactor noise  emission



levels requisite to protect the public health and welfare, taking into account



the magnitude and condition of use, the degree of noise reduction achievable
                                     - 7 -

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through application of the best available technology and the cost of compliance.

The results of these studies show that the regulation of truck-mounted solid

waste compactor noise is feasible through available technology taking cost of

compliance into account.  Accordingly, the Act permits no alternative action

to be taken.

Proposed Regulation

     Regulatory Schedule.  The proposed noise emission standards and effective

dates are shown ,in Table 1.

                                  Table 1

                      PROPOSED NOISE EMISSION STANDARDS

                                               Maximum Steady A-Weighted
                                                      Sound Level
                                                   (dBA) @ 7 Meters

Effective Dates                                Not-to-Exceed Sound Level

January 1, 1979                                       78 decibels

January 1, 1982                                       75 decibels

     Machinery-related impulse* sounds shall not exceed the maximum steady

sound level limits by more than 5 decibels.

     The estimated health and welfare benefits from this proposed regulation

can be attained only if the compactors conform to the regulated sound levels

for a reasonable period of time.  Therefore, the Agency proposes to adopt an

Acoustical Assurance Period (AAP) of three years of 7500 operating hours,

whichever occurs first.
*see discussion of impulse sounds in Part 2, the Background Document.
                                     - 8 -

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     In conjunction with the proposed regulation, the Low Noise Emission




Product (LNEP) program provides incentives for achievement of lower noise



emissions from regulated products than those required.  The LNEP sound level



for compactors is 70 dBA, effective January 1, 1978.



     Enforcement.  The EPA will use the following two methods to determine



whether truck mounted solid waste compactors comply with the acceptable noise



emission standard:



          Production verification - Prior to distribution into commerce of any



          truck mounted solid waste compactor, as defined in this regulation,



          a manufacturer must submit information to EPA which demonstrates



          that his product conforms to the standards.



          Selective enforcement auditing - Pursuant to an administrative



          request, a statistical sample of truck mounted solid waste compactor



          may be tested to determine if the units, as they are produced, meet



          the standard.



     Relationship with Other Federal, State, and Local Government Agencies.



The proposed regulation will preempt any non-identical State and local regula-



tions.  It will interact with several other government regulatory efforts, and



it will require supplementary actions by State and local governments in order



to achieve maximum benefit.



     Federal Government Agencies.  Current Federal regulations applicable to



specialty truck noise are the EPA noise emission standards for motor carriers



engaged in interstate commerce (39 FR 38208) and the EPA noise emission stan-



dards for medium and heavy trucks (41 FR 15538).  The U.S. Bureau of Motor



Carrier Safety of the U.S. Department of Transportation has also issued regula-



tions for the purpose of establishing measurement procedures and methodologies





                                     -  9  -

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for determining whether commercial motor vehicles conform to the Interstate



Motor Carrier Noise Emission Standards of EPA.  EPA is relying on this regula-



tion to quiet the trucks upon which the compactors are mounted.



     State and Local Government.  Although the Noise Control Act prohibits any



State or political subdivision thereof from adopting or enforcing any law or



regulation which sets a limit on noise emissions from such new products, or



components of such new products, which are not idential to the standard pre-



scribed by the Federal regulation, primary responsibility for control of noise



rests with State and local governments.



     Nothing in the Act precludes or denies the right of any State or political



subdivision thereof from establishing and enforcing controls on environmental



noise through the licensing, regulation or restriction of the use, operation



or movement of any product or combination of products.



     The noise controls which are reserved to State and local authority include,



but are not limited to, the following:



     1.   Controls on the manner of operation of products



     2.   Controls on the time in which products may be operated



     3.   Controls on the places in which products may be operated



     4.   Controls on the number of products which may be operated together



     5.   Controls on noise emissions from the property on which products are



          used



     6.   Controls on the licensing of products



     7.   Controls on environmental noise levels.
                                    - 10 -

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     By use of the noise controls reserved to them, State and local governments



are able to supplement Federal noise emission standards and to effect near-term



relief from TMSWC noise.  The EPA has developed a model ordinance to indicate



the form and content of an instrument whereby State and local governments may



control TMSWC noise in the absence of Federal regulation or in the time frame



before Federal regulations become effective.  The model ordinance is contained



in section 9 of Part 2 of this document, the "Background Document".



ENVIRONMENTAL IMPACT



     The environmental impacts of the proposed regulation include the primary



beneficial impact, which is reduced annoyance from trash-collection noise



resulting from lower truck mounted solid waste compactor noise and the secondary



impacts on other environmental factors.



Impact on the Population of the United States



     Compliance with the most stringent proposed standards will, on the average,



reduce noise emissions from truck-mounted solid waste compactors by 6 dBA;



compared to the noisiest types of units measured, .reductions may average as



high as 8.9 dBA.  In terms of reduced impact on the nation's population, the



reduction in sound level, when considered in combination with existing Federal



standards for medium and heavy trucks, should result in a reduction of approxi-



mately 71 percent in the severity and extensiveness of IMSWC noise impact by



the year 1991.  This represents an increase of approximately 88 percent in



additional benefits over those anticipated to accrue from current Federal



noise regulations of meduim and heavy trucks.



Impact on Other Environmental Considerations



     Land Use.  The proposed regulation will have no adverse impact on land



use.





                                       -11-

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     Water Quality.  The proposed regulation will have no adverse impact on



water quality or supply.



     Air Quality.  The proposed regulation will have no adverse impact on



air quality.



     Solid Waste Disposal Requirements.  The proposed regulation will have no



adverse effects on solid waste disposal requirements.



     Wildlife.  The proposed regulation will have no adverse effects on



wildlife.
                                     -  12  -

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                         ECONOMIC IMPACT STATEMENT



SUMMARY



     The establishment of noise standards for newly manufactured truck-mounted



solid waste compactors gives rise to expenditures which would otherwise not be



directly incurred by the private and public sectors.  However, it should be



understood that the option of not paying for noise pollution costs is unavail-



able.  The only question is, in what form do we pay; for example, lost worker



productivity due to noise induced task interruption, lost sleep due to intrusive



noise, or successful litigation for hearing loss.



     Recognizing that certain expenditures are necessary to protect the public



health and welfare from inadequately controlled noise, the Agency performed



analyses to estimate the magnitude and potential impact of these expenditures.



Examined in the analyses were the structure of the industry, the estimated



cost of abatement by compactor type, the price elasticity of demand, the



capital and annual costs of enforcement, the impact of enforcement on annual



operating and maintenance costs and the indirect impacts of the proposed



regulations.



     The following conclusions were reached in these studies:



     1.   The aggregate list price of truck mounted solid waste compactors



          may increase by 10.3 percent, based on the cost of the complete



          vehicle.



     2.   It is estimated that demand for truck mounted solid waste compactors



          could decrease by as much as 4 percent, but total manufacturer



          revenue in such a case should remain unchanged due to increased
                                    - 13 -

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     due to increased prices. Some pre-buying is expected to occur prior
     to the effective date of the regulation.  However, this will be
     limited by the available excess production capacity of about 4,000
     units, almost entirely rear loaders.
3.   The estimated increase in annual costs to users (including increased
     capital cost, operation and maintenance) through the year 2000 is
     estimated to be about $6.5 million or an increase of approximately
     0.5 percent.
                               - 14 -.

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ECONOMIC IMPACT ESTIMATES

Cost of Compliance.

     Total capital and annual costs accruing from the proposed regulatory

schedule are displayed in Table 2.


                                . Table 2

                ESTIMATES OF TOTAL ANNUAL COSTS OF ABATEMENT
                                 ($ OOOs)


                                     Year

Costs                  1982   1983   1984   1988   1990

Incremental Capital   27,431  2,802  2,864  3,110  3,233

Total Annual           6,520  6,659  6,807  7,391  7,686


Effects on Manufacturers

     Demand Decline.  Theoretically, based on economic theory and statistical

estimates of demand elasticity, unit demand could be expected to decline in

direct dollar-to dollar proportion to price increases resulting from noise

control.  Further dampening of demand could also ensue from the imposition of

higher ownership expenses resulting from the increased costs for operation and

maintenance (O&M).  Because the O&M cost elasticity is small, dollar sales

should remain approximately the same, with price increases offsetting unit

sales decline.

     Profits.  No significant change in profits is expected to occur over a

22 year period.
                                     - 15 -

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     Competitive Effects.  There are indications that a few small firms in

the industry, by virtue of their small market share and related financial

and operation factors, would incur higher manufacturing costs resulting in

slightly higher list price increases.  It is possible that one to three

manufacturers may cease production of truck mounted solid waste compactors

due to industry pressures and competition.

Direct Effect on Prices

     Effect on List Prices.  The average estimated increase in list price for

each type of loader is displayed in Table 3.  The potential cost increases on

a per model basis may vary from the average since abatement costs are somewhat

sensitive to variations between machines.


                                 Table 3

              ESTIMATED AVERAGE COST INCREASE AS A PERCENTAGE
                OF LIST PRICE FOR THE COMPLETE VEHICLE FOR
                         THREE TYPES OF COMPACTORS

         Compactor
         Body Type                        Percentage Increase

         Front Loaders                            6.4%

         Side Loaders                            12.8%

         Rear Loaders                             9.8%


     Effect on End User.  The end user will feel more of the direct impact

of increased costs.  The truck mounted solid waste compactor body industry

operates on the "full cost pass through" principles.  Cost increases to the

manufacturer are passed down to the end user through the distributor in the

form of increased list price.
                                     - 16 -

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     The consumer of solid waste collection services will ultimately absorb

the cost increases through increased  collection rates.  The rate  increases

are not expected to be significant due  to amortization of the  increased costs

by the large number of consumers.

     (a)  The anticipated percent increases for service will be insignificant;

approximately 0.51 percent.

     (b)  The increased service rates to the consumer will be  paid  indirectly

with taxes  (if municipal fleets provide the service) or directly  to private

haulers.

     Effect on Operating & Maintenance  Costs.  The estimated average O&M cost

increases to be faced by users in the collection  industry are  displayed in

Table 4 for each type of compactor, based on a 100 percent population of units

conforming to the noise standard.

                                 Table  4

                  ESTIMATED O&M COST  INCREASES (DECREASES)
                         IN $'s PER VEHICLE PER YEAR

                                                Dollars

               Front Loader                       (50)

               Side Loader                        (55)

               Rear Loader                        (55)

     Actual O&M costs are expected to decrease due to reduced  fuel  requirements

resulting from the progressive noise control technology discussed in Part 2 of

this document.

Productivity Effects

     Production of goods is estimated to decline  in unit volume by  no more

than 4 percent.  Employment is not expected to change significantly due to

the noise regulations.

                                     - 17  -

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     Persons who might be affected by the production reduction amount to less



than two percent of the employed population of about 2900 persons within the



industry and produce less than three percent of the total units estimated.



     An offsetting increase in employment is expected to occur due to testing



and compliance resulting from the noise treatment regulation.



     Industry growth is not expected to be significantly impacted due to the



noise abatement regulation.  Adequate lead time is provided to allow for



proper planning and avoid adverse conditions in the industry.



     Equipment productivity will not be impacted by the noise standards.



Indirect Effects



     Impact on Suppliers.   Some component suppliers may increase their sales



depending on their ability to reduce the noise emissions of their product and



thereby contribute to the reduction in overall machine noise.  Furthermore,



those suppliers specializing in the manufacture of sound damping and sound



absorptive materials and other products required for abatement would be



expected to experience increased sales.



     Impact on Exports and Imports.  As the noise control treatments generally



represent add-on materials or substitute components, or both, machines for



export generally can be produced without noise control treatment, if desired.



Consequently, since units produced solely for export need not comply with U.S.



noise standards, the impact on exports should be minimal.  With respect to



imports, the regulation will apply to imported compactors.  Therefore, no



adverse competitive impact is expected and, in view of the small percentage



of machines imported, the proposed regulation should have no applicable



impact on the U.S. balance of payments.
                                     - 18 -

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     Impact on Energy Use.  Technological changes due to noise treatment
regulations are expected to result in lower fuel consumption.  Annual fuel
savings of approximately $95 per unit are expected.
     Macroeconomic Assessment.  ND macroeconomic impact is expected as a
result of noise abatement regulations on the truck mounted solid waste com-
pactor body industry due to:
     (a)  The minor size of the industry.
     (b)  The small size of the changes expected to occur.
     Impact on Taxes.  There will be an indirect increase in local taxes
where collection services are provided by municipal fleets but the amount of
the increase to the individual consumer and taxpayer will be insignificant.
                                    - 19 -

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                                               EPA 550-9-77-204
           NOISE EMISSION STANDARDS FOR
        SURFACE TRANSPORTATION EQUIPMENT
INFORMATION IN SUPPORT OF THE PROPOSED REGULATION
    FOR TRUCK-MOUNTED SOLID WASTE COMPACTORS
                      PART 2
              BACKGROUND DOCUMENT
                   AUGUST 1977
      U.S. ENVIRONMENTAL PROTECTION AGENCY
      OFFICE OF NOISE ABATEMENT AND CONTROL
               WASHINGTON, D.C. 20460
       This document has been approved for general availability.
      It does not constitute a standard, specification or regulation.

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                 TABLE  OF  CONTENTS

                              PART 2

                       BACKGROUND DOCUMENT

                                                                 Page
                                                                Number

Section 1 INTRODUCTION                                            1-1

          STATUTORY BASIS FOR ACTION                              1-1

          PREEMPTION                                              1-2

          LABELING                                                1-4

          IMPORTS                                                 1-5

          RATIONALE FOR REGULATION OF THE TRASH COMPACTOR TRUCK   1-5

          NEED FOR CONTINUED COMPLIANCE WITH THE NOISE
          STANDARD                                                1-7

          IDENTIFICATION OF MAJOR SOURCES OF NOISE                1-10

          OUTLINE AND SUMMARY OF BACKGROUND DOCUMENT              1-11

Section 2 THE INDUSTRY AND THE PRODUCT                            2-1

          INTRODUCTION                                            2-1

          THE PRODUCT                                             2-1

          PRODUCT APPLICATIONS AND COMPETITIVE SYSTEMS            2-9

          THE INDUSTRY                                            2-12

               Solid Waste Generation                             2-12
               Solid Waste Collection—The Packer Body            2-13

          SIZE AND GROWTH OF THE PACKER BODY INDUSTRY             2-16

               Units In Operation                                 2-16
               Unit and Dollar Manufacturer Shipments             2-16
               Export Sales                                       2-19

          CHARACTERISTICS OF INDUSTRY SEGMENTS                    2-19

               Packer Body Manufacturers                          2-19
               Truck Body Distributors                            2-33
                                111

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               TABLE  OF  CONTENTS
                         (Continued)
                                                                 Page
                                                               Number

               End Use Market Fleet Operators                     2-37
               Truck Chassis Manufacturers and Dealers            2-43
               Raw Material and Component Suppliers               2-44

Section 3 TRUCK-MOUNTED SOLID WASTE COMPACTOR NOISE LEVELS         3-1

          SOUND LEVEL MEASUREMENTS                                3-1

          TIME HISTORIES                                          3-3

          NOISE SOURCES                                           3-14

               Component Sound Levels                             3-14
               Truck Chassis Noise                                3-17

          SAN FRANCISCO NOISE DATA                                3-20

          SOUND LEVEL DEGRADATION                                 3-23

          REFERENCES                                              3-27

          EXHIBIT                                                 3-28

Section 4 MEASUREMENT METHODOLOGY                                 4-1

          GENERAL REQUIREMENTS                                    4-1

          NOISE CHARACTERISTICS                                   4-3

               Alternative Measurement Methodologies              4-5

                    Operating Conditions                          4-5
                    Compactor Load                                4-5
                    Engine Speed Control                          4-5
                    Measurement Criteria                          4-7
                    Steady Levels                                 4-7
                    Measurement of Impulse Noise                  4-7
                    Microphone Locations                          4-8
                    Combining Noise Levels                        4-9

          EPA MEASUREMENT METHOD                                  4-9

               Instrumentation                                    4-9
               Test Site                                          4-10
               Test Procedure                                     4-10

                    Truck Chassis Noise                           4-11
                    Waste Compaction Equipment Cycling Noise      4-11
                    Waste Compaction Equipment Impact Noise       4-12
                    Cycle Time of Waste Compaction Equipment      4-12

                                iv

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               TABLE  OF  CONTENTS
                          (Continued)
                                                                 Page
                                                                Number

               General Comments                                   4-12

          SUGGESTED REFERENCES                                    4-14

          DISCUSSION OF METHODOLOGY                               4-14

               Measurement Distance                               4-14
               Operation of the Compactor Truck Empty             4-15
               Energy Average                                     4-15

          REFERENCES                                              4-16

Section 5 EVALUATION OF EFFECTS OF TRUCK MOUNTED SOLID WASTE
          COMPACTORS ON PUBLIC HEALTH AND WELFARE                 5-1

          INTRODUCTION                                            5-1

               Measures of Benefits to Public Health and
               Welfare               r                            5-2
               Regulatory Schedules                               5-3
               Outline of the Health and Welfare Section          5-5

          TRASH COLLECTION NOISE ENVIRONMENT                      5-5

               Truck Noise Per Collection Cycle                   5-6
               Compactor Noise per Collection Cycle               5-7
               Sound Propagation and Amplification                5-11
               Sound Attenuation within Buildings                 5-13
               Average Noise Levels Per Unit Area                 5-13
               Noise Metrics                                      5-18

                    Equivalent Sound Level (L  )                  5-18
                                             eq
                    Day-Night Average Sound Level (L  )           5-19

                    Sound Exposure Level (SEL)                    5-20

               Compactor Noise Levels Under Regulatory Options    5-22
               Consideration of Ambient Noise Levels              5-28

          NOISE IMPACT FROM TRASH COMPACTORS                      5-29

          REDUCTION OF INDIVIDUAL TRASH COLLECTION NOISE IMPACT   5-38

               Sleep Disturbance                                  5-39
               Speech Interference                                5-50
               Outdoor Speech Interference                        5-51

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               TABLE  OF  CONTENTS
                         (Continued)
                                                                 Page
                                                                Number

               Indoor Speech Interference                         5-53

          SUMMARY AND CONCLUSIONS                                 5-58

          REFERENCES                                              5-62

          EXHIBITS                                                5-64

Section 6 NOISE CONTROL TECHNOLOGY                                6-1

          INTRODUCTION                                            6-1

          STAGE 1 - ENGINE SPEED REDUCTION TO 1200 RPM            6-2

               Speed Controls                                     6-3
               Noise Levels                                       6-4
               Fuel Savings                                       6-7
               Conclusions                                        6-8

          STAGE 2 - ENGINE SPEED REDUCTION AND REDESIGN OR
          ELIMINATION OF THE TRANSMISSION PTO                     6-8

               Front Power Takeoff                                6-9
               Flywheel Power Takeoff                             6-11
               Noise Levels                                       6-13
               Conclusions                                        6-15

          STAGE 3 - STAGE 2 PLUS A QUIET PUMP AND 75 dBA CHASSIS  6-15

               Quiet Pumps                                        6-17
               Noise Levels                                       6-17
               Auxiliary Engines                                  6-17
               Quieting of Impact Noise                           6-21

                    Garbage Can Impacts - Rear and Side Loaders   6-22
                    Hydraulic Cylinder Bottoming - Rear Loaders   6-22
                    Banging of Containers - Front Loaders         6-24
                    Banging of Hopper Lid - Front Loader          6-24

          CONCLUSIONS                                             6-24

Section 7 ECONOMIC ANALYSIS                                       7-1

          COST ANALYSIS                                           7-1

               Direct Material and Labor Cost Estimates           7-1
               Overhead Cost Estimates                            7-9

                                vi

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               TABLE  OF  CONTENTS
                         (Continued)
                                                                 Page
                                                               Number

               Maintenance and Operating Cost Estimates           7-11

                    Maintenance Costs                             7-11
                    Operating Costs                               7-13

               Summary of Cost Estimates                          7-14
               Lead Time for Implementation                       7-19

          ECONOMIC IMPACT                                         7-19

               Introduction                                       7-19
               Impact Framework                                   7-20

                    Dynamics                                      7-22
                    Regulatory Sequence                           7-24

          IMPACT ASSESSMENT                                       7-25

               Volume Impact                                      7-25

                    Purpose                                       7-25
                    Base Line Forecast                            7-25
                    Pricing and Price Elasticity                  7-32
                    Cost Estimates of Regulatory Options          7-35
                    Price Elasticity of Demand                    7-39
                    Equivalent Annual Costs for Changes in
                    Demand Elasticity Estimates                   7-42
                    Volume Impact                                 7-44

               Impact of Pre-Buying on Volume                     7-57
               Summary                                            7-59

          METHODOLOGY FOR DEVELOPMENT OF COST ESTIMATES           7-76

          METHODOLOGY                                             7-76

               Plant Visits                                       7-76
               Manufacturers' Cost Structure                      7-77
               Impacted Costs                                     7-78
               Overhead Expense                                   7-79

          COMPANY PROFILE                                         7-80

          REFERENCES                                              7-85

Section 8 ENFORCEMENT                                             8-1

          GENERAL                                                 8-1

          PRODUCT VERIFICATION                                    8-2
                                Vll

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               TABLE  OF  CONTENTS
                         (Continued)
                                                                 Page
                                                                Number

          SELECTIVE ENFORCEMENT AUDITING                          8-7

          ADMINISTRATIVE ORDERS                                   8-11

          COMPLIANCE LABELING                                     8-12

          APPLICABILITY OF PREVIOUSLY PROMULGATED REGULATION      8-12

          ACOUSTICAL ASSURANCE PERIOD COMPLIANCE                  8-13

          IN-USE COMPLIANCE                                       8-14

Section 9 EXISTING LOCAL, STATE, AND FOREIGN NOISE REGULATIONS    9-1

          LOCAL LAWS APPLICABLE TO REFUSE TRUCK NOISE             9-1

          OTHER MUNICIPAL NOISE LAWS                              9-15

               Conclusions - Local Refuse Truck Noise Laws        9-17

          STATE LAWS APPLICABLE TO REFUSE TRUCK NOISE             9-18

          FEDERAL REGULATIONS APPLICABLE TO SPECIALITY
          TRUCK NOISE                                             9-20

               EPA Interstate Motor Carrier Noise Regulation      9-20
               EPA Noise Emission Standards for New Medium
               and Heavy Duty Trucks                              9-22

          FOREIGN SPECIALTY TRUCK NOISE LAWS                      9-23

          MODEL LOCAL SPECIALTY TRUCK NOISE ORDINANCES            9-24

          MUNICIPAL SOLID WASTE COMPACTOR TRUCK NOISE LAWS        9-28

          COUNTY SOLID WASTE COMPACTOR TRUCK NOISE LAWS           9-36

          EXHIBIT A                                               9-38
                                   Vlll

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                                FIGURES

                                                                  Page
Figure                         Title                             Number

2-1        A Front Loader                                         2-2
2-2        Six Step Operational Sequence for Front Loading        2-3
2-3        Operation of a Front Loader (Compaction Cycle)          2-5
2-4        A Side Loader                                          2-7
2-5        A Rear Loader                                          2-8
2-6        Truck Mounted Solid Waste Compactor Body Industry
           Structure                                              2-21
2-7        Estimated Body Mounting Practices for Truck Mounted
           Solid Waste Compactor Bodies                           2-31
2-8        Truck Mounted Solid Waste Compactor Body Channels
           of Distribution, Based on Total New and Used Units
           Sold Annually                                          2-35

3-1        Histogram of All Trucks                                3-4
3-2        Histogram of Rear Loaders                              3-6
3-3        Histogram of Front Loaders                             3-7
3-4        Time Histories of Quieted Rear Loader                  3-11
3-5        Time History of the A-Weighted Noise Level Generated
           by a Front Loader During a Dump and a Partial
           Compaction Cycle.  Noise Levels were Measured 50 ft
           to the Left of the Vehicle Center                      3-12
3-6        Operational Passby of a Sideloader                     3-13
3-7        Truck Chassis and PTO Noise                            3-16
3-8        Noise Diagnosis                                        3-18
3-9a       Noise Levels of Unregulatd Chassis                     3-19
3-9b       Noise Levels of Chassis Regulated to 80 dBA Under
           Test SAE J 366b                                        3-19

4-1        Illustration of Test Standards that Correlate
           (a)  Poorly and (b) Well with Environmental Levels      4-2
4-2        Time History of the A-Weighted Level Measured 50 Feet
           to the Left Side of a Front Loader                     4-4

5-1        Typical Collection Cycle Noise Levels at 7m            5-6
5-2        Fractional Impact of Sleep Disruption as a Function
           of Sound Exposure Level (Regression of Sleep
           Disruption on SEL)                                     5-44
5-3        Frequency of Arousal or Awakening from Sleep in
           College and Middle Aged Men and Women as a Function
           of Sound Exposure Level (Regression of Percent
           Awakened on SEL)                                        5-45
5-4        Fractional Impact Criteria of Outdoor Speech
           Interference (Normal Voice at 2 Meters)                 5-52
5-5        Fractional Impact of Indoor Speech Interference
           (Relaxed Conversation at Greater than 1 Meter
           Separation, 45 dB Background in the Absence of
           Interferring Noise)                                     5-55

                                    ix

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                             FIGURES (continues)

                                                                Page
Figure                        Title                            Number

6-1       Overall Noise Level Under Stage 1  of Noise Control      6-6
6-2       Front Power Take-Off                                   6-10
6-3       "Flywheel Power Take-Off"                              6-12
6-4       Overall Noise Level Under Stage 2  of Noise Control      6-16
6-5       A Quiet Hydraulic Pump Design                          6-18
6-6       Overall Noise Level Under Stage 3  of Noise Control      6-20
6-7       Hydraulic Cylinder with Cushions                       6-23

9-1       Range of Maximum Source Levels for Solid Waste
          Compactor Trucks in Noise Ordinances                   9-5

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                             TABLES

                                                               Page
                             Title                            Number

         Estimated Number of People in Residential Areas
         Subjected to Different Kinds and Levels of Outdoor
         Noise                                                   1-6

2-1      Classification of Truck Mounted Solid Waste
         Compactor Bodies                                        2-4
2-2      Truck Mounted Solid Waste Compactor Body
         Applications by Product Classification                  2-10
2-3      Baseline Estimates and Projections of Post-Consumer
         Solid Waste Generation, Resources Recovered and
         Disposed, 1971-1985                                     2-14
2-4      Post-Consumer Residential and Commercial Solid Waste
         Generated and Amounts Recycled, by Type of Material,
         1973                                                    2-15
2-5      Estimated Truck Mounted Solid Waste Compactor Body
         Units in Operation, 1974                                2-17
2-6      Truck Mounted Solid Waste Compactor Body Manufacturer
         Shipments, 1964-1974                                    2-18
2-7      Estimated Value of Truck Mounted Solid Waste Compactor
         Body Manufacturers' Exports, 1974                       2-20
2-8      Financial Profile of Truck Mounted Solid Waste
         Compactor Body Manufacturers, 1974                      2-23
2-9      Facility Profile of Truck Mounted Solid Waste
         Compactor Body Manufacturers, 1974                      2-24
2-10     Estimated Manufacturer Share of Truck Mounted
         Front- Loader Solid Waste Compactor Body
         Shipments, 1974                                         2-28
2-11     Estimated Manufacturer Share of Truck Mounted
         Side Loader Solid Waste Compactor Body
         Shipments, 1974                                         2-29
2-12     Estimated Manufacturer Share of Truck Mounted
         Rear Loader Solid Waste Compactor Body
         Shipments, 1974                                         2-30
2-13     Range of Suggested List Prices of Selected
         Truck Mounted Solid Waste Compactor Bodies              2-32
2-14     Estimated Pricing Structure for Truck Mounted
         Solid Waste Compactor Bodies                            2-34
2-15     Profile of Truck and Tractor Parts and Supplies
         Merchant Wholesalers, 1972                              2-36
2-16     Profile of Truck Mounted Solid Waste Compactor
         Body Distributors, 1972                                 2-38
2-17     Primary End Use Markets for Truck Mounted
         Solid Waste Compactor Bodies                            2-39
2-18     Private Contractors, Equipment, Employees,
         Customers and Collection Tonnage by Metropolitan
         Area Population Size, 1970                              2-40

                               xi

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                        TABLES (Continued)

                                                                  Page
Table                         Title                              Number

 2-19     Private Contractor Truck Equipment Composition, 1970    2-42
 2-20     Percent of Residential Customers Served by
          Private Haulers Under Direct Contract and
          Government Franchise                                    2-43

 3-1      Measured Sound Levels:
          Solid Waste Compactors                                  3-2
 3-2      Summary of Sound Level Data                             3-8
 3-3      Summary of Sound Level Data by Vehicle Category         3-9
 3-4      Noise Contributions                                     3-15
 3-5      Summary of San Francisco Noise Measurements             3-21
 3-6      Noise Levels of San Francisco Compactor Trucks          3-22
 3-7      Available Data on Noise Degradation for Waste
          Compactors Regulated at 78 dBA at 7m in 1979            3-24

 5-1      Regulatory Options:  Not-to-Exceed A-Weighted
          Sound Levels at 7m                                      5-4
 5-2      Estimated A-Weighted Sound Levels at 7m of the
          Non-Compaction Components of the Collection Cycle       5-8
 5-3      Average A-Weighted Sound Levels at 7m of Existing
          Refuse Compactors                                       5-9
 5-4      Estimates of the Average A-Weighted Sound Level
          at 7m Produced by Different Compactor Types             5-10
 5-5      Average Percent of Different Type Collector Vehicles
          Operating Per Day in Each Land-Use Category             5-15
 5-6      Amplification Factors Due to Reverberant Buildup
          in Narrow Streets (Ground Reflection Ignored)           5-17
 5-7      Existing Average Maximum Steady Sound Levels at
          7 Meters for Various Land-Use Categories (Adjusted
          for Truck Mix, Trash Noise and Reverberant
          Amplification)                                          5-21
 5-8      Average Collection Cycle Times for Various
          Land-Use Areas                                          5-23
 5-9      Day-Night Distribution of Average Compactions Per
          Hectare for 1976                                        5-25
 5-10     Projections of Average Solid Waste Truck Compactions
          Per Hectare to the Year 2000                            5-26
 5-11     Equivalent Number of People Impacted (ENI) and
          Percentage Benefit (RCI)                                5-35
 5-12     People Exposed to L,   Over 55                          5-36

 5-13     People Exposed to L,   Over 55 for Each Land Use Type   5-37
 5-14     Percentages of Total Refuse Collections                 5-41
                                 xn

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                        TABLES (Continued)

                                                                  Page
Table                         Title                              Number

 5-15     Sleep Disturbances ENI                                  5-48
 5-16     Sleep Awakenings ENI                                    5-49
 5-17     Outdoor Speech Interference                             5-53
 5-18     Indoor Speech Interference                              5-56
 5-19     Total Outdoor and Indoor Speech Interference            5-57
 5-20     Summary Equation Describing Calculation of Trash
          Compactor Noise Impacts                                 5-59

 6-1      Overall Noise Levels Under Stage 1 of Noise Control
          (Transmission PTO = 74 dBA at 7m)                       6-5
 6-2      Fuel Savings Due to Reduced Engine rpm                  6-7
 6-3      Overall Noise Levels Under Stage 2 of Noise Control
          (Hydraulic Pump = 64 dBA at 7 m)                        6-14
 6-4      Overall Noise Levels Under Stage 3 of Noise Control
          (Hydraulic Pump = 55 dBA at 7 m)                        6-19

 7-1      Estimated Annual Unit Operating Cost Reduction
          Due to Fuel Economies                                   7-14
 7-2      Summary of Estimated Direct Labor and Material Cost
          For Noise Abatement                                     7-15
 7-3      Summary of Estimated Overhead Costs for Noise
          Abatement                                               7-15
 7-4      Summary of Total Estimated Cost for Noise Abatement     7-16
 7-5      Summary of Total Estimated Cost Increases for Noise
          Abatement                                               7-17
 7-6      Manufacturers Input and EPA Contractor Estimates        7-18
 7-7      Summary of Incremental Maintenance and Operating
          Costs Due to Quieting                                   7-19
 7-8      Baseline Forecast by Year and Compactor Body Type       7-26
 7-9      Composite Manufacturer's Projection of Unit Shipments,
          1975-1985                                               7-26
 7-10     On-Route Productivity and Collection Costs              7-29
 7-11     Percent of Total Time Utilization                       7-30
 7-12     Estimated and Projected Unit and Dollar Volumes
          of Truck Mounted Solid Waste Compactor Bodies,
          1974-1985                                               7-31
 7-13     Projected Unit Shipments of Solid Waste Compactor
          Bodies, 1985-1995                                       7-32
 7-14     Estimated Average List Price Percentage Increase
          by Noise Level and Category                             7-33
 7-15     Estimated Incremental Price Between Noise Control
          Stages by Compactor Body Type                           7-34
 7-16     Percent Incremental Price Between Noise Control Stages  7-35
                                     Xlll

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                        TABLES (Continued)

                                                                  Page
Table                         Title                              Number

 7-17     Summary of Fuel, Maintenance and Equipment Cost
          Estimates Associated with Proposed Regulatory Options   7-37
 7-18     Regulatory Options and Cost Impacts                     7-38
 7-19     Representative Solid Waste Compactor End User Cost
          Structure Model                                         7-40
 7-20     Development of Estimated Price Adjustments Associated
          With Stage 1 Noise Emission Requirements                7-45
 7-21     Percent Volume Decline - Stage 1                        7-46
 7-22     Adjusted Baseline Forecast - Stage 1 (1979-1987)        7-47
 7-23     Stage 1 - Estimated First Year Unit Reduction From
          Baseline Forecast, 1979                                 7-48
 7-24     Development of Estimated Price Adjustments Associated
          with Stage 2 Noise Emission Requirements                7-49
 7-25     Percent Volume Decline - Stage 2                        7-50
 7-26     Adjusted Baseline Forecast - Stage 2 (1982-1990)        7-51
 7-27     Stage 2 - Estimated First Year Unit Reduction From
          Baseline Forecast, 1982                                 7-52
 7-28     Development of Estimated Price Adjustments Associated
          with Stage 3 Noise Emission Requirements                7-53
 7-29     Percent Volume Decline - Stage 3                        7-54
 7-30     Adjusted BAseline Forecast - Stage 3 (1985-1993)        7-55
 7-31     Stage 3 - Estimated First Year Unit Reduction
          from Baseline Forecast, 1985                            7-56
 7-32     Estimated Excess Production Capacity by Body Type
          in Year Prior to Regulation                             7-57
 7-33     Anticipated Prebuying in Years Prior to Effective
          Dates                                                   7-58
 7-34     Total Estimated First Year Increased Capital Costs
          for End User Industries - Stage 1, 1979                 7-61
 7-35     Total Estimated First Year Increased Annual Costs
          for End User Industries - Stage 1, 1979                 7-62
 7-36     Total Estimated First Year Increased Capital Costs
          for End User Industries - Stage 2, 1982                 7-62
 7-37     Total Estimated First Year Increased Annual Costs
          for End User Industries - Stage 2, 1982                 7-63
 7-38     Total Estimated First Year Increased Capital Costs
          for End User Industries - Stage 3, 1985                 7-63
 7-39     Total Estimated First Year Increased Annual Costs
          for End User Industries - Stage 3, 1985                 7-64
 7-40     Estimated Total Packer Truck Price Increases by
          Regulatory Level                                        7-67
 7-41     Total Annual Cost Per Vehicle for Stages 1, 2 and 3     7-68
                                xiv

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                        TABLES (Continued)

                                                                  Page
Table                         Title                              Number

 7-42     Estimated Current and Incremental Direct Labor Hours
          by Regulatory Level                                     7-70
 7-43     Summary of Estimated List Price Increases               7-73
 7-44     Summary of Escimated First Year Unit Reduction
          from Baseline Forecast                                  7-74
 7-45     Summary of the Resource Costs Associated with Noise
          Abatement                                               7-74
 7-46     Representative Solid Waste Compactor Manufacturer
          Cost and Profit Structure                               7-78
 7-47     Estimated Unit Production of a Typical Company          7-83
 7-48     Estimated Cost Structure for a Typical Company          7-83

 9-1      Local Solid Waste Compactor Truck Noise Laws            9-3
                                     xv

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                               SECTION 1



                             INTRODUCTION






STATUTORY BASIS FOR ACTION



     Through the Noise Control Act of 1972  (86 Stat. 1234) , Congress estab-



lished a national policy "to promote an environment for all Americans free



from noise that jeopardizes their health and welfare."  In pursuit of that



policy, Congress stated in section 2 of the Act "while primary responsibility



for control of noise rests with State and local governments, Federal action



is essential to deal with major noise sources in commerce, control of which



requires National uniformity of treatment."  As part of this essential Federal



action, Subsection 5(b)(1)  requires that the Administrator of the U. S.



Environmental Protection Agency, after consultation with the appropriate



Federal agencies, publish a report or series of reports "identifying products



(or classes of products)  which in his judgment are major sources of noise."



Section 6 of the Act requires the Administrator to publish proposed regulations



for each product identified as a major source of noise and For which, in his



judgment, noise standards are feasible.  Such products fall into various



categories, of which surface transportation is one.  Pursuant to subsection



5(b)  (1), the Administrator has published a report identifying truck-mounted



solid waste compacters as a major source of noise.
                                     1-1

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PREEMPTION



     Section 6(e)(1) of the Noise Control Act states that after the effective



date of a Federal regulation "no State or political subdivision thereof may



adopt or enforce...any law or regulation which sets a limit on noise emissions



from such new product and which is not identical to such regulation of the



Administrator."  Section 6(e)(2), however, states that "nothing in this



section precludes or denies the right of any State or political subdivision



thereof to establish and enforce controls on environmental noise  (on one or



more sources thereof) through the licensing, regulation, or restriction of



use, operation or movement of any product or combination of products."  The



central point to be developed here is the distinction between noise emission



standards on products, which may be preempted by Federal regulations, and



standards on the use, operation, or movement of products, which are reserved



to the states and localities by Section 6(e)(2).



     Section 6(e)(1) forbids State and local municipalities from controlling



noise from products through laws or regulations that prohibit the sale



(or offering for sale) of new products for which different Federal noise



emission standards already have been promulgated.  States and localities



may augment the enforcement duties of the EPA by enacting a regulation



identical to the Federal regulation, since such action on the State or local



level would assist in accomplishing the purpose of the Act.  Further, State



and local municipalities may regulate noise emissions for all new products



that were manufactured before the effective date of the Federal regulation(s).
                                     1-2

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     Section 6(e) (2) explicitly reserves to the states and  their political



subdivisions a much broader authority: the right to  "establish  and  enforce



controls on environmental noise (or one or more sources  thereof) through



the licensing, regulation or restriction of the use, operation, or  movement



of any product or combination of product."  Environmental noise is  defined



as the "intensity, duration, and character of sounds from all sources"



(Section 2  [11]).  Limits may be proposed on the total character and



intensity of sounds that may be emitted from all noise sources, "products



and combinations of products."



     State and local governments may regulate community  noise levels more



effectively and equitably than the Federal government due to their  per-



spective on and knowledge of state and local situations.  The Federal



Goverment may assume the duties involved in regulating products distributed



nationwide because it is required and equipped to do so.  Congress  divided



the noise emission regulation power in this manner to allow each level



of government to fulfill that function for which it is best suited.  Through



the coordination of these divided powers, a comprehensive regulatory program



can be effectively designed and enforced.



     One example of the type of regulation left open to  the localities is



the property line regulation.  This type of regulation would limit  the



level of environmental noise reaching the boundary of a  particular  piece



of property.  Noise emitters would be free, insofar as State regulations



are concerned, to use any products whatsoever, as long as they  are  used or
                                     1-3

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operated in such a fashion so as not to emit noise in excess of the state-



specified limits.  This type of regulation may be applied to many different



types of properties, ranging from residential lots to construction sites.



     In such a case, state and local regulation of trash compactor trucks may



take the form of, but would not be limited to, the following examples:



     o  Quantitative limits on environmental noise received in specific



        land use zones, as in a quantitative noise ordinance.



     o  Nuisance laws amounting to operation or use restrictions  (including,



        for example, curfews).



     o  Other similar regulations within the powers reserved to the states



        and localities by Section 6(e) (2).



     In this manner, local areas may balance the issues involved to arrive at



a satisfactory environmental noise regulation(s) that protect the public



health and welfare as much as deemed possible.



LABELING



     The enforcement strategies outlined in Section 8 of this document



will be accompanied by the requirement for labeling products distributed



in commerce.  The label will provide notice to a buyer that a product is



sold in conformity with applicable regulations.  A label will also make



the buyer and user aware that the trash compactor truck possesses noise



attenuation devices and that such items should not be removed or  rendered



inoperative.  The label may also indicate the associated liability for



such removal or  tampering.
                                      1-4

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IMPORTS



     The determination of whether  individual  new products  comply with  the



Federal regulation will be made by the U.S. Treasury Department (Customs),



based on ground rules established  through consultation with  the Secretary of



the Treasury.



     It is anticipated that enforcement of the actual noise  standard by the



use of a standard test procedure would be too cumbersome for Customs to



handle, especially in view of the  tremendous  bulk of merchandise they  must



pass on each day.  A case in point occurs with imported automobiles, in which



Customs inspectors presently assess compliance with requirements of the Clean



Air Act solely on the basis of the presence of a label in  the engine compart-



ment.  A similar mechanism (labeling) appears viable for use to assess



compliance of imported trash compactor trucks with the proposed regulations.



RATIONALE FOR REGULATION OF THE TRASH COMPACTOR TRUCK



     To develop an EPA criterion for identifying products  as major sources of



noise, first priority was given to those products that contribute most to



overall community noise exposure.  Community  noise exposure  is defined as



that exposure experienced by the community as a whole as the result of the



operation of a product or group of products,  as opposed to that exposure



experienced by the user(s) of the  product(s).



  ,   In terms of assessment, community noise  exposure was  evaluated in terms



of the day/night average sound level (L  ) (Ref. 1-1) that was developed





especially as a measure of community noise exposure.  Since  L,  is
                                     1-5

-------
an equivalent energy measure, it can be used to describe the noise in areas

in which noise sources operate continuously or intermittently but are pre-

sent enough of the time to emit a great deal of sound energy in a 24 hour

period.

     Studies have been made of the number of people exposed to various

levels of community noise (Ref. 1-1).  Table 1-1 summarizes the estimated

number of people in residential areas subjected to urban traffic noise,

aircraft noise, construction site noise, and freeway traffic noise at or

above an outdoor L,  of 60, 65, and 70 dB, respectively.


     EPA has identified an outdoor L ,  of 55 dB (Ref. 1-1) as the day/night


average sound level requisite* to protect the public from long-term adverse

health and welfare effects in residential areas.  Table 1-1 shows that it

will be necessary to quiet the major sources contributing to urban traffic

noise, construction site noise, freeway traffic noise, and aircraft noise if

this level is to be achieved.

                                 Table 1-1

         ESTIMATED NUMBER (in Millions) OF PEOPLE IN RESIDENTIAL

  AREAS SUBJECTED TO DIFFERENT KINDS AND LEVELS OF OUTDOOR NOISE (Ref. 1-1)
Outdoor
Ldn Level
70 dB+
65 dB+
60 dB+
Urban Traffic
Noise
4-12
15-33
40-70
Aircraft
Noise
4-7
8-15
16-32
Construction
Site Noise
1-3
3-6
7-15
Freeway
Noise
1-4
2-5
3-6

  *With an adequate margin of safety and without consideration of the cost and
technology involved to achieve an L,  of 55 dB.
                                     1-6

-------
NEED FOR CONTINUED COMPLIANCE WITH THE  NOISE  STANDARD



     It is important to the purchaser that  the  product has been designed and



built so that it will continue  to meet  its  noise  emission standard for a



stipulated period of time or use when it  is properly used and maintained.



     The attainment of the estimated health and welfare benefits,  requisite



to a regulated product or class of products,  is dependent upon its continuing



to comply with the Federal not-to-exceed  noise  emission standard for a pre-



scribed period of time or use.



     The question of "Useful Life" with respect to product noise regulations



was first addressed in the proposed rule  making for medium and heavy trucks



and for new portable air compressors.   The  initially proposed useful life



provisions required the manufacturer to assume  that his product would continue



to meet the EPA noise emission  standard throughout the product's useful or



operational life.  This requirement was intended  to ensure that the public



health and welfare benefits derived from  the  product standards would not



degrade during the product's life as a  result of  the product's sound level



increasing over time.  The Agency deferred  action on setting  a useful life



standard in the final regulations for new medium  and heavy trucks  and portable



air compressors based on a need on the  part of  EPA to further assess to what



degree the noise from a properly used and maintained product  would increase



with time.  However, the Agency reserved  a  section in the regulations for the



proposal of useful life standard at a later time.
                                     1-7

-------
     The Agency has given considerable attention to this question of product



noise degradation (increase in noise level with time)  and firmly believes



that if a product is not built such that it is even minimally capable of



meeting the standard while in use over a specified initial period, when



properly used and maintained, the standard itself would become a nullity and



the anticipated health and welfare benefits will be illusory.



     Consequently, the Agency has developed the concept of an "Acoustical



Assurance Period" (AAP).  The AAP is defined as that specified initial period



of time or use during which a product must continue in compliance with the



Federal standard provided it is properly used and maintained according to the



manufacturer's recommendations.



     In contrast to the previously proposed "Useful Life" requirements, the



Acoustical Assurance Period is independent of the product's operational



(useful) life which is the period of time between sale of the product to the



first purchaser and last owner's disposal of the product. The Acoustical



Assurance Period is product-specific and thus may be different for different



products or classes of products.  The AAP is predicated, in part, upon  (1)



the Agency's anticipated health and welfare benefits over time resulting from



noise control of the specific product,  (2) the product's known or estimated



periods of use prior to its first major overhaul,  (3) the average first owner



turnover  (resale) period  (where appropriate), and  (4) known or best engineering



estimates of product-specific noise level degradation  (increase in noise



level) over time.
                                     1-8

-------
      The AAP will require the product manufacturer to assure  that  the product



is designed and built in a manner that will enable it to comply with  the noise



emission regulation which exists at the time the product is  introduced into



commerce and that it will continue to conform with the applicable regulation



for a period of time or use not less than that specified by  the AAP.



     While the Agency believes that products, which are properly designed and



durably built to meet a product specific noise emission standard, should



continue to meet the standards for an extended period of time, it recognizes



that some manufacturers may wish to stipulate, based on test results  or best



engineering judgment, the degree of anticipated noise emission degradation



their product(s) may experience during a specified Acoustical Assurance Period.



A procedure has been developed by the Agency that permits manufacturers to



account for sound level degradation in his compliance testing and verifica-



tion program.  This procedure, if used, would require a manufacturer  to apply



a "Sound Level Degradation Factor" (SLDF) to the Agency's not-to-exceed



noise emission standard and thus would result in a manufacturer specific



production test level that is lower than that specified by the EPA  standard.



For example,a manufacturer who estimates that the noise level of a  given



product model may increase by 3 dBA during the prescribed AAP would specify



an SLDF of 3 dBA.  For production verification the manufacturer would then



test to ensure that his product's sound level is 3 dBA below that specified in



the applicable Federal standard.  For those products not expected to  degrade



during the AAP the manufacturer would specify an SLDF of zero.
                                 1-9

-------
IDENTIFICATION OF MAJOR SOURCES OF NOISE



     Section 6(A)(1)(C) of the Noise Control Act specifies four possible



categories of products that may be regulated by the Administrator:



     1.  Construction equipment.



     2.  Transportation equipment (including recreational vehicles and



         related equipment).



     3.  Any motor engine (including any equipment of which an engine is an



         integral part).



     4.  Electrical or electronic equipment.



     Pursuant to Section 3(3)(A) aircraft are excluded as products under



Section 6 of the Act.  Aircraft noise regulations have been proposed to the



FAA as delineated in Section 7 of the Act.  Medium and heavy-duty trucks



contribute the most sound energy to the environment of any highway vehicle



and, as such, have been identified for regulation as major noise sources, a



number of trucks operate with special equipment mounted, some of which may



contribute significant noise to the environment aside from that due to the



normal operation of the truck in its transportation mode.  One such product



is the truck-mounted solid waste compactor, which is known to be a source of



annoyance and sleep disturbance.  In order to preclude a lessening of the



beneficial effect of truck noise regulation in reducing noise impact, the EPA



has identified the truck-mounted solid waste compactor for noise regulation.
                                      1-10

-------
OUTLINE AND SUMMARY OF BACKGROUND DOCUMENT



     Background information used by EPA in developing regulations limiting



the noise emissions from new truck-mounted solid waste compactors is pre-



sented in the following Sections of this document:



     Section 2 - The Industry and the Product:  contains general information



on the manufacturers of truck-mounted solid waste compactors and descriptions



of the product.



     Section 3 - Baseline Noise Levels for New Truck-Mounted Solid Waste



Compactors:  presents current noise levels relative to degradation noise



levels for existing new solid waste compactors and a discussion of the data



used in the development of an Acoustical Assurance Period.



     Section 4 - Measurement Methodology:  presents the measurement meth-



odology selected by EPA to measure the noise emitted by this product and to



determine compliance with the proposed regulation.



     Section 5 - Health and Welfare:  discusses the benefits to be derived



from regulating noise emissions of solid waste compactors.



     Section 6 - Noise Control Technology:  provides information on available



noise control technology and the criteria for determining the levels to which



solid waste compactors can be quieted.



     Section 7 - Economic Analysis:  examines the economic impact of noise



emission standards on the solid waste compactor industry and society.



     Section 8 - Enforcement:  discusses the various enforcement actions open



to EPA to ensure compliance.



     Section 9 - Existing Local, State and Foreign Regulations:  summarizes



current noise emission regulations on truck-mounted solid waste compactors.
                                     1-11

-------
     Appendix A - The Docket Analysis (Reserved).





References - Section 1



1-1.  Environmental Protection Agency,  Information on Levels  of  Environmental



      Noise Requisite to Protect Public Health and Welfare with  an Adequate



      Margin of Safety, EPA 550/9-74-004,  March 1974.
                                     1-12

-------
                                 SECTION 2




                       THE INDUSTRY AND THE PRODUCT






INTRODUCTION



     This section provides a description of truck mounted  solid waste  com-



pactor bodies and an overview of the compactor body  industry.  The  section  is




organized as follows:



     Tne Product



     Product Applications and Competitive Systems




     Tne Industry



     Characteristics of Industry Segments



THE PRODUCT




     A truck mounted solid waste compactor consists  of a truck chassis and  a



compactor body.  The body is equipped to receive, compact, transport and



unload solid wastes.




     The major compactor body types can be operationally classified by the



body loading configuration as seen in Table 2-1.



     1.  Front Loaders.  These bodies utilize front  mounted hydraulic  lift



arms to lift and dump waste containers into an access door in the top  of  the



body.  Packer plates compact the wastes inside the body.   Wastes are typically



ejected through a tailgate.  A typical front loader  is illustrated  in  Figure



2-1, and the six step operational sequence for front loading is shown



in Figure 2-2.  The compaction cycle for a front loader is illustrated in



Figure 2-3.
                                     2-1

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-------
                           Dump
                       Compaction
                         Return
Figure 2-3.  Operation of a Front Loader (Compaction Cycle)
                           2-5

-------
     2.  Side Loaders.  Considerable variation exists  in these bodies,  but  a



typical model is illustrated in Figure 2-4. Generally, wastes are manually



deposited into a hopper through an access door in the  side wall of th>-  body.



Packer plates sweep the wastes from the hopper into the body and congress



the materials against an interior wall, in the same manner as front  loaders



(Figure 2-3).  Some side loaders are also equipped to  hydraulical.ly  lift and



dump waste containers. Ejection of wastes is usually through a tailgate.



Many side loader models are not equipped for packer plate ejection,  but



typically, would hydraulically lift the front end of the body and dump  the



wastes through a tailgate.



     3.  Rear Loaders.  The hopper on these bodies is  located on the rear



section of the body (Figure 2-5}.  Wastes are generally loaded manually into



the hopper, but some models have the capability to hydraulically lift and



dump containers. The packer plate sweeps the wastes from the hopper  into



the body and compresses the wastes against an interior wall surface.  In most



models, the packer plate is also used for tailgate waste ejection.



     Two additional categories of solid waste compactors are produced:



     1.  Satellite Vehicles.  These bodies function much like other  packers,



but are relatively small.  They are used in door-to-door waste collection and



in conjunction with a larger packer truck.  The satellite vehicle body  ejects



wastes into the hopper of a larger packer truck or serves as a detachable



container which is lifted and dumped by a larger truck.  These bodies were



excluded from consideration because available test information indicated they



were not a significant source of noise.
                                     2-6

-------
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     2.  Route Trailers.  These solid waste compactors are pulled by  a truck



rather than being mounted on the truck chassis.  Operation of the unit is



similar to a side loader, except that trailers are powered by a stand-alone



auxiliary engine mounted on the trailer.  This type of compactor has  been



excluded from consideration because the potential economic impact associated



with these units is insignificant. Fewer than 50 units were shipped in 1974




and the estimated number of units in operation is less than 100.



     As indicated in Table 2-1, packer bodies can also be classified  by body



cubic year capacity and the compaction density rating of the body.




     Front loaders are essentially all mounted on a heavy duty truck  chassis



powered by a diesel engine.  Side loaders can be mounted on a light,  medium,



or heavy duty truck chassis. Rear loaders are typically mounted on a  medium



or heavy duty truck chassis.  Approximately 40 percent of the side and



rear loader truck chassis are powered by diesel engines, the remainder are



powered by gasoline engines.  It is estimated that 15 percent of the  side




loaders and 2 to 3 percent of the rear loaders are powered by a stand-alone



auxiliary engine rather than the truck engine.



PRODUCT APPLICATIONS AND COMPETITIVE SYSTEMS



     Tne distribution of packer bodies by loading type and application are



shown in Table 2-2 and summarized below:



     1.  Front loaders are used predominantly in commercial and industrial



applications.  Commercial collection includes residential complexes with more



than two-family units.
                                     2-9

-------
                        TABLE 2-2


                 TRUCK MOUNTED SOLID WASTE
                COMPACTOR BODY APPLICATIONS
                 BY PRODUCT CLASSIFICATION
                              Percent of Total Units Employed
                              	by Major Application	

                                                  Commercial
Equipment Classification      Residential*      and Industrial
Front Loader                     10-15               85
Side loader                         85               15
Rear loader                         70               30
SOURCE:  Field interviews with product manufacturers, distributors
         and fleet operators.
 *Residential includes single*-family dwellings and duplexes.
                            2-10

-------
     2.  All other categories of bodies are 'used principally for residential



waste collection.  Commercial and industrial application of this equipment  is



typically limited to light commercial collection utilizing small containers



and compactor bodies equipped with hoists.



     Substantial potential exists for substitution of equipment for residential



collection.  Several studies have demonstrated that collection productivity



can be dramatically increased by utilizing one-man versus multi-man crews.



This provides a competitive advantage for side loaders as compared to the



more broadly used rear loader.



     The available competitive waste collection systems identified vary by



nature of application.  Residential collection could be accomplished by three



means:



     1.  Centrally Located Roll Off Packers.  A truck would periodically



remove either a detachable container or the entire unit and dispose of the



collected wastes.



     The advantages of this substitute system, depending on methods used to



transfer wastes from the household or commercial establishment to the packer,



population density and a number of other variables, could include higher



collection productivity, increased flexibility in usage of sound deadening



shields and increased ability to monitor and control noise levels.



     Potential disadvantages would include a negative public reaction to



having to transport wastes to the compactor location, increased exposure of



the general public to injury from operation of the compactor, and heavy



initial investment in packers and containers.





                                     2-11

-------
     2.  Truck Mounted Shredder-Compactor Bodies.  This product concept



entails a rear loader cylindrical body which rotates and tumbles wastes.  The



tumbling action and spiral ribs inside the body shred wastes and drive them



toward the front section of the body.  In this manner, wastes are compacted



to a density similar to that achieved by standard rear loaders.



     The only potential advantage identified would be possible reductions in



body maintenance expense.



     Disadvantages relating to models currently available, may include higher



levels of crew personal injury attributable to lifting wastes to a higher



level for deposit in the body. Crew productivity may also be reduced by the



higher lift height.



     No. U. S. manufacturer currently produces this type of body. They are



imported from Europe and currently have insignificant penetration in the



U.S. market.



     No noise measurements were made of this type collection vehicle.  However,



domestic conventional packer body manufacturers report that noise levels



parallel those of rear loaders.



     3.  Truck Mounted Non-Compacting Bodies.   Essentially, this represents



a return to prepacker body collection practices. Noise levels would probably



be reduced but crew productivity would be substantially lower.



THE INDUSTRY



Solid Waste Generation



     The demand for the product of the compactor body industry is derived



from the generation of solid wastes, particularly by residences and com-



mercial establishments, that are subject to collection and disposal.
                                     2-12

-------
     The availability of solid waste generation data  is relatively limited



and of recent origin.  While estimates are universally accepted as accurate,



the most broadly accepted estimates are reflected  in  Table 2-3.   It can be



seen that total residential and commercial solid waste generation in  1973 is



estimated at 144 million tons.  Resource reclamation  provided  for the disposal



of 9 million tons, resulting in a net solid waste  disposed quantity of 135



million tons.



     Projections of total residential and commercial  solid wastes are also



shown in Table 2-3.  The tonnage of total gross discards  is expected  to



increase to 175 million tons in 1980, an average annual growth of four



percent between 1973 and 1980.  New wastes disposed are expected  to increase



to 156 million tons during the same period, an average annual  growth  rate of



two percent.  The growth rates are expected to decline between 1980 and



1990.



     The composition of residential and commercial solid wastes is shown in



Table 2-4.  Nearly 70 percent of total wastes are  paper, food  and yard



wastes.



Solid Waste Collection—The Packer Body



     Tne first packer bodies were broadly introduced  for solid waste  collec-



tion in the early 1950s.  Market penetration of this  equiment  was relatively



rapid since it provided a means for dramatic productivity increases in solid



waste collection. The major benefit, relative to the  traditional  open body



collection truck, is that compaction allows larger quantities  of  wastes to be
                                     2-13

-------
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-------
                             TABLE 2-4
              POST-CONSUMER RESIDENTIAL AND COMMERCIAL
             SOLID WASTE GENERATED AND AMOUNTS RECYCLED,
                     BY TYPE OF MATERIAL, 1973
             (AS-GENERATED WET WEIGHT IN MILLIONS TONS)
Material
Category

Paper
Glass
Metals
Plastics
Rubber
Leather
Textiles
Wood

  Total Non-Food
 Gross
Discards

  53.0
  13.5
  12.7
   5.0
   2.8
   4.9
  94.8*
Quantity
   of
Materials
Recycled

  8.7
   .3
   .2

   .2
Net Waste Disposed

           Percent
Quantity   of Total
  9.4
  44.3*
  13.2
  12.5
   5.0
   2.6
   1.0
   1.9
   4.9

  85.4
 32.9%*
  9.8*
  9.3
  3.7
  1.9
  .8*
  1.4
  3.6

 63.4
  Product Waste

Food Waste
Yard Waste
Misc. Inorganic
 Wastes

  Total
  22.4
  25.0
   1.9
 144.1*
  9.4
                    22.4
                    25.0
                     1.9
 134.7*
            16.6
            18.6*
             1.4
100.0%
SOURCE:  Office of Solid Waste Management Programs, U. S. Environmental
         Protection Agency, "Third Report to Congress, Resource Recovery
         and Waste Reduction,"   (SW-161), 1975 Page 10.
Arithmetic summations and differences modified to reflect correct total.
                                  2-15

-------
collected between trips to the disposal site. Consequently, more waste



collection points can be served between trips and a substantially higher



proportion of total collection crew time is productive.



     Even with the advent of this equipment, waste collection remains an



extremely labor intensive operation. Recent product enhancements and new



product introductions have focused on further increasing collection crew



productivity.  The major equipment innovations have been higher density



compaction, larger volume bodies and different loading configurations



intended to reduce total crew size.



SIZE AND GROWTH OF THE PACKER BODY INDUSTRY



Units In Operation



     The estimated number of packer body trucks in operation is shown in



Table 2-5.  It can be seen that approximately 76,000 units are in operation.



Rear loaders account for 73 percent of the total.  Tne estimated functional



life of front loaders is eight years and rear and side loaders is seven



years.



Unit and Dollar Manufacturer Shipments



     The units and value of manufacturer shipments in 1964, 1967, and 1972



and estimates for 1974 by loader type are shown in Table 2-6.  An estimated



12,300 units with a value of $125 million were shipped in 1974.  This repre-



sents an average annual growth rate between 1964 and 1974 of 10 percent



on a unit basis and 19 percent on a dollar basis.  The unit growth rate



remained the same and dollar growth increased to 22 percent between 1967 and



1974.
                                      2-16

-------
                             TABLE  2-5
                    ESTIMATED TRUCK MOUNTED
                SOLID WASTE COMPACTOR BODY UNITS
                       IN OPERATION, 1974	
Equipment
Classification
 Truck-
 Ill Iss
(Millions)
  Average
  Annual
Miles/Truck
 (Thousands)
Front Loader        	
Side Loader         	
Rear Loader         	
Satellite Vehicles  	

     Total          841
                12.2
 Units

11,200
11,600
53,700
   500
Percent  Estimated
  of      Average
 Total   Functional
 Units   Life Cvcle
                                    14.6%
                                    15.1
                                    69.7
                                      .6
             77,000   100.0%
                                   3
                                   7
                                   7
SOURCE:   U.S.  Department  of  Commerce,  Bureau  of  the  Census,  "Census
         of  Transportation,  1972,  Truck  Inventory  and Use Survey,
         1972",  Page  2.
         Truck Body and Equipment  Association, National Solid Waste
         Management Association and field interviews with equipment
         manufacturers.
                                 2-17

-------
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-------
     It is estimated that 73 percent of 1974 shipments were rear loaders.

Export Sales

     The estimated value of manufacturers' exports in 1974 are shown  in Table

2-7.  Approximately 20 percent of manufacturers' shipments, or $25 million,

are estimated to be exports.  More than 90 percent of the value of exports

are completed bodies.

CHARACTERISTICS OF INDUSTRY SEGMENTS

     The general structure of the compactor body industry is depicted in the

schematic shown in Figure 2-6.  Generally, the packer body manufacturer pur-

chases raw materials and components from suppliers and builds the body.  Bodies

are then sold to either truck chassis dealers or truck body distributors,

dominantly to the latter.  The body is then mounted on a truck chassis and

sold to the ultimate end user.  The primary end users are municipal govern-

ments and private contractors.

     A profile for each of the following industry segments is described in

this section:

          Packer Body Manufacturers
          Truck Body Distributors
          End Use Market — Fleet Operators
          Truck Chassis Manufacturers and Dealers
          Raw Material and Component Suppliers

Packer Body Manufacturers

     1.   Currently, 25 companies have been identified as manufacturers of

packer bodies in the United States (Table 2-8).
                                     2-19

-------
                                 TABLE  2-7
                       ESTIMATED VALUE OF TRUCK MOUNTED
                          SOLID WASTE COMPACTOR BODY
                         MANUFACTURER'S EXPORTS, 1974
                                   (MILLION)
                          Total Shipment       Export Shipments     Export Percent
    Equipment Type            Value	            Value	   of Total Shipments

    Complete Bodies             99                    20                   20%

    Components                  11                  	2__                  20

          Total                110                    22                   20%
SOURCE:   Dun & Bradstreet, Inc.,  "Analytical Financial  Reports".
          Field interviews with equipment manufacturer.
                                      2-20

-------
   Raw Material
   Sunoliers
Truck
Chassis
Manufacturers
                         Compactor Body
                         Manufacturers
           I
  Truck Chassis
  Dealers
                       i
Municipal
Governr.ani
Private
Contrac
tors
                                         1
                                   Federal
                                   GovernnerJ
                                                Component
                                                Manufacturers.
                                                  p-ro' s
                                                  Purr.ps
                                                  Valvgs
                                                  I
Truck Body
Dis tributor
Assemblers
s/

Corporations
and Others
        Figure 2-6.
                  Truck Mounted Solid Waste Compactor Body
                  Industry Structure
                               2-21

-------
     2.  These companies, including total corporate revenues, range in size

from $100,000 to $1.4 billion. Nearly 50 percent of the manufacturers are

divisions or operating companies held by corporations which are substantially

larger. Nearly all of the specialized independent companies for which data

are available have revenues less than $10 million (see Table 2-8).

     3.  Manufacturer production facilities and products manufactured at each

plant are indicated in Table 2-9.

     Plants are concentrated in California, Texas, Michigan, Ohio and the

Southeastern states.  Nearly one-half of the companies have two or more

plants.  Proximity to markets is an important factor due to the costs for

transporting bodies, but favorable investment incentives and labor climates

have attracted many plants in the Southeastern states.

     In addition to packer bodies, the more common products manufactured are

containers, portable and stationary compactors, transfer trailers, transfer

station equipment, hydraulic lift gates and hoists.

     4.  The type and cubic yard capacity of packer bodies produced by each

manufacturer is summarized below:

          a.  Eleven companies currently produce front loaders.  Body cubic
              capacity of front loaders ranges from 20 to 52 yards.  Most
              models are in the 25 to 35 yard range. Most producers have a
              broad product range.

          b.  Ten companies produce side loaders.  Body cubic capacity ranges
              from 10 to 38 yards. The most common size range is from 16
              to 24 cubic yards.

          c.  Ten companies produce rear loaders.  Body capacity ranges from
              10 to 31 cubic yards. The dominant sizes are 16, 20, and 25
              cubic yards.
                                      2-22

-------
                  TABLE 2-8

       FINANCIAL PROFILE OF TRUCK MOUNTED
SOLID WASTE COMPACTOR BODY MANUFACTURERS -
1974
$ (MILLIONS)
NET
PROFIT
(LOSS)
DATE NUMBER OF NET
COMPANY NAME FOUNDED EMPLOYEES REVENUE
Company S 1946 50 $ 1.9
Company T (a) n/a 27,079 984.6
Company U (b) 1912 40,765 1,428.0
Company V n/a n/a 25.0
Company W (b) 1918 26,400 1,315.0
Company X (c) 1938 27 2.4
Company Y 1956 n/a 30.0
Company Z 1899 14,900 498.1
Company C (a) 1901 1,633 70.3
Company AA (d) 1953 140 7.1
Company D (e) 1957 300 11.4
Company BB 1945 175 7.9
Company CC 1960 14 .2
Company B (f) 1952 230 6.8
Company DD (g) n/a n/a 257.9
Company EE (b) 1906 2,151 109.1
Company FF (i) 1966 200 13.3
Company I (g) n/a 1,622 61.8
Company GG 1953 150 n/a
Company HH (fg) n/a n/a 123.0
Company II (h) n/a 80 2.4
Company JJ 1976 7 n/a
Company KK n/a 36 1.5
Company LL 1975 3 .2
Company MM n/a 35 4.0
Source: Dun & Bradstreet, Inc., Analytical Financial
otherwise indicated.
(a) Fiscal year ending October 31, 1974.
AFTER TOTAL
TAXES ASSETS
S $
8.6
37.5
n/a
22.7 1
.1
n/a
25.4
2.8
.2
.4
(.3)
n/a
n/a
9.6
5.2
(.7)
1.7
n/a
2.8
.1
n/a
n/a
n/a
n/a
.3
794.2
982.0
n/a
,020.8
.1
n/a
318.6
41.7
3.4
8.5
n/a
.1
4.8
205.4
57.0
8.3
38.8
n/a
86.6
1.4
n/a
n/a
n/a
n/a
TANGIBLE
NET WORTH
$
337.1
331.0
n/a
342.2
.1
n/a
182.0
22.1
.9
1.8
n/a
n/a
1.9
70.0
37.6
2.0
16.7
n/a
22.4
.4
n/a
n/a
n/a
n/a
NET
WORKING
CAPITAL
$
330.0
158.8
n/a
139.9
.2
5.0
103.8
23.6
.9
1.8
n/a
n/a
1.5
71.4
25.6
.5
16.1
n/a
24.8
.3
n/a
n/a
n/a
n/a
REFUSE
DIVISION/ COMPACTOR
SUBSIDIARY BODY
n/a $
n/a
n/a
n/a
n/a
.7
5.0
n/a 4.0
n/a
7.1
1.8
7.9
6.8
54.2
n/a
13.3
8.7
n/a
20
1.2
n/a . 2
n/a
n/a
n/a
n/a
Report*, unless










(b) Moody's Investors Service, Inc., Industrial Manual, 1975.
(c) Revenue and earnings extrapolated from 6 month
March 31, 1975.
(d) Fiscal year ending May 31, 1975.
(e) Fiscal year ending May 31, 1974.
(f) Fiscal year ending June 30, 1974.
(g) Annual Report, 1974.
(h) Fiscal year ending August 31, 1974.
(i) Fifacal year ending March 31, 1975.
data ending







































                     2-23

-------
                                    TABLE  2-9
       FACILITY PROFILE OF  TRUCK  MOUNTED  SOLID  WASTE
               COMPACTOR BODY  MANUFACTURERS,   1974
                                         Production Facilities
   pany Vnnc
Company S


Company T
Facility
   Sire
(Thousands  Owned
of Square    or     Number of
  Foot)     Leased.  Employees
  n/a


  n/a

  107
n/a


n/a

n/a
 50


450


n/a

350
                                                           Products X-inufactured
-Dump truck beds, hoists, co-npactor
 bodies.

-Containers, transfer stations, refuse
 compactor bodies, roll-off hoists,  coa-
 pactor trailers.
-Stationary packers.

-Transport trailers and containers.
Company U


Company V


Company W


Company X

Company Y

  n/a


  n/a


  n/*


  29

  n/a

  n/a
n/a


n/a


n/a


L

n/a

n/a
n/a


n/a


n/a


27

n/a

n/a
                n/a


-Transport trailers, compactor trailers,
 compactor bodies, transfer  trailers.

-Truck dealer and auto repair.

-Truck t,-.nks and refuse compactors.

-Trailers, axles, brake shoes 4 drucs.
Company z
  200       n/a              -Containers, refute compactor bodies,
                             statlonjry cc-^prctors,  roll-off hoists,
  n/c.       n/a     1,100     tr.in:;ttr tr.iLlc.rs.
  n/a       n/a              -Kefuse compactors.
                                       2-24

-------
                              TABLE   2-9   (continued)
                                            Production  Facilities
Company C
facility
   Size
(Thousands  Owned
of Square   or
  Feet)    Leased

   760        0
                              n/a
                                                               Products tonul'actured
                       n/a
-Truck todies and hoists, tanks, tanks
 for trailers, refuse collection and pro-
 cessing equip '^nt, dehydrating machines,
 material handling equipncnt, and pulver-
 izing and recla.-natlcn equipzenc.
               n/a
                               80         L        n/a
Company AA


Company D





Company BB





Company CC
   480         0        n/a     -Front  loaders, side loaders,
                                stationary  compactors.

               L        n/a     -Refuse compactor bodies, stationary
                                compactors  & hydraulic lift r.ates.
   194
-------
                             TABLE  2-9   (continued)
Production Facilities
Cc-pa-iv N'--c
Company B

Company DD
Company EE
Company FF
Company I
Company GG
Company HH ld'
Company II
Facility
Size
(Thousands
of Square
Feet)
80
80
n/a
219
87
196
n/a
n/a
34
Owned
or
Lensed
n/a
n/a
n/a
n/a
0
L
n/a
n/a
0
Number of
Employees
135
95
n/a
n/a
120
n/a
n/a
n/a
80
Products Ilanufaeturctl
-Stationary refuse compactors, compac-
ting & transfer trailers, containers,
& front loader compactors.
-Refuse ccnpactcrs, refuse trailers,
containers 4 front loader cor.pactors.
-Refuse compactor bodies, containers 4
transfer stations.
-Rail car auto shipping racks, refuse
corr.paccor bodies.
-Solid waste conpactor bodies, contain-
ers & roll-off containers & hoists.
-Dump bodies, containers and refuse
packer bodies.
-Refuse conpactor bodies, containers &
roll-off hoists.
-Refuse compactor bodies.
-Refuse corpactor bodies, true'* hoists
                                                          & miscellaneous truck codifications.
SO'JSCE:   Dun  & 3rad:treet, Inc.,  Analytical Reports,  unless otherwise indicated.
(a)  Annual  Hcp-rt, 1974 and interviews with conpany pan.-:(;r"*enr.
(b)  Xocdy's  Investors Service,  Ir.i.. "Industrial Manual,  1975".
(c)  Ar.r.ual  P.oport, 1974 snd fora 10-K filed with she Securities and Exchange ConmJssion, 1974, Pages 2,  3  and 9.
W  Annual  ?.cpcr:, 1974.
(e)  Total car.cr'ccturlng facilities in Huntingdon Park &  Los Angeles, California: 194,000 square feet.
                                           2-26

-------
     5.  The estimated manufacturer share of shipments by body type  in  1974

are shown in Tables 2-10 through 2-12 and summarized  below:

          a.  Two firms dominate the market with approximately 60 percent of
              all front loaders shipped.  The remainder of shipments is
              rather evenly distributed among the other nine producers.

          b.  Three firms shipped about 20 percent of total side loaders
              each.

          c.  Two firms shipped about 55 percent of all rear loaders.   These
              two firms in combination with two others shipped about 80
              percent of rear loaders.

     Tne geographic markets served by a plant are limited, typically to a

regional area, by the cost to transport a body and the body type usage

patterns within a region.  This is particularly true  for front and side

loaders.  To a greater extent than other manufacturers, two of the largest

shippers of rear loaders serve a national market.

     7.  Packer body manufacturers mount about 70 percent of the bodies they

sell, on truck chassis, for the ultimate purchaser (Figure 2-7).   About 90

percent of all front loaders are mounted by the manufacturer.  This  proportion

for all body types will probably increase in the future as larger packer body

size increases the need for more specialized and heavy-duty mounting equipment.

Increased manufacturer concern regarding product liability will also encourage

this practice.

     8.  The suggested end user list price of packer  bodies varies by loader

type, nature of body construction and body capacity.  The price range of

selected manufacturers and packer bodies by sizes is  shown in Table  2-13.

Note the following ranges:

          Front loaders    $16,000  -  $24,000
          Side loaders       6,000  -   11,000
          Rear loaders       9,000  -   15,000
                                     2-27

-------
                        TABLE 2-10
               ESTIMATED MANUFACTURER  SHARE  OF
            TRUCK MOUNTED FRONT LOADER SOLID WASTE
               COMPACTOR BODY SHIPMENTS.  1974
                                           Percent of Total
                                              Shipments	
   MO. of Firms
   Three Firms                                   75%

   Four Firms                                    20%

   Four Firms                                     5%
   Total                                         100%
SOURCE: Field interviews with equipment manufacturers.
                          2-28

-------
                        TABLE 2-11
                ESTIMATED MANUFACTURER SHARE OF
             TRUCK MOUNTED SIDE  LOADER SOLID WASTE
                 COMPACTOR BODY  SHIPMENTS.  197A
                                              Percent  of
   No. of Firms                               Total Shipments

   Three Firms                                    60%

   Three Firms                                    30%

   Three Firms                                    10%
   Total                                         100%
SOURCE:  Field interviews with equipment manufacturers.
                          2-29

-------
                         TABLE 2-12
                ESTIMATED MANUFACTURER SHARE OF
             TRUCK MOUNTED REAR LOADER SOLID WASTE
                 COMPACTOR BODY SHIPMENTS, 1974
 No. of Firms
 Two Firms

 Two Firms

 Three Firms

 Three Firms
 tPercent of
Total Shipments

      55%

      25%

      15%

       5%
      Total
                                                100%
SOURCE:   Field interviews with equipment manufacturers.
                             2-30

-------
                     Compactor
                     Body
                     Manufacturer
                                 70%
Truck Chassis
Dealers
(Negligible)
                               Truck Body
                               Distributor
                                            30%
                    Fleet Operators
                     (Negligible)
 Figure 2-7
    Estimated Body Mounting Practices for Truck
    Mounted Solid Waste Compactor Bodies	
    (Percent of Total New Bodies Mounted)
 SOURCE:
Truck Body and Equipment Association, and  field
interviews with equipment manufacturers,
distributors and end users.
                            2-31

-------
                             TABLE  2-13
          RANGE OF SUGGESTED LIST  PRICES  OF  SELECTED
          TRUCK MOUNTED  SOLID WASTE  COMPACTOR BODIES*
Equipment Classification                          Overall
and Body Cubic Yard Capacity  Price  Range	  Average Price

Front Loaders                                           $18,780

  24-25                       $16,000  -  $21,000
  30-31                         17,000  -   23,000
  40-42                         20,000  -   24,000

Side Loaders**                                            7,650

  12-14                          6,000  -    7,000
  16-18                          9,000  -   11,000
Rear Loaders                                             11,580

  16-17                          9,000 -   12,000
  20                            10,000 -   14,000
  25                            13,000 -   15,000
     SOURCE:  Manufacturer  price  lists  and interviews with
             manufacturers.
   ^Complete  factory mounted units with standard equipment,
    exclusive of  freight  and Federal Excise Taxes.
  **Does  not  include prices for products built and sold as
    an  integral body and  chassis unit.

                            2-32

-------
     9.  The estimated pricing structure for packer bodies is shown in Table



2-14.  These estimates represent an overall average for all manufacturers,



distributors, end users and products.  Some variation was noted in pricing



practices.  Note that average distributors and end user prices are 20 percent



and 12 percent off list, respectively.



     10.  Manufacturer warranty provisions vary considerably. Typically, only



parts are covered, but service adjustment policies may cover labor in some



instances.  Warranty periods range from 90 days for selected components or



the complete body to 12 months or the complete unit excluding selected



components.



Truck Body Distributors



     The estimated flow of new and used packer bodies is depicted in Figure



2-8.  About ten percent of the packer bodies sold annually are rebuilt/



reconditioned units, sold by truck body distributors.  The dominant pattern



is for manufacturers to utilize distributors to sell and deliver bodies to



packer truck fleet operators.  Leasing companies finance the purchase



of about ten percent of all units sold, dominantly, new bodies. Rental of



packer body truck is negligible.



     A profile of all truck and tractor parts and supplies wholesalers is



shown in Table 2-15.  This grouping of wholesaler distributors includes a



broad spectrum of product areas but does provide perspective.  Note that



the total number of firms is 2,420 and that the average sales revenue per



firm is $1.8 million.
                                     2-33

-------
                      TABLE  2-14
  ESTIMATED PRICING STRUCTURE FOR TRUCK
  MOUNTED SOLID WASTE COMPACTOR BODIES
                       Average Percent Discount
Purchaser              Off Suggested List Price
End User                         12

Distributor                      20
    SOURCE:  Field interviews with equipment
             manufacturers, distributors
             and end users.
                      2-34

-------
                      Compactor
                      Body
                      Manufacturer
                           90%
        5%
  Truck Chassis
  Dealer
         5%
            5%
    80%
Truck Body
Distributor
                       Leasing
                    t-o  Companies
                            10%
                                            r
                                               Rebuilt/
                                               Reconditioned
                                               Bodies
                                            I	10%.	I
5%
5%
     10%          70%

Fleet Operators
                                                       10%
     Figure  2-8,
          Truck Mounted Solid Waste Compactor  Body
          Channels of Distribution, Based on Total
          New and Used Units Sold Annually	
     SOURCE:   Truck  Body  and  Equipment Distributors Association,
              and  field  interviews  with  product manufacturers,
              distributors  and  fleet  operators.
                               2-35

-------
                          TftELE 2-15
       PROFILE OF TRUCK AND TRACTOR PARTS AND SUPPLIES
                  MERCHANT WHOLESALERS,  1972*	
 Character istic	    	Value/Quantity

 Number  of  Firms                                  2,420
 Sales Revernue $(Millions)                    $   4,430
 Sales Revenue/Firm  $(Millions)                $       1.3
 Number  of  Paid Employees**                      41,481
 Number  of  Employes/Firmn                            17
 Payroll,  Entire Year  $(Millions)              $     387.5
 Payroll/Firm                                  $160,000*
SOURCE:  U.S. Department of Commerce, Bureau  of  the  Census,
        "1972 Census of Wholesale Trade",  1972,  Page  8.
 'Includes distributors of solid waste compactor bodies  and
  insulated-refrigerated truck bodies and trailers.
 'For week including March 12.
                             2-36

-------
     A profile of packer body distributors constructed from data provided by

the Truck Equipment and Body Distributors Association  (Table 2-16)  indicates

that:

     1.  There are approximately 500 firms, with average annual revenue of

$2.5 million.

     2.  The distributors' sources of revenue are approximately two-thirds

new equipment and one-third parts, used equipment and  service labor.

     3.  The overall gross profit on net sales  is 23 percent, operating and

non-operating expenses are 16 percent and net profit after taxes is 3 percent.

     4.  These firms have average total assets  of $700,00.

End Use Market Fleet Operators

     As shown in Table 2-17, the two major end  use markets for packer trucks

are private contractors and municipalities are:

     1.  Private Contractors.  These companies  are heavily engaged  in residen-

tial, commercial and industrial refuse collection.  Services are contracted

on the basis of a direct contract or a municipal contract, franchise or award

of a competitive bid.

     Even though the operations of a private contractor are local in nature,

several agglomerated companies with 100 or more operating locations across

the country have evolved in the industry.

     A profile of private contractors is shown  in Table 2-18. In summary:

     a.  The number of private contractors in 1970 was greater than 10,000.
         These companies employ more than 102,000 people.
                                     2-37

-------
                          TABLE 2-16
             PROFILE OF TRUCK MOUNTED SOLID WASTE
              COMPACTOR BODY DISTRIBUTORS. 1972
Characteristic
    Number of firms
Revenue Mix  (Percent of Total)
    New Equipment
    Parts, Used Equipment  & Labor
Financial
                                          Median Value/Quantity
                        500
                        60-70%
                        30-40%
Average Net Revenue
Cost of Goods Sold
Gross Profit
Operating Expenses
Kon-Operating Expenses
Net Profit Before Taxes
   Profit After Taxes
     Assets
Current Assets
!;ct Worth
!>on-Current Assets
$2.5 Million
 1,9
$ .6
  .4
$ .1
Percent of Median
Net Revenue	
    100
     77
     23
     16
   	1
     6
     3
      $700,000
       580,000
       233,000
       120,000
         Truck Equipment and Body  Distributors Association,
         field interviews with  product manufacturers and
         distributors.
                            2-38

-------
                           TABLE  2-17
           PRIMARY END USE MARKETS FOR TRUCK MOUNTED
                  SOLID WASTE COMPACTOR BODIES
                                          Percent of Total
        End Use Market                   Units in Operation

        Private Contractors
        Municipalities
        Federal Government
        Industrial Corporations
        Other

             Total                              100
SOURCES:   Office of Solid Waste Management Programs,  U.S.  Environ-
         mental Protection Agency,  National Solid Waste Management
         Association,  "The Private  Sector in Solid Waste Management-
         A Profile of Its Resources and Contributions to Collection
         and Disposal",  Volume 2 -  "Analysis of Data",  1972;  U.S.
         Department of Commerce, Bureau of the Census,  "Census of
         Transportation,  1972, Truck Inventory and Use  Survey, 1972f;
         field interviews with product manufacturers.
                              2-39

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     b.  These firms serve 27.3 million customers, operate 61,500 total
         trucks (41,602 of which are packer trucks) and collect 685,000 tons
         of waste daily.

     c.  Operations of private contractors tend to be concentrated  in large
         metropolitan areas.

     The truck equipment operated by private contractors is indicated in Table

2-19.  Of the 61,500 trucks operated, 41,602 are packer trucks (primarily rear

loaders).

     More than 90 percent of private contractor customers are residential,

but the total quantity of wastes collected is fairly equally distributed

among residential, commercial and industrial customers.  Over 40 percent of

the contractors collect only commercial and industrial wastes, but, all

together, private contractors collect more than 90 percent of commercial and

industrial solid waste.  Private haulers serve 50 percent of all residential

customers and collect the same proportion of total residential solid waste.

     The level of concentration within the industry is relatively low, as

measured in terms of number of employees and packer trucks employed.

     2.  Municipal Fleets.  The scope and nature of municipalities which

provide public refuse collection services are difficult to ascertain.  There

are more than 78,000 local governments of which 35,500 are municipalities and

townships of 2,500 or greater population.  Packer body manufacturers report

that the latter are the major purchasers of equipment, especially munici-

palities and townships with populations of 25,000 people or more.  This

includes between 800 and 900 governmental units which account for approxi-

mately two-thirds of the population within municipalities and townships,

about 85 percent of governmental general expenditures, and slightly more than

80 percent of the expenditures for sanitation other than sewage.
                                     2-41

-------
                            TABLE 2-19
             PRIVATE  CONTRACTOR TRUCK EQUIPMENT
             	     COMPOSITION,  1970
                                       Thousands  Units
Equipment Type                          NumberPercent

front Loaders                             7.7      12.5
Side Loaders                              7.7      12.5
aear Loaders                             26.2      42.6
Open Non-Packer                           7.2      11.7
Side Loader, Non-Packer
Roll-Off Chassis                          6.5      10.6
Hoist Type Vehicles                       2.2       3.6
Other Collection Vehicles                 4.0       6.5

    Total                               61.5*   100.0
SOURCE:  Office of Solid Waste Management Programs,  U.S.
        Environmental Protection Agency, National  Solid
        Waste Management Association, "The Private Sector
        in Solid Waste Management - A Profile  of Its  Re-
        sources and Contributions to Collection and Dis-
        posal, Volume 2 - Analysis of Data", 1972.
        Adjustedto reflect rounding.
                          2-42

-------
     Approximately 35 percent of the packer  trucks  in operation  are owned  and

operated by municipalities and used to collect approximately  50  percent of all

residential solid wastes. This understates the direct and  indirect influence

of municipalities with regard to total residential  collection activity. A

large proportion of private hauler residential collection  is  controlled by

municipalities by means of contracts, franchises or competitive  bid awards.

     It is shown in Table 2-20 that nearly 50 percent of private hauler

residential customers are served on the basis of a  government franchise:

                              TABLE 2-20

                   PERCENT OF RESIDENTIAL CUSTOMERS
                   SERVED BY PRIVATE HAULERS UNDER
               DIRECT CONTRACT AND GOVERNMENT FRANCHISE

                                   Percent of Customers

        Direct Contract                   50.3%
        Government Franchise              49.7

        Total                            100.0%
     Source:  "The Private Sector in Solid Waste Management," U.S. Environ-

              mental Protection Agency, 1973, page 6.3

Truck Chassis Manufacturers and Dealers

     Truck chassis manufacturers, through their franchised truck dealer

organizations, generally sell truck chassis to the fleet operator to be

used in conjunction with a packer body.  In a small proportion of total unit

sales, the truck dealer will sell an equipped packer body truck to the fleet

operator.
                                     2-43

-------
     The four largest firms accounted for more than 80 percent of total sales



of medium and heavy duty trucks in 1975.



     The National Automobile Dealers Association, in Franchised New Car and



Truck Dealer Facts, 1973 indicated that there were 22,270 new truck dealers



in 1972.



Raw Material and Component Suppliers



     Products purchased from suppliers consist of roll and bar metals and



general components such as PTOs, pumps, cylinders, and valves.  All sources



of supplies are major manufacturers, and requirements of the packer body



industry are considered insignificant when related to their total shipments.
                                     2-44

-------
                                  SECTION 3



                TRUCK-MOUNTED  SOLID WASTE COMPACTOR SOUND LEVELS





SOUND LEVEL MEASUREMENTS



     A total of 32 noise measurement  tests were run on 28 different trucks (4



trucks were measured  in two modes).   For most of the tests,  a microphone was



placed at 7 meters (approximately 23  ft.)  from each of the four sides of the



truck and both the maximum steady "A"  -weighted level and maximum impulse



"A"-weighted level were recorded.   In addition, the cycle time of the truck



was measured.  All the data which have been obtained is recorded in Table 3-1.



In this table, the energy average of  the individual microphone measurements



around the truck and  the Sound Exposure Level (SEL) have been recorded for



each test.  The number of measurement tests made for each category of truck



were:



                    Rear Loaders      -  23



                    Front Loaders    -   6



                    Side Loaders      -   3
                    TOTAL             -   32



     A number of these  trucks  already had some  degree of noise control incor-



porated (7 rear loaders, 1  front  loader, and  1  side  loader)  and their noise



levels are accordingly  lower than the other trucks.  The  sample taken is not



intended to be representative  of  the  solid waste  compactor truck population in



general, but rather what was available  for measurement.  Particular interest



was shown in the quieted trucks which are in  service and the measured sample



therefore incorporated  a disproportionately large number of  these quieted



vehicles.




                                      3-1

-------
                Table  3-1.   MEASURED  SOUND LEVELS:   SOLID  WASTE  COMPACTORS




Measurement
Number
1
2
3

4
5
6a
6b
7
8a

8b
9
10
11
12
13
14
15
16
17
I8a
I8b
19


20


21



22
23


24


25
26o
26b
27
28



Body
Manufacturer
(Company)
A
A
6

C
D
£
E
£
F

F
F
C
G
H
H
1
1
F
1
J
J
J


F


|


t
F
J


1


K
H
H
1
1




Loader
Type
Rear
Rear
Side

Front
Rear
Side
Side
Rear
Front

Front
Rear
Rear
Front
Rear
Front
Rear
Rear
Front
Rear
Rear
Rear
Rear


Front


Rear



Front
Rear


Rear


Rear
Rear
Rear
Rear
Rear





Fuel
C • jol ine
Gasol ine
Diesel

Diesel
Gasol ine
Gasol ine
Gasol ine
Gasol ine
Diesel

Diesel
Gasol ine
Diesel
Diesel
Diesel
Diesel
Diesel
Diesel
Diesel
Diesel
Gasol ine
Gasol ine
Gasol i ne


Gasol Ine


Gasol ine



Gaso 1 ine
Gasol ine


Gasol ine


Gasol ine
Di cse 1
Di esel
Gasol inc
Gasol i ne


MAX STEAD? LEVELS AT 7m
Cycle
Energy Time
Average (Sec) SFL
74 30 87.5
87 12 94.5
74 10 64

79 35 88
74 20 87
77.5 8 8ii
76 75 95
76 I? 88
83 'to 92

85 40 100
79 16 96
80 25 94
83 -
87 -
87 20 100
79 40 55
82 — -
85 20 -
84 40 —
82* - -
67* - -
74 8 83


80 20 90


73 27 85



74 25 87
74 10 62


75 28 87


76 Cont. —
79 — -
78 -
79 - -
78 - -
MAX II1PUISL
LEWLS AT
7i»

Energy
Average SCI
78 75
89.5 85
-NO IMPACT S-

86 85
89 78
84.5 80
84 79
94 82
89 80

98 93
88 87
87.5 86
-NO IMPACTS-
93.4 -
97.1 97
84
82 -
94
85
- -
70* -
84 79


82 84


83 78



75 68
79 73


79 79


-NO IMPACTS-
— —
- -
-
_~ '





Remarks
Quieted truck
2000 rpm
300 rpi.i FPTO
3 measurement points
Li ft ing

Uses auxiliary engine
Pack 1
I measurement point (side)
(50 ft + 6 dB) Dump
1 measurement point (side)
(50 ft + 6 dB) Compact
50 ft + 6 dB
50 ft + 6 dB
50 ft + 6 dB
50 ft + 6 dB
50 ft + 6 dB

1 measurement point (side)
1 measurement point (side)
1 measurement point (side)
"Conventional" * (see note)
'Silencer" * (see note)
F lywheet PTO
Includes Overhead measurement
(5 points total)
Transmission PTO
Includes (includes overhead n,easurement
-5 poi nts tota 1 )
Flywheel PTO
Includes (includes overhead measurement
5 points total)

Flywheel PTO (cushions)
Front PTO (includes
overhead measurement
5 points total)
Front PTO (includes
overhead 'measurement
5 poi nts tota 1 )
(lOm + 3 dB)
Packing
Fject ing
3 measurement points
3 mcdsurcnien t puints
*NOTE:  These measurements were made at a single measurement point with a Type 2 meter under  inadequately controlled
       conditions,  primarily  to show the difference between "convent ionol" and "sileno.-d"  configurations in a  staqi'd
       demonstration.  Consequently, th<, levels measured arc not believed to be reliable,  and the data are not  In-
       cluded  in the  -jtatistical analysis.
                                                     3-2

-------
     Figures 3-1 through 3-4 show histograms of the measured noise  levels



in each category.  Both the maximum steady level and  the maximum  impulse



levels are shown.  The energy average around the truck  is employed  whenever



it is available.  Figure 3-1 is a histogram for all of  the trucks measured



and Figures 3-2 and 3-3 are histograms for the rear and front loaders,



respectively.



     Table 3-2 summarizes these various noise measurements in terms of  the



mean level and its standard deviation for each type of  truck. Front loaders



appear to be noisier than rear loaders on both steady levels and  impacts.



This is probably due to the lack of speed control of  the engine and the



banging of the container on the arms of the loader. Side loaders appear to be



quieter than rear loaders, but the sample of side loaders measured  is too



small to make this conclusion firm.



     Since certain of the compactor trucks measured had some degree of  noise



control treatment, it is informative to separate the  sound level data out in



terms of "conventional" and "quieted" units.  As there  appears to be a  dif-



ference in the sound emissions between gasoline-powered and diesel-powered



vehicles, it also is instructive to categorize the sound level data to  show



this difference.  This is done in Table 3-3, which lists the mean values of



the compactor truck sound levels of the various types of compactor, sub-



categorized into "conventional" and "quieted" units,  and also-classed in terms



of diesel or gasoline-powered units.



TIME HISTORIES



     Typical time histories of the three types of compactors are shown  in



Figures 3-4 through 3-6.
                                     3-3

-------
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70         80          90         100


 MAXIMUM STEADY  LEVEL  AT 7m (dBA)
110
          Figure 3-la.  HISTOGRAM OF ALL TRUCKS
                             3-4

-------
   10
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                          1
                                              21  TRUCKS
                       I
70         80         90         100

       PEAK  IMPULSE  LEVEL  (dBA)
110
         Figure 3-lb.   HISTOGRAM CF ALL TRUCKS
                             3-5

-------
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 MAXIMUM STEADY LEVEL AT  1m  (dBA)
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                 1
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                           I
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     60         70        80         90         100
                 MAXIMUM IMPULSE LEVEL AT  7m  (dBA)
       Figure 3-2.   HISTCGRAM OF REAR IDADERS
                            3-6
          110

-------
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         Figure 3-3.  HISTOGRAM OF FRONT LOADERS

                            3-7
                                                           110

-------
          Table 3-2.  SUMMARY OF SOUND LEVEL DATA
Compactor Type



All Vehicles

Rear Loaders

Front Loaders

Side Loaders
        Mean
 Standard
Deviation
All Vehicles

Rear Loaders

Front Loaders

Side Loaders
 Maximum Steady Level (dBA at 7 m)

        79.0             4.56

        78.3             4.38

        81.9             4.49

        75.8


Maximum Impulse Level (dBA at 7 m)

        85.9             5.86

        85.4             5.1

        87.2             8.1

        84
Number of
Vehicles
                       27

                       18

                        7

                        2
                       21

                       14

                        6

                        1
                               3-8

-------
Table 3-3.  SUMMARY OF SOUND LEVEL DATA BY VEHICLE CATEGORY
Category
Rear Loader
Rear Loader
Front Loader
Front Loader
Side Loader
Side Loader
Gasoline-Powered
Gasoline-Powered
Diesel- Powered
Diesel-Powered
Conventional £
or Quieted
Conventional
Quieted
Conventional
Quieted
Conventional
Quieted
Unquieted
Quieted
Unquieted
Quieted
Mean Standard
Sound Level Deviation
dBA dBA
80.0 4.0
74.0 0.7
83.2 3.1
74.0
77.5
74.0
78.5 3.7
74.0 0.6
82.7 3.1
74.. 0
Number of
Samples
13
5
6
1
1
1
9
6
11
1
                            3-9

-------
     Figure 3-4 shows the time history of a rear-loader.  The time history



of a rear loader has typically three phases corresponding to different func-



tions during the cycle.  There is typically an impact at the end of each phase



due to the bottoming of the hydraulic cylinders.



     The time history of a front loader in loading and compaction is displayed



in Figure 3-5.  The noise level of a front loader is quite erratic during its



loading cycle, due to the variations in engine speed.  There are numerous



impulses due to the banging of the container and closing of the cover during



the dump portion of the cycle.  Fewer peaks occur during the compaction



phase.



     In Figure 3-6, which depicts an operational passby of a side loader,



various noise events can be distinguished.  There is the noise of the truck as



it arrives, the squeal of its brakes as they are applied, the shouts of the



crew between each other, the banging of the garbage cans or containers, the



actual compaction of the garbage by the trucks, the bursting of bottles or the



breaking of items as they are compacted, release of the air pressure of the



truck's brake air reservoir and, again noise from the truck as it moves off.



All these many different noises are part of the refuse collection process.



The noise of major concern in this study is that due to the compaction by the



garbage truck itself.  This noise is believed to be controllable by Federal



regulations of the source, whereas the other sources are not susceptible to



Federal regulatory control.



     The truck whose time history is shown in Fig. 3-6 was a quieted one with



the engine governed at 900 rpm.  The truck was also equipped with a front



power takeoff and was powered by a 6-cylinder diesel engine.
                                     3-10

-------
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                              is
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    3-13
    -V
    

    -------
         The scenario consists of the truck driving up  (80 dBA) and applying its
    
    
    
    brakes, producing a squeal (82-85 dBA).  The truck  is left idling  (75 dBA)
    
    
    
    while it is being loaded.  There are impacts from the loading of the garbage
    
    
    
    
    cans (80 dBA metal and 77 dBA plastic).  The side loading compactor is cycled
    
    
    
    (75 dBA) and the air brakes are released (87-90 dBA).  Finally, the truck
    
    
    
    moves off (80 dBA peak).
    
    
    
    
    NOISE SOURCES
    
    
    
    Component Sound Levels
    
    
    
         EPA considered in great detail the diagnosis of noise sources of a rear-
    
    
    
    loading solid waste compactor truck.  The noise sources considered were:
    
    
    
              (1)  Truck Chassis,
    
    
    
              (2)  Transmission power take-off,
    
    
    
    
              (3)  Hydraulic pump, and
    
    
    
              (4)  Compactor body when isolated from the chassis.
    
    
    
    
         Table 3-4 details the measured noise levels of each of these  components.
    
    
    
    This particular truck was not a standard one but had had some noise control
    
    
    
    treatment incorporated.  The chassis had a better than standard muffler
    
    
    
    installed, the truck cycled at an engine speed of 1050 rpm and electric
    
    
    
    switches were used to reverse the hydraulic cylinders, rather than allowing
    
    
    
    them to bottom.  The interesting point was that very little noise  came from
    
    
    
    the compactor body itself. No significant noise came from the hydraulic lines,
    
    
    
    valves, or moving parts on the body.  Most of the noise came from  the chassis
    
    
    
    power takeoff and some from the hydraulic pump.
    
    
    
         The chassis and power takeoff noise were found to be very much speed
    
    
    
    dependent.  Figure 3-7 shows the variation of noise with speed of  the chassis
                                          3-14
    

    -------
                        Table 3-4.  NOISE CONTRIBUTIONS
                                       SPL  (dBA  at 7m)
    Chassis
    j^TO
    Pump
    Body*
    Total
    Righ-;
    64
    73.5
    64
    <65
    76
    Left
    64.5
    72.5
    62
    <60
    75
    'Front
    63
    72
    58
    <65
    72.5
    Rear
    63
    68
    61
    <65
    70
    Energy
    Average
    64
    72
    62
    —
    74
    *Noise levels  dominated by  PTO over 100  ft  away.
                                    3-15
    

    -------
       90
        80
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                      6 dB/OCTAVE
                                      PTO ENGAGED
                                                  o
         o CHASSIS ALONE
               1000
       16OO
    
    RPM
    2COO
              Figure 3-7.  Truck Chassis and PTO Noise
                                3-16
    

    -------
    and power takeoff individually.  Many trucks cycle at engine  speeds up to 1800
    
    
    
    rpm and it can be seen from this figure that a substantial noise reduction can
    
    
    
    be achieved by reducing the truck engine speed while it  is cycling.
    
    
    
         Figure 3-8 shows the various spectral  contributions  from these noise
    
    
    
    sources.  The low frequency noise comes from the engine.  The hydraulic pump
    
    
    
    generates two pure tones at 125 and 250 Hz.  The high frequency noise  is  due
    
    
    
    entirely to the transmission power takeoff  which both radiates sound directly
    
    
    
    and through vibrations in the chassis frame.
    
    
    
    Truck Chassis Noise
    
    
    
         It is clear from the previous section  that the overall noise  from a  solid
    
    
    
    waste compactor truck is very much a function of the noise from the chassis
    
    
    
    itself. The noise level generated by the chassis is a function of  both the
    
    
    
    engine rpm and the degree of quieting of the chassis.  EPA has issued  a regula-
    
    
    
    tion setting a not-to-exceed noise level of chassis; clearly  the overall  noise
    
    
    
    level of the solid waste compactor truck will be a function of this regulation
    
    
    
    noise level.  The EPA truck noise regulation provides a measurement procedure
    
    
    
    in which the chassis noise is measured at a distance of 50 feet, at full  power
    
    
    
    and maximum rpm in accordance with the SAE  test J 366b.   Clearly,  under these
    
    
    
    conditions the chassis will generate much more noise than when it  is cycling
    
    
    
    and generating only a small fraction of its rated horsepower.  EPA analysts
    
    
    
    have reviewed this difference in noise level and predicted the chassis noise
    
    
    
    as a function of both engine rpm and the EPA regulation.  Figure 3-9 predicts
    
    
    
    the noise levels of seven chassis as a function of engine rpm based on a
    
    
    
    regulation level of 80 dBA as   measured by SAE test J 366b.   Similar  plots
    
    
    
    can be made for other levels of regulation.  Clearly, substantial  reductions
    
    
    
    in noise can be achieved   by lowering the  engine rpm during  cycling.
    
    
    
    
    
                                         3-17
    

    -------
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                     3-18
    

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    Figure 3-9b.  Noise Levels of Chassis Regulated to 80 dBA
                Under Test SAE J 366b
                           3-19
    

    -------
    SAN FRANCISCO NOISE DATA
    
    
    
         Noise measurements have been reported on solid waste compactor trucks
    
    
    
    operating in the city of San Francisco (Ref 3-1).  One hundred and fifty-two
    
    
    
    noise measurements, listed in Exhibit 3-1, were made on compaction vehicles
    
    
    
    
    operating in the streets of the city rather than under the controlled con-
    
    
    
    ditions of the methodology used in the EPA measurements.  Table 3-5 summarizes
    
    
    
    the statistical data for two scavenger fleets.
    
    
    
    
         Since San Francisco contains a considerable amount of row housing, a
    
    
    
    reverberant build-up of noise can take place on the narrow streets.  The noise
    
    
    
    measurements were made at a distance of 50 ft from the rear of the truck.
    
    
    
    Elsewhere in this report, the noise data presented are based on measurements
    
    
    
    made at 7 meters (about 23 ft.).  Finally, the trucks measured by the city of
    
    
    
    San Francisco were measured while compacting garbage and this may contribute
    
    
    
    some noise to the measurements.  For the foregoing reasons, the San Francisco
    
    
    
    measurements show significantly higher sound levels (when corrected by 6dB to
    
    
    
    account for the greater distance of the measurement point from the vehicle)
    
    
    
    than those tested and reported in Table 3-1.
    
    
    
         Table 3-6 compares the noise levels of six trucks measured both by EPA
    
    
    
    investigators and by San Francisco.  Again, it is seen that the noise levels
    
    
    
    measured by the city of San Francisco for the maximum steady level are generally
    
    
    
    as high as or higher than the EPA levels, even though the San Francisco levels
    
    
    
    were measured twice as far from the truck.  The agreement is much better for
    
    
    
    the maximum impulse levels which, because of their short duration, would not
    
    
    
    experience significant reverberant build-up.
                                          3-20
    

    -------
         Table 3-5.  SUMMARY OF SAN FRANCISCO NOISE MEASUREMENTS
                     (Measured 50 ft. to Rear of Compactor Vehicle)
    Fleet    Max Steady Compacting
            Sound Level    Std
                dBA      Deviation
    
      A        75.35       0.51
    
      B        78.57       0.36
        "Crushing Spikes"
    Average of 3 highest peaks   No.
    Sound Level     Std          of
        dBA       Deviation    Vehicles
       78.32
    
       81.08
    0.32
    
    0.32
    57
    
    95
                                     3-21
    

    -------
    Table 3-6.  NOISE LEVELS OF SAN FRANCISCO COMPACTOR TRUCKS
    Operator
    
    
    
    Sunset
    
    Sunset
    
    Sunset
    
    Sunset
    
    Golden Gate
    
    Golden Gate
         Truck
          No.
      EPA 23 ft  to  rear
    
      Max         Max
    Steady
    Impulse
                                          City  of  San  Francisco
                                             In  Street  50 ft
      Max
    Steady
      Max
    Impulse
    
    29A
    21A
    51A
    29
    1
    73
    76.5
    74
    75.5
    76
    72
    88
    85
    86
    78.5
    82
    80
    77
    78
    74
    /80
    \82
    73
    «• •»
    81
    81
    79
    83 \
    86 /
    78
    _«
                           3-22
    

    -------
    SOUND LEVEL DEGRADATION
         There are two general causes of degradation:   (1) changes in the noise
    emitted by individual components; and  (2) changes in noise abatement perfor-
    mance of noise treatments.
         Tne sources of noise from waste compactors are listed in Table 3-7.  They
    comprise the truck chassis (engine casing, exhaust and fan), power takeoff
    (PTO) and hydraulic pump, all of which may be subject to degradation.   In
    discussing waste compactor noise degradation, we include the noise treatments
    applied to the truck chassis in order  to comply with the EPA noise emission
    regulations on new medium and heavy trucks as noise sources rather than as
    noise treatments.
         Tne noise emissions from the two  International Harvester DOT Quiet Trucks
    that had initial noise levels of approximately 80 dBA (low enough to comply
    with the 83-dBA regulatory level) increased by about 1 dBA from the initial
    levels during the approximately 150,000 miles of use (Ref. 3-2).  Truck diesel
    engines are warranteed for 50,000 miles or 24 months on parts and labor, and
    for 10,000 miles or 24 months on parts (Ref. 3-3).  Truck gasoline engine
    warrantee periods are half of the periods for diesel engines (Ref. 3-3).  Waste
    compactor truck diesel engines are overhauled approximately every 150,000
    miles (Ref. 3-4). Gasoline engines probably have a shorter average period
    between overhauls of between 80,000 and 100,000 miles.  Itowever, because the
    noise level from chassis equipped with gasoline engines is lower, the shorter
    life and thus greater degradation of gasoline engines is probably less of a
    factor than chassis with diesel engines.  Department of Commerce data indicate
    an overall average annual mileage of 12,200 miles for all Compactor Vehicles.
                                         3-23
    

    -------
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                                                                 3-24
    

    -------
    Discussions with trash collection service operators indicate that vehicles
    
    
    
    used in residential operations (rear loaders and side loaders) may be driven
    
    
    
    less than 10,000 miles per year.  Front loaders used in commercial trash
    
    
    
    pickup service, are driven greater distances, perhaps 15,000-25,000 miles
    
    
    
    per year.  These vehicles therefore may be driven 5 to 6 years or more before
    
    
    
    first overhaul.
    
    
    
         Exhaust mufflers are another source of chassis noise degradation.  In
    
    
    
    general, exhaust mufflers on trucks have an average life longer than engines,
    
    
    
    many lasting longer than five years (Ref.3-5).  Therefore, it appears that
    
    
    
    over the first 50,000 to 75,000 miles of use, the chassis noise from waste
    
    
    
    compactors equipped with gasoline or diesel engines will not degrade signifi-
    
    
    
    cantly.  Replacing the transmission PTO with a flywheel or front PTO reduces
    
    
    
    the noise from the PTO to insignificant levels, so that the degradation of the
    
    
    
    PTO can be ignored.  When the engine speed is reduced to comply with the
    
    
    
    proposed regulations on waste compactors, the noise from the pump is also
    
    
    
    reduced to an insignificant level; more than 10 dBA below the chassis noise
    
    
    
    level (see Table 3-7).  Thus, the pump degradation can also be ignored.
    
    
    
         The noise treatments of reducing the engine speed and replacing the
    
    
    
    transmission PTO with a front or flywheel PTO are not expected to significantly
    
    
    
    alter degradation of compactor noise.  In fact, the reduction in engine speed
    
    
    
    will probably reduce engine wear and, therefore, decrease engine noise degra-
    
    
    
    dation.  Also, since alignment of gears will probably be better for front or
    
    
    
    flywheel PTOs than for transmission PTOs, gear wear should be less and, there-
    
    
    
    fore, PTO noise degradation less.  Therefore, the chassis noise degradation
    
    
    
    will probably dominate waste compactor noise degradation.
                                         3-25
    

    -------
    Waste Compactors on 80 dBA-Regulated Chassis
    
    
    
         During normal use, the two International Harvester DOT Quiet Trucks that
    
    
    
    had noise levels of approximately 78 dBA  (low enough to comply with the 80-dBA
    
    
    
    regulatory level) demonstrated reductions in their initial noise levels over
    
    
    
    an average mileage of 90,000 miles.
    
    
    
         With an 80-dBA chassis, the chassis noise is reduced to a level where the
    
    
    
    noise from the hydraulic pump will be a factor in the overall computer noise
    
    
    
    degradation.  Otherwise, as discussed for compactors mounted on 830-dBA chassis,
    
    
    
    the PTO noise degradation and the degradation of noise treatments can be
    
    
    
    ignored.  Pumps are warranteed for six months by the Heil Company, and, in
    
    
    
    general, last from one to two years during normal use (Ref. 3-6).
                                         3-26
    

    -------
                                    REFERENCES
    3-1.  Noise Control/Technology for Speciality Trucks (Solid Waste Compactors),
          Bolt, Beranek and Newman, Inc., BBN Draft Report 3249, February 1976.
    
    3-2.  J.T. Shroder, "Field Test Results on a Heavy Duty Diesel Truck Having
          Reduced Noise Emissions," Truck Noise IV-G Report No. DOT-TST-76-42,
          December 1975.
    
    3-3.  Telephone conversation on 24 May 1977 between C. Burroughs of BBN and
          Chris Kouts of EPA/ONAC.
    
    3-4.  Telephone conversation between Fred Mintz of EPA/ONAC and Allen Berger
          of Browning-Ferris Industries.
    
    3-5.  Gene E. Fax and Michael C. Kaye, "The Economics of Quieting the Freight-
          liner Cab-Over-Engine Diesel Truck," Truck Noise III-D, Report No.
          DOT-TST-75-22, October 1974.
    
    3-6.  Telephone conversation on 22 June 1977 between C. Burroughs of BBN and
          John Waite of Heil Company.
                                        3-27
    

    -------
    EXHIBIT 3-1.  NOISE EMISSION TESTS MADE ON SAN FRANCISCO CITY TRASH TRUCKS
    
    
             Vehicle Ho.      Compacting  (dBA)     Crushing _Spi kes  ,(dB_A_)_
    
                  39               80.0           85.0     81.0     81.0
                 5-3               73.0           75.0     7G.O     75.0
                 5-8               69.0           70.0     70.0     70.0
                   5               86.0           87.0     88.0     88.0
                  35               71.0           72.0     74.0     75.0
                  36               73.0           73.0     74.0     75.0
                  40               74.0           79.0     80.0     81.0
                  41               76.0           79.0     80.0     80.0
                  42               70.0           72.0     72.0     76.0
                  43               75.0           75.0     77.0     77.0
                  44               74.0           74.0     75.0     81.0
                  4tf               71.0           72.0     74.0     77.0
                  48               75.0           83.0     84.0     85.0
                  23               75.0           81.0     82.0     83.0
                  23               75.0           75.0     76.0     81.0
                  24               76.0           78.0     77.0     83.0
                  25               78.0           80.0     82.0     85.0
                  27               78.0           79.0     80.0     80.0
                  26               72.0           73.0     78.0     80.0
                  27               78.0           79.0     79.0     80.0
                  28               76.0           76.0     76.0     77.0
                  29               73.0           74.0     76.0     78.0
                3147               75.0           75.0     78.0     81.0
                  32               78.0           79.0     82.0     84.0
                  33               82.0           86.0'     86.0     89.0
                  10               75.0           77.0     78.0     78.0
                  12               77.0           82.0     82.0     83.0
                  11               71.0           75.0     75.0     78.0
                  14               73.0           73.0     73.0     75.0
                  15               73.0           73.0     73.0     74.0
                 169               74.0           75.0     76.0     77.0
                 169               75.0           78.0     79.0     79.0
                1720               73.0           73.0     75.0     81.0
                1720              73.0           76.0     76.0     77.0
                1720               71.0           71.0     74.0     75.0
                1830               75.0           75.0     75.0     79.0
                  19               75.0           77.0     81.0     84.0
                  20               70.0           73.0    74.0     73.0
                  21               72.0           76.0    76.0     78.0
                  21               74.0           76.0    76.0     81.0
                  22               73.0           74.0    80.0     85.0
                  F2               86.0           87.0     87.0     88.0
                  F5               77.0           78.0     79.0     80.0
                   2               79.0           79.0    80.0     80.0
                 411               77.0           78.0    78.0     80.0
                  X4               74.0           75.0    76.0     77.0
                  P4               77.0           78.0    80.0     80.0
                 411               83.0           83.0    84.0     86.0
                 411               76.0           76.0     76.0     77.0
                  X5               75.0           75.0     77.0     77.0
                   6               73.0           78.0    79.0     82.0
                   7               79.0           80.0    81.0     83.0
                  X7               83.0           83.0    84.0     85.0
                  X8               C7.0           68.0    70.0     71.0
                   8               79.0           80.0    82.0     84.0
                   9               77.0           77.0    78.0     79.0
                  10               77.0           79.0    79.0     80.0
    
                                       3-28
    

    -------
                     EXHIBIT 3-1 (Cont.)
    
    Vehicle No.      Compacting  (dBA)   Crushing Spikes (dBA)
      698               78.0          78.0    79.0    81.0
      70A               76.0          75.0    77.0    78.0
      72A               75.0          79.0    82.0    83.0
      74A               81.0          81.0    82.0    84.0
      74A               81.0          85.0    85.0    86.0
      75A               78.0          80.0    81.0    81.0
      75A               79.0          79.0    80.0    82.0
      76A               80.0          80.0    80.0    83.0
      49A               79.0          79.0    80.0    80.0
      78A               79.0          81.0    81.0    81.0
      79A               78.0          79.0    79.0    79.0
      79A               77.0          78.0    77.0    77.0
      71A               86.0          87.0    87.0    89.0
      73A               78.0          79.0    80.0    87.0
      78A               82.0          82.0    82.0    83.0
       F4               85.0          85.0    85.0    86.0
      63A               80.0          81.0    82.0    82.0
      63A               80.0          8C.O    82.0    83.0
      67A               73.0          76.0    77.0    79.0
      68A               78.0          79.0    84.0    85.0
      68A               80.0          83.0    84.0    85.0
      57A               77.0          78.0    79.0    80.0
      58A               82.0          82.0    84.0    85.0
      59A               78.0          78.0    78.0    78.0
       60               75.0          76.0    76.0    77.0
      61A               79.0          80.0    81.0    83.0
      62A               77.0          80.0    82.0    88.0
      62A               73.0          73.0    75.0    75.0
      64A               76.0          80.0    81.0    81.0
      64A               78.0          79.0    79.0    80.0
      65A               84.0          84.0    85.0    86.0
      66A               83.0          86.0    86.0    87.0
      68A               75.0          78.0    79.0    79.0
      3s) A               80.0          83.0    85.0    85.0
      40A               87.0          90.0    90.0    90.0
      41A               80.0          83.0    84.0    86.0
      42A               78.0          78.0    82.0    83.0
      43A               77.0          80.0    81.0    81.0
      44A               80.0          80.0    82.0    84.0
      45A               75.0          77.0    78.0    80.0
      46A               88.0          94.0    96.0    97.0
      47A               79.0          83.0    85.0    87.0
      48A               75.0          75.0    75.0    75.0
      49A               77.0          81.0    81.0    81.0
      51A               82.0          84.0    85.0    86.0
      52A               82.0          83.0    84.0    85.0
      54A               80.0          80.0    82.0    82.0
      55A               79.0          82.0    82.0    85.0
      56A               80.0          83.0    87.0    86.0
      53A               82.0          82.0    83.0    83.0
                             3-29
    

    -------
                       EXHIBIT 3-1 (Cont.J
    
    
    Vehi cle No.      Compacting  (dHA)   Crushing  Spikes  (dBA)
      51A               80.0          80.0    83.0    83.0
      34A               81.0          84.0    T5.0    88.0
       WD               75.0          81.0    83.0    83.0
       2A               74.0          74.0    78.0    79.0
       X2               79.0          79.0    79.0    80.0
       3A               78.0          78.0    79.0    79.0
       4A               75.0          77.0    77.0    77.0
       4A               75.0          77.0    78.0    79.0
       5A               78.0          79.0    82.0    81.0
      X6A               78.0          78.0    79.0    79.0
      15A               75.0          75.0    75.0    76.0
      16A               80.0          82.0    84.0    84.0
      17A               80.0          80.0    82.0    88.0
      ISA               82.0          84.0    84.0    85.0
      19A               79.0          83.0    84.0    84.0
      19A               81.0          ai.O    8?.0    82.0
      20A               86.0          87.0    8/.0    87.0
      21A               74.0          78.0    78.0    79.0
      22A               80.0          81.0    81.0    81.0
      23A               82.0          82.0    84.0    87.0
      24A               84.0          85.0    86.0    86.0
      28A               75.0          78.0    79.0    80.0
      27A               76.0          77.0    79.0    80.0
      27A               79.0          80.0    81.0    82.0
      29A               78.0          79.0    79.0    81.0
      30A               78.0          78.0    79.0    80.0
      32A               78.0          78.0    79.0    80.0
      34A               77.0          79.0    79.0    79.0
      36A               78.0          78.0    79.0    79.0
       9A               80.0          80.0    80.0    81.0
      38A               82.0          82.0    83.0    83.0
      37A               80.0          82.0    83.0    88.0
      37A               81.0          83.0    83.0    83.0
      38A               77.0          77.0    77.0    bO.O
      14A               75.0          78.0    80.0    82.0
      13A               77.0          77.0    77.0    77.0
      12A               71.0          72.0    72.0    74.0
      11A               67.0          72.0    73.0    74.0
      10A               77.0          79.0    80.0    82.0
       8A               68.0          70.0    71.0    71.0
      X7A               79.0          79.0    79.0    82.0
      X7A               78.0          80.0    82.0    82.0
      X7A               80.0          83.0    84.0    89.0
       7A               75.0          78.0    78.0    78.0
      X6A               81.0          80.0    81.0    83.0
                             3-30
    

    -------
                                     SECTION 4
    
    
    
                              MEASUREMENT METHODOLOGY
    
    
    
    
    
    GENERAL REQUIREMENTS
    
    
    
         A noise measurement methodology is essentially an easily-conducted,
    
    
    
    repeatable procedure for acquiring data that correlate well with noise
    
    
    
    generated under service conditions.  In this section, we discuss each of
    
    
    
    these factors as a basis for developing a measurement methodology.
    
    
    
         Perhaps the most important feature of a measurement methodology is its
    
    
    
    correlation with environmental impact.  It is not necessary that levels
    
    
    
    acquired in a standardized way are identical to those observed under ordinary
    
    
    
    operating conditions.  What is important is that standardized data enable one
    
    
    
    to predict environmental levels.  The consequences of inadequate correlation
    
    
    
    are less than expected environmental protection in certain cases and inefficient
    
    
    
    allocation of noise-abatement resources in others.  As illustrated in Figure
    
    
    
    4-1, the lines corresponding to the desired level of environmental control
    
    
    
    and the not-to-exceed regulated level divide the sources into four categories.
    
    
    
    In Category I the sources have passed the standard test and therefore would
    
    
    
    not be controlled further, but are still environmentally objectionable.
    
    
    
    Those in Category II fail the test and are environmentally objectionable.
    
    
    
    However, one may presume that some of these will be quieted to the point
    
    
    
    where they pass the test but are still environmentally objectionable; others
    
    
    
    will be quieted at some needless expense beyond the point where they are
    
    
    
    of concern.  Similarly, all sources in Category III will be quieted need-
    
    
    
    lessly.  Category IV sources will appropriately not be quieted.
                                         4-1
    

    -------
         In practice, the shortcomings of standard test procedures are inevi-
    
    table,  but may be minimized.  Figures 4-la and 4-lb contrast test procedures
    
    that correlate poorly and well with environmental levels. Ihe problems
    
    associated with procedures that correlate poorly are inevitably worse that
    
    those that correlate well.  Our objective will be to develop a standard
    
    measurement procedure that correlates well with environmental levels, con-
    
    sistent with other test requirements.
        ENVIRONMENTAL.
             LEVEL
      3ESIRED
      LEVEL OF
      ENVIRON.
      CONTROL
             ENVIRONMENTAL
                  LEVEL
    
                     A
                 nr
    m
                   (a)
                             REG.
                            LEVEL
          TEST
          STD
          LEVEL
    (b)
    Figure 4-1.  Illustration of Test Standards That Correlate (a) Poorly
                 and (b) Well With Environmental Levels.
         Ease of performance  is a second factor that must be carefully evalu-
    
    ated in developing a measurement methodology.   The methodology should be
    
    readily performed by manufacturers to facilitate the many tests required
    
    during usual developmental phases.  Undoubtedly, manufacturers will wish
    
    to test at least a sample of products prior to introducing them into com-
    
    merce.  Also, the methodology should be easily performed by enforcement
                                        4-2
    

    -------
    personnel who may test at a manufacturer's  facility and/or at  a  special  test
    
    
    
    
    site.
    
    
    
         Finally, repeatability is of obvious desirability.  A test  which  is
    
    
    
    nonrepeatable is invariably corrupted by random, or at least unknown,  factors.
    
    
    
    To be meaningful, such tests must be conducted many times in order  to  obtain
    
    
    
    a statistical characterization.  Such a procedure can increase the  cost  and
    
    
    
    effort of testing by an order of magnitude  and must therefore  be avoided.
    
    
    
    NOISE CHARACTERISTICS
    
    
    
         Before proceeding to specific requirements, it is useful  to consider  the
    
    
    
    noise profile of a solid waste compactor.   Figure 4-2 shows a  time  history of
    
    
    
    the A-weighted level measured 50 ft. to the left side of a front loader.  The
    
    
    
    first part of the trace is measured during  the dump cycle, the second  during
    
    
    
    a sweep cycle.  There are two noteworthy features of the data  in Figure  4-1.
    
    
    
    First, there are a number of very noticeable  impacts, which for  this unit
    
    
    
    correspond primarily to container impacts.  For other units,   especially rear
    
    
    
    loaders, hydraulic actuators generate similar impacts.  Secondly, the  quasi-
    
    
    
    steady level between impacts varies with time.  This level is  dominated  by
    
    
    
    engine noise, which depends on the speed that is controlled by the  driver.
    
    
    
    Thus, we see that a reasonable method for characterizing impacts must  be
    
    
    
    established as well as a technique for specifying engine operating  conditions
    
    
    
    or cycle time.
                                         4-3
    

    -------
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        4-J
    5  1T5
       
    -------
    Alternative Measurement Methodologies
    
    
    
         Measurement methodologies comprise three parts:   (1) specification of
    
    
    
    operating conditions,  (2) establishment of measurement criteria  (e.g.,
    
    
    
    whether to use A-weighting, B-weighting, etc.,) and  (3) test site and instru-
    
    
    
    mentation specification.
    
    
    
    Operating Conditions
    
    
    
         Itoo primary factors of concern are the specification of compactor load
    
    
    
    and of engine speed for engines which are not equipped with mechanical speed
    
    
    
    control devices.
    
    
    
    Compactor Load
    
    
    
         A decision must be made as to what load will be placed in the hopper of
    
    
    
    the compactor truck when its noise is being measured.  Suggestions have been
    
    
    
    made that a standard load should be used.  This load could consist of paper,
    
    
    
    garbage or bottles.  However, any such load will inevitably vary from one
    
    
    
    sample to another and  not be reproducible.  The sample could not even be used
    
    
    
    twice in the same truck since it would change on being compacted the first
    
    
    
    time.  Accordingly, the only reproducible load that could be devised would be
    
    
    
    no load.  Although an  empty hopper does not precisely simulate actual loads,
    
    
    
    it does provide a constant baseline against which all trucks can be compared.
    
    
    
    Engine Speed Control
    
    
    
         It is desirable to make some provision for specification of engine speed
    
    
    
    for trucks, such as front loaders, which are not normally equipped with
    
    
    
    engine speed control devices.  At least three possible approaches for doing
    
    
    
    this are:
    
    
    
              specifying an engine rpm in the regulation
                                          4-5
    

    -------
              requiring that the dump or compaction cycle be performed within
    
              the time published in manufacturer's advertisements
    
              specifying the operation of the engine at maximum allowable engine
    
              or dump rpm, whichever is lower
    
         It does not seem appropriate to specify a fixed engine rpm.  Such a
    
    specification would be a counter-productive constraint on manufacturers who
    
    wish to achieve noise control without compromising performance by minimizing
    
    engine speeds and using high capacity pumps.
    
         The second approach, requiring that operational cycle times conform to
    
    advertised values, has some merit.  However, the obvious problems are that, on
    
    one hand, cycle times are not advertised for all vehicles and therefore would
    
    not be regulated; on the other hand, manufacturers might cease such advertise-
                                                                         •
    ment if it led to excessive noise control problems.
    
         The third technique, specifying operation at the maximum speed allowed by
    
    the manufacturer, also has positive and negative attributes. It could be
    
    argued that engines or pumps are rarely operated at maximum allowed speeds.
    
    However, compactor operators are motivated to operate dump and compaction
    
    cycles as quickly as possible to minimize the route-collection time.  In fact,
    
    there have been cases of operators changing engine speed control settings  for
    
    this purpose.  Furthermore, testing at maximum allowable speed is consistent
    
    with many industry practices. SAE test procedures typically specify maximum
    
    acceleration/maximum speed conditions.  Therefore, we conclude that compactors
    
    without mechanical speed controls should be tested at the maximum engine or
    
    pump rpm allowed by the manufacturer.
                                          4-6
    

    -------
    Measurement Criteria
    
    
    
         As indicated under Noise Characteristics,  the key measurement problems
    
    
    
    relate to characterization of steady and impulsive noise  levels,  the number of
    
    
    
    microphone locations required, and means to  combine  levels acquired at various
    
    
    
    locations.
    
    
    
    Steady Levels
    
    
    
         The major question concerning steady  levels  is  which scale  should be used.
    
    
    
    Although many scales (A,B,C, etc.) have been proposed  and are  often available
    
    
    
    on sound level meters, the A-^weighting scale has  achieved overwhelming accep-
    
    
    
    tance.  The A-scale has been used exclusively by  EPA for  evaluation of impact
    
    
    
    and for regulation of all non-aircraft sources  of noise.  Consequently the use
    
    
    
    of A-weighting for compactor measurements  appears most suitable.
    
    
    
    Measurement of Impulse Noise
    
    
    
         An impulse noise is one which lasts for a  very  short time and is generally
    
    
    
    associated with the impact of two components.   The measurement of impulse
    
    
    
    noise can present a severe problem since,  if the  response of the  instrument
    
    
    
    being used to measure the impulse is not fast enough,  the true peak reading
    
    
    
    will not be obtained.  ANSI, in  the standard, ANSI.4-1971, Specification for
    
    
    
    Sound Level Meters, describes two speeds of  response for  sound level
    
    
    
    meters:  on the "fast" response  the meter  must  read  0-2 dB below the steady
    
    
    
    reading when a pulse of 0.2 seconds is applied; on the "slow"  response the
    
    
    
    meter must read 3-5 dB below the steady reading when a pulse of  0.5 seconds is
    
    
    
    applied.  These speeds correspond to averaging  times of 0.125  seconds and 1.0
    
    
    
    seconds, respectively.  The human hearing  mechanism  itself also  has a finite
    
    
    
    response time to an impulsive sound.
                                          4-7
    

    -------
    Authors differ as to the duration of this response time, and many authors
    
    
    
    argue that it is the energy in the impulse which determines the human response.
    
    
    
    Meter response of 0.125 second yields impulse results that correspond well to
    
    
    
    the "true" impulse of compaction sounds  (Ref. 4-1).  When the sound  is tape
    
    
    
    recorded, however, and played back into  a graphic level recorder (GLR), the
    
    
    
    response of the recorder is specified in terms of the maximum writing speed of
    
    
    
    the pen.  The response time of the pen then depends on the magnitude of tlte
    
    
    
    impulse, being slower for larger impulses.  Bruel and Kjaer (Technical Review
    
    
    
    No. 1, 1974) do suggest a correlation between averaging time and writing
    
    
    
    speed, providing the impulses are not too large  (6-8 dB).  A 0.125 sec  (SIM
    
    
    
    fast) averaging time corresponds to a writing speed of 8 mm/sec (3.15 ins/sec)
    
    
    
    on paper 50 mm (2 ins) wide.  Similarly, an averaging time of 1.0 sec corres-
    
    
    
    ponds to a writing speed of 10 mm/sec (0.4 ins/sec) on paper 50 mm (2 ins)
    
    
    
    wide and 20 mm/sec (0.8 ins/sec) on paper 100 mm (4 ins) wide.
    
    
    
         If one is interested in measuring the levels of impulse noise,  then the
    
    
    
    fast meter response or writing speeds of 80 or 160 mm/sec (3.15 or 6.3 ins/sec)
    
    
    
    should be used.  If a slow meter response is used, the true peak level of the
    
    
    
    impulse will not be observed.  However,  the meter response will be related to
    
    
    
    the energy in the impulse, averaged over the 1.0 sec time constant of the
    
    
    
    meter.
    
    
    
    Microphone Locations
    
    
    
         Gompacting-vehicle machinery is often distributed around the vehicle
    
    
    
    requiring noise measurements at various  locatons.  Drive train equipment
    
    
    
    such as the engine and fan are located at the front.  PTO's and pumps are on
    
    
    
    the side, as are auxiliary power plants. Noise-producing hydraulic  rams
                                          4-8
    

    -------
         A microphone windscreen may be used provided  that  its effect on "A"
    
    
    
    weighted sound level is negligible under zero wind velocity  conditions  for  the
    
    
    
    type of noise source being measured.
    
    
    
         A stopwatch having an accuracy of better than one  percent.
    
    
    
    Test Site
    
    
    
         The following test site requirements shall be considered  the    minimum
    
    
    
    necessary to conduct effective measurements.
    
    
    
         An approved test site shall consist of a level open space free  of  large
    
    
    
    reflecting surfaces, such as parked vehicles, signboards, buildings, or
    
    
    
    hillsides, located within 50 ft (15 meters) of either the vehicle or the
    
    
    
    microphone.
    
    
    
         One microphone shall be located 4 ft +1/2 ft  (1.2  meters) above the
    
    
    
    ground plane and 23 ft +1 ft (7 meters) from the mid-point of  the surface of
    
    
    
    the truck on the side on which the measurements are being  made.  Measurements
    
    
    
    will be made at four microphone positions to the front, rear and each side  of
    
    
    
    the vehicle.
    
    
    
         The measurement area shall, as a minimum, extend from the microphone to
    
    
    
    the farthest extremity of the truck or trailer and be surfaced with  concrete,
    
    
    
    asphalt, or similar hard material, and shall be free of powdery snow, grass,
    
    
    
    loose soil or ashes, or other sound-absorbing materials.
    
    
    
    Test Procedure
    
    
    
         The waste compaction equipment shall be operated with the vehicle
    
    
    
    stationary.
    
    
    
         Ohe vehicle engine will be started and allowed to  reach its recommended
    
    
    
    operating temperature.  In addition, if the ambient temperature is below
                                         4-10
    

    -------
    are at the rear of rear loaders.  To account adequately for these distributed
    sources, we have selected measurement at four locations at 90 degree intervals
    around the vehicle.
    Combining Noise Levels
         The truck noise levels are measured on four sides; one then needs a single
    number to describe the noise level of the truck.  The quantity of concern is
    the total impact of the noise on the community.  This is best evaluated by
    taking an energy average around all sides of the vehicle. The energy average
    is obtained by averaging the antilogarithms of the levels on the four sides of
    the truck and then taking the logarithm of the result.
    EPA MEASUREMENT METHOD
         Based on the foregoing considerations, the following measurement meth-
    odology has been adopted.
    Instrumentat ion
         Tne following instrumentation shall be used, where applicable, for the
    measurement required.
         A precision sound level meter which meets the Type 1 requirement of
    American National Standards Specification for Sound Level Meters, SI.4-1971.
         As an alternative to making direct measurements using a sound level
    meter, a microphone or sound level meter may be used with a magnetic tape
    recorder and/or a graphic level recorder or indicating meter, providing the
    system meets the requirements of SAE Recommended Practice J184, Qualifying
    a Sound Data Acquisition System.
         A sound level calibrator with an accuracy of +0.5 dB.
                                         4-9
    

    -------
    60°F, the compaction equipment will be operated  for  enough  cycles  to  allow
    
    
    
    the hydraulic oil and components to reach a  stable operating  temperature.
    
    
    
         The compaction equipment shall be operated  empty.  Trucks which  normally
    
    
    
    load containers will be measured loading an  empty container.
    
    
    
         Ihe compaction equipment shall be operated  in accordance with its  normal
    
    
    
    operating procedures.  The truck engine will be  operated at its  speed which is
    
    
    
    governed for the cycle or if there is no such  speed,  the maximum allowable
    
    
    
    engine or pump speed, whichever is lower.
    
    
    
         The waste compaction equipment shall be run through two  complete com-
    
    
    
    paction cycles for each noise measurement taken.  If the readings  differ by
    
    
    
    more than 2 dBA, further readings will be taken  until two agree  within  2 dBA
    
    
    
    and the average taken.
    
    
    
         Ihe meter shall be set for "fast" response  and  on the  "A"-weighted
    
    
    
    network.
    
    
    
    Truck Chassis Noise
    
    
    
         For waste compaction equipment mounted  on a chassis, the truck engine
    
    
    
    will be operated at "solenoid speed" with the  power  takeoff not  engaged.   The
    
    
    
    noise level will be recorded at this condition with  the meter set  for "fast"
    
    
    
    response and "A"-weighting.
    
    
    
    Waste Compaction Equipment Cycling Noise
    
    
    
         The waste compaction equipment will be  operated through  its normal cycle.
    
    
    
    The maximum noise level, ignoring any peaks  due  to impacts, will be recorded
    
    
    
    with the meter set for "fast" response and "A"-weighting.
                                         4-11
    

    -------
    Waste Compaction Equipment Impact Noise
    
    
    
         The waste compaction equipment will be operated through  its normal  cycle.
    
    
    
    The peak noise level due to impacts will be recorded with  the meter  set  for
    
    
    
    "fast" response and "A"-weighting.
    
    
    
    Cycle Time of Waste Compaction Equipment
    
    
    
         Ihe waste compaction equipment will be operated through  its normal  cycle.
    
    
    
    The time from the beginning to the end of the cycle will be recorded.
    
    
    
         Noise level measurements shall be taken at each of the four microphone
    
    
    
    positions around the vehicle and the following data will be reported.
    
    
    
         1.   Truck chassis noise,
    
    
    
         2.   Maximum noise level at each location, ignoring impacts,
    
    
    
         3.   Maximum impact level,
    
    
    
         4.   The four-location energy average for each of the above three data
    
    
    
              categories, computed according to the equation
                  L  =  10 L  1,  10  V10  /    -  6     dB
                            ec\ i=i             /
    
    
    
              where L- is the A-weighted sound  level  corresponding  to the ith
    
    
    
    
              truck orientation,
    
    
    
         5.   Cycle time.
    
    
    
    General Comments
    
    
    
         It is strongly recommended  that persons  technically  trained and experi-
    
    
    
    enced in the current techniques  of sound measurement select the equipment and
    
    
    
    conduct the tests.
                                         4-12
    

    -------
         Proper use of all test instrumentation is essential to obtain valid
    
    
    
    measurements.  Operating manuals or other literature furnished by the  instru-
    
    
    
    ment manufacturer should be referred to for both recommended operaton  of the
    
    
    
    instruments and precautions to be observed. Specific items to be considered
    
    
    
    are:
    
    
    
         The effects of ambient weather conditions on the performance of all
    
    
    
    instruments (for example, temperature, humidity, and barometric pressure).
    
    
    
         Proper signal levels, terminating impedances, and cable lengths on multi-
    
    
    
    instrument measurement systems.
    
    
    
         Proper acoustical calibration procedure, to include the influence of
    
    
    
    extension cables, etc.  Field calibration shall be made immediately before and
    
    
    
    after each test sequence.  Internal calibration means are acceptable for field
    
    
    
    use, provided that external calibration is accomplished immediately before or
    
    
    
    after field use.
    
    
    
         Proper orientation of the microphone relative to the source of sound as
    
    
    
    specified by the manufacturer.
    
    
    
         Measurement shall be made only when wind speed is below 12 mph (19 Km/hr).
    
    
    
         The ambient sound level (including wind effects) from sources other than
    
    
    
    the vehicle being measured shall be at least 10 dBA lower than the level of
    
    
    
    the tested vehicle.
    
    
    
         Because bystanders have an appreciable influence on meter response when
    
    
    
    they are in the vicinity of the vehicle or microphone, not more than one
    
    
    
    person, other than the observer reading the meter, shall be within 50  ft
                                         4-13
    

    -------
    (15 meters) of the vehicle or instrument, and that person shall be directly
    
    
    
    behind the observer reading the meter, or on a line through the microphone and
    
    
    
    the observer.
    
    
    
    SUGGESTED REFERENCES
    
    
    
         Suggested reference material is as follows:
    
    
    
              ANS SI.1-1960 Acoustical Terminology.
    
    
    
              ANS SI.2-1967 Physical Measurement of Sound.
    
    
    
              ANS SI.2-1971 Specifications for Sound Level Meters.
    
    
    
              SAE Recommended Practice J-184 - Qualifying a Sound Data Acquisition
    
    
    
              System.
    
    
    
         Applications for copies of these documents should be addressed to the
    
    
    
    American National Standards Institute, Inc., 1430 Broadway, New York, New
    
    
    
    York, 10018; or, The Society of Automotive Engineers, Incorporated, Two
    
    
    
    Pennsylvania Plaza, New York, New York, 10001.
    
    
    
    DISCUSSION OF METHODOLOGY
    
    
    
         There are a number of points in the methodology presented above which
    
    
    
    need further explanation.  A number of decisions have been made concerning
    
    
    
    certain parameters in the methodology, and the reasons for these decisions
    
    
    
    need to be enumerated.
    
    
    
    Measurement Distance
    
    
    
         Two measurement distances are commonly employed in the measurement of
    
    
    
    noise from vehicles:  the SAE generally adopts a 50 ft distance and the
    
    
    
    European ISO adopts a 7 m (23 ft) distance.  In this methodology, we have
    
    
    
    selected the latter distance (7 m) for two reasons. First, a  smaller measure-
    
    
    
    ment site is required for the closer distance. Buildings and  reflecting
    
    
    
    surfaces need only be 50 ft away from the truck and microphone, whereas they
    
    
    
    
    
                                          4-14
    

    -------
    need to be 100 ft away  if a  50 ft measurement  distance is employed.   9naller
    
    
    
    sites are more readily  available. Second,  since the noise levels we  are
    
    
    
    concerned with measuring are not very  high,  there will be less interference
    
    
    
    from ambient noise at a 7 m  distance than  at a 50 ft distance.  Accordingly,
    
    
    
    all noise measurements  in this study are quoted for a distance of 7  m (23 ft).
    
    
    
    Operaton of the Compactor Truck Empty
    
    
    
         A decision had to  be made as to what  load will be placed in the hopper of
    
    
    
    the compactor truck when its noise  is  being  measured.   Suggestions have been
    
    
    
    made that a standard load should be used.  This load could consist of paper,
    
    
    
    garbage or bottles,  However, any such load  will inevitably vary from one
    
    
    
    sample to another and not be reproducible.   The sample could not even be used
    
    
    
    twice in the same truck since it would change  on being compacted the first
    
    
    
    time.  Accordingly, the only practical reproducible load  that could  be devised,
    
    
    
    was no load.  An empty  hopper may not  be a good simulation of actual loads,
    
    
    
    
    but it does provide a constant baseline against which  all trucks can be
    
    
    
    compared.  Also, one series  of measurements  made on compactors indicated an
    
    
    
    average increase in noise of approximately 0.5 dB between empty and  full load
    
    
    
    conditions (Ref. 4-2).
    
    
    
    Energy Average
    
    
    
         The truck noise levels  are measured on  four sides.   The SAE generally
    
    
    
    takes the highest of the four levels measured  and quotes  that level.  This is
    
    
    
    appropriate if one is concerned with determining if there is an excessive
    
    
    
    noise level in any direction.  However, in this study,  EPA is concerned with
    
    
    
    the total impact of the noise on the community.   This  is  best evaluated by
                                         4-15
    

    -------
    taking an energy average around all sides of the vehicle.  The energy average
    
    is obtained by averaging the antilogs of the levels on the four sides of the
    
    truck and then taking the log of the result.  That is, if the four measure-
    
    ments are L,, 1^, L^ and L^, the energy averaged level, L, is
                         [,  L./10      L2/10      W10       IM/IO x 1
                    1/4 (10       + 10 *     + 10 J      +10      ) J   ,
    
    
    a result that is influenced more strongly by the highest levels measured at
    
    individual microphone positions.
    REFERENCES
    
    4-1.  Blomquist, Donald S. (National Bureau of Standards) letter to Fred
          Mintz, EPA, dated March 23, 1977.
    
    4-2.  Mansbach, Peter A. (National Bureau of Standards) letter to Fred Mintz,
          EPA, dated August 31, 1976.
                                         4-16
    

    -------
                                     Section  5
    
                  EVALUATION OF EFFECTS OF TRUCK MOUNTED  SOLID WASTE
                       COMPACTORS ON PUBLIC HEALTH AND WELFARE
    
    INTRODUCTION
    
         Pursuant to the Noise Control Act of 1972,  the Environmental Protection
    
    Agency (EPA) has proposed noise emission  regulations  on  newly manufactured
    
    truck mounted trash compactor units.  Tne proposed regulations  specify levels
    
    not to be exceeded as measured according  to a specified  test procedure,  and
    
    are intended to control compaction noise, including truck engine contributions.
    
         Predictions of both costs and benefits involved  are required as  necessary
    
    inputs to define the trade-offs among the various options for the regulatory
    
    levels to be included in the final regulations.  Presented in this analysis
    
    are predictions of the potential health and welfare benefits of selected
    
    noise control options that cover a range  of possible  regulatory programs of
    
    new truck mounted trash compactors. Costs of compliance  and economic  impact
    
    for different regulatory programs are presented  in Section 7 of this  document.
    
         Because of inherent differences in individual responses to noise,  the
    
    wide range of situations and environments which  relate to compactor noise
    
    generation, and the complexity of the associated noise fields,  it is  not
    
    possible to examine all situations precisely.  Hence, in this predictive
    
    analysis, certain stated assumptions have been made to approximate typical,or
    
    average, situations.  The approach taken  to determine the benefits associated
    
    with the noise regulation is therefore statistical, in that an  effort is made
    
    to determine the order of magnitude of the population that may  be affected
    
    for each regulatory option.  Some uncertainties  with respect to individual
    
    cases or situations will remain.
                                         5-1
    

    -------
    Measures of Benefits to Public Health and Welfare
    
    
    
         The phrase "public health and welfare," as used here, includes personal
    
    
    
    comfort and well-being as well as the absence of clinical symptoms such as
    
    
    
    hearing damage.  People are exposed to noise generated from trash compacting
    
    
    
    operations most notably when inside their homes.  Reducing noise related  to
    
    
    
    trash compaction activity may produce the following benefits:
    
    
    
         1.   Reduction in average urban noise levels and associated cumulative
    
    
    
              long-term impact upon the exposed population.
    
    
    
         2.   Fewer activities, i.e., sleep and speech communication, disrupted
    
    
    
              by individual noise events.
    
    
    
         Predictions of noise levels under various regulatory schedules are
    
    
    
    presented in terms of the noise levels associated with typical  trash  collec-
    
    
    
    tion operations.  The trash produced within a unit area of land will  be
    
    
    
    generated at a rate dependent upon population density and land  use.   The
    
    
    
    collection and compaction of this trash is expressed on an amount-per-person-
    
    
    
    per-day basis for the unit area.  The number of noise-producing compaction
    
    
    
    cycles is a function of this daily collection. The basic unit of area used  is
    
    
    
    the hectare (ha).  This unit is about the size of a city block  (175 x 600
    
    
    
    feet for an oblong block or 330 x 330 feet for a square block).
    
    
    
         Reductions in the average urban noise levels from current  conditions
    
    
    
    (i.e., with no compactor noise emission regulations) are presented for
    
    
    
    comparison with reductions expected for the regulatory options  on newly
    
    
    
    manufactured truck mounted trash compactors.  Projections of the population
    
    
    
    impacted by compactor noise during the regulatory period are determined
    
    
    
    from estimating reductions in the average noise levels of various types of
    
    
    
    residential land use areas.
                                          5-2
    

    -------
         However, measuring nationwide impact  in  terms of average  urban  noise
    
    
    
    levels does not adequately account for extremely annoying  situations arising
    
    
    
    from a single trash compaction operation,  since annoyance  frequently depends
    
    
    
    on the activity and location of the  individual.  In  addition,  measures  of
    
    
    
    average urban noise level tend to cancel out  the disruptive and  annoying peak
    
    
    
    noise levels produced by individual  trash  compaction cycles.   Additional
    
    
    
    benefits are obtained by the reduction of  current noise levels generated fro  ,
    
    
    
    a single compaction activity.  These benefits are evaluated in terms of sleep
    
    
    
    disturbance and speech interference  at current noise emission  levels and at
    
    
    
    the reduced levels associated with the reduction of  noise  attributable  to  an
    
    
    
    individual trash compaction cycle.
    
    
    
    Regulatory Schedules
    
    
    
         Predictions of the population impacted by noise related to  trash collec-
    
    
    
    tion activity are presented for the  regulatory options shown in  Table 5-1.
    
    
    
    The base option assumes no specific  noise  regulation for compactors,  and
    
    
    
    hence the total reduction in noise impact  is  the result of the noise regula-
    
    
    
    tions on medium and heavy duty trucks.  Cptions 1, 3, 5, and 7 were  selected
    
    
    
    from a large list of options which was reduced to these final  four,  for
    
    
    
    further study. In all cases, each compactor type is  being  regulated  to  the
    
    
    
    same level.  The Silent option is included for comparison  purposes to
    
    
    
    indicate the lower limit of noise reductions, and the impact of  eliminating
    
    
    
    compactor noise.
                                         5-3
    

    -------
                          TABLE 5-1
    
              REGULATORY OPT IMS:  NOT-TO-EXCEED
                A-WEIGHTED SOUND LEVELS AT 7m
    
                                 Compactor (all types)
    Options*
    Base
    Option 1
    Option 3
    Option 5
    Option 7
    Silent
    1979
    u**
    80
    U**
    U**
    78
    0
    1982
    U**
    75
    79
    75
    75
    0
    1985
    U**
    75
    79
    75
    75
    0
    *   In all cases, truck regulations are 83 dB(A) in 1978 and
        80 dB(A) in 1982.
    
    ** U = unregulated.
                               5-4
    

    -------
    Outline of the Health and Welfare Section
    
    
    
         A description of the existing trash compactor noise  environment is
    
    
    
    presented in the following section.  The next  section  presents  the  predicted
    
    
    
    reduction of the population  impacted within various  land  uses due  to the
    
    
    
    reduction of average community noise levels by regulating truck-mounted trash
    
    
    
    compactors.  Following that, predictions of changes  in sleep disturbance  and
    
    
    
    speech interference due to a single trash collection cycle are estimated  for
    
    
    
    each land use for the regulations under consideration.
    
    
    
    TRASH COLLECTION NOISE ENVIRONMENT
    
    
    
         A single collection cycle is defined as a collector  truck arriving at a
    
    
    
    location, loading trash into the truck, compacting the trash, and  finally,
    
    
    
    the truck pulling away.  This collection event may be considered a stationary
    
    
    
    noise source which produces  a noise field that attenuates in intensity with
    
    
    
    distance.
    
    
    
         Four elements must be evaluated to define the population exposure
    
    
    
    produced by the noise environment from a single collection cycle:
    
    
    
         •    The noise level of the truck which carries the  compactor
    
    
    
         •    The noise produced by the compaction cycle of the compactor type
    
    
    
              being evaluated
    
    
    
         •    Propagation of the noise from the source to the receiver through
    
    
    
              situations which range from narrow streets to open areas
    
    
    
         •    Attenuation of the sound by buildings or walls.
    
    
    
         These elements may be combined and translated into average  levels by
    
    
    
    considering the number of collections occuring per unit area and the mix
    
    
    
    of collection trucks.
                                         5-5
    

    -------
      Truck Noise Per Collection Cycle
    
           Much of the  total  collection cycle noise is generated by  the  truck
    
      which carries the compactor.   Time histories of the noise emitted  during
    
      typical residential  trash collection cycles are summarized in  Figure 5-1.
    
      Truck engine noise occurs while the truck pulls up, while it is idling and
    
      the truck is being loaded, while the engine is accelerating during the
    
      compaction cycle, and while it is idling and then driven off.
      90
      80
    XI
    •o
    UJ
    £60
      50
    PULL-UP AKO
    BRAKE SQUEAL
    
      25 sec
    IDLE AND TRASH LOAD
        40 sec
                                     _L
    COMPACTION
      CYCLE
      IDLE
    
     20 sec
    
    
    _J	
      BRAKE
     RELEASE
      AND
    PULL-AWAY
    
     15 sec
            10
                                      TIME, seconds
    
                 Figure 5-1.   Typical collection cycle  noise  levels at 7 m.
           Medium and heavy gasoline and diesel trucks,  the type which carry
    
      trash  compactors, have been recognized as major  contributors to environ-
    
      mental noise.   The noise produced by these vehicles  will be regulated to a
    
      not-to-exceed  level of 83 dBA (based on the J336b  test)  in 1978 and to a
    
      level  of  80 dBA in 1980.  A more stringent regulation may be promulgated
    
      at  a later time.  As these quieted trucks are  introduced into the compactor-
    
      truck  fleet, the noise associated with the collection cycle will decrease.
                                             5-6
    

    -------
    Table 5-2 presents an estimate, based on Reference  5-1, of  the  collection
    
    cycle noise levels produced by these quieted  trucks.  Also  included  in Table
    
    5-2 are estimates for three possible levels of  future truck noise  reduction.
    
    The average values of truck noise during pullup,  idle and pull-away  phases
    
    (independent of the  increased noise level during  the compaction cycle), are
    
    calculated by summing the equivalent energy of  each component in the cycle,
    
    and used for the analysis in this report.
    
    Compactor Noise per Collection Cycle
    
         A summary of measurements of the noise emissions associated with the
    
    compaction cycles on 28 different trucks*  (Reference 5-2) is presented in
    
    Table 5-3.  The measured sample was not intended  to be representative of
    
    refuse compactors in general, but rather, measurements were made on  avail-
    
    able trucks.  A relatively large number of quieted  compactors were in the
    
    measured sample so that average sound levels  may  be much lower  than  those
    
    which would be observed in actual operation.  However, for  purposes  of this
    
    analysis it is assumed that the measurement results presented in Table 5-3
    
    are representative of average national values,  although a  number  of large
    
    cities (e.g., New York and San Francisco) require the use of quieted trucks,
    
    and thus some densely populated urban areas may be  subjected to compactor
    
    noise levels lower than those reported in Table 5-3.  Independent  measure-
    
    ments made by the EPA (Reference 5-3) are in  agreement with the average
    
    values listed in this report.
    
         Table 5-3 includes measurement results obtained at 7 meters of
    
    the maximum steady sound level (Imax), the maximum  impulse  level,
    *Four trucks
    were measured in two different modes so therefore the sample consisted
    of 32 measurements
    
                                         5-7
    

    -------
                              TABLE 5-2
                  ESTIMATED A-WEIGHTED SOUND LEVELS
                     AT 7m OF THE NON-COMPACTION
                 COMPONENTS OF THE COLLECTION CYCLE
    Event
    Pull-up
    Brake Squeal
    Idle while Loading
    Trash Loading Impacts (4)
    Compaction Cycle
    Idle
    Brake Release
    Pull- aw ay
    Average (not including
    compaction cycle)
    Duration
    (sec)
    25
    0.5
    40
    (ea)0.5
    
    20
    0.5
    15
    100
    Regulated Truck
    Level @50 Ft.
    dB(A)
    Ua 83
    80
    90
    67
    77
    
    67
    90
    86
    77.2
    74
    90
    66
    77
    
    66
    90
    80
    72.8
    Noise
    80
    71
    90
    65
    77
    
    65
    90
    77
    71.2
    Note:
    
    Ua = existing unquieted trucks
                                 5-8
    

    -------
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                                         5-9
    

    -------
    and the time over which these levels were attained during a compaction
    
    cycle.  The total noise level of the compaction cycle used in this analysis
    
    includes both the steady-state and the impulsive sounds.  EPA data indicates
    
    that the number of impulses during a cycle varies with the type of compactor.
    
    An average of 8 impacts was noted for each front-loader compaction, 2 for
    
    each side-loader and 5 for each rear-loader.  Each impact noise is assumed
    
    to have a duration of 0.5 sec.  The average noise level was calculated using:
    Lavg = 10 109
    where
                                                                 dB(A)
         t  = compaction time,in seconds, from Table 5-3
    
    
         tj = impulse time = number of impulses x 0.5 seconds
    
    
         LC = sound pressure level of steady-state compaction
    
              from Table 5-3, dB(A)
    
         L-j- = sound pressure level of impulse noise, from
    
              Table 5-3, dB(A).
    
         Table 5-4 presents the results of these calculations for  the three
    
    compactor types and defines the noise levels of existing compaction cycles.
    
                                     TABLE 5-4.
                   ESTIMATES OF THE AVERAGE  A-WEIGHTED SOUND
                LEVEL AT 7m PRODUCED BY DIFFERENT COMPACTOR TYPES.
                                            Sound Level
                            Compactor Type    dB(A)
                         Front-loader
    
                         Side-loader
    
                         Rear-loader
                                                 85.8
    
                                                 76.7
    
                                                 79.4
                                          5-10
    

    -------
    Sound Propagation and Amplification
    
    
    
         A sound level at a given distance from a source located on an urban
    
    
    
    street may be considerably higher than the sound level at the same distance
    
    
    
    from the source in a free-field environment.  This phenomenon is referred
    
    
    
    to as reverberation build-up which occurs when the walls of the buildings on
    
    
    
    each side of the street cause several multiple-reflection sound propagation
    
    
    
    paths between source and receiver.
    
    
    
         In urban areas where the height of a flanking facade is nearly con-
    
    
    
    tinuous and is greater than or comparable to the street width, there  is a
    
    
    
    reverberant build-up of sound.  Furthermore, there are shielding effects
    
    
    
    from different types of barriers or buildings on apparent source intensity.
    
    
    
    For a u-shaped space, which approximates an urban street, amplification
    
    
    
    factors may be estimated.  Ihese factors are dependent on the width of the
    
    
    
    space.  For example, when building fronts are separated by 15 meters  (49
    
    
    
    feet), if the amplification factor is estimated to be 2.2 dB, and if  a 7.6
    
    
    
    meter (25 feet) separation of building fronts amplifies sound at the  source
    
    
    
    by 8 dB, a sound source of 80 dB, referenced at 7 m free field, would on
    
    
    
    the 15 meter wide street be amplified to 82.2 dB and on a 7.6 meter wide
    
    
    
    street (alley) to 88 dB.
    
    
    
         Since the apparent build-up in sound level is a function of the  width
    
    
    
    between facing buildings, the technique suggested in Reference 5-4 was used
    
    
    
    to calculate the amplification and propagation factors for representative
    
    
    
    street widths.  It was determined that adjustment factors of 11.6, 8.0,
    
    
    
    2.2,  and -1.6 dB added to the noise levels on streets 4.5 meters (15  feet),
    
    
    
    7.6 meters (25 feet), 15 meters (49 feet) and 24 or more meters (>78  feet)
                                         5-11
    

    -------
    wide respectively best represented truck mounted solid waste trash compactors
    
    
    
    activity in urban areas.  These reverberant buildup factors were added to the
    
    
    
    percentage of collections occurring on various street widths in urban areas
    
    
    
    (see Table 5-6).
    
    
    
         Sound levels attenuate spherically from the source in a free-field
    
    
    
    environment.  The sound-pressure level loss due to propagation varies
    
    
    
    inversely with the square of the distance between the noise source and a
    
    
    
    receiver.  In the free-field environment the propagation loss is equivalent
    
    
    
    to 6 dB for each doubling of distance between the source and the receiver,
    
    
    
    i.e., a -6 dB/dd attenuation rate.
    
    
    
         Trash compactor noise, however, does not occur in a free-field environ-
    
    
    
    ment.  Non-uniform attenuation rates have been developed to estimate the
    
    
    
    sound level attenuation in varying environments (Reference 5-4).  For this
    
    
    
    analysis, uniform attenuation rates providing an approximation to the non-
    
    
    
    uniform attenuation rates are used for each land use category.  The uniform
    
    
    
    attenuation rates selected are -6dB/dd for the suburban single-family
    
    
    
    detached and suburban duplex dwelling categories, -6.5 dB/dd for urban row
    
    
    
    apartments, -8 dB/dd for dense urban apartments, and -8.5 dB/dd for very
    
    
    
    dense urban apartments.  These attenuation rates apply to distances beyond 50
    
    
    
    feet from the source.
    
    
    
         No reduction in noise level due to the shielding of a row of buildings
    
    
    
    between the source and the observer was considered for the suburban single-
    
    
    
    family detached and suburban duplex land-use categories.  The typical
    
    
    
    collection noise levels in these areas are low enough that they will be
                                          5-12
    

    -------
    insignificant on an adjoining street.  For the denser dwelling areas, the
    
    
    
    barrier effect of a row of buildings is taken into account  in the sound
    
    
    
    propagation (attenuation) rates.
    
    
    
    Sound Attenuation within Buildings
    
    
    
         To estimate indoor noise levels from outside noise sources, the attenu-
    
    
    
    ation factor of building walls and windows must be calculated. Although
    
    
    
    dwelling walls attenuate sound, windows generally provide poor insulation
    
    
    
    from exterior noise.  When windows are open the difference  between  indoor and
    
    
    
    outdoor noise varies from 10 to 18 dB; this is representative of the typical
    
    
    
    summer situation.  In winter, with windows closed, the attenuation varies
    
    
    
    from 15 to 27 dB, and with double-glazed windows, noise may be reduced as
    
    
    
    much as 45 dB.
    
    
    
         The maximum, closed value in winter is seldom achieved in older urban
    
    
    
    areas, for in these areas the noise reduction is governed by the minute
    
    
    
    cracks and spaces around the glass panels and the window and door frames.
    
    
    
    In this analysis an attenuation value of 15 dB will be used for the suburban
    
    
    
    single-family detached and the suburban duplex areas, and a value of 20 dB
    
    
    
    for the other dwelling areas to represent the attenuation of outdoor noise
    
    
    
    by the exterior shell of the house.  These attenuation factors represent
    
    
    
    an average between summer, winter, new construction, and old construction.
    
    
    
    Average Noise Levels Per Unit Area
    
    
    
         Each compactor type generates a different noise level, and the mix of
    
    
    
    compactor types in each of the land-use categories varies as presented in
    
    
    
    Table 5-5.
                                         5-13
    

    -------
         To simplify the health and welfare calculations, an average noise level
    
    
    
    per collection for each land-use type was calculated as follows:
    
    
    
    (1) The truck noise level  (Table 5-2) was energy-averaged with the compac-
    
    
    
    tion noise (Table 5-4) as:
                        1
    LiL ' 10 1Q9 -ETT
    MK- )•(-.) ("'
                                               Jc/10\
                                                           dB(A)    (5-2)
                       V
    
    
     where
    
    
    
         L.T  = the noise  level for each truck-compactor  combination, dB(A)
          111
    
    
         Itj,  = truck noise level, from Table 5-2,  dB(A)
    
    
    
         t   = time truck noise  in the collection  cycle  (omitting compaction
    
    
    
               time)  = 100 sec
    
    
    
         L   = average noise level for each compactor type, from Table 5-4,
    
    
    
               dB(A)
    
    
    
         tQ  = compaction time from Table 5-3, sec.
    
    
    
    (2)  The  noise level  for each compactor type was multiplied by the use
    
    
    
    factor from Table 5-5, for a mix of truck types  in a given area.
    
    
    
    
         L   -(fFL)^)^^)^)^)^)              {5-3)
    
    
    where
    
    
    
         fp,  = fraction of front-loaders in a given  land-use area,
    
    
    
               from Table 5-5
    
    
    
         L   = noise level of front-loaders from Equation  5-2;
    
    
    
         and  the subscripts SL and RL refer to side-loaders and rear-loaders,
    
    
    
         respectively.
                                        5-14
    

    -------
                                TABLE 5-5
          AVERAGE PERCENT OF DIFFERENT TYPE COLLECTOR VEHICLES
               OPERATING PER DAY IN EACH LAND-USE CATEGORY.
            Land Use
                   Collector Type
    Front-Loader  Side-Loader  Rear-Loader
       Percent      Percent      Percent
    Surburban Single-
    Family Detached
    
    Suburban
    Duplexes
    
    Urban Row
    Apartments
    
    Dense Urban
    Apartments
    
    Very Dense
    Urban
    Apartments
         7.4
         6.8
        15.8
        19.4
        31.8
    21.5
    21.7
    18.7
    17.5
    13.5
    71.2
    71.6
    65.5
    63.1
    54.8
                                    5-15
    

    -------
         (3) 0.5 dB was added to the result to account for trash in the compactor.*
    
         The result is the average sound-pressure level produced by a single
    
         collection unaffected by reverberant build-up.
    
         No data were found for the frequency of alley pickup versus street
    
    compactions, or on the relative distribution of alley and street widths
    
    between buildings in urban areas.  A sample survey therefore was conducted
    
    in four metropolitan areas** to relate distance between building fronts to
    
    collection location for various population density categories.  Oi the
    
    basis of this survey it is assumed that one-half of the compactions occur
    
    on streets wider than 24 meters and one-half on streets where amplification
    
    may be a problem.  In urban row apartment areas, 25 percent of the impact
    
    situations will be on streets less than 15 meters (36 feet) and 25 percent
    
    on streets less than 7.6 meters (25 feet).  In the dense urban and very
    
    dense urban apartment areas compactions are assumed to occur 10 percent of
    
    the time in 4.5 meter (15 foot) wide alleys, 20 percent on 7.6 meter (25
    
    foot) streets, and 20 percent of the time on 15.2 meter (50 foot) streets.
    
    Table 5-6 gives the percentage of collections estimated by the survey for
    
    different street widths and the amplification factor associated with that
    
    width.
    *  The measurements all relate to empty compactors.  A recent study  (Reference
       5-14) indicates that, on the average, there is about a 0.5 dB(A) difference
       between the load and no-load conditions.
    
    ** Los Angeles, Berkeley, Atlanta, Washington, D.C.  Distances between
       building fronts were paced or estimated.
                                         5-16
    

    -------
                                TABLE 5-6.
            AMPLIFICATION FACTORS DUE TO REVERBERANT BUILDUP IN
                NARROW STREETS  (GROUND REFLECTION IGNORED).
    Land Use
    
    
    Urban Row
    Apartments
    Dense Urban
    Apartments
    
    
    Very Dense
    Urban
    Apartments
    
    Width between
    Buildings3
    
    meters
    7.6
    15.2
    >24
    4.5
    7.6
    15.2
    >24
    4.5
    7.6
    15.2
    >24
    
    feet
    25
    50
    >78
    15
    25
    50
    >78
    15
    25
    50
    >78
    Percent of
    Total
    Collections
    
    25
    25
    50
    10
    20
    20
    50
    10
    20
    20
    50
    Amplification
    Factor
    dB(A)
    
    8.0
    2.2
    -1.6
    11.6
    8.0
    2.2
    -1.6
    11.6
    8.0
    2.2
    -1.6
    Assumes continuous building fronts
                                     5-17
    

    -------
    Noise Metrics
         As discussed in the introduction of this section, two methods are used
    to evaluate the health and welfare benefits of reduced trash compactor noise
    emissions on the human population.  The first method relates to general
    aversiveness due to trash collection cycle noise as a component of the
    overall noise levels of urban areas.  The second method relates to sleep
    disturbances and speech interference attributable to individual trash
    collection cycles.
         Three primary noise metrics are used in the two methods.  The primary
    measures of noise exposure for general annoyance are the equivalent A-
    weighted sound level (L_J and the day-night average sound level  (L-,  ).
                           GCJ                                          Qn
    Sleep disturbances are calculated using the Sound Exposure Level  (SEL) of
    the individual event as the primary measure of noise impact.  Speech
    interference is calculated using the L   of the individual event  as the
    primary measure of noise impact.  A brief description of these three noise
    metrics follows:
    Equivalent Sound Level(L  )
                            eq
         The Noise Control Act of 1972 required EPA to present information on
    noise levels that are "requisite to protect the public health and welfare
    with an adequate margin of safety."  The equivalent A-weighted sound level
    in decibels, L  , was selected as the primary measure of noise levels
                  eq
    since it is the descriptor which correlates best with the overall long-
    term effects of pervasive environmental noise on the public health and
    welfare (Reference 5-5).
                                          5-18
    

    -------
         The basic definition of L   is:
                                  eq
    = 10 log     -F --       --  •   at            (5-4)
            10
    
            10
                                  ±F -- f
    
                                   fcl  J
    where t2 - t, is the interval of time over which  the  levels are  evaluated,
    
    
    
    p(t) is the time-varying magnitude of the sound pressure, and pQ is a
    
    
    
    reference pressure standardized at 20 micropascals.   When expressed in  terms
    
    
    
    of A-weighted sound level, LA, the equivalent A-^eighted sound level, L  ,
                                A                                           eq
    
    
    is defined as:
    
    
    
                                       t.
                                                10 "        . dt   I      (5-5)
         The L   is associated with a specific time period  t0-t,, or T.  When
              GCJ                                            Z   J.
    
    
    associated with a specific short time  interval, T, the  L    (T) represents
                                                            eq
    
    
    the energy-averaged sound level, over  that interval of  time.  Commonly used
    
    
    
    time intervals are 24-hour, 8-hour, 1-hour, day and night,  symbolized as
    
    
    
    
    Leq (24)' Leq (8)' Leq  (1)' Ld ard Ln' respectively.
    
    
    
    
    Day-Night Average Sound Level (L, )
    
    
    
         In describing the impact of noise on people, the measure called the
    
    
    
    day-night average sound level (L, ) is used.  This is a 24-hour measure
    
    
    
    with a weighting applied to nighttime noise levels to account for the
    
    
    
    increased sensitivity of people to intruding noise associated with the
    
    
    
    decrease in background noise levels at night.  The L,   is defined as
    
    
    
    the equivalent noise level during a 24-hour period, with a  10-dB
    
    
    
    weighting applied to the equivalent noise level during  the  nighttime
    
    
    
    hours of 10 p.m. to 7 a.m.  This is expressed by the following equation:
                                         5-19
    

    -------
        Ldn = 10
    V10 v
    a \
    10 1 49
    i- (L +10)/10 -i
    n
    10
                                                                          (5-6)
    where L^ is the "daytime" equivalent level obtained between 7 a.m. and
    
    
    
    10 p.m., and L  is the "nighttime" equivalent level obtained between
    
    
    
    10 p.m. and 7 a.m.
    
    
    
    Sound Exposure Level  (SEL)
    
    
    
         Most of the criteria which relate noise exposure  to human  impact
    
    
    
    deal with pervasive environmental noise rather than discrete noise events.
    
    
    
    Specification of the  noise environment in terms of equivalent A-weighted
    
    
    
    sound level is adequate for pervasive noises.  Single  events, like a
    
    
    
    trash collection cycle, may contribute an insignificant amount  to the
    
    
    
    total environmental noise, yet be of severe impact.  Fortunately, some
    
    
    
    effects of noise on people have been quantified in terms of sound level
    
    
    
    over a particular duration.  A simple metric which measures sound level
    
    
    
    taking into account the duration of the event is  the Sound Exposure
    
    
    
    Level (SEL).  The SEL is the integral of the sound power per unit area
    
    
    
    received at a specified distance during a single  occurrence of  a noise-
    
    
    
    producing event.  The SEL is defined as:
    
    
    
    
                        /• / D    (t) \
            SEL = 10 log/ / ^—^  ]    dt   dB(A)            (5-7)
    where p(t) is the A-weighted sound pressure   at  time  t, pQ  is  the reference
    
    
    
    pressure  (20 micropascals), and T is the duration of  the  noise event.   For
    
    
    
    a rectangular pulse time history of approximately constant  average sound
    
    
    
    
    level, L  , such as a trash collection cycle,  an  approximation  is:
            r°i
                                          5-20
    

    -------
              SEL = L^ + 10 log (T)                             (5-8)
    
    where T is the time in seconds over which the sound is present, in this
    
    case the time of the compaction cycle, or the truck collection cycle, and
    
    Lm^ is the maximum A-weighted sound level.
    
         Values of SEL were calculated for each component of truck collection
    
    noise shown in Table 5-2 and for compaction and impulse noise shown in
    
    Table 5-3.  For steady-state noise pulses,  Equation 5-8 was used.  For
    
    triangular pulses, SEL was approximated by:
    
              SEL = L^ + 10 log(t/2)                            (5-9)
    
    where Lmax is the maximum sound level.
    
         The calculated SELs were combined in the same manner as the sound
    
    levels.  Table 5-7 presents the results of these calculations and defines
    
    the existing noise environment for a single compaction.
    
                                    TABLE 5-7.
    
                 EXISTING AVERAGE MAXIMUM STEADY SOUND LEVELS AT 7
                METERS FOR VARIOUS LAND-USE CATEGORIES (ADJUSTED FOR
               TRUCK MIX, TRASH NOISE AND REVERBERANT AMPLIFICATION).
    Land Use Type
    Suburban Single-
    Family Detached
    Suburban
    Duplexes
    Urban Row
    Apartments
    Dense Urban
    Apartments
    Very Dense Urban
    Apartments
    Ifc (dB(A))
    
    78.0
    
    78.0
    
    81.9
    
    83.6
    
    83.9
    SEL
    •
    98.9
    
    98.9
    
    102.8
    
    104.6
    
    105.6
    Propagation
    
    -6 dB/dd
    
    -6 dB/dd
    
    -6.5 dB/dd
    
    -8 dB/dd
    
    -8.5 dB/dd
                                         5-21
    

    -------
    Compactor Noise Levels Under Regulatory Options
    
         The average life of a compactor is about 7 years  (Reference 5-6).
    
    Therefore, 1/7 of the compactor fleet is replaced each year.*  Two assump-
    
    tions were made of the compactor noise levels under the regulation options.
    
    First, that manufacturers would design to a level 2 dB below the not-to-
    
    exceed level, and secondly, the maximum impulse levels would be regulated to
    
    a maximum of 5 dB over the steady-state levels.  Using these assumptions,
    
    the regulatory schemes presented in Table 5-1, the regulated truck noise
    
    levels of Table 5-2,and the method outlined in the preceding section,the
    
    tables in Exhibit 5-A at the end of this section were  calculated, presenting
    
    the average sound level LAfor each land use area to the year 2000.
    
         Similarly, the L   for a 24-hour period for each year of each option
    
    was calculated in the following manner:
    
         1.   An average time of collection (t_  ) for each land-use class was
                	             	  	   qVCj
    
              calculated.  This average time changed as the mix of collector
    
              vehicles, each with different compaction times, changed.  The
    
              average time of compaction for each collector type is listed in
    
              Table 5-3, the average time of non-compacting truck noise is given
    
              in Table 5-2, the fraction of collection in each land-use class
    
              in Table 5-5.  The average time in each dwelling cagetory was
    
              calculated as:
    *Reference 5-6 reports that often a compactor body  is remanufactured  and
    placed on a new truck.  This analysis assumes the remanufactured  units
    meet the noise standards of new units.
                                          5-22
    

    -------
                x fc> + fcT
    where
    t  = compaction time, Table 5-3
    
    f  = fraction of compaction in land-use class,
    
           Table 5-5
    
    ty = truck noise time, Table 5-2
    
    Average times for the complete collection cycle and
    
    components of the collection cycle are shown in Table 5-8.
    
                     TABLE 5-8.
              AVERAGE COLLECTION CYCLE
          TIMES FOR VARIOUS LAND-USE AREAS.
    Land Use
    Suburban Single-
    Family Detached
    Suburban
    Duplexes
    Urban Row
    Apartments
    Dense Urban
    Apartments
    Very Dense Urban
    Apartments
    Average
    Compaction
    Time
    ( seconds )
    20.8
    
    21.1
    
    21.5
    
    23.5
    24.7
    Average
    Truck Sound
    Time
    (seconds)
    100
    
    100
    
    100
    
    100
    100
    Average
    Collection
    Cycle Time
    ( seconds )
    120.8
    
    121.1
    
    121.5
    
    123.5
    124.7
                               5-23
    

    -------
              The number of seconds per day the noise source operated in each
    
    
    
              ha of land-use class for each year up to year 2000 was calculated.
    
    
    
              The average collection time was multiplied by the number of
    
    
    
              compactions per ha per day (Table 5-9) for each land-use class
    
    
    
              for each year.  The number of total daily compactions for each
    
    
    
              year was taken from Table 5-10 which incorporates the yearly
    
    
    
              growth factor into daily compactions.
    
    
    
              L   for each year and dwelling category was calculated as:
               eq
                  = 10 log
    fl - ts 1
    1 t
    r
    
    fcs /10L/10\1
    . ^ ^ >J
    dB(A)
    (5-10)
              where
              t  = time of source, from Step 2 above
               s
              t  = reference time, 86,400 sec/day
                   A-weighted sound-pressure level from Table 5-7.
    The resulting 24-hour L   for each year of each option is given in Exhibit
    
    
    
    5-B at the end of this section.
                                         5-24
    

    -------
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                                                    5-25
    

    -------
                         TABLE 5-10
    
    PROJECTIONS OF AVERAGE SOLID WASTE TRUCK COMPACTIONS
                PER HECTART TO THE YEAR 2000
    YEAR
    1976D
    1976N
    1976T
    1977D
    t977N
    1977T
    1978D
    1978N
    1978T
    1979D
    1979N
    1979T
    1980D
    1980N
    1980T
    1981D
    1981N
    1981T
    1982D
    1982N
    1982T
    1983D
    1983N
    1983T
    1984D
    1984N
    1984T
    1985D
    1985N
    1985T
    1986D
    198GN
    1986T
    1987D
    1987N
    1987T
    1988D
    1988N
    19U8T
    Suburban Single-
    Family Detached
    (SSF)
    0.2V 72
    'J.'.'O't 1
    0 . JO I 3
    0-.3026
    O.C'J^2
    O.JLor.
    0 . 30B 1
    •J.l;C . OO"O
    o.33K'i
    ''. J370
    0.00*; 6
    0.3''. ;i
    0.. ','...':•
    Suburban
    Duplexoi
    (SO)
    O.^O'K)
    U.OS! 1
    O.bl)l 1
    O.o 14')
    U.Ub2U
    0 .{5 660
    O.H202
    U.Ob3O
    U.i-822
    O.b^42
    O.U539
    0.0932
    O.b546
    U.U545
    0.9092
    O.b6'5!
    0.0553
    O.V204
    O.b7':>8
    0.055V1
    0.931 7
    O.f>865
    O.U566
    0.9-t32
    O.o9/-l
    0.05/3
    O.VSld
    0.90/1
    0.05/9
    0.9651
    0.9169
    0.05vdo
    O.V/55
    0.926*3
    0.05^2
    0.9tk>0
    O.«:J-K<
    o.u'V/'H
    O.1'1'-1.') /
    Urban Row
    Apartment!
    (UR)
    ! . /3ul
    0.b3/4
    2.26/5
    1 . /ol 4
    0.54/1
    2 .30-1'.)
    1 .70J3
    0 . 55 /O
    2.3503
    1 .32-jrl
    0.56/1
    2.3929
    1 .o'-b2
    0.5741
    2.4223
    1 .8709
    0.5bl 1
    2 . ^ 52 1
    1 .H940
    0.5i;y3
    2.4823
    1 .9173
    0.5°55
    2.S12^
    1 ,9'!-jy
    0.602^
    2.543/
    ! .961 -:
    0.0094
    2.5/12
    1 .9h30
    0.0160
    2.59d9
    2.00-14
    0 .o22o
    2.02/0
    2.0200
    •J.62V3
    2 . o 5'j 4
    Dense Urban
    Apartments
    (DU)
    3.3271
    2.99b2
    6.3253
    3.3r73
    3.Ob25
    6.4.j^a
    3.44H6
    3.107 7
    6.vj563
    3.51 1 I
    3. 1 64 'j
    6.o7b.J
    3.5^42
    3.2029
    6./57I
    J.50bO
    3.2423
    6.-i^02
    3.6^-22
    3.2d?2
    6. ^2^4
    3.6H/0
    3.3225
    /.;)()Vi;>
    3. /3:-M
    3.3034
    /.o"1-.-;
    3. /727
    3 . 3 09 /
    7 . 1 72 4
    3.JI34
    3 . 4 36 4
    /.24^0
    3.: 3 5 -'6
    3.4/36
    / . Wi' 1
    3. -3 «6 2
    3.5111
    /.40/3
    Very Dense Urban
    Apartments
    (VDU)
    H..M2H
    /.40O9
    15.6137
    ^.301^
    /.^>349
    lh.^963'
    o'.5 12"
    '/.6/12
    i6.i rJ40
    d.6660
    / .C5 10 1
    16.4 770
    o.7/3^
    7.9062
    16.6 /96
    0.^.^1 A
    3.0034
    1 6 .>'r-<4tf
    0.0906
    b . i 0 1 c:
    1 /.(.'025
    9.1012
    b.201 5
    17 .3027
    V.<>132
    ij.302'1
    1 /.-ji'j^
    9.3127
    H.3«;>o
    17. /04 7
    9.4132
    8.4H27
    1 7.11^59
    «.bl4Q
    >).5 /43
    IH.OhO;>
    9.01.77
    .S.f.^-jO
    1H .2.<4l;
                           5-26
    

    -------
    TABLE 5-10  (CONTINUED)
    YEAR
    
    1989D
    1989N
    1989T
    1990D
    1990N
    1990T
    1991D
    1991N
    1991T
    1992D
    1992N
    1992T
    19930
    1993N
    1993T
    19940
    1994N
    1994T
    19950
    1995N
    1995T
    1996D
    1996N
    1996T
    1997D
    1997N
    1997T
    1998D
    1998N
    1998T
    19990
    1999N
    1999T
    2000D
    2000N
    2000T
    Suburban Single-
    Family Detached
    (SSF)
    0.3blH
    0.0049
    0.350 /
    0.3546
    0.004V
    0.3:;9b
    0.3b/5
    0. (.'<>'! 9
    O . 3o2b
    0 .3604
    i> .• H;50
    (;.3ob4
    O.J6 33
    0 . <.O5o
    O.JObJ
    O..^o3
    '., . 005 1
    C..J/I j
    0.3oFd
    0.0051
    U . J, 7 3 9
    0.3713
    0.005 i
    0.3765
    O . 3 ?3c.'
    O.t>052
    u.J/^i
    u.376b
    u . OO'i;.'
    0.331 /
    (J . 8 79 1
    0 .00^2
    0.3H43
    U. J'.j] 7
    (} .'KJ53
    0 . 3i: /O
    Suburban
    Duplexes
    (SD)
    0.94/0
    0.0605
    1.00/5
    0.9546
    0.0610
    1 .0156
    0.9624
    0.061 5
    1 .023d
    0.9702
    0,0620
    1 .0321
    0.9730
    0.0.625
    1 .0405
    0.9H59
    O.0630
    i .0489
    0.9927
    0.0634
    1 .0562
    0.9996
    0.063H
    1 .0634
    1 .00 A 5
    O.O643
    1 .w70S
    1 .0134
    O.Oo4 /
    1 .0732
    1 .0204
    0.0652
    1 .0856
    1 .02/5
    0.0050
    1 .093 1
    Urban Row
    Apartments
    (UR)
    2.04/9
    0.636 1
    2.684 1
    2.0645
    0.641 3
    2.7058
    2.0812
    O.o465
    2.7277
    2.0981
    0.651 7
    2.7^98
    2.1151
    0.6570
    2.772!
    2 . i 322
    0.6623
    2.7045
    2. 1469
    0.6 60 9
    2.yi38
    2.1618
    0.0715
    2.b332
    2.1 /67
    J.o/u 1
    2.b528
    2 . i " 1 /
    0.6oOH
    2.8725
    2.2068
    0.68r>5
    2.b923
    2.2220
    0.6902
    2.9122
    Dense Urban
    Apartments
    (DU)
    3.93b3
    3.-j490
    /.4^i73
    3.9 /02
    3.57.77
    7.5479
    4 . 002 4
    3. 6 Oo 7
    7.6091
    4.0348
    3.0359
    7.6707
    4.0675
    3.6654
    /.732b'
    4 . I 00 4
    3.695!
    /./955
    4. 1 2b7
    3.7200
    7.3493
    4. i S72
    3.7462
    /.9034
    *4.IH59
    .1. I U i
    /.^5f-'0
    4 . 1 \ A H
    3 . / Oh i
    3.0129
    4.2438
    3.8243
    8.06H2
    4.2731
    3.^507
    8.1233
    Very Denje Urban
    Apartments
    (VDU)
    • 9. /2I5
    H.7605
    lb.4.^G
    o.b003
    d . .- 3 1 A
    <~H . 6 3 1 7
    o.b797
    b.9030
    Ib.7b26
    9.9597
    b .9 75 1
    18,984!-!
    1 0.0404
    9.047H
    19.0 He-: 2
    1 0 . 1 2 i 7
    9.1211
    19.^428
    10.1915
    9 . 1 c KJ
    19.3 755
    10.2619
    9 . s. 4 7 <
    19.5092
    1 0 . 332 7 '
    " .3 It 2
    19.o-tJ.--i
    lij.-iu'to
    9!j/5.4
    19. .7 70 4
    10.4/57
    9 ,/MOI
    10.0159
    10.5480
    o .5ir>3
    20.0533
                                      5-27
    

    -------
         Similarly, Exhibit 5-C gives the values of L^n for the five dwelling
    
    categories to the year 2000.  The values for L^ and 1^ were calculated using
    
    Equation 5-10 except that the source time, t. was calculated using the
                                                s
    Table 5-9 values for day and night, respectively, and the reference time
    
    tr, was 54,000 sec for day and 32,400 sec for night.
    
         The minimum value of Iy  is attained at the time that the entire fleet
    
    is composed of trucks quieted by the regulation. After this date, the values
    
    of L-,  rise, reflecting the growth rate of the refuse collection activity.
    
    Consideration of Ambient Noise Levels
    
         The previous analysis of compactor noise and calculation of L,  assumes
    
    no background ambient noise levels, i.e., levels of noise due to all other
    
    conditions.  These ambient levels must be considered since it is total noise
                                                           *
    exposure upon which the EPA's assessment of health and welfare impacts rests.
    
         It has been previously determined that day and night ambient levels can
    
    be represented as a function of population density (Reference 5-7) as follows:
    
         ADL = 7.90 x log PD + 29.1                                      (5-11)
         ANL = 9.73 x log PD + 17.4                                      (5-12)
    where
         ADL = ambient daytime equivalent sound level
         ANL = ambient nighttime equivalent sound level
         PD  = population density (people per square mile)
    
         Population densities used in the compactor study are in units of people
    per hectare and can be converted to people per square mile by dividing by
    
    3.861 x 10~3.  The tc
    computed as follows:
              _3
    3.861 x 10  .  The total ambient day-night equivalent sound level, L,  is
                                         5-28
    

    -------
         Suburban Single Family Detached -  56.18
         Suburban Duplexes               -  59.74
         Urban Row Apartments            -  62.67
         Dense Urban Apartments          -  65.94
         Very Dense Urban Apartments     -  67.84
    
         However, for purposes of this analysis, where ambient levels exceed
    
    minimum impact criteria levels  (L^n = 55 dB), the ambient levels were
    
    arbitrarily set instead to a level of 1 dB under the criteria level under
    
    the assumption that ambient levels will be lowered by coordinated Federal,
    
    State and local efforts to reduce noise.
    
         The total day-night average sound  level L,  including ambient levels
    
    and compactor sound levels is calculated as follows:
    Jdn
    = 10 log
    LjL/LO LA/10 "
    10 dn + 10 dn
                                                                      (5-13)
          UIl
    
    where
    
    
         Lj  = the compactor sound levels calculated by Equation 5-6  and
               applied to the options  in the previous section
    
          a
         L,  = ambient noise levels as discussed above.
    
    
         The results of these calculations for each year, area, and option are
    
    presented in Exhibit 5-D at the end of this section.
    
    NOISE IMPACT FROM TRASH COMPACTORS
    
         To assess the impact of compactor noise, a relationship between the
    
    noise levels in terms of L_ and L-,  (Exhibits 5-B and 5-C) and the
                              eq      on
    
    responses of the people exposed to the noise is needed.  Human responses
    
    may vary depending upon previous exposure, age, socioeconomic status,
    
    political cohesiveness, and other social variables.  In the aggregate,
                                         5-29
    

    -------
    however, for residential locations, the average response of groups of people
    
    
    
    is related to cumulative noise exposure as expressed in a measure such as L
    
    
    
    or L-, .  The different forms of response to noise, such as hearing damage,
    
    
    
    speech or other activity interference, and annoyance, and their relationship
    
    
    
    to Lea or Ldn are Discussed in tne EPA Levels Document (Reference 5-5).  For
    
    
    
    the purposes of this study, criteria based on L,  presented in the EPA Levels
    
    
    
    Document are used.  It is assumed that if the outdoor level of L,  is less than
                                                                    dn
    
    
    or equal to 55 dB, (which is identified in the EPA Levels Document as requisite
    
    
    
    to protect the public health and welfare) no adverse impact in terms of general
    
    
    
    annoyance and community response exists.
    
    
    
         The community reaction and annoyance data contained in Appendix D of the
    
    
    
    Levels Document (Reference 5-5) show that the expected reaction to an identifi-
    
    
    
    able source of intruding noise changes from "none" when the day-night average
    
    
    
    sound level of the intruding noise is 5 dB below the level existing without
    
    
    
    the presence of the intruding noise to "vigorous" when the intruding noise is
    
    
    
    19.5 dB above the level before intrusion.  For this reason, a level which is
    
    
    
    20 dB above L, =55 dB is considered to result in a maximum impact on the
    
    
    
    people exposed.  Such a change in level would increase the percentage of the
    
    
    
    population that is highly annoyed by 40 percent of the total exposed population.
    
    
    
    Further, the data in the Levels Document suggest that for environmental noise
    
    
    
    levels which are intermediate between 0 and 20 dB above L, =55 dB, the impact
    
    
    
    varies linearly; that is, a 5 dB excess  (L, =60) constitutes a 25 percent
    
    
    
    impact and a 10 dB excess (L, =65) constitutes a 50 percent impact.
                                          5-30
    

    -------
         For convenience of calculation, percentages of impact may be expressed
    
    as Fractional Impact (FI).  A FI of 1.0 represents an impact of 100 percent,
    
    in accordance with the following formula:
    
           PI _  .05  (L-55)  for L> 55                            ,,-,4,
           " ~ 0             for IX 55                            (* 14}
    
    where L is the observed or measured L(jn for the environmental noise.  Note
    
    that FI can exceed unity for exposures greater than L,  = 75 dB.
    
         The impact of noise may be described in terms of both extensiveness
    
    (i.e., the number of people impacted) and intensiveness (the severity of
    
    impact).  The fractional impact method explicitly accounts for both the extent
    
    and severity of impact.
    
         The Equivalent Noise Impact (ENI) associated with a given level of noise
    
    
    (LJ ) may be assessed by multiplying the number of people exposed to that
    
    level of noise by the fractional impact associated with the level as follows:
                   =  (FIi)Pi                                         (5-15)
    
    where ENI-, is the magnitude of the impact on the population exposed to noise
    
    
    (L* ) and is numerically equal to the number of people who would all have a
    
    
    fractional impact equal to unity (100 percent impacted).  FI. is the fractional
    
    
    impact associated with a day-night average sound level of (L* ); over 55 dB,
    
    and P. is the population exposed to this level of noise.  To illustrate this
    
    concept, if there are 1000 people living in an area where the noise level
    
    exceeds the criterion level by 5 dB (and are thus considered to be 25 percent
    
    impacted, FI = 0.25), the environmental noise impact for this group is the
    
    same as for 250 people who are 100 percent impacted, (1000 x 25% = 250 x 100%).
                                         5-31
    

    -------
         When assessing the total iirpact associated with trash compactor noise,
    
    the observed levels of noise decrease as the distance between the source and
    
    the receiver increase.  The magnitude of the total impact may be computed
    
    by determining the partial impact at each level and summing each of the levels.
    
    The total impact is given in terms of the equivalent number of people impacted
    
    by the following formula:
         ENI =    ?i • Flif                                         (5-16)
               i
    where FI. is the fractional impact associated with (L* ) and P. is the popula-
    
    tion exposed to this level of noise.  In this analysis, the mid- level of each
    
    1 dB sector of levels above L, =55 dB was used in computing ENI.
    
         Without ambient levels included, the distance associated with each 1 dB
    
    decrease in ly  from the source until it reaches the threshold of 55 dB is
    
    determined from the attenuation rates for the various land use types.  However,
    
    with ambient levels included, the determination of distance associated with
    
    each 1 dB decrease in L,  is as follows:
                           dn
         R = R
              o
                     LQ/10
                   10 °
    Lp/10  -     IA./10
    ^             dn
                              (log 2)/d              (5-17)
                                10
    
    where
    
         R    = distance from source
    
         R    = reference noise source distance  (7m)
    
         Lo   = Ldn at source
    
         I^   = L^n at distance R from source
    
         IA^  = ambient noise level
    
         d    = attenuation rate (-6, -6.5, -8 or 8.5 depending on land use
                category)
                                         5-32
    

    -------
         The change in impact associated with regulations on  the  noise  emissions
    
    from trash compactor vehicles may be assessed  by  comparing  the  magnitude
    
    of the impacts, both with and without regulations,  in terms of  the  relative
    
    change in impact  (RCI), which is calculated  from  the following  expression:
    
              RCI  =  100  [EMI (before) - ENI  (after)]
                                  ENI (before)                           (5-18)
    
         Vfciile the exact value of present or  future ENI's may not be  known
    
    precisely, the relative reductions of the ENI  due to noise  regulations - of
    
    primary interest  here—are known with much greater  accuracy than  the absolute
    
    value of the ENI  since the changes in the theoretical components  of ENI can be
    
    well defined.  For instance, it may not be possible to determine  whether the
    
    present estimated ENI due to urban street traffic noise,  an absolute value,  is
    
    actually 0.1 million too high.  However,  it  is possible to  determine, for
    
    example, that the regulation of rear loading truck  mounted  trash  compactors
    
    will not reduce the ENI by more than 0.1 million.   Extensive  investigation  of
    
    such small changes may seem innocuous if  it  is not  kept in  mind that although
    
    truck mounted solid waste compactors represent only a small part  of urban
    
    activity in the United States, their impacts may  be considerable  when measured
    
    by metrics other  than ENI.  Thus, the changes  found to occur  in ENI may help
    
    indicate what equivalent changes would occur in impact measures which are not
    
    used in this analysis but whose absolute values may reflect more  accurately
    
    the effects of compactor noise on people.
    
         As discussed above, the concept of fractional  impact,  expressed in units
    
    of ENI, is most useful for describing relative changes in impact  from a
    
    specified baseline for the purpose of comparing benefits  of alternative
                                         5-33
    

    -------
    regulatory schedules.  In order to assess the absolute impact or benefits
    
    
    corresponding to any regulatory schedule, information on the distribution of
    
    
    population as a function of noise environment is required.  This information
    
    
    is included in this section in the form of tables showing the number of people
    
    
    exposed to different levels of compactor noise.  The anticipated absolute
    
    
    impact of noise upon those individuals exposed to any given noise level may be
    
    
    traced by referring to the various noise effects criteria presented in the
    
    
    Levels Document as well as in this analysis.
    
    
         The resulting noise impact, in terms of ENI, for each land use area is
    
    
    calculated for each regulation schedule and study year by applying the noise
    
    
    reduction of new trucks in combination with lessened emissions from the
    
    
    compactor unit.  A summary of the results of this analysis is displayed
                                                               •
    
    in Table 5-11.  Also included in Table 5-11 is the year by year percentage
    
    
    benefit in extensiveness and severity of impact relative to the impact in
    
    
    19"76.  Tabulated complete results of ENI and RCI are presented in Exhibit
    
    
    5-E at the end of this section.
    
    
         To further illustrate the significant benefits and relief afforded
    
    
    the population by reducing new trash compactor noise levels, Tables 5-12 and
    
    
    5-13 are presented.  In Table 5-12, the number of people exposed to L,  above
    
    
    55 dB, in 5-dB increments, for the existing noise level and the 1991 maximum
    
    
    quieted level for each option is shown.  Table 5-13 is presented as an
    
    
    example to show that the impact is not uniform over the entire population.
                                         5-34
    

    -------
                               TABLE 5-11
    
          EQUIVALENT NUMBER OF PEOPLE IMPACTED  (ENI)  (in millions)
                         PERCENTAGE BENEFIT   (RCI)
         Year
    Base
    One
     Options
    
    Three   Five
    Seven   Silent
    1976 Total
    RCI
    RCI*
    1982 Total
    RCI
    RCI*
    1991 Total
    RCI
    RCI*
    2000 Total
    RCI
    RCI*
    1.62
    0.0
    0.0
    1.20
    26.2
    0.0
    0.99
    39.0
    0.0
    1.03
    36.4
    0.00
    1.62
    0.0
    0.0
    1.00
    38.1
    52.55
    0.47
    71.1
    52.5
    0.52
    67.7
    49.5
    1.62
    0.0
    0.0
    1.14
    29.6
    5.0
    0.68
    57.8
    31.3
    0.77
    52.5
    25.2
    1.62
    0.0
    0.0
    1.03
    36.3
    14.2
    0.47
    71.1
    52.5
    0.52
    67.7
    49.5
    1.62
    0.0
    0.0
    0.93
    42.6
    22.5
    0.47
    71.1
    52.5
    0.52
    67.7
    49.5
    1.62
    0.0
    0.0
    0.63
    61.1
    47.5
    0.36
    77.8
    63.6
    0.38
    76.5
    63.1
    RCI  - percentage benefit from base year  (1976)
    
    RCI* - percentage benefit from base option.  Base option includes
           benefits from medium and heavy truck regulations.
                                   5-35
    

    -------
                              TABLE 5-12
                    PEOPLE EXPOSED TO L,  OVER 55
                                       dn
    
                           (in millions)
    
    Ldn
    55-59
    60-64
    65-69
    >70
    Baseline
    1976
    14.5
    1.7
    .4
    .1
    
    Base
    9.4
    0.7
    0.2
    0.01
    
    One
    5.4
    0.42
    0.03
    0.0
    Options
    Three
    7.2
    0.49
    0.08
    0.0
    (1991)
    Five
    5.4
    0.42
    0.03
    0.0
    
    Seven
    5.4
    0.42
    0.03
    0.0
    
    Silent
    4.1
    0.30
    0.01
    0.0
    Total       16.7    10.31    5.9     7.8      5.9      5.9      4.4
                                  5-36
    

    -------
                               TABLE 5-13
    
              PEOPLE EXPOSED TO Ldn >55 FOR EACH LAND USE TYPE
    
                             (in millions)
    Base Option (1976)
    L,
    an
    55-59
    60-64
    65-69
    >70
    Total
    ENI
    SSF
    
    0.0
    0.0
    0.0
    0.0
    0.0
    0.0
    SD
    
    0.0
    0.0
    0.0
    0.0
    0.0
    0.0
    UR
    
    5.6
    .43
    0.0
    0.0
    6.0
    .86
    DU
    
    7.0
    1.0
    .33
    .04
    8.4
    1.49
    VDU
    
    1.9
    .3
    .1
    .04
    2.3
    .45
    TOTAL
    
    14.5
    1.7
    .4
    .1
    16.7
    2.8
    SSF - Suburban Single Family Detached
    SD  - Suburban Duplexes
    UR  - Urban Row Apartments
    DU  - Dense Urban Apartments
    VDU - Very Dense Urban Apartments
                                      5-37
    

    -------
    REDUCTION OF INDIVIDUAL TPASH COLLECTION NOISE IMPACT
    
    
    
         Until now, the analysis of truck mounted trash compactor noise impact
    
    
    
    has been concerned with the contribution that compactors make to average
    
    
    
    day-night urban noise (Ldn).  The impact contributions which are calculated
    
    
    
    in this way are somewhat generalized and do not necessarily represent specific
    
    
    
    impact situations.  For example, they do not reflect the fact that almost the
    
    
    
    entire amount of daily acoustical energy contributed by trash compactors in an
    
    
    
    area may be generated in only a few minutes of noise during trash collection
    
    
    
    activity.  Yet this intrusive, short, intense event may be one of the most
    
    
    
    annoying noise-related situations faced over the entire day by a large number
    
    
    
    of residents.
    
    
    
         Annoyance is difficult to describe.  It may pass rapidly and the cause
    
    
    
    remain unnoticed.  Or it may add to other agents causing stress and lead to
    
    
    
    physiological problems (Reference 5-15).
    
    
    
         A loud, short-duration noise event may also interrupt people's activi-
    
    
    
    ties, such as conversation or sleeping.  The interruptions may again lead to
    
    
    
    annoyance, but in themselves they may represent a degradation of health and
    
    
    
    welfare.  For instance, in a recent study of the annoyance caused by different
    
    
    
    levels of simulated aircraft noise for people seated indoors watching televi-
    
    
    
    sion, annoyance was seen to be mediated at least in part by speech interference.
    
    
    
    Not only is the TV program or other person speaking, more difficult to hear
    
    
    
    during the time in which there is a noisy event, but it has been observed that
    
    
    
    the distraction which may occur from the conversation in which the person is
    
    
    
    engaged may contribute in itself to annoyance (Reference 5-9).  The speaker
    
    
    
    may behaviorally attempt to cope with the noise intrusion either by increasing
                                         5-38
    

    -------
    his or her vocal effort, or in more severe cases, by discontinuing conversation
    
    
    
    altogether.  Such behavioral reactions may be quite indicative of general annoy-
    
    
    
    ance and disturbance with the intrusive noise event.  Similarly, the reaction  to
    
    
    
    a noise intrusion during sleep may be in many cases a change  in sleep stage  (from
    
    
    
    "deeper" to "lighter" stage) or, if the intrusive noise is intense or long enough,
    
    
    
    an actual awakening may result.  In either case, repeated disturbance of people's
    
    
    
    activities may be expected to adversely affect their well-being.  Covariance of
    
    
    
    verbalized annoyance with the interference of activities has  been amply demonstrated
    
    
    
    in many social surveys (Reference 5-5, 5-16, 5-17, 5-18).
    
    
    
         For these reasons it seems appropriate for the analysis  of the noise
    
    
    
    impact associated with trash collection to examine the activities of speech
    
    
    
    communication and sleep in some detail, both in order to determine the direct
    
    
    
    effect trash compactor noise may have on them, as well as to  aid in an estima-
    
    
    
    tion of the total annoyance attributable to the noise.  These single event
    
    
    
    noise intrusions become particularly important in light of other regulations
    
    
    
    and efforts to reduce the noise from other urban noise sources, i.e., without
    
    
    
    a reduction in emissions from trash compactors, these units may very well
    
    
    
    stand out as one of the most, if not the roost, intrusive noise source.
    
    
    
    Sleep Disturbance
    
    
    
         The sleep periods of humans are typically classified into five stages.
    
    
    
    In Stages I and II sleep is light and the sleeper is easily awakened.  Stages
    
    
    
    III and IV are states of deep sleep where a person is not as  easily awakened
    
    
    
    by a given noise, but the sleep may shift to a lighter stage  of sleep.  An
    
    
    
    additional stage is termed REM, rapid eye movement, and corresponds to the
                                         5-39
    

    -------
    dream state.  When exposed to an intrusive noise, a sleeper may (1) show
    response by a brief change in brainwave pattern, without shifting sleep
    stages; (2) shift to a lighter sleep stage; or  (3) awaken.  The greatest known
    impact occurs due to awakening, but there are also indications that disruption
    of the sleep cycle cause impact (irritability, etc.) even though the sleeper
    may not awaken (Reference 5-14).
         TVra recent studies (Reference 5-10, 5-11) have summarized and analyzed
    sleep disturbance data.  These studies show a relationship between frequency
    of response (disturbance or awakening) and noise level, and furthermore
    demonstrated that the duration of the noise stimulus is a critical parameter
    in predicting response.  The studies also showed that the frequency of sleep
    disruption is predicted by noise exposure better than is arousal or behavioral
    awakening.  ff\ important fact is that sleep disturbance is defined as any
    physiological change which occurs as a result of a stimulus.  The person
    undergoing such disturbance may be completely unaware of being afflicted;
    however, the disturbance may disrupt the total  sleep quality and thus lead to,
    in certain situations, behavioral or physiological consequences (Reference
    5-14). To determine the magnitude of sleep disturbance caused by trash com-
    pactors, some consideration must be made of the hours of trash collection
    activity.  Table 5-14 shows the percentage of day, evening and night time
    collections occurring in the trash collection model used for this analysis.
    Although some fraction of the population sleeps during the day, it is assumed
    for this analysis that sleep occurs only during nighttime hours and only the
    fraction of total refuse collection activity that occurs during nighttime
    hours is applicable.
                                         5-40
    

    -------
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    5-41
    

    -------
         To determine impact on sleep and the reduction in sleep disturbance
    
    
    
    achievable with noise emission regulations for compactor trucks, the following
    
    
    
    method was utilized:
    
    
    
         Step 1.  Average SEL levels at 7-meters were computed for all collector
    
    
    
                  truck types (rear, front and side loaders).  These data are
    
    
    
                  presented in Exhibit 5-F at the end of this section.
    
    
    
         Step 2.  The distances from the compactor operation at which these levels
    
    
    
                  are decreased in steps of 1 dB were calculated. Propagation laws
    
    
    
                  employed for each land use area were discussed previously in
    
    
    
                  this Section.
    
    
    
         Step 3.  The number of people living in each 1 dB band from the 7-meter
    
    
    
                  level is calculated by multiplying the population density within
    
    
    
                  each land use area in which trash collection activity takes
    
    
    
                  place by the width of the 1 dB bands (calculated in Step 2) and
    
    
    
                  then by the number of trash compactions within the given land
    
    
    
                  uses.  The number of trash compactions by land use area is
    
    
    
                  presented in Table 5-10.
    
    
    
         Step 4.  The average sleep impact is calculated for each of the 1 dB
    
    
    
                  bands.  The impact, expressed as a fraction, is found from a
    
    
    
                  curve relating sleep impact to sound exposure level (Figure 5-2
    
    
    
                  for disruption and Figure 5-3 for awakening).  This procedure is
    
    
    
                  analogous to the fractional impact method used for calculating
    
    
    
                  ENI for generalized impact.
    
    
    
         Step 5.  The relative total impact is computed in each band by multiply-
    
    
    
                  ing the number of people living in each band (from Step 3) by
    
    
    
                  the associated fractional impact (from Step 4).
    
    
    
    
    
                                         5-42
    

    -------
         To determine the resulting SEL level  inside the  hone,  the  following
    
    
    
    transmission losses were applied to the propagated  noise  levels,  depending
    
    
    
    on land use.
    
    
    
         1.   A noise level reduction of 20 dB was  used for Urban Row,  Dense  and
    
    
    
              Very Dense Urban areas to represent an average  of the case in which
    
    
    
              the windows of half of the homes are  open and half are  closed
    
    
    
              because of the type of building  construction (Ref. 5-19).
    
    
    
         2.   A noise level reduction of 15 dB is used  for suburban and rural
    
    
    
              areas to represent an average of the  case in which the  windows  of
    
    
    
              all homes are open (Ref. 5-19).
    
    
    
         Ihe fractional impact of the disruption of sleep by  noise  is given
    
    
    
    in Figure 5-2 where the frequency of no sleep disturbance (as measured
    
    
    
    by changes in sleep state, including behavioral awakening)  is plotted as  a
    
    
    
    function of the SEL of the intruding noise.  Note  in  Figure 5-3 that levels
    
    
    
    exceeding SEL = 95dB are an extrapolation  of the data.  It  also should be
    
    
    
    noted that, in the calculations of the  impact of trash collection noise,  the
    
    
    
    analysis ignored impact contribution below SEL  = 50 dB.   This cut-off was
    
    
    
    selected to account for the continuous presence of  ambient  noise.  Efcwever
    
    
    
    indoor sound exposure levels from trash collection  activity rarely  exceed
    
    
    
    SEL = 82 dB. Likewise, frequency of behavioral  awakening  as a function
    
    
    
    of SEL is shown in Figure 5-3.  These relationships,  adapted from Figures
    
    
    
    1 and 2 of Reference 5-10, consist of data derived  from a review  of most
    
    
    
    of the recent experimental sleep data and  noise relationships.  The curves
    
    
    
    of Figures 5-2 and 5-3 have been modified  slightly  from those contained in
                                         5-43
    

    -------
       Q_
    
       2
     S o.
     J:  Cl
    Q_ —
      «/}
    
    *.' O
     w 7-
     n *—
    •jr o-
      TJ
    1001
    
    
    
     90
    
    
    
     80
    
    
    
    
     70
    
    
    
    
     60
    
    
    
     50
    
    
    
     40
    
    
    
     30
    
    
    
     20
    
    
    
    
     10
                                          Sleep Disruption
    
                                          FI  =  0.0135 (SEL
    - 37)
               30    40    50    60    70     80     90    100    110   120
    
    
                           Sound Exposure Level (SEL)/ dB
          Figure  5-2.   Fractional Impact of Sleep Disruption
                        as a Function of Sound Exposure Level
    
                        (Regression of Sleep Disruption on SEL)
                                    5-44
    

    -------
        100
         80
     o
     O)
    
     C.
     V
         60
     J   40
     a
     CQ
    
     H-
     o
    
     X
     u
    
     O
    
    
    
     I .20
          0
                            (SEL - 50)
           50
    70          90          110
    
      Sound Exposure Level (dB)
    130
    Figure 5-3.  Frequency of Arousal or Awakening from Sleep
    
                 in College and Middle Aged Men and Woman as
    
                 a Function of Sound Exposure Level (regression
    
                 of percent awakened on SEL)
                                5-45
    

    -------
    References 5-10 and 5-11*.  The curves indicate the approximate degree of
    impact (percent disruption or awakening) as a function of noise level.  Further-
    more, the noise data contained within these references were measured in terms
    of "effective perceived noise level" with a reference duration of  .5 second
    (EPNL ^ sec ) was converted to SEL by the following approximate relationship:
            SEL = EPNL - coo-16 dB                                       (5-19)
                      • J OCL.
         The ENI for sleep disturbance and awakening was derived for each of
    the regulatory schedules and study years under investigation using the
    formula, ENI =/"^pi•*"•[•  The FI equations for sleep disturbance and sleep
    awakening are based on Figures 5-2 and 5-3.  Table 5-15 shows the sleep
    disturbances (ENI) for each option and the percent reduction in impact accom-
    plished by each regulation with reference to the no regulation case for
    selected years.  A complete listing of the results is provided in Exhibit 5-G
    at the end of this section.
         Table 5-16 shows the sleep awakening ENI and the percent reduction in
    awakening-related impacts accomplished by each regulation with reference to
    the no regulation case for selected years.  A complete listing is presented
    in Exhibit 5-H at the end of this section.
    *Personal Communication, J. S. Lukas, July, 1976.
                                          5-46
    

    -------
         The probability of disruption was a compound probability which  accounted
    
    
    
    for the number of nightly compactions in each area.*  The  compound probabilities
    
    
    
    were calculated as:
    
    
    
    
    
              Pa   - l  -  [(Pna) °]
    
    
    where
    
    
    
    
              P1   =  probabilty of  sleep disruption at L1
               a
    
    
    
              P1   =  probability of no  disruption  = 1 -  [L1 - 37)  (.0135)]
               na
    
    
              C    =  compactions per night per  hour from Table 5-14
    
    
    
    
              L1   =  noise level in the i   increment.
    
    
    
    
    
    The probability factor was multiplied by the population contained in the 1-dB
    
    
    
    annulus and the sum of the annuli resulted in the number of equivalent people
    
    
    
    per night with a probability of  1.0  of having sleep physiologically  disrupted.
    
    
    
         The probability of an awakening was computed in  the same manner as the
    
    
    
    probability of disruption except that the probability of no awakening  used
    
    
    
    the following basic equation:
              Pna  =  1 ~  tlji  ~ 50)  <-
         It should be noted that the calculation of people-impacts  is a measure of
    
    
    
    people times events.  One person impacted  (e.g. awakened) 10 times is assumed
    
    
    
    to be equivalent to 10 people being impacted one time each.
    *For example, if the probability of awakening is 0.34 for a single event it
    
     is 0.56 for two events and 0.71 for three.
                                         5-47
    

    -------
                                     TABLE 5-15
    
                               SLEEP DISTURBANCES ENI
                      (ENI in millions; RCI percentage benefits)
    
                                             Options
    
          Year            Base      One      Three      Five     Seven     Silent
    Base 1976 Total
    RCI
    RCI*
    1982 Total
    RCI
    RCI*
    1991 Total
    RCI
    RCI*
    2000 Total
    RCI
    RCI*
    34.1
    0.0
    0.0
    23.4
    31.5
    0.0
    18.0
    47.2
    0.0
    19.0
    44.3
    0.0
    34.1
    0.0
    0.0
    19.1
    44.0
    18.4
    7.6
    77.6
    57.8
    8.1
    76.3
    57.4
    34.1
    0.0
    0.0
    22.2
    34.8
    5.1
    7.6
    77.6
    57.8
    8.1
    76.3
    57.4
    34.1
    0.0
    0.0
    17.7
    47.9
    24.4
    7.6
    77.6
    57.8
    8.1
    76.3
    57.4
    34.1
    0.0
    0.0
    17.7
    47.9
    24.4
    7.6
    77.6
    57.8
    8.1
    76.3
    57.4
    34.1
    0.0
    0.0
    11.0
    67.7
    53.0
    4 4
    Tt • *X
    87.1
    75.6
    4 7
    ~ * /
    86.2
    75.3
    RCI  - percentage benefit from base year  (1976)
    RCI* - percentage benefit from base option  in given
           year.  Base option includes benefits from
           medium and heavy truck regulations.
                                         5-48
    

    -------
                                    TABLE 5-16
    
                               SLEEP AWAKENINGS ENI
                   (ENI in millions; RCI percentage benefits)
    
                                         Options
      Year                Base    One    Three    Five   Seven   Silent
    Base 1976
    
    
    1982
    
    
    1991
    
    
    2000
    
    
    Total
    RCI
    RCI*
    Total
    RCI
    RCI*
    Total
    RCI
    RCI*
    Total
    RCI
    RCI*
    30
    0
    0
    20
    31
    0
    16
    47
    0
    17
    44
    0
    .3
    .0
    .0
    .8
    .3
    .0
    .1
    .0
    .0
    .0
    .0
    .0
    30
    0
    0
    17
    43
    18
    6
    77
    57
    7
    76
    57
    .3
    .0
    .0
    .0
    .9
    .3
    .8
    .5
    .8
    .2
    .2
    .6
    30.
    0.
    0.
    19.
    34.
    4.
    10.
    64.
    33.
    11.
    62.
    33.
    3
    0
    0
    8
    7
    8
    7
    7
    5
    3
    8
    5
    30
    0
    0
    18
    38
    10
    6
    77
    57
    7
    76
    57
    .3
    .0
    .0
    .7
    .2
    .1
    .8
    .5
    .8
    .2
    .2
    .6
    30.3
    0.0
    0.0
    15.8
    47.8
    24.0
    6.8
    77.5
    57.8
    7.2
    76.2
    57.6
    30.3
    0.0
    0.0
    9.8
    67.7
    52.9
    3.9
    87.1
    75.8
    4.2
    86.1
    75.3
    RCI  - percentage benefit from base year (1976)
    RCI* - percentage benefit from base option in given
           year.  Base option includes benefits from
           medium and heavy truck regulations.
                                         5-49
    

    -------
    Speech Interference
         As is the case with sleep disruption, speech interference occurs as a
    result of individual noise events.  Interference of speech (i.e., the interrup-
    tion of conversation) due to trash collection activity occurs when externally-
    propagating collection noise exceeds certain levels.  However, unlike sleep
    disruption, the impact of noise on speech interference is not cumulative.
    That is, the duration of the noise event causing speech interference does not
    affect the kind of interference, although it does, of course, affect the
    duration of the interference, whereas in sleep disturbances the cumulative
    effect of noise can change the impact from one of sleep disturbance to actual
    sleep awakening.  Therefore, the appropriate noise metric for measuring speech
    interference is an L__ occurring for the duration of the event, rather than a
                        eq
    SEL which considers the effects of the duration of the event.
         Also, unlike sleep disruption, interference of speech may occur both
    indoors and outdoors.  The degree of speech interference from noise is
    dependent on the particular circumstances involved. Noise level and duration,
    separation distance of the conversers, and loudness of voice are all factors.
    The relationship of these factors is described in Reference 5-5. Sentence
    intelligibility of 95% with a normal voice is assumed as the minimum value for
    satisfactory outdoor communication.  However, 100% speech intelligibility in a
    normal voice is considered necessary for acceptable conversation in the indoor
    environment.  The methodology for determining outdoor and indoor speech
    interference will be discussed separately in the following sections.
                                         5-50
    

    -------
    Outdoor Speech Interference
    
    
    
         The population exposed to potential outdoor speech interference are those
    
    
    
    people who are outside of any building but not along a street.  The population
    
    
    
    exposed does not include pedestrians or people engaged in other forms of trans-
    
    
    
    portation during the day. Rather, it is intended to include those time-periods
    
    
    
    in which people are relaxing outdoors - either outside a home, business, or
    
    
    
    cultural institution.
    
    
    
         Outdoor speech interference due to trash collection activity occurs
    
    
    
    when the noise level of the activity exceeds a typical outdoor background
    
    
    
    level of 55 dB.  Although average outdoor urban ambient noise (L^n) tends
    
    
    
    to be about 5 dB greater than the assumed outdoor background level, a concerted
    
    
    
    effort to reduce urban noise in the future would make the 55 dB level a more
    
    
    
    appropriate figure to use for this analysis.
    
    
    
         Propagation loss is computed for each land use category in the same
    
    
    
    manner as discussed in the section, Sound Propagation and Amplification.  The
    
    
    
    distances at which the noise levels fall off in 5 dB steps are computed,
    
    
    
    and the equivalent number of "impacted people" living within each band is
    
    
    
    derived using the fractional impact relationship of the criteria shown in
    
    
    
    Figure 5-4 (Reference 5-5).  This number is multiplied by the number of
    
    
    
    compaction cycles occurring during the time in which people are estimated to
    
    
    
    be outdoors each day (.4 hours, i.e., 2.7 percent of the day) (Reference 5-13)
    
    
    
    to give the total ENI due to outdoor speech interference.
    
    
    
         The potential ENI for outdoor speech communication for selected
    
    
    
    years is given in Table 5-17 for the study regulation schedules.  The
    
    
    
    relative change in impact obtained with these regulations also is tabulated.
    
    
    
    Complete results are presented in Exhibit 5-1 at the end of this section.
    
    
    
    
    
                                         5-51
    

    -------
                                    TABLE 5-17
    
                            OUTDOOR SPEECH INTERFERENCE
                     (ENI in millions;  RCI percentage benefits)
    
    Year
    Base 1976 Total
    RCI
    RCI*
    1982 Total
    RCI
    RCI*
    1991 Total
    RCI
    RCI*
    2000 Total
    RCI
    RCI*
    
    Base
    30.5
    0.0
    0.0
    19.3
    36.8
    0.0
    15.0
    50.7
    0.0
    15.7
    48.7
    0.0
    
    One
    30.5
    0.0
    0.0
    17.0
    44.3
    11.9
    8.1
    73.5
    46.0
    8.4
    72.3
    46.5
    Options
    Three
    30.5
    0.0
    0.0
    18.7
    38.7
    3.1
    11.4
    62.5
    24.0
    11.9
    60.9
    24.2
    
    Five
    30.5
    0.0
    0.0
    17.7
    41.9
    8.3
    8.1
    73.5
    46.0
    8.4
    72.3
    46.5
    
    Seven
    30.5
    0.0
    0.0
    15.9
    48.0
    17.6
    8.1
    73.5
    46.0
    8.4
    72.3
    46.5
    
    Silent
    30.5
    0.0
    0.0
    10.7
    64.9
    44.6
    6.1
    80.0
    59.3
    6.4
    79.0
    59.2
    RCI  - percentage benefit from base year (1976)
    RCI* - percentage benefit from base option in given
           year.  Base option includes benefits from
           medium and heavy truck regulations.
                                        5-52
    

    -------
       100
     £
     o
     fc
    a.
        80
     u
    
    
    1  60
    
    "5
     u
     D
        40
    u
    
    0)
    
    
    -------
    Indoor Speech Interference
    
    
    
         Indoor speech interference is assumed to occur when trash collection
    
    
    
    activity noise propagates through walls of residences or buildings and remains
    
    
    
    above a typical indoor background level of 45 dB.  The criterion of impact for
    
    
    
    indoor speech interference is given in Figure 5-5 (Reference 5-5).  The curve
    
    
    
    is based on the reduction of sentence intelligibility relative to the intelli-
    
    
    
    giblity which would occur at 45 dB. If people are conversing indoors during
    
    
    
    the time a trash compacting operation is occurring, the probability of a
    
    
    
    disruption in communication is given by Figure 5-5.  Before the fractional
    
    
    
    impact is computed, the same reductions in levels due to transmission through
    
    
    
    walls which were used previously must be taken into account.  During times
    
    
    
    when trash collection activity is not occurring, no trash collection speech
    
    
    
    interference occurs.  It is estimated that people spend an average of 13
    
    
    
    daytime hours inside each day, i.e., they spend about 86.7 percent of the day
    
    
    
    inside (Reference 5-13).  Taking the fraction of the daytime spent inside and
    
    
    
    the number of compaction cycles occurring during these hours the  indoor speech
    
    
    
    impact can be computed in the same manner as the outdoor impact.  A summary of
    
    
    
    the estimated ENI for indoor speech interference and the percent reduction are
    
    
    
    given in Table 5-18 for each of the regulatory options. A complete listing of
    
    
    
    results is presented in Exhibt 5-J at the end of this section.
    
    
    
         Adding these impacts to the outdoor impact described above gives the
    
    
    
    total estimated equivalent noise impact due to the interference of speech by
    
    
    
    trash collection operations.  The result is the equivalent number of people
    
    
    
    who are unable to conduct normal conversation during each two minute collection
    
    
    
    cycle as shown in Table 5-19.  The associated percent reduction is also shown
    
    
    
    in Table 5-19.
    
    
    
    
    
                                         5-54
    

    -------
       100
     c
     o
     U
     O
     O.
     U
     O
     I)
     c
     tt)
     «J
    t/
        80
        60
        40
    'g   20
                       50
          55          60          65           70
    
    Level of Continuous Noise Causing Interference (dB)
            Figure 5-5.  Fractional Impact of Indoor Speech  Interference
                         (Relaxed Conversation at Greater Than 1  Meter Separation,
                         45 dB Background in the Absence of  Interferring Noise.)
                                          5-55
    

    -------
                                 TABLE 5-18
    
                         INDOOR SPEECH INTERFERENCE
                   (ENI in millions; RCI percentage benefit)
    
                                          Options
       Year                Base    One    Three    Five   Seven   Silent
    Base 1976
    
    
    1982
    
    
    1991
    
    
    2000
    
    
    Total
    RCI
    RCI*
    Total
    RCI
    RCI*
    Total
    RCI
    RCI*
    Total
    RCI
    RCI*
    0
    0
    0
    0
    36
    0
    0
    49
    0
    0
    46
    0
    .92
    .0
    .0
    .59
    .0
    .0
    .47
    .4
    .0
    .49
    .5
    .0
    0
    0
    0
    0
    43
    11
    0
    73
    46
    0
    71
    46
    .92
    .0
    .0
    .52
    .7
    .9
    .25
    .3
    .8
    .26
    .8
    .9
    0.
    0.
    0.
    0.
    37.
    3.
    0.
    61.
    25.
    0.
    59.
    24.
    92
    0
    0
    57
    9
    4
    35
    5
    5
    37
    3
    5
    0.92
    0.0
    0.0
    0.54
    41.2
    8.5
    0.25
    73.3
    46.8
    0.26
    71.8
    46.9
    0
    0
    0
    0
    47
    18
    0
    73
    46
    0
    71
    46
    .92
    .0
    .0
    .48
    .4
    .6
    .25
    .3
    .8
    .26
    .8
    .9
    0.92
    0.0
    0.0
    0.32
    65.2
    45.8
    0.17
    81.5
    63.8
    0.18
    80.4
    63.3
    RCI  - percentage benefit from base year  (1976)
    RCI* - percentage benefit from base option  in given
           year.  Base option includes benefits from
           medium and heavy truck regulations.
                                         5-56
    

    -------
                              TABIE 5-19
              TOTAL OUTDOOR AND INDOOR SPEECH  INTERFERENCE
                 (ENI in millions; RCI percentage benefit)
    
                                       Options
    Year                Base    One    Three    Five   Seven   Silent
    1976 Total
    RCI
    RCI*
    1982 Total
    RCI
    RCI*
    1991 Total
    RCI
    RCI*
    2000 Total
    RCI
    RCI*
    31.4
    0.0
    0.0
    19.9
    36.0
    0.0
    15.5
    50.6
    0.0
    16.2
    48.4
    0.0
    31.4
    0.0
    0.0
    17.5
    44.3
    12.1
    8.4
    73.2
    45.8
    8.7
    72.3
    46.3
    31.4
    0.0
    0.0
    19.3
    38.5
    3.0
    11.8
    62.4
    23.9
    12.3
    60.8
    24.1
    31.4
    0.0
    0.0
    18.2
    42.0
    8.5
    8.4
    73.2
    45.8
    8.7
    72.3
    46.3
    31.4
    0.0
    0.0
    16.4
    47.8
    17.6
    8.4
    73.2
    45.8
    8.7
    72.3
    46.3
    31.4
    0.0
    0.0
    11.0
    65.0
    44.7
    6.3
    79.9
    59.4
    6.6
    79.0
    59.3
    RCI  - percentage benefit from base year (1976)
    RCI* - percentage benefit from base option in given
           year.  Base option includes benefits from
           medium and heavy truck regulations.
                                 5-57
    

    -------
    SUMMARY AND CONCLUSIONS
    
    
    
    
         The impacts from trash compactor noise are based primarily on a single
    
    
    
    equation:
    
    
    
                          ENI  =  FI  x  P
    
    
    
    where
    
    
    
         ENI is the equivalent noise impact
    
    
    
         FI  is the fractional impact produced by the noise
    
    
    
    and  P   is the population impacted.
    
    
    
    
    This basic equation finds many forms as the investigated area of  impact changes
    
    
    
    from urban noise to individual collection events. Table 5-20 summarizes the
    
    
    
    forms used in the preceding sections. Three areas of impact are distinguished:
    
    
    
         a.  Annoyance from urban noise.
    
    
    
         b.  Sleep disturbance from individual events.
    
    
    
         c.  Speech interference from individual events.
    
    
    
         The following conclusions may be drawn from the data shown in Tables
    
    
    
    5-11, 5-15, 5-16,  and 5-19:
    
    
    
         (1)  Substantial benefits in terms of reduction in extensiveness and
    
    
    
              severity of impact are realized as a result of a compactor regula-
    
    
    
              tion in concert with reduced new truck emissions as promulgated
    
    
    
              (Reference 5-1).
    
    
    
         (2)  Relief afforded by limiting noise emissions from newly  manufactured
    
    
    
              truck-mounted trash compactors adds significantly to the benefits
    
    
    
              consequent to a new truck regulation, i.e., absence of  a trash
    
    
    
              compactor regulation will negate the full potential benefits that
    
    
    
              may be realized.
                                          5-58
    

    -------
                              TABLE 5-20
    
    
             SUMMARY  EQUATION  DESCRIBING  CALCULATION OF
    
                   TRASH COMPACTOR NOISE  IMPACTS
        Basic Equation:   Equivalent Noise  Impact =
                           Fractional Impact x Population
    
    
    a.  Impact of  total urban  noise.
                                   Ldnmax,  I           „    v
                                 = V    / FI         x P°P- '
                            traffic    >    V  annoyance     i /
    
                                   i = 55 dB
    
    
    
    
            where
                    FI
                     annoyance
    o         '  U. s 55dB
    
                L>55dB
                dn
    b.  Sleep disturbance and  sleep awakening from  individual
        events.
                                *
    
      ENI ,       -  SELmax   /FI* ,      x Pop Density x Size of Area ^
         sleep        y       |  sleep                             >
    
        disturbance   - = 37^8  \  disturbance                         )
    
        (awakening)   '   ,         (awakening)                        /
      where
             FI ,     ..   ,      =1.35 SEL -50.0 x  .01
               sleep disturbance
    
    
             FI,       ,   .   = 1.19 SEL -59.7 x  .01
               sleep awakening
                                  5-59
    

    -------
                           TABLE  5-20  (Continued)
    c.   Speech interference from individual  events.
       ENI
          speech
          disturbance
          outdoors
          (indoors)
    i = 55 dB
       (45)
    FI     ,   x Pop Density x Size of Area \
     speech     r      '                 v
     outdoors                             f
     (indoors)                            '
       where   Leq  =   is defined over the duration of the event
               Lmax ^  tne maximum level  of a triangular time history passby
               Lb   1s  the background level
              FIspeech 1s def1ned*1n reference 5-6.
                                       5-60
    

    -------
    (3)   As new truck regulations become more stringent, greater relative
    
    
    
         benefits are realized from noise emission restrictions on trash
    
    
    
         compactors.
    
    
    
    (4)   Regulating a truck-mounted compactor more stringently than engine-
    
    
    
         related truck noise (as measured during the compaction mode) results
    
    
    
         in only minimal benefits, as the engine noise is the predominant
    
    
    
         source of noise.
    
    
    
    (5)   Benefit is afforded mainly to those people in dense urban areas.
    
    
    
         The population living in suburban or low density urban areas receive
    
    
    
         lesser benefit.
                                    5-61
    

    -------
                                    REFERENCES
                                     Section 5
    
    5-1  Environmental Protection Agency,  Transportation Noise Emission Controls,
         Proposed Standards for Medium and Heavy Trucks, Federal  Register  39:   210
         (Part II),  38338,  October 30,  1974.
    
    5-2  Noise Control/Technology for Specialty Trucks (Solid  Waste Compactors),
         Bolt Beranek and Newman, Inc., BBN Draft Report 3249, February 1976.
    
    5-3  Letter from R. A.  Simmons, Supervisor—Noise Control  Program, U.  S.
         Environmental Protection Agency/Region VIII  to Fred Mintz, EPA/ONAC,
         dated August 24, 1976.
    
    5-4  Plotkin, K., "Assessment of Noise at Community Development Sites,"
         Appendix A, Noise  Models.  Wyle Research Report, WR75-6, October  1975.
    
    5-5  Environmental Protection Agency,  Information on Levels of Environmental
         Noise Requisite to Protect Public Health and Welfare  With An Adequate
         Margin of Safety,  EPA 550/9-74-004,  March 1974.
    
    5-6  Cost and Economic  Analysis:  Specialty Truck Components, A.  T. Kearney,
         Inc., Preliminary  Draft report submitted to  EPA Office of Noise Abatement
         and Control, February 6, 1976.
    
    5-7  Environmental Protection Agency,  Population  Distribution of  the U. S.
         As A Function of Outdoor Noise Level, EPA-550/9-74-009,  June 1974.
    
    5-8  Background Document for Medium and Heavy Truck Noise  Emission Regulations,
         U. S. Environmental Protection Agency, EPA-550/ 9-76-008, March 1976.
    
    5-9  Gunn, W., T. Shighehisa, and W. Shepherd, "Relative Effectiveness
         of Several Simulated Jet Engine Noise Spectral Treatments in Reducing
         Annoyance in a TV-Viewing Situation."  NASA  Langley Research Center,
         Draft Report, 1976.
    
    5-10 Lukas, J. S., Measures of Noise Level:  Their Relative Accuracy  in
         Predicting Objective and Subjective Responses to Noise During Sleep,
         Stanford Research  Institute Report to EPA, October 1975.
    
    5-11 Lukas, J. S., Noise and Sleep: A Literature Review and  a Proposed
         Criterion for Assessing Effect, Journal of the Acoustical Society
         of America, Vol. 58(6):1232-1242, December 1975.
    
    5-12 Lukas, J. S., "Measures of Noise  Level:  Their Relative  Accuracy  in
         Predicting Objective and Subjective Responses to Noise During Sleep."
         Stanford Research  Institute, Project 4050, October 1975.
                                         5-62
    

    -------
                              REFERENCES (Continued)
    5-13  Sutherland, L.,  M. Braden, and R. Colman, "A Program for the Measurement
          of Environmental Noise in the Community and its Associated Human Response,
          MDlume 1, "Wyle Research Report WR-73-8 for the U. S. Department of
          Transportation,  December 1973.
    
    5-14  Environmental Protection Agency, Public Health and Welfare Criteria
          for Noise.  EPA 550/9-73-002, July 27,  1973.
    
    5-15  Welch, B. L. and Welch, A. S. (Eds.), "Physiological Effects of Noise."
          New York, Plenum Press, 1970.
    
    5-16  "Noise-Final Report," Cmnd. 2056, July 1963, Her Majesty's Stationary
          Office, London.
    
    5-17  Grandjean, E., Graf, P., Lauber, A.,  Meier, H. P., and Muller,  R.,  A
          Survey of Aircraft Noise in Switzerland, Proceedings of the International
          Congress on Noise as a Public Health  Problem, Dubrovnik, Yugoslavia, May
          13-18, 1973, pp. 645-659.
    
    5-18  Sorenson, S., Berglund K., and Rylander, R., "Reaction Patterns in
          Annoyance Response to Aircraft Noise,"Proceedings of the International
          Congress on Noise as a Public Health  Problem, Dubrovnik, Yugoslavia,
          May 13-18, 1973, pp. 669-677.
    
    5-19  "House Noise — Reduction Measurements for Use in Studies of Aircraft
          Noise," SAE Report AIR 1081, October  1971.
                                         5-63
    

    -------
                           Section  5  Exhibits
    The following Exhibits present tabulations of computations  concern-
    ing the health and welfare impacts for the various cases being ex-
    amined for each year and land use type.   Results are presented for
    each of four final regulatory options (1,  3, 5, and 7), the Base
    Case (no regulation) and the Silent Case (see Table 5-1).
    The Exhibits are presented as follows:
         Exhibit 5-A:  LA (Average sound level in dB(A))
         Exhibit 5-B:  L   (Equivalent sound level for a 24-hour period)
         Exhibit 5-C:  L,  (Day-night equivalent sound level)
         Exhibit 5-D:  L , A (Day-night equivalent sound level  with ambient)
         Exhibit 5-E:  ENI and RCI for General Annoyance
         Exhibit 5-F:  SEL (Sound Exposure Level)
         Exhibit 5-G:  ENI and RCI for Sleep Disturbance
         Exhibit 5-H:  ENI and RCI for Sleep Awakening
         Exhibit 5-1:  ENI and RCI for Outdoor Speech Interference
         Exhibit 5-J:  ENI and RCI for Indoor Speech Interference
    Symbols defining columns are as follows:
         SSF  - Suburban Single Family Detached
         SD   - Suburban Duplexes
         UR   - Urban Low Apartments
         DU   - Dense Urban Apartments
         VDU  - Very Dense Apartments
                                   5-64
    

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                                                                          5-109
    

    -------
                                Section 6
    
    
    
                         NOISE CONTROL TECHNOLOGY
    
    
    
         INTRODUCTION
    
    
    
         There are four main sources of noise on a garbage compactor truck.
    
    
    
    These are:
    
    
    
              1.   Truck chassis,
    
    
    
              2.   Power take-off,
    
    
    
              3.   Hydraulic pump,
    
    
    
              4.   Impact between components.
    
    
    
         The control of truck chassis noise in not addressed by this study,
    
    
    
    but the garbage truck manufacturer has control over its noise in the
    
    
    
    compaction cycle by his specification of the engine speed during compaction.
    
    
    
    A significant reduction in noise can be achieved by restricting the
    
    
    
    maximum engine speed during the compaction cycle.
    
    
    
         The transmission power take-off currently used on most garbage
    
    
    
    trucks produces an obtrusive whine.  Alternative designs and types of
    
    
    
    PTO will be discussed so that this whine can be greatly reduced or elimi-
    
    
    
    nated.  The hydraulic pump can also make a measurable amount of noise
    
    
    
    and on some trucks a noise reduction can be achieved by employing a
    
    
    
    quiet pump.  Methods for reducing the noise from impacts between components
    
    
    
    by means of cushioning these impacts will be discussed.
    
    
    
         It has been found that the hydraulic lines and valves on a garbage
    
    
    
    truck generally makes very little noise.  In a properly designed system,
    
    
    
    there is some very slight flow noise from control valves and that is
    
    
    
    all.  Sometimes a valve or very sharp bend may produce flow cavitation
    
    
    
    and hence noise.  However, this is easily cured with a large valve or
    
    
    
                                        6-1
    

    -------
    bend radius.  Measurements have been made of the hydraulic system noise of
    
    
    
    a truck body on which no special precautions had been taken to reduce the
    
    
    
    hydraulic system noise.  The lines were hard bolted to the body and there
    
    
    
    was no hydraulic accumulator.  In spite of this, the noise was very difficult
    
    
    
    to measure and insignificant when compared with the noise from the rest of
    
    
    
    the truck (less than 60 dBA at 7 m).  Thus, it appears unnecessary to
    
    
    
    address further the matter of quieting hydraulic lines and valves.
    
    
    
         Three stages of noise control treatment will be discussed for the
    
    
    
    steady noise levels.  These are:
    
    
    
         Stage 1 - Reduction of engine speed to 1200 rpm maximum.
    
    
    
         Stage 2 - Elimination or redesign of transmission power take-off
    
    
    
                   in conjunction with reduced engine speed.
    
    
    
         Stage 3 - Quieting the hydraulic pump in addition to the above.
    
    
    
    These noise control treatments will be considered in conjunction with
    
    
    
    a chassis noise control program and the combined noise levels presented.
    
    
    
    Reduction of impact noise by hydraulic and rubber cushions will also
    
    
    
    be discussed.
    
    
    
    STAGE 1 - ENGINE SPEED REDUCTION TO 1200 RPM
    
    
    
         The speed at which the engine is operated during the compaction
    
    
    
    cycle is currently determined by the cycle time desired and the size
    
    
    
    of the hydraulic pump fitted.  Typically, truck engines at present run
    
    
    
    between 1200 and 1800 rpm and employ a pump of about 5 cubic inches/revolu-
    
    
    
    tion displacement (20 gpm at 1,000 rpm).  The speed of the engine while
    
    
    
    the truck is compacting is set to a nominal value by the manufacturer,
    
    
    
    but the operator can, and sometimes does, reset the cycle speed to any
    
    
    
    value he desires.  Thus, the manufacturer's speed may not have any particular
    
    
    
    meaning.
    
    
    
                                    6-2
    

    -------
    Speed controls
         There are a number of different types of engine speed control available.
    The simplest is a solenoid or an electropneumatic cylinder which advances
    the throttle linkage by a preset amount when the "compactor cycle" button
    is pressed. Other speed controls are pneumatic governors and a electronic
    governor.  However, none of these governors are tamper-proof and all
    can be reset by the operator.  Further, most front loading garbage trucks
    do not have any form of automatic speed control.  The engine speed during
    cycling is controlled only by the operator's foot.  Therefore, the hard-
    ware required for this level of noise reduction consists of two items:
         1.   An electro-pneumatic throttle control or some other form of
              governor.  This is already installed on most compactor trucks,
              except for the front loaders and thus, only these will require
              them to be installed.  They are not installed at present since
              the cab operator is able to control both the loading cycle
              and engine speed.
         2.   A larger hydraulic pump is needed if the same cycle time is
              to be achieved with a lower engine speed.  If a 20 gpm at
              1,000 rpm pump is currently used at an engine speed of 1800
              rpm, then a 30 gpm at 1,000 rpm pump will be required for
              an engine speed of 1200 rpm to achieve the same volume flow
              rate.
         An engine speed of 1200 rpm has been chosen since this is typically
    the slowest idle speed to which a gasoline engine can be set and yet
    not have the engine stall during the compaction cycle.  An engine which
    is set up to a no-load speed of 1200 rpm will lose speed to about 1,000
                                       6-3
    

    -------
    rpm when it comes under load.  Typically, an engine is required to produce
    
    
    
    20 hp.  Most truck engines rated at 200 hp or more are capable to
    
    
    
    delivering 40 hp at 1,000 rpm.
    
    
    
         The simplest types of governors allow a substantial speed drop, as men-
    
    
    
    tioned above.  More sophisticated governors, such as some of the electronic
    
    
    
    governors, permit very much less speed loss.  However, the diagnostic measure-
    
    
    
    ments showed that there was no noise difference between the case when the
    
    
    
    engine was closely regulated to 1050 rpm with or without load and the case
    
    
    
    when the engine was set to 1200 rpm under no load and its speed allowed to
    
    
    
    drop under load.  Accordingly, there is little to be gained from a noise point
    
    
    
    of view by installing the better governor.  However, it can help in preventing
    
    
    
    the engine from stalling under load.
    
    
    
    Noise levels
    
    
    
         Table 3-2 in Section 3 presented the mean sound levels of 27 truck
    
    
    
    mounted solid waste compactors.  The noise generated by a power take-off
    
    
    
    driven from an automatic transmission has been analyzed. The noise level at
    
    
    
    1200 rpm was 74 dBA at 7 m (as compared to 79 dBA at an engine speed of 1800
    
    
    
    rpm).  Table 6-1 predicts the overall levels to be expected for 7 trucks which
    
    
    
    were considered.  The chassis noise level, as a function of any noise regula-
    
    
    
    tion, has been combined with an assumed transmission power take-off noise level
    
    
    
    of 74 dBA at 7 m to give the overall noise level of the truck while cycling.  An
    
    
    
    engine speed of 1200 rpm has been assumed for most trucks.  However, on some of
    
    
    
    the larger diesel powered trucks, it has been supposed that the engine can be
    
    
    
    slowed down to 1,000 rpm.  With no chassis noise regulated, no truck can be
    
    
    
    quieter than 78 dBA at 7 m.  However, with an 80 dBA regulation, all trucks are
    
    
    
                                          6-4
    

    -------
                                  TABLE 6-1
                   OVERALL NOISE  LEVELS UNDER STAGE 1  OF NOISE
                    CONTROL (TRANSMISSION PTO = 74 dBA at 7m)
                                            Overall  Noise Levels at  7 m
                                              Chassis  Regulation dBA
    Truck    Fuel
    RPM
    Unreg.
    83*
    80
    78
    75
    1
    2
    3
    4
    5
    6
    7
    Diesel
    Diesel
    Diesel
    Diesel
    Diesel
    Diesel
    Gasoline
    1200
    1000
    1200
    1000
    1000
    1200
    1200
    82
    82
    80
    81
    79.5
    80
    78
    77
    77.
    76.
    77.
    77.
    77
    75
    
    5
    5
    5
    5
    
    
    76
    76
    75
    76
    76
    75.5
    74.5
    75
    75
    75
    75
    75
    75
    74
    
    .5
    
    .5
    .5
    
    .5
    75
    74
    74
    74
    74
    74
    74
    
    .5
    .5
    .5
    .5
    .5
    
           *This assumes  actual truck-noise level  2.5 below reg  level
                                        6-5
    

    -------
       90
    e
    CO
    "O
    UJ
    _J
    
    _J
    _J
    <
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    O
       80
       70
       60
    TRUCK  1
    
    TRUCK  2
    
    TRUCK  3
    
    TRUCK  4
    
    TRUCK  5
    
    TRUCK  6
    
    TRUCK  7
    
     (GASOLINE)
            UN'REG       03         80         76         75      dBA
    
    
                       CHASSIS REGULATION (SAE TESTS)
      Figure 6-1.  Overall Noise Level Under Stage 1 of Noise Control
                                  6-6
    

    -------
    quieter than 76 dBA at 7 m.  Figure 6-1 illustrates these quieted noise
    
    levels further.
    
         Four trucks have already been measured which incorporated this noise
    
    control method.  They all meet a noise level of 76 dBA at 7 m.  Three of
    
    the trucks were gasoline powered and operated with engine speeds of 1200
    
    rpm or less.  These three were all rear loaders.  One diesel-powered
    
    side loader also met this noise level, but it employed a front power
    
    takeoff instead of the noisier transmission power takeoff.  In addition,
    
    this engine was only operated at 900 rpm during its compaction cycle.
    
    Fuel savings
    
         One consequence of the lower engine speed during cycling is that
    
    the truck engine will consume less fuel.  These savings come about
    
    because the engine has to do less work overcoming internal friction,
    
    even though it develops the same power externally.  Estimates have
    
    been made by an EPA contractor for the fuel savings to be expected for
    
    both diesel and gasoline engines which are rated at 200 hp yet are
    
    only developing 20 to 40 hp during cycling.
    
                                 Table 6-2
    
                   FUEL SAVINGS DUE TO REDUCED ENGINE rpm
    
    Engine     Rated     Developed     Standard     Reduced     Fuel Savings
    	      hp          hp           rpm          rpm          gal/hr
    
    Gasoline    200         20          1800         1200          0.33
    
    Diesel      200         20          1500         1000          0.55
    
         The fuel savings are larger on diesel engines than on gasoline
    
    engines because the former have more internal friction.  If we suppose
    
    that the trucks are cycling 25 percent of the time for an 8-hour
    
    
                                    6-7
    

    -------
    day, then the fuel savings are 2/3 gallon/day on a gasoline powered
    
    
    
    truck and 1 gallon/day on a diesel powered truck.
    
    
    
    Conclusions
    
    
    
         A noise level of 76 dBA at 7 m can be achieved for a garbage compactor
    
    
    
    truck primarily by slowing the engine down to 1200 rpm or less.  This
    
    
    
    requires an automatic engine throttle control which exists on most garbage
    
    
    
    trucks at present, except for front loaders.  In these cases, an automatic
    
    
    
    throttle limit will be required.  In order to retain the productivity
    
    
    
    of the truck, a larger hydraulic pump is required for these lower engine
    
    
    
    speeds.  An overall noise level of 76 dBA at 7 m can be achieved during
    
    
    
    the compaction cycle only when this noise reduction measure is used
    
    
    
    on a chassis which has been quieted to some extent.
    
    
    
    STAGE 2 - ENGINE SPEED REDUCTION AND REDESIGN OR ELIMINATION OF
    
    
    
              THE TRANSMISSION PTO
    
    
    
         In order to reduce the noise of compacting garbage truck below
    
    
    
    that of Stage 1, in addition to reducing the speed of the engine, the
    
    
    
    power take-off noise must be reduced.  Under Stage 1, the overall noise
    
    
    
    was dominated by the transmission power take-off gear at 74 dBA.  There
    
    
    
    does not appear to be any simple way to reduce this noise, which is
    
    
    
    the source of the whine heard from compacting garbage trucks.  Previously,
    
    
    
    it was found that vibrations from the gears were transmitted quite exten-
    
    
    
    sively throughout the truck chassis.  Thus, large areas of the chassis
    
    
    
    and transmission as well as the PTO would have to be wrapped with sound
    
    
    
    deadening material if this were to be selected as means of reducing
    
    
    
    the noise.  It is therefore not considered to be a practical means of
    
    
    
    reducing PTO noise by enclosing it in a sound absorbing enclosure.
    
    
    
                                    6-8
    

    -------
         One manufacturer of automatic transmissions for trucks, is currently
    
    
    
    undertaking a test program into the source and means of reducing the noise
    
    
    
    from transmission PTO's.  The tooth design of the PTO goes back over 40
    
    
    
    years and is very stubby by modern standards.  Accordingly, they are
    
    
    
    considering a finer tooth design or helical gear teeth with the prospect of
    
    
    
    generating less noise.  However, at this time it is not known what the
    
    
    
    outcome of this study is nor how much noise reduction is possible by
    
    
    
    redesign of the PTO gears.  Other types of PTO which do not make as much
    
    
    
    noise as the conventional transmission PTO are discussed below:
    
    
    
    Front Power Takeoff
    
    
    
         One such power takeoff which has been tried by a number of manufac-
    
    
    
    turers is the "Front Power Takeoff."  This takes the power from the
    
    
    
    front end of the engine crankshaft.  A double-jointed shaft couples
    
    
    
    the crankshaft with the hydraulic pump which is installed on the front
    
    
    
    bumper of the truck.  This arrangement is similar to that employed on
    
    
    
    cement mixer trucks.  On diesel engines, the driver can be direct, but
    
    
    
    on gasoline engines which can rotate at up to 4,000 rpm, a clutch must
    
    
    
    be installed between the engine and pump in order to prevent the pump
    
    
    
    from overspeeding.  Most hydraulic pumps cannot be driven above about
    
    
    
    2,800 rpm.
    
    
    
         Company E reported that they had reliability problems with an electric
    
    
    
    clutch on a front power takeoff when installed on trucks.  This was also
    
    
    
    confirmed by Co. F.  However, Co. G claims very good reliability for their
    
    
    
    pneumatic-hydraulic clutch (Figure 6-2).  This clutch comes in several gear
    
    
    
    ratios:
                                    6-9
    

    -------
        i
    
                                        /                      \,
                               '  ••"•  ••'"''•"    .-• .;;•/'      . <*•.       .  • -.-- !;:. • v-1';;^
                           •  -...*..   i            f;' /  •      •    »!•      ,-.   -- .-'. • „.',;•.-•••!-•-^fel?i '^^•^aWjaLi;ja!^>V> ^ fe^^^i^iiil^^^^^'U^^SS
                         GEAR MDUNTED ON A TRUCK WITH A REFUSE  PACKER
                              Figure 6-2.   Front Power  Take-Off
                                         6-] 0
    

    -------
    0.5, 0.75, 1.0 and 1.25.  One compactor truck manufacturer says that
    
    
    
    he prefers the 0.75:1 ratio with the pump running at only 75 percent
    
    
    
    of engine speed.  This would still prevent the pump from overspeeding
    
    
    
    should the clutch be engaged with the engine at all but the highest
    
    
    
    rpm.  Electric interlocks can be installed to prevent pump overspeed-
    
    
    
    ing and are supplied by Co. H.  This will disconnect the pump should
    
    
    
    the engine exceed a certain preset rpm.
    
    
    
         Front power takeoffs have been used on front, rear, and side loaders.
    
    
    
    There do not appear to be any inherent problems in the use of front
    
    
    
    PTO's.  Even the clearance problems on front loaders due to the mounting
    
    
    
    of the pump on the front bumper can be overcome by lengthening the loading
    
    
    
    arms.  One major manufacturer, Co. I, is offering front power takeoffs on
    
    
    
    their "quieted" trucks.
    
    
    
         A problem with a front power takeoff is that the drive shaft has
    
    
    
    to pass through the radiator.  This generally requires either the rais-
    
    
    
    ing of the radiator for clearance, or cutting a hole in the radiator for
    
    
    
    the drive shaft.  Some truck manufacturers do offer front-mounted PTO
    
    
    
    options on their medium trucks.  Co. J offers a front PTO option on two
    
    
    
    of its lines of trucks.  However, it is what they call a "Limited Produc-
    
    
    
    tion Option" which requires a long lead time and special tooling charges.
    
    
    
    Co. E and Co. K (private communication) are also planning to offer a
    
    
    
    front PTO option on some of their medium trucks later this year.
    
    
    
    Flywheel Power Takeoff
    
    
    
         An alternative, and very successful, type of power takeoff is the
    
    
    
    "Flywheel Power Takeoff" (Figure 6-3).  This is a PTO inserted between
    
    
    
    the engine crankcase and transmission.  It is about 8-1/2 inches long
    
    
    
                                    6-11
    

    -------
    6-12
    

    -------
    and weighs 180 Ibs.  It is currently available only on Co. L engines.
    
    
    
    This PTO did not make any noise that could be discerned from the chassis
    
    
    
    noise on the trucks that were measured.  There was no whine of the PTO
    
    
    
    gears as with transmission PTO's.  This is presumably because the gears
    
    
    
    are all mounted in one integral housing and are correctly aligned.  Thus,
    
    
    
    a garbage truck manufacturer who employs a Co. L chassis need not employ
    
    
    
    any special hardware to achieve a Stage 2 truck other than to employ a
    
    
    
    quieted version of the chassis and regulate the engine speed, during
    
    
    
    compaction, on the engine's own governor.
    
    
    
         Co. K has also supplied a flywheel power takeoff on a number of
    
    
    
    their chassis.  It is not currently available, but they have supplied
    
    
    
    it on Co. M gasoline engines and Co. N diesel engines. They have used a
    
    
    
    toothed belt, driven off the engine flywheel, to drive the hydraulic
    
    
    
    pump.  This appears to be a very reliable system and has been in service
    
    
    
    in San Francisco for over eighteen months.
    
    
    
    Noise Levels
    
    
    
         A direct drive PTO does not, of itself, make any significant noise.
    
    
    
    If the PTO is geared, then it may make some noise, but since the gears
    
    
    
    are a modern design and are incorporated in an integral housing, they
    
    
    
    are not expected to make any significant noise.  The main scarce of
    
    
    
    noise comes from the chassis, with some from the hydraulic pump.  In
    
    
    
    the diagnostic study, the noise level of a Co. 0 pump at 1,000 rpm was
    
    
    
    64 dBA at 7 m.
    
    
    
         Table 6-3 shows the chassis noise levels of unregulated and regu-
    
    
    
    lated chassis.  The unregulated trucks are all well over 75 dBA at 7 m,
    
    
    
    but under an 80 dBA regulation, all trucks generate less than 72 dBA
    
    
    
    
    
                                     6-13
    

    -------
                                    TAELE 6-3.
                      OVERALL NOISE LEVELS UNDER STAGE 2 OF NOISE
                      CONTROL (HYDRAULIC PUMP = 64 dBA at 7 m)
    Truck    Fuel
    RPM
    Unreg
                                         Overall  Noise  Levels at  7  m
                                         Chassis  Regulation  (dBA)
    83
    80
    78
    75
    1
    2
    3
    H
    5
    6
    7
    Diesel
    Diesel
    Diesel
    Diesel
    Diesel
    Diesel
    Gasoline
    1200
    1000
    1200
    1000
    1000
    1200
    1200
    81
    81
    80
    80
    78
    78
    76
    74.5
    75.5
    73
    75.5
    75.5
    7^.5
    70
    71
    72
    70
    72
    72
    71
    67.5
    70
    71
    6.9
    70.5
    71
    70
    67.5
    68
    68
    67
    68
    69
    67-5
    66
                                     6-14
    

    -------
    at 7 m, with the gasoline trucks generating 67.5 dBA.  The largest diesel
    
    
    
    engines have sufficient power that they can be slowed down to 1,000 rpm, as
    
    
    
    was done on a Co. D side loader with a Co. N diesel engine.  The levels are
    
    
    
    also illustrated in Figure 6-4.
    
    
    
         The fuel savings with a front PTO and reduced engine speed are
    
    
    
    expected to be the same as for reduced engine speed (Stage 1) alone.
    
    
    
         One truck has already been measured with this Level 2 of noise
    
    
    
    control treatment.  This was a Co. I truck with the quieted option and a
    
    
    
    Co. J gasoline engine.  The noise level measured was 69 dBA at 7 m.
    
    
    
    Conclusions
    
    
    
         By combining a reduction of engine speed to 1200 rpm or below, and
    
    
    
    elimination or redesign of the transmission power take-off, the sound
    
    
    
    level of garbage trucks can be reduced to 72 dBA at 7 m.
    
    
    
    STAGE 3 - STAGE 2 PLUS A QUIET PUMP AND 75 dBA CHASSIS
    
    
    
         Under Stage 2 of noise control, the main noise sources are the
    
    
    
    hydraulic pump, which generates 64 dBA of noise at 7 m, and the chassis.
    
    
    
    When regulated for 80 dBA under the SAE J366b test, the chassis gives
    
    
    
    a noise level of less than 70 dBA at 7 m during the compaction cycle.
    
    
    
         Now, if the truck chassis is regulated for 75 dBA under the SAE
    
    
    
    J366b test, then the noise level would be 65 dBA or less during the com-
    
    
    
    paction cycle.  At this level, the truck chassis and hydraulic pump
    
    
    
    generate very similar noise levels (65 and 64 dBA at 7 n, respectively).
    
    
    
    Further noise reduction can now be achieved by using a quiet pump.
                                    6-15
    

    -------
       90
    fe
    CO
    •o
    U.1
    >
    UJ
    -J
    
    .J
    -J
    <
    K.
    UJ
    >
    O
    70
       60
                                                  O
    
                                                  ©
    
                                                  A
    
                                                  A
    
                                                  D
    
                                                  n
    
                                                  V
                                                  TRUCK 1
    
                                                  TRUCK 2
    
                                                  TRUCK 3
    
                                                  TRUCK 4
    
                                                  TRUCK 5
    
                                                  TRUCK 6
    
                                                  TRUCK 7
    
                                                   (GASOLINE)
            UNREG       83         80         78         75     dBA
    
    
                       CHASSIS REGULATION (SAE TESTS)
            Figure 6-4.  Overall Noise Level Under Stage 2
                       of Noise Control
                                  6-16
    

    -------
      Quiet Pumps
    
    
    
           There are a number of proprietary pumps on the market.   One very
    
    
    
      sucessful design is a German patent  being marketed  by Co.  P  (Figure
    
    
    
    ,  6-5). This design uses a  outer gear  and a smaller eccentric  gear inside.
    
    
    
      The  two are spaced by a cam.  This type of  gear pump  is particularly
    
    
    
      quiet.  Noise levels of less than 55 dBA at 1,000 rpm and  7  m can be
    
    
    
      obtained.  Co. Q has also developed  quiet versions  of their  vane
    
    
    
      pumps.
    
    
    
           An alternative means of quieting  the pump is to  enclose it.   This
    
    
    
      would require building a  sheet steel box around the pump with seals
    
    
    
      around the holes of the drive shaft  and hydraulic lines.   The box would
    
    
    
      be lined on the inside with acoustic foam and would be mounted on the
    
    
    
      chassis frame and not the pump.  The pump would be  vibration isolated
    
    
    
      from the chassis frame.   This technique should give at least 10 dBA
    
    
    
      reduction in noise from a standard pump.
    
    
    
      Noise Levels
    
    
    
           Table 6-4 predicts the expected overall noise  levels  of the solid
    
    
    
      waste compactor trucks with Stage 3  of noise control  treatment.   Signif-
    
    
    
      icant differences with Stage 2 only  occur when the  Stage 3 treatment is
    
    
    
      combined with a 75 dBA chassis regulation.   Then all  trucks  are quieter
    
    
    
      than 67 dBA at 7 m and the gasoline  powered truck is  62 dBA  at 7 m.   This
    
    
    
      data is illustrated in Figure 6-6.
    
    
    
      Auxiliary Engines
    
    
    
           A number of garbage  trucks drive  their hydraulic systems from aux-
    
    
    
      iliary gasoline engines mounted on the truck body,  rather  than using
                                       6-17
    

    -------
    Figure 6-5.  A Quiet Hydraulic Pump Design
                         6-18
    

    -------
                                  TABLE 6-4
                   OVERALL NOISE LEVELS UNDER STAGE 3 OF NOISE
                     CONTROL  (HYDRAULIC PUMP = 55 dBA at 7 m)
                                         Overall Noise Levels  at 7 m
                                         Chassis Noise Regulation
    Truck    Fuel
    RPM
    U n r e g
    83
    80
    75
    1
    2
    3
    4
    5
    6
    7
    Diesel
    Diesel
    Diesel
    Diesel
    Diesel
    Diesel
    Gasoline
    1200
    1000
    1200
    1000
    1000
    1200
    1200
    81
    81
    80
    80
    78
    78
    76
    74
    75
    72.5
    75
    75
    74
    69
    70
    71
    69
    71
    71
    70
    65.5
    69
    70
    68
    b9.5
    70
    69-5
    65.5
    66.
    67
    64.
    65
    66.
    65.
    62
    5
    
    5
    
    5
    5
    
                                    6-19
    

    -------
       so
    r;
    i-
    r-
    
    UJ
    U!
    •^v
    O
       00
              rS
       60-	
    UNKEG
                                          O  TRUCK 1
                                          O  TRUCK 2
                                          A  TRUCK 3
                                          A  TRUCK 4
                                          n  TRUCK 5
                                          £3  TRUCK 6
                                          V  TRUCK 7
                                              (GASOLINE)
                        8?,         80         78         75
    
                       CHASSIS REGULATION (SAE \ESTS)
    dBA
             Figure 6-6.  Overall Noise Level Under Stage 3 of Noise
                        Control
                                   6-20
    

    -------
    the main truck engine.  These engines are typically water cooled,  four
    
    
    
    cylinder engines and run on the same fuel as the main truck engine.
    
    
    
    They typically are between 100 and 172 cubic inches displacement and  are
    
    
    
    considerably underrated for this application.  Air cooled diesel engines
    
    
    
    have also been used as auxiliary engines on garbage trucks.
    
    
    
         Only one truck with an auxiliary engine was measured.  It had a
    
    
    
    Company R gasoline engine and generated 81 dBA at 7 m.  These engines
    
    
    
    are also used to drive the larger engine generator sets used in recrea-
    
    
    
    tional vehicles and boats.  Some manufacturers produce specially enclosed
    
    
    
    low noise engines.  This is a very important selling point in the  Recrea-
    
    
    
    tion Industry.  Noise levels as low as 66 dBA at 1 in  (equivalent to 50
    
    
    
    dBA at 7 m) have been quoted verbally by the manufacturer.  This is a
    
    
    
    very low level and well below any noise level to which chassis powered
    
    
    
    equipment can be quieted.  Thus, it appears to be well within the  state
    
    
    
    of the art to build an acoustic enclosure around a water cooled auxiliary
    
    
    
    engine which will make it at least as quiet as any chassis powered equipmer *
    
    
    
    Air cooled engines may be more difficult to quiet, however.
    
    
    
    Quieting of Impact Noise
    
    
    
         There are a number of sources of impact noises which occur during
    
    
    
    the loading and compacting cycles.  Garbage cans impact on the loading
    
    
    
    hopper; hydraulic cylinders bottom while performing the compaction; the
    
    
    
    container and forks of a front loader bang; and container covers bang.
    
    
    
    Although the quieting of the containers is not strictly within the scope of
    
    
    
    a compactor noise regulation, it is pertinent here to comment briefly on
    
    
    
    techniques that are expected to provide some improvement.
    
    
    
    
    
                                    6-21
    

    -------
    Garbage can impacts - rear and side loaders
    
    
    
         This noise can be minimized by covering the edge of the loading
    
    
    
    hopper with a 1/2 inch thick rubber strip.
    
    
    
    Hydraulic cylinder bottoming - rear loaders
    
    
    
         On rear loading compactor trucks, one significant source of noise
    
    
    
    
    is the impact of the hydraulic cylinders as they "bottom" at the end
    
    
    
    of their stroke.  Typically, the piston is driven to the end of the
    
    
    
    cylinder which it strikes and a peak noise level of 90-100 dBA is typi-
    
    
    
    cally observed.  A commonly used technique to lessen the impact is to
    
    
    
    install "cushions" inside the cylinders at the end of the stroke.
    
    
    
    
    Inexpensive cushions are made of rubber, but are not very durable.  A
    
    
    
    irore durable mechanism is a pin on each side of the piston, which engages
    
    
    
    the hydraulic oil exit port as the piston nears the end of its stroke.
    
    
    
    This gradually shuts off the flow of oil and slows down the piston.
    
    
    
    
         Figure 6-7 shows a cutaway view of a hydraulic cylinder with these
    
    
    
    cushions installed.  The cushions are standard items and are recommended
    
    
    
    by the manufacturer for all applications with piston speeds in excess
    
    
    
    of 20-25 ft/min (manufacturer's literature).
    
    
    
         Co. C rear loaders do not require cushions since their cylinders
    
    
    
    do not bottom; rather, the stroke is reversed electrically before it
    
    
    
    has bottomed.  There is no evidence that cylinder bottoming is a signif-
    
    
    
    icant source of noise in side and front loaders and therefore, these do
    
    
    
    not require cushions.  Hydraulic cushions are only required on rear
    
    
    
    loading garbage trucks.
                                        6-22
    

    -------
         Figure 6-7.   Hydraulic Cylinder
                      with Cushions.
              Upper Cushion Pin
               Lower Cushion Pin
                and Seat
    6-23
    

    -------
         There are two compacting cylinders on each truck, requiring a cushion
    
    at each end.  Thus four cushions are required on each truck.  The hydraulic
    
    cylinders which require the cushions are between 3 inches and 5-1/2
    
    inches bore, depending on truck model.
    
    Banging of containers - front loaders
    
         Banging of a container takes place while it is being lifted and dumped
    
    on the arms of the front loader.  One of the best ways of reducing this
    
    noise is to coat the container with a damping material in order to damp
    
    its noise. In this respect, some noise reduction might be obtained by
    
    coating the front loader arms with an epoxy damping material,  which
                        /
    although not producing much damping, may lessen the impacts themselves.
    
    It is not clear, however, how durable such an epoxy compound would be
    
    under such severe service.
    
    Banging of hopper lid - front loader
    
         At the end of a front loader cycle, the lid covering the hopper
    
    is allowed to drop fairly rapidly and creates a large impact.  This
    
    impact can be minimized by riveting a 1/2 inch rubber seal around the
    
    hopper mouth in order to cushion the impact.
    
         There is a great deal which can be done to lessen impact noise
    
    on garbage trucks:  Hydraulic cushions, rubber edgings or stops and
    
    damping compound.
    
         CONCLUSIONS
    
         There are three stages, or levels, of noise control which can be
    
    applied to compacting garbage truck bodies.  The first stage is to
    
    restrict the engine speed during cycling to 1200 rpm or less.  This
                                     6-24
    

    -------
    reduces both engine and power takeoff noise.  Most rear and side loading
    
    
    
    
    trucks already have automatic engine speed, but front loaders do not.
    
    
    
    They will require the installation of an engine speed control.
    
    
    
         The second stage of noise control is the quieting of the power
    
    
    
    take off.  Either the transmission power take off can be redesigned
    
    
    
    (although this is not currently available) or different types of power
    
    
    
    take off can be used.  A "front power take off" is connected to the
    
    
    
    front of the engine crankshaft.  This type is quiet but requires extend-
    
    
    
    ing the front bumper and a special radiator with a hole for the drive
    
    
    
    shaft.  This radiator (and associated fan modifications) is available
    
    
    
    from some truck chassis manufacturers with some engine combinations.  A
    
    
    
    "flywheel power takeoff" is available on all Co. L diesel engines and
    
    
    
    Co. K has engineered a design for Co. M gasoline and Co. N diesel engines.
    
    
    
    This design can be adapted to other engines.
    
    
    
         The final stage of noise control is to use a quiet hydraulic pump.
    
    
    
    There are a number of proprietary designs available.
    
    
    
         The use of truck noise control levels must be coordinated with
    
    
    
    truck chassis noise regulations.  The noise control measures will not
    
    
    
    be very effective by themselves unless the chassis are also quieted.
    
    
    
    The resulting overall noise level will then be a function of both the
    
    
    
    level of noise control for the compactor body and the chassis.
    
    
    
         Impact sounds can be reduced by a variety of techniques which vary
    
    
    
    with the source.  The bottoming of the hydraulic cylinders can be quieted
    
    
    
    by installing hydraulic cushions.  Areas where impacts take place with
    
    
    
    
    garbage cans or container lids can be covered with rubber sheets and the
    
    
    
    noise appropriately reduced.
    
    
    
    
                                     6-25
    

    -------
                                     Section 7
    
                                 ECONOMIC ANALYSIS
    
         The three different noise emission standards for truck mounted
    
    compactor bodies are analyzed in this section from two points of view:
    
    First, the additional costs associated with achieving each specified stage
    
    of quieting are examined and second, the various economic impacts expected
    
    to result from achieving each stage are pointed out.  The various stages
    
    of quieting relate to specific options which have been considered by EPA.
    
    The proposed rule focuses on an option which requires Stage 2 quieting.
    
    The cost and economic impacts resulting from the adoption of this proposed
    
    regulatory option will be examined in a later part of section 7.
    
    COST ANALYSIS*
    
         Estimates of the costs incurred to achieve three different stages of
    
    quieting for compactor bodies are presented in this section.  The cate-
    
    gories of costs considered include:  direct material and labor costs;
    
    overhead costs; and, maintenance and operating costs.
    
    Direct Material and Labor Cost Estimates
    
    Stage 1.  Cost Estimates
    
         The Stage 1 quieting technology consists of governing the engine speed
    
    to a maximum of 1,200 revolutions per minute during the compaction cycle.
    
    To estimate the cost of this treatment, the following assumptions have been
    
    made:
    
         1.  The general design and capacity of side and rear loading
    
    compactors are  similar and it is not necessary to distinguish between
    
    the two for costing purposes.  A review of component systems (i.e.,
    *  The methodology used in developing the costs in this section is
    presented in Section 7 Exhibit.
                                      7-1
    

    -------
    hydraulics) and discussions with manufacturers of both types of vehicles
    
    
    
    validated this assumption.
    
    
    
         2.  The existing governors on side and rear loading vehicles can
    
    
    
    be adjusted to achieve the desired engine speed.
    
    
    
         3.  A speed control device will be installed on front loading
    
    
    
    
    vehicles.
    
    
    
         4.  The size of the hydraulic pump or the gear ratio of the power
    
    
    
    take-off unit on all three vehicle configurations will be increased to
    
    
    
    preserve the existing flow rates and compaction cycle times.
    
    
    
         5.  Special treatment will not be required to prevent tampering
    
    
    
    with speed control components.
    
    
    
         The front and rear loading vehicle configurations will require
    
    
    
    only minimal modifications to achieve Stage 1 treatment.  Engine speed
    
    
    
    controls are already standard equipment on these vehicles since they
    
    
    
    are necessary to operate the compaction cycle from the side or rear of
    
    
    
    the vehicle.  It is assumed that these governors can be calibrated to
    
    
    
    1,200 rpm and are sufficiently sensitive to prevent engine stalling.
    
    
    
    Therefore, no appreciable material cost is estimated for the speed con-
    
    
    
    trol aspects of Stage 1.
    
    
    
         Slowing the engine speed will reduce the hydraulic flow rate
    
    
    
    and thus slow the compaction cycle on these vehicles.  To sustain pro-
    
    
    
    ductivity, a larger hydraulic pump or a higher ratio PTO will be required.
    
    
    
    The additional capacity needed will vary with the size of the compactor
    
    
    
    unit, but the incremental material cost for the average vehicle is
    
    
    
    estimated to range between $200 and $300.
                                          7-2
    

    -------
         The additional labor cost for Stage 1 treatment of side and rear
    
    
    
    loaders is estimated to be approximately $70.  This amount represents
    
    
    
    roughly nine direct labor hours which should be adequate allowance for the
    
    
    
    minor modifications involved.
    
    
    
         Stage 1 treatment for front loading vehicles is more extensive than
    
    
    
    that for the other two configurations. Existing models do not have engine
    
    
    
    governors since the speed of the engine is regulated by the driver.  Thus,
    
    
    
    it will be necessary to install a speed control device along with necessary
    
    
    
    instrumentation and hardware components.  The system must maintain an
    
    
    
    engine speed of 1,200 rpm and lock out the engine accelerator in the cab.
    
    
    
    The cost for the governor and associated hardware will range between $300
    
    
    
    and $500 depending upon the type of chassis and engine.
    
    
    
         As with the other two vehicle categories, the hydraulic pump capacity
    
    
    
    or PTO gear ratio must be increased to preserve compaction cycle times.
    
    
    
    Again, depending upon the size of the pump, the additional cost will range
    
    
    
    between $250 and $300 per unit.
    
    
    
         The additional labor cost will vary depending on whether the engine
    
    
    
    governor is ordered with the chassis or must be installed by the compactor
    
    
    
    manufacturer, but it is estimated to range between $100 and $200.
    
    
    
    Stage 2.  Cost Estimates
    
    
    
         The Stage 2 quieting technology consists of employing alternate
    
    
    
    methods of power take-off (PTO) from the engine.  An EPA sponsored study
    
    
    
    has indicated that the design of the transmission PTO is unsuitable for
    
    
    
    effective noise control.  Two alternatives are:  the flywheel PTO and the
    
    
    
    direct drive, crankshaft PTO.
                                         7-3
    

    -------
         The flywheel PTO option is effective in noise reduction but, at the
    
    
    
    present time, is limited in availability from chassis manufacturers.  Co. L
    
    
    
    is the only manufacturer which offers the flywheel PTO as a standard
    
    
    
    option.  Some other chassis manufacturers offer the flywheel PTO as a
    
    
    
    
    special option.  An independent component manufacturer was also identi-
    
    
    
    fied which manufactures a flywheel PTO which can be applied to other
    
    
    
    makes of medium and heavy duty truck chassis.
    
    
    
         The direct drive, crankshaft PTO is effective in noise reduction but
    
    
    
    is also limited in availability.  Only a few truck chassis are on the
    
    
    
    market which are designed to accommodate a front mounted power take-off
    
    
    
    unit and, because these have been designed primarily for the cement mixer
    
    
    
    market, they are much bigger and heavier than the chassis normally used for
    
    
    
    solid waste compactors.  Chassis which are not designed for the front PTO
    
    
    
    must undergo extensive modification to extend the frame in front and to
    
    
    
    provide clearance for the pump to crankshaft coupling.
    
    
    
         This makes the front PTO an impractical alternative for front loading
    
    
    
    trucks.  Not only is the required frame extension on the front of the
    
    
    
    vehicle too long to allow safe clearance between the container forks
    
    
    
    and the frame extension of the front loading truck, but the cab, frame
    
    
    
    and radiator modifications required on the cab over engine used with
    
    
    
    front loaders are so extensive as to be impractical.
    
    
    
         The cost estimates for Stage 2 treatment are based on the following
    
    
    
    assumptions:
    
    
    
         1.  Stage 1 noise control treatment has been implemented.
    
    
    
         2.  Side and rear loading vehicles are again assumed to be the
    
    
    
    same for costing purposes.
                                          7-4
    

    -------
         3.  The most cost effective treatment for side and rear loading
    
    
    
    vehicles is the front mounted, crankshaft power take-off.   (Some end users
    
    
    
    may elect to purchase Co.L chassis with the flywheel PTO option but this
    
    
    
    would generally be a more expensive alternative and not really indicative
    
    
    
    of actual quieting costs.)
    
    
    
         4.  The most cost effective treatment for quieting front loading
    
    
    
    vehicles appears to be the flywheel PTO option.
    
    
    
         The cost associated with Stage 2 treatment for side and rear loading
    
    
    
    vehicles consists of three major elements:  radiator modification, frame
    
    
    
    extension, and hydraulic system components.  Each of these  cost elements is
    
    
    
    described in the following paragraphs.
    
    
    
         The radiator modification consists of cutting a hole in the radiator
    
    
    
    to provide clearance for the driveshaft connecting the crankshaft to the
    
    
    
    hydraulic pump assembly.  Most chassis manufacturers do not currently make
    
    
    
    modifications of this nature.  Therefore, the compactor body manufacturers
    
    
    
    must assume responsibility for this modification. Since radiator work is a
    
    
    
    specialized process which most compactor manufacturers are  not equipped to
    
    
    
    handle, it is assumed that the radiator will be removed from the truck
    
    
    
    chassis and sent to a subcontractor for modification.  The  additional cost
    
    
    
    incurred in this operation will range between $150 and $250 per vehicle.
    
    
    
         The frame extension consists of extending the basic frame of the
    
    
    
    chassis by 18 inches to 24 inches to provide a front mount  location for the
    
    
    
    hydraulic pump assembly.  It is assumed that most compactor body manufac-
    
    
    
    turers will fabricate the necessary structural components in-house.  The
    
    
    
    basic materials required are steel channel, steel sheet and miscellaneous
                                         7-5
    

    -------
    hardware.  The cost of material required will vary according to chassis
    
    type and size, but should not exceed $100 to $150 per unit.
    
         The hydraulic system components consist of the hydraulic pump, clutch,
    
    and additional hardware.  A clutch is required with most direct drive
    
    configurations to isolate the pump from the engine and prevent overspeed-
    
    ing.  A number of different clutches can be purchased for this application,
    
    including electrically, centrifugally, and pneumatically operated models.
    
    The cost of the clutch and associated hardware will vary between $400 and
    
    $600 per unit.
    
         It is possible that a special tandem pump could be used which would
    
    eliminate the need for the clutch.
    
         Additional hydraulic components such as tubing, cheek valves, fit-
    
    tings, etc., will be required since the hydraulic pump will be located in
    
    front of the cab and hence further away from the compactor body.  These
    
    components are expensive and the added cost may be as high as $75 to $125
    
    per unit.
    
         The total incremental cost of materials and subcontract work for side
    
    and rear loading vehicles ranges between $725 and $1,125 per unit.
    
    However, an estimated $100* of this cost is offset by the fact that a power
    
    take-off unit is no longer required.  The net incremental material cost is
    
    therefore estimated to range from $625 to $1,025 per vehicle.
    
         The incremental labor is estimated to be 25 to 35 man-hours per unit
    
    for production, assembly and checking.  This is equivalent to an additional
    
    cost of $200 to $280 per unit.
    *  The cost of the power take-off unit can vary from $75 to as high as  $600
    depending upon the type of transmission and the PTO features desired.   This
    estimate reflects the labor and component cost for installation of the  most
    commonly used PTO.
                                         7-6
    

    -------
         Front loading vehicles are assumed to employ the flywheel PTO alter-
    
    
    
    native.  The incremental cost of this option from Co. L is approximately
    
    
    
    $915 per vehicle.  This estimated cost should be representative of the cost
    
    
    
    of other alternatives which are applicable to the front loading configuration.
    
    
    
         The additional labor cost associated with the flywheel PTO option
    
    
    
    should be minimal.  An additional cost of $50 to $100 has been estimated to
    
    
    
    account for possible increases in installation and checking time.
    
    
    
    Stage 3.  Cost Estimates
    
    
    
         The Stage 3 technology consists of quieting the hydraulic pump.  Two
    
    
    
    alternative treatments are considered:  a pump sound enclosure and a
    
    
    
    quiet hydraulic pump.
    
    
    
         The cost of labor and material for a pump sound enclosure is estimated
    
    
    
    to range between $30 and $50 per unit and has the disadvantage of being
    
    
    
    subject to contamination from leaking hydraulic fluid and being costly to
    
    
    
    maintain.  However, the quiet pump has the disadvantage of costing between
    
    
    
    $200 and $300 depending on the size and type of pump used.
    
    
    
         The estimated cost for Stage 3 treatment for all three vehicle types,
    
    
    
    therefore, ranges between $30 and $300 assuming no additional labor for
    
    
    
    installation of the quiet pump.
    
    
    
    Inpact Noise Cost Estimates
    
    
    
         The technology to reduce impact noise consists primarily of lining the
    
    
    
    rim of the loading hopper of each vehicle type with an impact absorbing
    
    
    
    rubber strip.  An additional treatment is needed for rear loaders to
    
    
    
    reduce the impact noise associated with the bottoming and reversal of the
    
    
    
    compaction ram cylinders.
                                         7-7
    

    -------
         The application of a two inch rubber strip to the loading hopper does
    
    
    
    not present any significant manufacturing problems.  It is assumed that
    
    
    
    manufacturers will glue or rivet the rubber to the hopper rim at a final
    
    
    
    assembly station without any major impact on present operations.
    
    
    
         The cost of this treatment will vary with each type of vehicle as a
    
    
    
    function  of the hopper size.  Assuming an average vehicle size, it is
    
    
    
    estimated that labor and material cost for front loaders will range between
    
    
    
    $35 and $50 per unit.  The estimated cost for side and rear loaders ranges
    
    
    
    between $10 and $20.
    
    
    
         The reduction of impact noise associated with the hydraulic cylinders
    
    
    
    of rear loaders poses a more significant problem to manufacturers.  Since
    
    
    
    most manufacturers produce their own cylinders, the need for cushioned
    
    
    
    cylinders requires a major redesign of the component and major changes in
    
    
    
    the production of the cylinder assembly.  It is difficult to determine at
    
    
    
    present whether manufacturers will redesign the present cylinders and
    
    
    
    processes, purchase the cushioned cylinders from other raanufacturers, use
    
    
    
    rubber cushions, or seek out other means of eliminating the impact (i.e.,
    
    
    
    using electrical limit switches).
    
    
    
         Assuming that manufacturers elect to redesign their present cylinders,
    
    
    
    the estimated cost will vary with the size of cylinder and the ability of
    
    
    
    the producer to modify the design and production process.  However, once
    
    
    
    the initial design and implementation costs are amortized, it is estimated
    
    
    
    that the additional labor and material cost for the modified cylinders
    
    
    
    should not exceed $150 to $200 per compactor unit.
                                          7-8
    

    -------
    Auxiliary Engine Cost Estimates
    
    
    
         The technology proposed for quieting auxiliary engines on all types of
    
    
    
    vehicles is to install an engine enclosure to muffle noise emissions. Two
    
    
    
    types of auxiliary engines are used on compactors:  air cooled and water
    
    
    
    cooled.
    
    
    
         Application of the technology to the water cooled engine presents no
    
    
    
    major problems, assuming that the enclosure is properly designed and
    
    
    
    provides adequate venting for dissipation of engine heat.  However, the
    
    
    
    
    proposed technology is not applicable to air cooled engines since the
    
    
    
    enclosure would interfere with cooling of the engine. As a result, the
    
    
    
    application of the proposed quieting technology will probably preclude the
    
    
    
    use of air cooled engines on future compactors.
    
    
    
         The labor and material cost of enclosing the water cooled auxiliary
    
    
    
    engine is estimated to be $165 to $260 per unit.  The cost should be
    
    
    
    approximately the same for all three vehicle types since all generally use
    
    
    
    the same type and size of engine.
    
    
    
    Overhead Cost Estimates
    
    
    
         Manufacturing overhead costs are expected to increase in some cost
    
    
    
    categories such as additional indirect materials (adhesives, assembly
    
    
    
    hardware, etc.), supervision, inspection, and manufacturing technical
    
    
    
    support (methods, standards, production scheduling and control, etc.) as a
    
    
    
    result of quieting.
    
    
    
         These additional overhead costs should not exceed 100 to 125 percent
    
    
    
    of the incremental direct labor associated with quieting.  (The existing
    
    
    
    manufacturing overhead rate is estimated to be 200 percent of direct labor
    
    
    
    cost.)
                                         7-9
    

    -------
         General, Sales, and Administrative (GS&A) costs will also increase
    
    
    
    slightly as a result of noise emission standards.  These costs will arise
    
    
    
    from two sources:  the cost of planning and implementing the noise control
    
    
    
    technology and the cost of ongoing compliance with the noise standard.
    
    
    
         The necessary planning and implementation efforts will result in
    
    
    
    additional costs amounting to 20 to 30 percent of incremental direct
    
    
    
    labor.
    
    
    
         The compliance costs result primarily from product testing and record-
    
    
    
    keeping costs.  It is assumed that two types of product testing will be
    
    
    
    required.  The first type would be product verification (PV) testing by the
    
    
    
    manufacturer to insure that initial production runs of each type of vehicle
    
    
    
    meet noise standards.  It is estimated that between 2 and 15 percent of the
    
    
    
    units produced annually will require testing.  The second type of test
    
    
    
    would be the selective enforcement audit (SEA) which would be conducted by
    
    
    
    EPA officials.  It is expected that 50 such requests will be made within
    
    
    
    the industry each year and that this will average out in a way that requires
    
    
    
    each company to test an additional two percent of the units produced annually.
    
    
    
         The cost per vehicle tested is estimated to range between $350 and $600
    
    
    
    and the annual testing costs are assumed to be allocated over the total
    
    
    
    number of units produced each year.
    
    
    
         Manufacturers will also be required to maintain complete records of
    
    
    
    test results as well as records of product sales (for the purpose of
    
    
    
    recall).
    
    
    
         The total estimated cost of both these compliance activities ranges
    
    
    
    between 35 and 180 percent of incremental direct labor cost depending upon
                                          7-10
    

    -------
    the equipment category and level of quieting treatment. This variability  is
    
    
    
    reflected in the estimates of incremental GS&A overhead cost for each
    
    
    
    treatment level and vehicle configuration.
    
    
    
    Maintenance and Operating Cost Estimates
    
    
    
    Maintenance Costs
    
    
    
         *  Stage 1
    
    
    
         The Stage 1 technology for side, rear, and front loaders requires the
    
    
    
    adjustment or addition of a speed control device and installation of a larger
    
    
    
    hydraulic pump.  Both of these components are relatively low maintenance
    
    
    
    items.  For example, a fleet of 60 trucks, representing a mix of front,
    
    
    
    side, and rear loaders, showed no maintenance charges over a ten-month
    
    
    
    period associated with the engine governor and only minimal expenses for
    
    
    
    the hydraulic pump.  Based on this historical data and an evaluation of the
    
    
    
    quieting technology, it is estimated that no increases will occur in main-
    
    
    
    
    tenance costs for Stage 1 treatment of side, rear, and front loading vehicles.
    
    
    
         *  Stage 2
    
    
    
    
         The installation of a front mounted, direct drive hydraulic pump on
    
    
    
    side and rear loaders will result in additional maintenance costs.  It is
    
    
    
    estimated that the clutch, which" is required on the hydraulic pump to
    
    
    
    prevent overspeeding, will require replacement every four years.  The annual-
    
    
    
    ized labor and material cost for this maintenance is estimated to be $100 to
    
    
    
    $150 per vehicle.  Some additional maintenance will also be required on the
    
    
    
    hydraulic system (typically a high maintenance area) due to the increased
    
    
    
    number of components.  This added cost is estimated to be $30 to $40 per
    
    
    
    year per vehicle.
                                         7-11
    

    -------
         Offsetting these costs will be savings in power take-off (PTO) mainten-
    
    
    
    
    ance.  The standard PTO unit presently used on compactors has an expected
    
    
    
    life of approximately three years.  By eliminating this unit, the annualized
    
    
    
    maintenance savings are estimated to be $75 to $125.
    
    
    
         The net increase in maintenance costs for side and rear loaders is
    
    
    
    therefore estimated to be approximately $60 per year per vehicle.
    
    
    
         Front loaders are assumed to employ the flywheel PTO option which will
    
    
    
    
    not significantly increase maintenance costs.
    
    
    
         *Stage 3
    
    
    
         Industry experience does not now exist for the life expectancy of the
    
    
    
    quiet pump, but it appears to perform as well as standard, conventional
    
    
    
    units.  It may, however, be more susceptible to damage from dirt within the
    
    
    
    hydraulic system.  Thus, it is conceivable that maintenance costs could
    
    
    
    rise, but it is not possible at this time to quantify the potential increase.
    
    
    
         The sound enclosure alternative will increase maintenance costs
    
    
    
    slightly since the life expectancy of the sound absorbing material is
    
    
    
    limited.  The film coated fiberglas, used to line the pump enclosure, is
    
    
    
    susceptible to accumulations of dirt and grease as well as damage from
    
    
    
    routine maintenance.  It is, therefore, assumed that this lining will be
    
    
    
    replaced every other year at a cost of $10 to $15 per year.
    
    
    
         *Impact
    
    
    
         The rubber material used to line the loading hopper will be subject  to
    
    
    
    a high level of wear and damage and will probably require replacement each
    
    
    
    year.  The annual cost of this operation is estimated to be  $40 to $50 for
    
    
    
    front loaders and $15 to $20 for side and rear loaders.
                                          7-12
    

    -------
         The use of cushioned cylinders on the rear loading vehicles  is expected
    
    
    
    to have offsetting impacts on maintenance costs.  The effect of the cushion-
    
    
    
    ing action should reduce the amount of wear on the cylinder and thus, to
    
    
    
    some extent, prolong the life of the component.  However, the added complex-
    
    
    
    ity of the cylinder design will lead to increased costs when the  cylinders
    
    
    
    are rebuilt.  It is difficult to assess the net tradeoffs between these two
    
    
    
    factors since there is little experience in the compactor industry with
    
    
    
    cushioned cylinders, but the net impact is not expected to be significant.
    
    
    
    
         *Auxiliary Engines
    
    
    
         The maintenance cost of the auxiliary engine is not expected to change
    
    
    
    as a result of quieting, but some additional maintenance costs are antici-
    
    
    
    pated for replacement of the sound enclosure lining which has a limited
    
    
    
    life expectancy.  The resulting annual increase in maintenance cost for
    
    
    
    replacing this lining is estimated to be $15 to $20 per vehicle.
    
    
    
    Operating Costs
    
    
    
         The only operating cost significantly impacted by the quieting techno-
    
    
    
    logy is fuel cost.  Fuel economies are projected for all vehicles due to
    
    
    
    the Stage 1 reduction in engine speed.  Assuming that trucks are  cycling 25
    
    
    
    percent of the time, the fuel economies will amount to 0.008 gallons per
    
    
    
    hour for gasoline engines and 0.13 gallons per hour for diesel engines.
    
    
    
         The estimates reflected in Table 7-1 assume that:
    
    
    
         1.   The average compactor is operated 2,200 hours per year.
    
    
    
         2.   Fuel prices are $.50 for gasoline and $.40 for diesel.
    
    
    
         3.   All front loaders are diesel engine powered.
    
    
    
         4.   Sixty percent of all side and rear loaders are gasoline-powered
    
    
    
              engines and 40 percent are diesel-powered.
    
    
    
    
    
    
                                         7-13
    

    -------
                                     TABLE 7-1
                           ESTIMATED ANNUAL UNIT OPERATING
                        COST REDUCTION DUE TO FUEL ECONOMIES
    
                            BODY TYPE    ANNUAL SAVINGS
    
                            Front Loader    $114
                            Side Loader       90
                            Rear Loader       90
    
    Summary of Cost Estimates
    
         The range of estimated costs for direct labor and material is summar-
    
    ized in Table 7-2 and the estimated increases in overhead expenses are
    
    summarized in Table 7-3.
    
         The overhead increases shown for Stage 1 treatment include the esti-
    
    mated costs of compliance (i.e., testing and recordkeeping).  These costs
    
    are not included in the estimates of treatment beyond Stage 1 since it is
    
    assumed that these costs will remain essentially constant in that the
    
    number of vehicles to be tested and the necessary documentation and
    
    procedures will remain the same as the stage of quieting increases.
    
         The total estimated cost increases associated with increasing stages
    
    of quieting are shown in Table 7-4 and summarized in Table  7-5.  The costs
    
    shown in the table are based on the expected cost estimates for direct
    
    labor and materials and incremental overhead expenses.  The cost for each
    
    level is cumulative over the preceding levels with the exception of impact
    
    and auxiliary engine treatments which have not been associated with a
    
    particular treatment level.
                                          7-14
    

    -------
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    7-15
    

    -------
                                          TABLE 7-4
                                  SUMMARY OF TOTAL ESTIMATED
                                   COST FOR NOISE ABATEMENT*
                      Front Loader
    Treatment
    
    Stage 1
    Stage 2
    Stage 3
    Impact
    Auxiliary
     Engine
    High
    $1,740
    2,985
    3,345
    120
    410
    Low Expected
    $ 885 $1,215
    1,920 2,310
    1,970 2,500
    60 75
    215 280
          Side Loader
    High     Low   Expected
    Rear Loader
         Low   Expected
    $1,215
    2,310
    2,500
    75
    280
    $ 705
    2,750
    3,110
    40
    410
    $ 460
    1,560
    1,610
    15
    215
    $ 320
    1,930
    2,120
    25
    280
    $ 690
    2,735
    3,095
    550
    410
    $ 445
    1,545
    1,595
    235
    215
    $ 520
    1,915
    2,105
    340
    280
    *These estimates do not reflect estimated maintenance and operating cost changes.
     The total cost for each Treatment Stage is the sum of the dollar value shown
     for that Stage and the cost of Impact Noise Abatement.
                                              7-16
    

    -------
           Treatment
    
           Stage 1
           Stage 2
           Stage 3
           Impact
           Auxiliary Engine
             TABLE 7-5
    SUMMARY OF TOTAL ESTIMATED
        COST INCREASES FOR
          NOISE ABATEMENT
    
      Front Loader  Side Loader  Rear Loader
    $1,215
    2,310
    2,500
    75
    280
    $ 535
    1,930
    2,120
    25
    280
    $ 520
    1,915
    2,105
    340
    280
         The EPA contractor cost estimates shown in Table 7-5 are compared
    
    with estimates supplied by specific compactor body manufacturers  in
    
    Table 7-6.
                                         7-17
    

    -------
                           TABLE 7-6
         MANUFACTURERS INPUT AND EPA CONTRACTOR ESTIMATES
    Front Loaders
    Manufacturer #1 Estimate
    Manufacturer #2 Estimate
    EPA Contractor Estimates:
    - Expected
    - High
    - Low
    Rear Loaders
    Manufacturer #1 Estimates:
    - RL (A)
    - RL (B)
    - RL (C)
    Stage 1
    $1,085
    840
    
    1,215
    1,740
    885
    Stage 1**
    
    $ 775
    780
    835
    Stage 2*
    $2,600
    1,100
    
    2,310
    2,985
    1,920
    Stage 2
    
    $1,765
    1,785
    1,925
    Stage 3
    $2,870
    3,520
    
    2,500
    3,345
    1,970
    Stage 3
    
    $1,935
    1,965
    2, 110
    Manufacturer #2 Estimate       840      1,100        3,520
    
    EPA Contractor Estimates:
    
      - Expected                   520      1,915        2,105
      - High                       690      2,735        3,095
      - Low                        445      1,545        1,595
    
    
    NOTE:  - Manufacturers not identified due to the confidential
             nature of the information.
           - No response received from side loader manufacturers.
     *Manufacturer #1 estimate is based on a front mount, direct
      drive pump.  The EPA contractor estimate assumes the flywheel PTO
      option on a Co. L chassis.
    **Stage 1:  Manufacturer #1 estimates include the cost of an
      improved speed control device.  The EPA contractor estimates assume
      that the existing engine governor is adequate.
                                         7-18
    

    -------
         The impact of noise control treatments on maintenance and operating
    costs are summarized in the following table:
                                     TABLE 7-7
                           SUMMARY OF INCREMENTAL MAINTENANCE
                           AND OPERATING COSTS DUE TO QUIETING
                              (DOLLARS PER VEHICLE PER YEAR)
                      Maintenance
    Operating
    Treatment
    Stage 1
    Stage 2
    Stage 3
    Impact
    Auxiliary
    Lead Time
    Front
    Loader
    $ 0
    0
    10-15
    40-50
    15-20
    Side
    Loader
    $ 0
    60
    10-15
    15-20
    15-20
    Rear
    Loader
    $ 0
    60
    10-15
    15-20
    15-20
    Front
    Loader
    $ -114
    -114
    -114
    Side
    Loader
    $ -90
    -90
    -90
    Rear
    Loader
    $ -90
    -90
    -90
    for Implementation
         The lead time associated with implementation of quieting technology
    
    for compactor bodies is conservatively estimated at 12 to 18 months.
    
    With a few minor exceptions, the compactor technology impacts only
    
    the mounting operation of the compactor assembly on the chassis.
    
    The impact on the production and assembly operations is negligible.
    
    In addition, the components impacted by the technology are primarily
    
    purchased items which are readily available from suppliers.  Therefore,
    
    12 to 18 months should be sufficient for the required engineering
    
    and marketing efforts and for depleting present inventories and building
    
    new ones.
    
    ECONOMIC IMPACT
    
    Introduction
    
          This section describes the estimated economic impacts of the
    
    adoption of three different noise treatment stages.
    
         flarket and total industry impacts are considered first, then the
    
    implications of these impacts are correlated with other factors and
    
    
                                     7-19
    

    -------
    analyzed to identify specific impacts regarding individual firms or
    
    
    
    groups of firms.
    
    
    
    Impact Framework
    
    
    
         Analysis of information obtained from manufacturers, raw material and
    
    
    
    component suppliers, distributors, and end users has established a probable
    
    
    
    overall framework for solid waste compactor industry/market reaction to
    
    
    
    adoption of the noise emission standards suggested for study.  The elements
    
    
    
    of this framework are:
    
    
    
         1.   The total costs to manufacture the equipment will increase.
    
    
    
         2.   The manufacturers, within their competitive framework, will
    
    
    
    pass this cost on in the form of an increase in the distributor price
    
    
    
    (list price).
    
    
    
         3.   The distributor will pass its cost increase on in the form of an
    
    
    
    increase in the negotiated price to the end user.
    
    
    
         4.   The truck mounted solid waste compactor end user will pass
    
    
    
    the increase in his equipment purchase costs on to his customers as an
    
    
    
    increase in the price of collection services provided.  End users will also
    
    
    
    pass on increased costs in operations and maintenance, if any.  In the
    
    
    
    case of municipalities, increased costs will be reflected in increased
    
    
    
    costs for the taxpayer.
    
    
    
         5.   Final changes in industry prices and volumes will reflect the
    
    
    
    changes in solid waste compactor purchase prices and operating costs.
    
    
    
         6.   Ultimately, the consumer will pay a higher price for collection
    
    
    
    services due to the increased cost resulting from reduced noise.  This
    
    
    
    will be reflected in higher prices paid for the services which utilize
    
    
    
    solid waste compactors.  If there are over-all cost reductions as opposed
    
    
    
    
    
                                          7-20
    

    -------
    to cost increases from the adoption of noise control technology, competi-
    
    
    
    tive pressures will cause cost decreases to be passed on down the economic
    
    
    
    chain to the consumer in the form of lower prices.
    
    
    
         7.   It is assumed that the technology and resulting costs used  in the
    
    
    
    study would be the actual future technology adopted and costs incurred.
    
    
    
    This approach is conservative because, with the passage of time, new
    
    
    
    technology at lower costs is likely to be developed.  Thus, the current
    
    
    
    costs used in this study (which are based on an assessment of on-the-shelf
    
    
    
    technology) are essentially an upper bound estimate.
    
    
    
         There are several special characteristics of the compactor body
    
    
    
    industry which should be noted in conjunction with the above overall  impact
    
    
    
    framework.  First, most of the larger solid waste compactor manufacturers
    
    
    
    have a noise engineering staff and are currently manufacturing quieted
    
    
    
    products (on a special order basis at a higher price) while other manu-
    
    
    
    facturers have no quieting experience.  The former companies should be
    
    
    
    better prepared to meet the noise emission standards when they are set.
    
    
    
    Their initial costs under the standards will probably be lower than for
    
    
    
    those firms which have little or no experience in quieting their products,
    
    
    
    if they maintain their current advantage.  And, in that the compactor body
    
    
    
    market is extremely price-competitive, the prices of these larger firms
    
    
    
    with quieting experience will tend to become industry prices.  Firms
    
    
    
    without quieting experience will have to meet the established market price
    
    
    
    level and can be expected to absorb costs in the form of lower profit
    
    
    
    margins until their costs are in line.
    
    
    
         Second, a truck-mounted solid waste compactor is a capital good
    
    
    
    which provides a flow of productive service over a period of years.
    
    
    
    
    
                                         7-21
    

    -------
    Thus, first year cost/price increases are reflected only in the portion
    
    
    
    of compactor bodies manufactured and put in service that year.  End
    
    
    
    user costs will continue to rise until all the equipment in service
    
    
    
    
    is quieted.
    
    
    
         Another factor to note is that, given the competition in the industry,
    
    
    
    price increases for services in the end user markets depend on the level
    
    
    
    of cost increases.  These costs include the increased price of equipment,
    
    
    
    expenditures for maintenance and operations, and costs associated with
    
    
    
    decreases, if any, in productivity from changed performance characteristics.
    
    
    
         Fourth, another important consideration is that the purchaser views
    
    
    
    the price of a solid waste compactor body as only a portion of the total
    
    
    
    price of an operational unit.  The cost of the truck chassis and additional
    
    
    
    accessories necessary to make a complete unit can amount to 60 percent of
    
    
    
    the total price.  Thus, price increases developed for the compactor body
    
    
    
    alone, when viewed from the buyer's perspective, represent an overestimate
    
    
    
    
    of the percent price increase.
    
    
    
         Finally, compliance enforcement will focus on the final assembler or
    
    
    
    mounter of the compactor body onto the truck chassis, a function now
    
    
    
    performed by distributors for approximately 30 percent of the compactor
    
    
    
    bodies sold.  Many of these distributors may not be capable of adequate
    
    
    
    installation testing and compliance verification when new noise standards
    
    
    
    are promulgated.  This may place smaller distributors at a competitive
    
    
    
    disadvantage with larger and more capable distributors in the same market
    
    
    
    area and/or shift the installation function upward to the body manufacturer.
    
    
    
    
    
    
         Dynamics:
    
    
    
         *Adjusting to a Known Future
    
    
    
                                          7-22
    

    -------
         The dynamics associated with the adoption of noise emission standards
    
    
    
    
    reflect econmic conditions which are somewhat unique.  In effect,  the  truck
    
    
    
    mounted solid waste compactor end user is not-respending to short-term or
    
    
    
    unexpected phenomena, but rather to changes mandated for some point  in the
    
    
    
    
    future—two or three or possibly even eight or ten years away.  Thus,  the
    
    
    
    requirements for adjustment are neither unexpected nor the result  of a
    
    
    
    gradual long-term trend.  They are definite and scheduled, and the adjust-
    
    
    
    ment response will reflect this.
    
    
    
         The economic impact assessment specifically considers this time range
    
    
    
    of adjustments.  Due to the planning horizon of two years or more  from the
    
    
    
    date of promulgation and the state of expectations today, it is estimated
    
    
    
    that the major adjustments required will be made in the first year of
    
    
    
    enforcement.  The adjustment period is expected to extend beyond the first
    
    
    
    year, but to be of second order significance.
    
    
    
         *Extending the Life of Unquieted Equipment
    
    
    
         During the first year of enforcement, it is anticipated that  old  solid
    
    
    
    
    waste compactors not subject to regulation may very well be extended in
    
    
    
    life due to the economic advantages which they have over the more  costly
    
    
    
    compactors with noise control.  These solid waste compactors will  be phased
    
    
    
    out of the population in future years due to increased maintenance costs as
    
    
    
    they age physically and accumulate more hours of operation.  Also, the
    
    
    
    impact of local noise ordinances will narrow the range of applications for
    
    
    
    the unquieted units.  Further adjustments will occur in the period beyond
    
    
    
    on.  /ear due to adoption of practices which conserve the use of solid  waste
    
    
    
    compactors in response to the increased costs.
    
    
    
         *PreBuying Unquieted Equipment
    
    
    
    
    
    
                                         7-23
    

    -------
         There is also a dynamic problem in reflecting the adjustments which
    
    
    
    may occur because of rearranging the timing of purchases to avoid buying
    
    
    
    
    more expensive solid waste compactors as long as possible.  The strength of
    
    
    
    economic incentives for rearranging the timing of purchases will depend on
    
    
    
    a number of factors.  It will be a function of the size of the cost penalty,
    
    
    
    
    constraints on sales set by manufacturing capacity, the availability of
    
    
    
    capital funds and negative incentives caused by the possible application of
    
    
    
    local noise ordinances.  The latter two factors restrict the amount of
    
    
    
    prebuying in,relation to what end users may desire solely on the basis of
    
    
    
    the expected cost increases.
    
    
    
         Some end users may replace equipment ahead of the normal cycle in
    
    
    
     order to purchase at lower prices before the regulation takes effect.  In
    
    
    
     this case, the stock of solid waste compactors will be higher before the
    
    
    
     regulation becomes effective.  This will lead to a short-term drop in
    
    
    
    
     sales of the more expensive quieted solid waste compactors until this
    
    
    
     extra stock is worn out.
    
    
    
         Manufacturers of solid waste compactors are not operating near their
    
    
    
    production capacity at the present time, and industry projections indicate
    
    
    
    a fairly constant growth in unit volume over the next several years.
    
    
    
    Consequently, existing plant capacity should be adequate to absorb a
    
    
    
    substantial surge of prebuying.
    
    
    
         Extension of the life of current compactor bodies and prebuying both
    
    
    
    indicate the period of adjustment is likely to last longer than one year.
    
    
    
    The amount of activity in each case is directly related to the size of the
    
    
    
    cost penalty incurred.
    
    
    
         Regulatory Sequence:
    
    
    
    
    
    
                                         7-24
    

    -------
         The magnitude of changes caused by the enforcement of the regulation
    
    
    
    in any one given year will tend to directly affect the impact occurring in
    
    
    
    that year.  For example, EPA's model predicts that a move from current
    
    
    
    prices and noise levels directly to a Stage 2 cost for truck mounted solid
    
    
    
    waste compactors will result in a sharper economic impact and create
    
    
    
    more incentives for prebuying and other rearrangements to avoid the
    
    
    
    consequences of the regulation than a stair-step type of sequence in which
    
    
    
    Stage 2 is reached after a number of years at Stage 1.
    
    
    
         A chronological sequence of three stages was used in this section
    
    
    
    for initial assessment of economic impacts:  Stage 1 is assumed to
    
    
    
    be effective on January 1, 1979; Stage 2 on January 1, 1982; and Stage
    
    
    
    3 on January 1, 1985.
    
    
    
    IMPACT ASSESSMENT
    
    
    
    Volume Impact
    
    
    
         1.   Purpose
    
    
    
         The purpose of this section is to analyze the impact of the noise
    
    
    
    standards suggested for study on the volume of truck mounted solid waste
    
    
    
    compactor production.  Volume change is a critical impact since it becomes
    
    
    
    reflected in other impacts such as production employment, activity in
    
    
    
    downstream channels of distribution and impacts transmitted to upstream
    
    
    
    component suppliers.
    
    
    
         2.   Base Line Forecast
    
    
    
         The baseline forecast provides a pre-regulation base of estimated
    
    
    
    future industry activity levels which is then related to estimated post-
    
    
    
    regulation activity levels to determine the economic impacts of the regula-
    
    
    
    tions.
    
    
    
    
    
    
                                         7-25
    

    -------
                               TABLE 7-8
    
              BASELINE FORECAST BY YEAR AND COMPACTOR BODY TYPE
                               1979-1993
    BASELINE FORECAST(l)
    
    Year
    1979
    1980
    1981
    1982
    1983
    1984
    1985
    1986
    1987
    1988
    1989
    1990
    1991
    1992
    1993
    Total
    Units
    13,344
    13,700
    13,985
    14,284
    14,598
    14,928
    15,275
    15,581
    15,893
    16,211
    16,535
    16,866
    17,204
    17,547
    17,899
    Front
    Loader
    1,524
    1,600
    1,680
    1,764
    1,852
    1,945
    2,042
    2,083
    2,125
    2,167
    2,210
    2,255
    2,300
    2,346
    2,393
    Side
    Loader
    3,660
    4,100
    4,305
    4,520
    4,74b
    4,983
    5,233
    5,338
    5,445
    5,554
    5,665
    5,778
    5,894
    6,011
    6,132
    Rear Loader
    Total Quieted(2) Standard
    8,160
    8,000
    8,000
    8,000
    8,000
    8,000
    8,000
    8,160
    8,323
    8,490
    8,660
    8,833
    9,010
    9,190
    9,374
    816
    800
    800
    800
    800
    800
    800
    816
    832
    849
    866
    883
    901
    919
    937
    7,344
    7,200
    7,200
    7,200
    7,200
    7,200
    7,200
    7,344
    7,491
    7,641
    7,794
    7,950
    8,109
    8,271
    8,437
    Source:  Exhibit IV-2 (Reference 7-1)
    
    Notes:  (1)  This exhibit is the detailed breakdown of
                 Exhibit IV-2 of Ref. 7-1 showing the projected estimates
                 of units for each compactor body type.
    
            (2)  Quieted units are produced for rear loaders only,
                 and are estimated at 10% of total rear loader
                 units.
                               TABLE 7-9
                   COMPOSITE MANUFACTURER'S PROJECTION
                       OF UNIT SHIPMENTS, 1975-1985
    
                               Average Annual Growth Rates
         Body Type           1975-1980  1980-1985   1985-1995
         Front Loader
         Side Loader
         Rear Loader
     5%
    12
    -2
    5%
    5
    0
    2
    2
            Total
     2%
    2%
                              7-26
    

    -------
         The baseline forecast through 1993 and 1995 is presented  in Tables
    
    
    
    7-8 and 7-9.  The forecast is a composite projection of unit shipments
    
    
    
    and is based on manufacturers' forecasts.
    
    
    
         It can be seen that side loader and front loader shipments are
    
    
    
    expected to grow fastest between 1975 and 1985.  Rear loader shipments
    
    
    
    are expected to decline by one percent per year over the period 1975-1985.
                                                                          »
    
    
    The growth of all three body types is expected to be 2 percent over
    
    
    
    the period 1985-1995.
    
    
    
         The projections are in marked contrast to the actual shipment growth
    
    
    
    of ten percent per year between 1964 and 1974.  This rapid growth rate
    
    
    
    resulted, first from increasing market penetration by compactor bodies
    
    
    
    during this period (open body collection trucks were being phased out) and
    
    
    
    second, from the substantial increase in total solid wastes being collected
    
    
    
    between 1964-1974.  The latter resulted from higher consumer disposable
    
    
    
    incomes and related purchases of more products with a larger quantity of
    
    
    
    disposable packaging per product increased, the migration of higher income
    
    
    
    families to houses with larger yards and increases in the quantity of yard
    
    
    
    waste in the suburbs, and to more local ordinances restricting open burning.
    
    
    
         However, a number of other factors are expected to interact to reduce
    
    
    
    the shipment growth rates and to change the loader type mix between 1975
    
    
    and 1995.  Front loader units will increase during the first decade
    
    
    
    (1975-1985) and level off during the second (1985-1995) due to increased
    
    
    
    use in the commercial and multi-unit dwelling market.  Side loaders
    
    
    
    are projected to increase significantly to about a 9 percent annual
    
    
    
    growth rate during the first decade and stabilize during the second
    
    
    
    period.  There will be increased replacement of rear loaders by side
    
    
    
    
                                     7-27
    

    -------
    loaders which offer greater labor efficiency and lower operating costs.
    
    
    
    Finally the use of rear loaders is expected to decline during the
    
    
    
    period 1975-1985 and stabilize during the second ten year period.
    
    
    
    These factors include the fact that the packer body market has been
    
    
    
    
    fully penetrated so that future new unit sales will result from growth
    
    
    
    in solid waste generation and replacement of units being retired.
    
    
    
         Also, as indicated in section 2 of Reference 7-1, the growth of total
    
    
    
    solid wastes requiring collection is expected to be at a lower rate.  This
    
    
    
    will be coupled with some technological changes in packer bodies that will
    
    
    
    result in shipments growing even slower than increases in solid wastes
    
    
    
    generated.  These changes include larger packer body capacity and compac-
    
    
    
    tion density, particularly for municipal fleets, and the use of transfer
    
    
    
    stations, combined with satellite units to make waste transport collection
    
    
    
    and disposal more efficient.  Highway load restrictions place an upper
    
    
    
    limit on packer body capacity and compacting density.  Also, the mix of
    
    
    
    packer bodies by type will shift toward more productive equipment.  Front
    
    
    
    loaders will be substituted for rear loaders for non-residential applica-
    
    
    
    tions and side loaders will be substituted for rear loaders for residential
    
    
    
    applications.
    
    
    
         The latter is supported by data presented in a recent study which are
    
    
    
    summarized in the following table:
                                         7-28
    

    -------
                                    TABLE 7-10
    
                     ON-ROUTE PRODUCTIVITY AND COLLECTION COSTS
    
    System
    Number
    1
    2
    3
    4
    5
    6
    7
    8
    
    9
    10
    11
    Vehicle
    Loader
    Type
    Side
    Side
    Rear
    Rear
    Rear
    Rear
    Side
    Detachable
    Contnr.
    Rear
    Rear
    Rear
    Productivity/Collection Hours
    Crew
    Size
    1
    1
    2
    2
    3
    3
    1
    
    2
    3
    2
    2
    Homes/
    Crewman
    107
    56
    53
    58
    35
    21
    84
    
    67
    66
    35
    22
    Tons/
    Crewman
    2.5
    2.0
    1.3
    1.5
    1.1
    .7
    1.2
    
    .8
    1.1
    .6
    .6
    Homes/
    Crew
    107
    56
    107
    123
    104
    63
    84
    
    138
    200
    72
    44
    Tons/
    Crew
    2.5
    2.0
    2.6
    3.1
    3.3
    2.0
    1.2
    
    1.7
    3.3
    1.2
    1.1
    Costs
    Homes/
    Year
    $ 9.88
    15.60
    11.96
    11.44
    20.28
    28.80
    19.24
    
    28.52
    24.96
    16.64
    24.44
    
    Ton
    $ 8.29
    8.48
    9.53
    8.72
    12.82
    17.13
    13.48
    
    21.15
    14.67
    19.26
    18.41
    Source:  "Eleven Residential Pickup Systems Compared for Cost and
             Productivity," Kenneth A. Shuster, Solid Waste Management
             Magazine, May 1975.  (Reference 7-2)
    
         Even though the above systems varied considerably, (i.e., point of
    
    collection, frequency of collection, incentive system, loading method and
    
    vehicle size and type, etc.), the overall higher efficiency of one-man
    
    crews (side loaders) under a number of application environments is clear,
    
    as is further demonstrated in Table 7-11.  The importance of these effi-
    
    ciency factors for side loaders is further enhanced when it is recognized
    
    that side loaders are most effectively applied to curbside collection
    
    systems which presently account for 60 percent of the collection systems in
    
    the U.S. and which are expected to further increase in importance in future
    
    years.
    
         It is believed that the value of shipments will increase somewhat
    
    faster than unit shipments due to increased body size, product enhance-
    
    ments to achieve greater compaction density, and other product modifications.
                                         7-29
    

    -------
                                    TABLE 7-11
    
                        PERCENT OF TOTAL TIME UTILIZATION
    
    System
    Number
    1
    2
    3
    4
    5
    6
    
    7
    8
    9
    
    Crew
    Size
    1
    1
    1
    2
    2
    2
    
    3
    3
    3
    
    Loader
    Type
    Side
    Side
    Side
    Rear
    Rear
    Detach .
    Contnr .
    Rear
    Rear
    Rear
    Crew
    Produc-
    tive Time
    98.5%
    97.2
    97.6
    63.0
    58.3
    
    69.5
    61.3
    58.7
    61.0
    Crew Non-
    produc-
    tive Time
    1.5%
    2.8
    2.4
    37.0
    41.7
    
    30.5
    38.7
    41.3
    39.0
    
    
    Total
    100%
    100
    100
    100
    100
    
    100
    100
    100
    100
                Source:  Residential Collection Systems
                         U.S. Environmental Protection Agency,
                         (530/SW-97c.l), March, 1975, Page 24.
                         (Reference 7-3)
    
         Consequently, it is estimated that the average annual real growth
    
    (constant 1974 dollars) will be three percent per year between 1974 and
    
    1985, and that unit shipments will increase at the two percent level.
    
         Industry shipment levels, which reflect these growth rates, are
    
    shown in Table 7-12.  In 1985, unit shipments are expected to be at the
    
    15,000 level and value of shipments are expected to be at the $173 million
    
    level.
    
         Projected unit shipments for the time frame up to 1995 are required to
    
    evaluate the economic impact of totally quieted population of solid waste
    
    compactor bodies.
                                     7-30
    

    -------
                                 TABLE 7-12
    
                   ESTIMATED AND PROJECTED UNIT AND DOLLAR
                    VOLUMES OF TRUCK MOUNTED SOLID WASTE
                         COMPACTOR BODIES, 1974-85*
    $( MILLIONS) -
    Estimated
    Unit Shipments 1974
    Front Loader
    Side Loader
    Rear Loader
    TOTAL
    Value of
    Shipments
    Source : Manufacturers '
    1.2
    2.1
    9.0
    12.3
    
    $125
    
    interviews
    UNITS (OOOs)
    Average Annual
    Projected Growth Rate
    1980 1985 1974-1985
    1.6 2.0
    4.1 5.2
    8.0 8.0
    13.7 15.2
    
    $149 $173
    
    and projections
    5%
    9
    _i
    2%
    3%
    *  Dollar forecasts are in 1974 constant dollars.
    
         It is shown in section 2 of Reference 7-1 that total gross discards
    
    of solid wastes are expected to increase 2.5 percent annually between
    
    1980-1990.  No forecast is currently available beyond that time frame.
    
    Consequently, the 2.5 percent has been utilized as the best measure avail-
    
    able.  It is reasonable to assume, however, that technology advances will
    
    increase the capacity per unit and offset the 2.5 percent average annual
    
    growth estimate.  Further, it is not known whether the trade-offs between
    
    side and rear loaders will persist over this time frame.  Consequently,
    
    the projections reflected in Table 7-13 assume that the average
    
    annual growth rates for each body type are equal at two percent per
    
    year.
                                         7-31
    

    -------
    
    Body Type
    Front Loader
    Side Loader
    Rear Loader
    Total
    
    1985
    2.0
    5.2
    8.0
    15.2
    
    (thousands)
    1990
    2.2
    5.7
    8.8
    16.7
    
    
    1995
    2.4
    6.3
    9.7
    18.4
    
                                TABLE 7-13
    
                        PROJECTED UNIT SHIPMENTS OF
                        SOLID WASTE COMPACTOR BODIES,
                                1985-1995
                                                           Average Annual
                                                               Growth
                                                              1985-1995
    
                                                                 2%
                                                                 2%
                                                                 2%
    
                                                                 2%
    
    Source:  Table 7-12 and Manufacturers' interviews and projections.
    
    
         3a.    Pricing and Price Elasticity
    
         Assuming a full incremental cost pass-along, purchasers of quieted
    
    solid waste compactors will be presented with price increases attribut-
    
    able to the costs of sound attenuation, compliance, and enforcement.
    
    Estimates of the price increases that would result from these costs are
    
    summarized in Table 7-14.  Costs related to the treatment of auxiliary
    
    engines are presented separately since these treatments have not been
    
    associated with a particular level.  The estimated cost related to
    
    impact noise has been included with each of the levels.
    
         Quieted units produced on a special order basis are also indicated
    
    in Table 7-14.  It is estimated that in 1975 ten percent of rear loaders
    
    were shipped with quieting equipment and that the unit price increase
    
    resulting from the quieting treatment was approximately ten percent.  In
    
    that it was not possible to relate the quieted units to a specific noise
                                      7-32
    

    -------
    Stage 1
    Stan-
    dard Quieted
    6.9%
    7.3
    7.4
    Stage 2
    Stan-
    dard
    12.7%
    25.6
    19.5
    Quieted
    9.5%
    Stage 3
    Stan-
    dard
    13.7%
    28.0
    21.1
    Quieted
    11.1%
    standard the incremental price of these units is treated as a reduction
    
    in the cost to attain the EPA specified technology levels.  Quieted side
    
    or front loaders are not produced.
    
                                 TABLE 7-14
    
                        ESTIMATED AVERAGE LIST PRICE
                           PERCENTAGE INCREASE BY
                          NOISE LEVEL AND CATEGORY
    
                        S
    Compactor
    Body Type
    
    Front Loaders
    Side Loaders
    Rear Loaders
    
         Consideraton was also given to the costs of quieting auxiliary
    
    engine usage on side and rear loaders, but analysis indicated that
    
    there was no significant difference between the costs of quieting aux-
    
    iliary engines and the costs of quieting standard units.
    
         The expected price increases between noise control stages for each
    
    type of compactor body are presented in detail in Table 7-15 and sum-
    
    marized in Table 7-16.
    
         The dynamics of demand volume reaction to increased solid waste
    
    compactor prices can be expected to vary depending upon:
    
         A.   The extent of price increases.
    
         B.   The significance of equipment cost in the end user's cost
    
    structure giving specific consideration to depreciation, operating costs,
    
    maintenance costs, and crew productivity.
    
         C.   The ease of substitution of one packer body type for another
    
    (i.e., side loaders for rear loaders).
    
         D.   The option of renting or leasing truck mounted solid waste
    
    compactors as an alternative to purchasing the equipment.
    
                                     7-33
    

    -------
                                          TABLE 7-15
    
      ESTIMATED INCREMENTAL PRICE BETWEEN NOISE CONTROL STAGES BY COMPACTOR BODY TYPE
    
    
    
    Standard Units
    Front Loader
    
    
    Side Loader
    
    
    Rear Loader
    
    
    Quieted Units ^
    
    Rear Loader
    
    
    
    
    Average
    Level Price
    To 1 $18,780
    1-2
    2-3
    To 1 7,650
    1-2
    2-3
    To 1 11,580
    1-2
    2-3
    )
    (2)
    TO 1
    1-2 11,580
    2-3
    Estimated
    Increase
    Between
    Stages
    $1,290
    1,095
    190
    560
    1,395
    190
    860
    1,395
    190
    
    
    — (2)
    1,095
    190
    Total Total
    Stage 1 Stage 2
    Average Average
    Price Price
    $20,070 —
    $21,165
    
    8,210 —
    9,605
    
    12,440
    13,835
    
    
    
    
    12,675
    
    Total
    Stage 3
    Average
    Price
    —
    
    $21,355
    —
    
    9,795
    
    
    14,025
    
    
    
    
    12,865
    Percent
    Change
    Between
    Stages
    6.9%
    5.5
    0.9
    7.3
    17.0
    2.0
    7.4
    11.2
    1.4
    
    
    
    9.5
    1.5
    Source:  Exhibits V-l, V-2 and V-3 (Reference 7-1)
    
    Notes:   (1)  Quieted units are produced for rear loaders only.
             (2)  No calculation rrade for Stage 1 rear loaders since price of
                  quieted units exceeded estimated cost for Stage 1 technology.
                                         7-34
    

    -------
                                    TABLE 7-16
    
                            PERCENT INCREMENTAL PRICE
                           BETWEEN NOISE CONTROL STAGES
    
                                                     Stage 1   Stage  2
           Compactor Body Type          To Stage 1   to  2      to  3
    
             Standard Unit
                Front Loader               6.9%        5.5%      0.9%
                Side Loader                7.3         17.0       2.0
                Rear Loader                7.4         11.2       1.4
    
             Quieted Unit*
                Rear Loader               —**         9.5       1.5
            *  Quieted front and side loaders are not manufactured.
            ** Quieted rear loaders are estimated to cost 10 percent more
               than standard units.  This amount exceeds the Stage 1 expected
               increase.
         E.  The trade-off of new equipment purchases to extending the life
    
    of used equipment.
    
         F.  The ease of substitution of competitive solid waste collection
    
    systems.
    
         G.  The potential of achieving greater efficiency of operation.
    
         H.  The level of imports and exports.
    
         3b.  Cost Estimates of Regulatory Options
    
         EPA considered various regulatory options.  The options utilize
    
    Stage 1, 2, and 3 technology and their associated costs.  The variable
    
    elements in each option include:  1} the year of implementation,
    
    2) maximum noise level allowable, and 3) quieting technology.
    
    Because the costs of quieting are dependent upon these factors, the costs
    
    associated with these options also vary.
                                    7-35
    

    -------
    For the major cost elements, operating (or fuel) costs, maintenance
    
    
    
    
    costs, and equipment costs (direct labor and materials) estimates have
    
    
    
    been developed and are summarized in Table 7-17.  Table 7-18 shows
    
    
    
    the percentage cost increase to achieve the required noise levels
    
    
    
    of the regulatory options as well as the equivalent annual cost for
    
    
    
    implementing and maintaining the noise level of selected options.
    
    
    
         The regulatory option which has been proposed for rulemaking
    
    
    
    
    is option 7, which requires the noise level of truck mounted solid
    
    
    
    waste compactor bodies to reach a maximum of 78 dBA in 1979 and 75 dBA
    
    
    
    in 1982.  To achieve the 78 dBA level, Stage 2 technology is assumed
    
    
    
    for all compactor body types.  To reach the overall 75 dBA level, there
    
    
    
    will be a 3 dBA noise reduction in the truck itself due to noise regula-
    
    
    
    tion which EPA has promulgated for medium and heavy duty trucks
    
    
    
    (41 FR 15538).
    
    
    
         The costs for this proposed regulatory option are exactly equal
    
    
    
    to those costs imposed to achieve Stage 2 technology.  Using the
    
    
    
    average price of the compactor body, the estimated increase in price
    
    
    
    from the baseline to Stage 2 technology for option 7 is 12 percent for
    
    
    
    front loaders, 25.6 percent for side loaders and 19.5 percent for rear
    
    
    
    loaders.  On quieted rear loaders the estimated percentage price
    
    
    
    increase is 9.5 percent.  Taking the price of the truck chassis into
    
    
    
    consideration, the effective percentage increase in price for the
    
    
    
    
    complete units are about one-half of these figures, or about 6.4
    
    
    
    percent for front loaders, 12.8 percent for side loaders, and 9.8
    
    
    
    percent for rear loaders.  Estimated maintenance cost increases are
    
    
    
    small for all compactor body types.  They averaged $45.00 for front
    
    
    
    
    
    
                                          7-36
    

    -------
                                      TABLE 7-17
    
                      SUMMARY OP FUEL, MAINTENANCE AND EQUIPMENT COST
                   ESTIMATES ASSOCIATED WITH PROPOSED REGULATORY OPTIONS
    Option Year NTE*
    Level
    
    1 1979 80
    1 1982 75
    3 1982 79
    5 1982 75
    7 1979 78
    7 1982 75
    a 1979 80
    a 1982 79
    b 1979 78
    b 1982 74
    Treatment
    Stage
    
    Stage 1
    Stage 2
    Stage 1
    Stage 2
    Stage 2
    Stage 2
    Stage 1
    Stage 1
    Stage 2
    Stage 3
    Body Type Fuel Cost
    Increment
    $
    Front Loader -114.00
    Side Loader - 90.00
    Rear Loader - 90.00
    Front Loader -114.00
    Side Loader - 90.00
    Rear Loader - 90.00
    Front Loader -114.00
    Side Loader - 90.00
    Rear Loader - 90.00
    Front Loader -114.00
    Side Loader - 90.00
    Rear Loader - 90.00
    Front Loader -114.00
    Side Loader - 90.00
    Rear Loader - 90.00
    Front Loader -114.00
    Side Loader - 90.00
    Rear Loader - 90.00
    Front Loader -114.00
    Side Loader - 90.00
    Rear Loader - 90.00
    Front Loader -114.00
    Side Loader - 90.00
    Rear Loader - 90.00
    Front Loader -114.00
    Side Loader - 90.00
    Rear Loader - 90.00
    Front Loader -114.00
    Side Loader - 90.00
    Rear Loader - 90.00
    Maintenance
    Cost Increment
    $
    45.00
    17.50
    17.50
    45.00
    77.50
    77.50
    45.00
    17.50
    17.50
    45.00
    77.50
    77.50
    45.00
    77.50
    77.50
    45.00
    77.50
    77.50
    45.00
    17.50
    17.50
    45.00
    17.50
    17.50
    45.00
    77.50
    77.50
    57.50
    90.00
    90.00
    Equipment
    Cost Increment
    $
    1,290.00
    560.00
    860.00
    2,385.00
    1,955.00
    2,255.00
    1,290.00
    560.00
    860.00
    2,385.00
    1,955.00
    2,255.00
    2,385.00
    1,955.00
    2,255.00
    2,385.00
    1,955.00
    2,255.00
    1,290.00
    560.00
    860.00
    1,290.00
    560.00
    860.00
    2,385.00
    1,955.00
    2,255.00
    2,575.00
    2,145.00
    2,445.00
    *Not to Exceed
                                             7-37
    

    -------
                                      TABLE 7-18
    
                        REGULATORY OPTIONS AND COST IMPACTS
    Option No.
    Baseline
    1
    3
    5
    7
    1979
    Regulatory
    Level
    New truck
    83 dBA @
    50 feet
    80
    (not
    regulated )
    (not
    regulated)
    78
    %Cost Increase
    0
    3.7
    0
    0
    9.9
    1982
    Regulatory
    Level
    New truck
    80 dBA @
    50 feet
    75
    79
    75
    75
    %Cost Increase
    0
    6.2*
    3.7
    9.9
    0
    Equivalent
    Annual Costs
    $( Mi 11 ions)
    0
    14.53
    1.63
    12.29
    18.72
    *Incremental percentage cost increase due to moving from Stage 1 technology
    to Stage 2 technology.
                                        7-38
    

    -------
    loaders and $77.50 for both side and rear loaders.  Fuel  (operating)
    
    costs will decrease due to the reduced engine speeds entailed  in  the
    
    quieted compactors.  Front loader fuel changes are expected to decline
    
    by $114.00 while side and rear loader trash compactors will each
    
    reduce fuel expenses about $90.00 per year.
    
         It should be noted however that percentage price increases are
    
    based on the cost of the compactor body alone, not the price of the
    
    complete operational unit which also includes the truck chassis and
    
    cab.  The percentage price increase computed using the total price
    
    of the operational unit (which is the price the end user  vould have
    
    to pay) is significantly smaller.
    
         The equivalent annualized costs for adoption of the  Option 7
    
    regulatory scenario is $18.72 million when the regulatory scenario
    
    begins in 1979 and quieting costs are computed through 1993.
    
    
         4a.  Price Elasticity of Demand
    
         The price elasticity* of demand is used as a measure of the  reaction
    
    of the market to a price increase.  It relates the change in quantity
    
    demanded to the change in price.  The estimate of elasticity reflects
    
    the total net interaction of the preceding factors impacting on the
    
    quantity demanded as prices change from present levels.
    * Mathematically, the price elasticity  (e) of demand can  be defined  as:
    
    
             e = Percentage Change in Quantity Demanded  (q)
                 Percentage Change in Price (p)
    
             e = dq/q = d£ . p_
    
    
                                          7-39
    

    -------
             Background & Assumptions:
    
         A model of the "typical" solid waste compactor body end user was
    
    constructed to evaluate the effects of price on volume and to analyze
    
    several other economic factors.  The model represents a composite of
    
    all end user types:  large and small private contractors and municipal-
    
    ities.  It is summarized in Table 7-19.
    
         The analysis which follows assumes that the "full flow-through" con-
    
    cept is applicable to the market and the industry.  Therefore, cost
    
    increases experienced by the manufacturer will be passed down through
    
    the distributor to the purchasing end user in the form of price
    
    increases.  The price increases will result in higher collection fees
    
    for collection sevices to the consumer.
    
           The analysis also assumes that demand for solid waste compactor
    
    bodies, as an intermediate product, is less sensitive to changes in its
    
    own price when that product represents a small proportion of the cost
    
    for the final product or service demanded (i.e., solid waste collection).
    
    
                                  TABLE 7-19
    
                     REPRESENTATIVE SOLID WASTE COMPACTOR
                         END USER COST STRUCTURE MODEL
                                                      Percent of Oper-
           Expense Category                           ating Revenues
    
           Equipment maintenance                            11.8
           Collection labor                                 47.5
           Equipment operation                               3.7
           Other expenses                                   32.6
           Depreciation  (collection equipment)               4.4
    
             Total expense                                 100.0%
    The rationale is that for a given level of demand  for  collection services,
    
    the impact of a change in compactor body prices  is small when  compared  to
    
    the total cost of collection services and the price charged  for  the  ser-
    
    
                                         7-40
    

    -------
    vices.  A relatively small change in the price of collection services
    
    
    
    
    implies a relatively small effect on the quantity demanded of both collec-
    
    
    
    tion services offered and compactor bodies.
    
    
    
         Table 7-19 shows that collection equipment  (the major component of
    
    
    
    the depreciation account) represents a small fraction of total operating
    
    
    
    expenses, less than five percent.  This includes truck chassis, bodies
    
    
    
    and containers.  Considering that the purchaser views the price of
    
    
    
    the compactor body as only a portion of the total price of an operational
    
    
    
    unit (i.e., truck chassis and cab) the price increases developed for
    
    
    
    the compactor body alone represent an overestimate of the percentage
    
    
    
    price increase.  Thus the depreciation expense for compactor bodies
    
    
    
    alone is in effect an even smaller portion (of total operating expenses)
    
    
    
    than the amount noted here.  Therefore, a change in the price of new
    
    
    
    
    compactor bodies resulting from noise abatement regulations has a
    
    
    
    small effect on the "derived" demand for new compactor equipment.
    
    
    
    This enhances the ability of the compactor body manufacturer to pass
    
    
    
    through additional costs without reducing production volume significantly.
    
    
    
         It is believed that there is a relatively low demand elasticity.
    
    
    
    The reasons for this are:
    
    
    
         A.  Equipment cost as reflected in depreciation charges are a small
    
    
    
    factor in the end user's total cost structure.  Our model indicates that
    
    
    
    these costs represent 4.4 percent of operating revenues.
    
    
    
         B.  Truck mounted solid waste compactors presently have a high
    
    
    
    degree of acceptance in the industry.  There are no viable competi-
    
    
    
    tive systems.
    
    
    
         C.  Differential price increases between side and rear loaders
    
    
    
    
    could precipitate a change in the mix of these units.  At Stage 1,
    
    
    
                                         7-41
    

    -------
    the estimated percentage price increase of these body types is essen-
    
    
    
    tially the same.  No change in mix attributable to this factor would
    
    
    
    be expected.
    
    
    
         D.  The level of imported and exported compactor bodies will not
    
    
    
    be affected by a price increase at Stage 1 since all imported units will
    
    
    
    be subject to the same noise abatement standard and exports will not be
    
    
    
    subjected to the noise attenuation standards.
    
    
    
         E.  Lease of compactor bodies will not materially change at Stage
    
    
    
    1 price increases.
    
    
    
         F.  The increased price for new equipment will not materially change
    
    
    
    the trade-offs associated with buying new equipment versus extending the
    
    
    
    life of units currently in operation.
    
    
    
         G.  Prebuying will occur somewhat in response to higher prices.
    
    
    
         It is estimated that the elasticity of demand for truck mounted
    
    
    
    compactors remains relatively low for Stage 2 and 3 treatment.
    
    
    
         4b.  Equivalent Annual Costs For Changes in Demand Elasticity
    
    
    
              Estimates.
    
    
    
         To test the sensitivity of the equivalent annual costs relative
    
    
    
    to changes in the demand elasticity for compactor bodies under noise
    
    
    
    regulation, scenarios were developed in which widely varying demand
    
    
    
    elasticities were used for the purpose of comparison.
                                          7-42
    

    -------
         The equivalent annualized costs of regulation for the trial scenario
    
    
    
    
    are $15.5 million.  This scenario assumes:  1) A regulatory process
    
    
    
    in which Stage 1 technology is adopted in 1979, Stage 2 in 1982, and
    
    
    
    Stage 3 in 1985 for all body types; 2) Cost increment estimates used
    
    
    
    were those discussed earlier in this section, 3) Demand elasticity
    
    
    
    of -.20.
    
    
    
         Equivalent annual costs also were computed for assumed elasticities
    
    
    
    of -1.0 and 0.  The first case implies an equal reduction in quantity
    
    
    
    demanded for a given percentage change (increase) in price; the second
    
    
    
    case assumes no change in quantity demanded for change in price (of
    
    
    
    the magnitude discussed here.)
    
    
    
         The equivalent annualized costs of regulation assuming an elasticity
    
    
    
    of -1.0 are $13.1 million; assuming an elasticity of 0, the equivalent
    
    
    
    annualized costs are $17.1 million.  In these two cases, the
    
    
    
    equivalent annualized costs of regulation vary from the original case,
    
    
    
    decreasing 15.5% or increasing 10.3% from the original estimate of
    
    
    
    $15.5 million.  It is concluded from these results that the economic
    
    
    
    analysis is relatively insensitive to the assumed value of elasticity,
    
    
    
    within the magnitude of change considered.
                                  7-43
    

    -------
         5.  Volume Impact
    
    
    
         Stage I
    
    
    
         Estimated lead times for an orderly adoption of on-the-shelf quiet-
    
    
    
    ing technology has been conservatively estimated to be 12 to 18 months.
    
    
    
    The analysis of Stage 1 economic impact is based on the regulation taking
    
    
    
    effect January 1, 1979.
    
    
    
    
         Estimates of the Stage 1 increased list prices of standard and
    
    
    
    quieted units are presented in Table 7-20.  The calculation of volume
    
    
    
    impact in all cases is based on the cost of quieting for each category
    
    
    
    
    considered.  A separate calculation is made for each compactor body type
    
    
    
    and for standard and quieted units.
    
    
    
         Volume reductions resulting from price increases associated with
    
    
    
    Stage 1 are estimated based on an elasticity of -.20.  The original
    
    
    
    baseline forecast is presented in Table 7-8 and the expected Stage
    
    
    
    1 decreases in demand are shown in Table 7-21.  The adjusted baseline
    
    
    
    forecast resulting from the adoption of Stage 1 for calendar years
    
    
    
    1979-87 are shown in Table 7-22.
    
    
    
         Table 7-23 summarizes the estimated Stage 1 reduction in unit
    
    
    
    volume in 1979:
                                           7-44
    

    -------
                                           TABLE 7-20
                            DEVELOPMENT OF ESTIMATED PRICE ADJUSTMENTS
                                     ASSOCIATED WITH STAGE 1
                                   NOISE EMISSION REQUIREMENTS
                                      STANDARD UNITS
    Equipment       List
    Classification  Price
    Front Loaders   $18,780  $1,290
    
                (3)
    Side Loaders
    
    Rear Loaders
     7,650
    
    11,580
    Expected
    Price
    Increase
    $1,290
    560
    860
    Adjusted
    Average
    List Price
    $20,070
    8,210
    12,440
    Percent
    Price
    Increase
    6.9%
    7.3
    7.4
                                                   QUIETED UNITS
                                                                                  (1)
                                                  Average     Adjusted
                                                  Price       Average
                                                  Increase    List Price
    
                                                     _J2)       _
    
                                                       (2)
    Source:  Exhibits III-20 and II-6 (Reference 7-1)
    
    Notes:   (1)  Cost of Stage 1 quieted units estimated at 10% over standard price which is
                  greater than Stage 1 price increase.  No computation of percent made.
             (2)  Quieted front or side loaders are not manufactured.
             (3)  Does not include prices for products built and sold as an integral body and
                  chassis unit.
                                              7-45
    

    -------
                                           TABLE 7-21
                              PERCENT VOLUME DECLINE - STAGE 1
                                                (1)
                           STANDARD UNITS
                                                QUIETED UNITS
                                                                            (2)
    Compactor
    Body Type
    
    Front Loader
    
    Side Loader
    
    Rear Loader
                 Percent
                 Price
    Elasticity   Increase
       .20
    
       .20
    
       .20
    6.9%
    
    7.3
    
    7.4
    Percent
    Decrease
    in Demand
    
      1.4%
    
      1.5
    
      1.5
                                         Percent     Percent
                                         Price       Decrease
                           Elasticity    Increase    in Demand
    Source:  Exhibit V-4 (Reference 7-1)
    
    Notes:  (1)  Volume impact is based on the cost of quieting each compactor body  type as
                 developed in Section II (Reference 7-1)
    
            (2)  The number of quieted rear loaders producted is less than 10% of total
                 shipments.  Quieted units are produced on an optional equipment, special
                 order basis only at an approximate price of 10% greater than standard units.
                 No incremental costs are expected to apply the specified noise abatement
                 technology to quieted units since current price premium exceeds the estimated
                 Stage 1 cost.
                                             7-46
    

    -------
                                             TABLE 7-22
                         ADJUSTED BASELINE FORECAST - STAGE 1  (1979 - 1987)
                TOTAL PROJECTED
                UNITS SHIPPED( '
            Unit Decrease  Adjusted
    Year    from Baseline  Baseline
    
    1979         186        13,158
    1980         192        13,508
    1981         197        13,788
    1982         201        14,083
    1983         205        14,393
    1984         210        14,718
    1985         216        15,059
    1986         219        15,362
    1987         224        15,669
       FRONT LOADER
    
    Unit      Adjusted
    Decrease  Baseline
       21
       22
       24
       25
       26
       27
       29
       29
       30
    1,503
    1,578
    1,656
    1,739
    1,826
    1,918
    2,013
    2,054
    2,095
                SIDE LOADER
    
             Unit      Adjusted
             Decrease  Baseline
    55
    62
    65
    68
    71
    75
    79
    80
    82
    3,605
    4,038
    4,240
    4,452
    4,675
    4,908
    5,154
    5,258
    5,363
                         REAR LOADER
    
                      Unit      Adjusted
                      Decrease  Baseline
    110
    108
    108
    108
    108
    108
    108
    110
    112
    8,050
    7,892
    7,892
    7,892
    7,892
    7,892
    7,892
    8,050
    8,211
    Source:  Exhibits IV-2, V-6, and V-7 (Reference 7-1)
    
    Notes:  (1)  Unit decrease equals the difference between baseline forecase and the baseline
                 as adjusted for Stage 1 price increases.
            (2)  Quieted units are not included since the estimated cost of quieted units over
                 standard units is 10% and this exceeds the Stage 1 price increase.
                                                7-47
    

    -------
                                   Table 7-23
    
                       STAGE 1 - ESTIMATED FIRST YEAR UNIT
                      REDUCTION FROM BASELINE FORECAST, 1979
    
                                                  Reduction in
                                                  Annual Volume
                  Compactor Body Type            Units   Percent
    
                     Front loader                  21      1.4%
                     Side loader                   55      1.5
                     Rear loader                  110      1.5
    
                           Total                  186      1.5
         The reduction in unit volume resulting from the adoption of the Stage
    
    1 standard ranges from 21 to 110 units depending on compactor body category,
    
    and the total unit reduction is about 1.5 percent of baseline shipments.
    
    The largest unit reduction occurs in rear loaders, and the smallest unit
    
    and percentage reduction occurs in front loaders.  Stage 1 does not
    
    reduce industry volume below the 1978 baseline forecast shipment level.
    
         Stage 2
    
         The analysis of the Stage 2 economic impact is based on the regulation
    
    taking effect January 1, 1982.  However, to facilitate subsequent analysis
    
    of proposed regulatory options, adjusted forecasts of demand include the
    
    years 1979-1981 in parentheses.
    
         Estimates of the list price increases associated with the modifi-
    
    cations necessary to achieve Stage 2 are presented in Table 7-24.  The
    
    estimated elasticities, percent price increases, and decreases in demand
    
    used to calculate the Stage 2 volume impact are presented in Table 7-25.
    
         The adjusted baseline forecast associated with adoption of Stage 2
    
    for calendar years 1979-90 is shown in Table 7-26.  Table 7-27 summarizes
    
    the estimated Stage 2 reduction in unit volume in 1982 relative to the
    
    baseline volume.
    
                                       7-48
    

    -------
                                           TABLE 7-24
                            DEVELOPMENT OF ESTIMATED PRICE ADJUSTMENTS
                                     ASSOCIATED WITH STAGE 2
                                   NOISE EMISSION REQUIREMENTS
                                 STANDARD UNITS
    QUIETED UNITS
                                                                                    (1)
    Equipment
    Classification
    Front Loaders
    Side Loaders^ '
    Rear Loaders
    Average
    List
    Price
    $18,780
    7,650
    11,580
    Expected
    Price
    Increase
    $2,385
    1,955
    2,255
    Adjusted
    List
    Price
    $21,165
    9,605
    13,835
    Percent
    Price
    Increase
    12.7%
    25.6
    19.5
    Expected
    Price
    Increase
    _<2)
    _(2)
    $1,095
    Adjusted
    List
    Price
    —
    —
    $12,675
    Percent
    Price
    Increase
    —
    —
    9.5%
    Source:  Exhibits 111-20 and II-6 (Reference 7-1)
    
    Notes:   (1)  Cost of quieted units estimated at 10% over standard price.
             (2)  Quieted front or side loaders are not manufactured.
             (3)  Does not include prices for products built and sold as an integral body and
                  chassis unit.
                                              7-49
    

    -------
                                           TABLE 7-25
    Compactor
    Body Type
    
    Front Loader
    
    Side Loader
    
    Rear Loader
    STANDARD UNITS
    Elasticity
    .20
    .20
    .20
    Percent
    Price
    Increase
    12.7%
    25.6
    19.5
    Percent
    Decrease
    in Demand
    2.5%
    5.1
    3.9
    QUIETED UNITS ^
    Percent
    Price
    Elasticity Increase
    — —
    —
    .20 9.5%
    Percent
    Decrease
    in Demand
      1.9%
    Source:  Exhibit V-2 (Reference 7-1)
    
    Notes:  (1)  Volume impact is based on the cost of quieting each compactor body  type  as
                 developed in Section II  (Reference 7-1)
    
            (2)  Quieted units are assumed to require the same technology package  as
                 unquieted units for this level.  Quieted units are priced ten percent
                 higher than the equivalent unquieted units.
                                              7-50
    

    -------
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    -------
                                  Table 7-27
    
                     STAGE 2 - ESTIMATED FIRST YEAR UNIT
                   REDUCTION FROM BASELINE FORECAST, 1982*
    Reduction in
    Annual Volume
    Compactor Body Type
    Front Loaders
    Side Loaders
    Rear Loaders
    Units
    44
    231
    296
    Percent
    2.5%
    5.1
    3.9
                       Total                   571       4.0%
    
         The total reduction in unit volume resulting from the adoption
    
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    1979.  Table 7-27 shows the volume impacts (annual volume reduction)
    
    which would follow from adoption of Option 7.
    * The units of volume reduction for Stage  2 assume  implementation of
      that level exclusive of the impact of previous levels.
                                        7-52
    

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         Stage 3
    
         The analysis of economic impact is based on Stage 3 regulations  taking
    
    effect January 1, 1985.
    
         Table 7-28 provides the estimated price increases related to Stage  3
    
    modifications.  The estimated elasticities, percent price  increases,  and
    
    decreases in demand used to calculate Stage 3 volume  impact are presented
    
    in Table 7-29.
    
         The adjusted baseline forecast associated with the adoption of Stage
    
    3 for the calendar years 1985 through 1993 is shown in Table  7-30.  Table
    
    7-31 summarizes the estimated Stage 3 reductions in unit volume for the
    
    first year, 1985.
    
                                    TABLE 7-31
    
                        STAGE 3 - ESTIMATED FIRST YEAR UNIT
                      REDUCTION FROM BASELINE FORECAST, 1985*
    
                                                   Reduction in
                                                   Annual Volume
                   Compactor Body Type             Units     Percent
    
                       Front Loader                    55       2.7
                       Side Loader                    293       5.6
                       Rear Loader                    320       4.2
    
                           Total                     668       4.3
                    *The  units  of  volume  reduction for Stage 3 assume
                     irtpleinentation  of  that  level exclusive of the
                     impact of  previous levels.
          The  total  reduction in unit volume resulting from adoption of Stage
    
     3  standards  is  approximately 4.3 percent.   The decrease in projected units
    
     ranges  from  55  to 320  units.   The largest  unit reduction is in the rear
    
     loader  category.   The  largest percent reduction is in side loaders.  The
    
                                         7-56
    

    -------
    smallest unit decrease and percent reduction are in front loaders.  Intro-
    
    duction of Stage 3 standards reduces total projected volume approximately
    
    two percent below the 1984 baseline forecast shipment levels.
    
    Impact of Prebuying on Volume
    
         The solid waste compactor body industry will be subject to some pre-
    
    buying activity immediately prior to the effective date of each noise
    
    abatement level.  The time period for prebuying is estimated at three
    
    months to one year prior to the effective date for each noise level regu-
    
    lation.  The amount of prebuying is assumed to depend on three factors:
    
             1.  The amount of excess capacity of manufacturers to produce
    
    compactor bodies above the baseline production level at that time.
    
             2.  The economic benefit of purchasing compactor bodies earlier
    
    and the potential savings resulting from early purchase.
    
             3.  The risk of the technology required to quiet the compactor
    
    bodies as related to possible increased cost of maintenance and operation.
    
                                    TABLE 7-32
    
                            ESTIMATED EXCESS PRODUCTION
                             CAPACITY BY BODY TYPE IN
                             YEAR PRIOR TO REGULATION
                                          Estimated Unused as Per-
                                          cent of Total Capacity
                                          State 1  State  2   Stage 3
                 Compactor Body Type       1978     1981     1984
    
                   Front Loader              900
                   Side Loader               000
                   Rear Loader               20*       20*      20*
    * Exhibit V-13 shows estimated unused capacity  in excess
      of 30 percent for the years prior to each noise level
      regulation date.  EPA estimates this level to be excessive
      since some rear loader manufacturers will shift production
      away from rear loaders in favor of side loaders or other
      non-compactor body production.  (Ref. 7-1).
    
                                         7-57
    

    -------
         Estimates of the excess production capacity available in the year
    
    prior to each effective date of noise level regulation are summarized
    
    in Table 7-32, and the prebuying anticipated in the year prior to the
    
    effective date for each new noise standard is summarized in Table 7-33.
    
                                  TABLE 7-33
    
                             ANTICIPATED PPEBUYING
                       IN YEARS PRIOR TO EFFECTIVE DATES
                       (Percent Increase in Total Units
                        Shipped Over Baseline Forecast)
    
                                           1978   1981   1984
    
                 Front Loader                200
                 Side Loader                 000
                 Rear Loader                 6     25     25
    
    
         The unused capacity will allow prebuying to increase the 1978 pro-
    
    duction approximately six percent for rear loaders and two percent for
    
    front loaders.  There will be no excess capacity available to support
    
    prebuying for side loaders.  Prebuying is not expected to exceed these
    
    percentages since the technology applied to attain Stage 1 noise abate-
    
    ment has no risk involved to suggest significant increases in maintenance
    
    operations cost.
    
         Stage 2 price increases for rear loaders is 19.5 percent (based
    
    on the body only) above the base period price.  It is expected that
    
    all available production capacity will be utilized to accommodate
    
    prebuying.  This assumes an annual cost of capital of ten percent.
    
         At Stage 3, the incremental price difference for rear loader
    
    bodies is 21.1 percent.  Unused capacity is available for rear loader
    
    production and sufficient economic advantage exists to encourage a
    
    full year of early purchasing given an annual cost of capital of ten
    
    
                                        7-58
    

    -------
    percent.  As in the previous two noise stages, the technology applied  to
    
    
    
    achieve Stage 3 does not involve increased risk and is not considered  a
    
    
    
    factor in stimulating prebuying.
    
    
    
         No adjustments to the baseline forecast or the revised baselines  for the
    
    
    
    three levels have been made to reflect prebuying.  The adjusted baseline fore-
    
    
    
    cast can be modified to reflect prebuying by adding the incremental volume
    
    
    
    produced in the year preceding the effective date of the noise abatement
    
    
    
    standards (1978, 1981, and 1984).  A similar reduction in the volume of pro-
    
    
    
    duction would be necessary in the first year of each effective noise level  to
    
    
    
    compensate for prebuying.  After the first year:, it is assumed that shipments
    
    
    
    will return to the adjusted baseline levels.
    
    
    
         Summary
    
    
    
         In summary, the reduction in industry volume at Stage 1 is relatively  low
    
    
    
    (186 units).  The impact on volume at Stages 2 and 3 is a reduction of 571  and
    
    
    
    668 units respectively.  The effects of respective treatment stages are not
    
    
    
    additive.  Each stage is assumed to include the units of reduction related  to
    
    
    
    moving from the preregulation baseline to the given treatment level.   Movement
    
    
    
    from one treatment stage to the next higher level would involve a reduction of
    
    
    
    the net difference expected between the two stages.  As previously noted, the
    
    
    
    estimated cost of quieting based on current on-the-shelf technology represents
    
    
    
    a conservative estimate.  Insofar as the actual costs incurred for quieting is
    
    
    
    lower, the resulting volume impact will be correspondingly lower.
    
    
    
         Resource Costs:
    
    
    
         * Purpose and Methodology
    
    
    
         The resources which will be used to meet each noise standard are  estimated
    
    
    
    in this section, using three measures:
    
    
    
    
    
    
                                         7-59
    

    -------
         A.  The annual increase in capital cost required by end user industries
    
    
    
    in the first year of enforcement.  This represents the additional capital
    
    
    
    required to purchase the more expensive quieted units.
    
    
    
         B.  The total increase in annual costs in end user segments in the
    
    
    
    first year of enforcement.  Estimates include depreciation, cost of capital,
    
    
    
    operation and maintenance costs.  This represents the incremental annual
    
    
    
    costs to own and operate the more expensive quieted units.
    
    
    
         C.  The total increase in annual costs for operation of a 100 percent
    
    
    
    quieted population of solid waste compactors based on a future date when
    
    
    
    nonquieted compactors have been phased out of the population of packer
    
    
    
    bodies in use.
    
    
    
         The estimates of first year capital costs for end user industries
    
    
    
    are based on the increased purchase price paid and the volume of purchases
    
    
    
    estimated.  Pricing is at the list price level.  This measure represents
    
    
    
    the additional capital which must be financed by end user industries due
    
    
    
    to the enforcement of the noise standard.
    
    
    
         The resource cost factors included in the estimate of the total
    
    
    
    annual cost increases for end users are:
    
    
    
         A.  Depreciation.  Seven-year, straight-line depreciation of 14.3
    
    
    
    percent per year is used.  Current Internal Revenue Service guidelines
    
    
    
    allow solid waste compactors to be depreciated over a five year period.
    
    
    
    Hcwever, seven years is generally accepted as the average packer body
    
    
    
    economic life.  Therefore, seven years is a better period to use in
    
    
    
    assessing economic impact.
    
    
    
         B.  Capital Cost.  A return on investment or capital cost rate of
    
    
    
    ten percent of the additional capital investment is used.
    
    
    
    
    
    
                                        7-60
    

    -------
         C.  Operating Costs.  Analysis based on industry information indi-
    
    cates that there will be a reduction in operating costs.
    
         D.  Maintenance Costs.  Maintenance cost increases associated with
    
    the modifications necessary to attain Stage 1 will be negligible.
    
         Stages 2 and 3 are estimated to result in a slight increase in
    
    maintenance cost.
    
         Mid-range estimates of resource costs were developed to answer the
    
    question:  What is the annual bill society pays for quiet solid waste
    
    packer bodies?  Resource cost estimates are based on the revised base-
    
    line forecast and the incremental resource costs from the baseline to
    
    each respective regulatory level.
    
         * Estimated Costs
    
         Stage 1
    
         The total increased capital cost to end user industries is esti-
    
    mated to be $10.9 million for the first year of enforcement of the Stage
    
    1 noise standard (Table 7-34).  Incremental capital costs represent the
    
    adjusted baseline unit forecast by the increased unit price.
    
    
                                 Table 7-34
    
                         TOTAL ESTIMATED FIRST YEAR
                         INCREASED CAPITAL COSTS FOR
                      END USER INDUSTRIES - STAGE 1, 1979
                                   S(OOOs)
    
                                         Increased Capital Costs
                Compactor Body Type        Mid-Range Estimates
    
                   Front Loader                  $ 1,939
                   Side Loader                     2,019
                   Rear Loader                     6,923
    
                        Total                    $10,881
    
    
                                        7-61
    

    -------
         Estimated total annual cost increases in the first year for adoption
    
    of a Stage 1 noise standard in 1979 are $1.9 million (Table 7-35).
    
                                   Table 7-35
    
                           TOTAL ESTIMATED FIRST YEAR
                           INCREASED ANNUAL COSTS FOR
                        END USER INDUSTRIES - STAGE 1, 1979
                                     $(OOOs)
    
                                           Increased Capital Costs
                  Compactor Body Type        Mid-Range Estimates
    
                     Front Loader                   $  383
                     Side Loader                       196
                     Rear Loader                     1,368
    
                          Total                     $1,947
    
         Stage 2
    
         Increased end user capital costs are estimated at $27.4 million
    
    in the first year of enforcement for adopting a Stage 2 noise standard
    
    in 1982 (Table 7-36).  Again, incremental capital costs are determined
    
    by multiplying the adjusted baseline forecast unit shipments by the
    
    unit cost increase.
    
                                   Table 7-36
    
                          TOTAL ESTIMATED FIRST YEAR
                          INCREASED CAPITAL COSTS FOR
                      END USER INDUSTRIES - STAGE 2, 1982
                                   $(OOOs)
    
                                         Increased Capital Costs
                  Compactor Body Type      Mid-Range Estimates
    
                     Front Loader                 $ 3,966
                     Side Loader                    7,820
                     Rear Loader                   15,645*
    
                          Total                   $27,431
                  * Cost of quieted units,  $839,000  included  for
                    rear loaders only.
                                         7-62
    

    -------
         Estimated total annual cost increases in the first year of enforcement
    
    of a Stage 2 noise standard in 1982 are $6.5 million (Table 7-37).
    
                                  Table 7-37
    
                          TOTAL ESTIMATED FIRST YEAR
                          INCREASED ANNUAL COSTS FOR
                      END USER INDUSTRIES - STAGE 2f 1982
                                   $(OOOs)
    
                                          Increased Annual Costs
                   Compactor Body Type      Mid-Range Estimate
    
                      Front Loader                 $  954
                      Side Loader                   1,852
                      Rear Loader                   3,714
    
                           Total                   $6,520
         Stage 3
    
         Stage 3 increases in capital cost are presented in Table 7-38.
    
                                  Table 7-38
    
                          TOTAL ESTIMATED FIRST YEAR
                          INCREASED CAPITAL COSTS FOR
                      END USER INDUSTRIES - STAGE 3, 1985
                                   $(OOOs)
    
                                          Increased Annual Costs
                   Compactor Body Type      Mid-Range Estimate
    
                      Front Loader                 $ 4,931
                      Side Loader                    9,811
                      Rear Loader                   16,909*
    
                          Total                    $31,651
                   * Includes $977,000 for quieted rear loaders.
    
    
         The total estimated increases in annual costs for Stage 3 are pre-
    
    sented in Table 7-39.
                                       7-63
    

    -------
                                  Table 39
    
                          TOTAL ESTIMATED FIRST YEAR
                          INCREASED ANNUAL COSTS FOR
                      END USER INDUSTRIES - STAGE 3, 1985
                                   $(OOOs)
    
                                          Increased Annual Costs
                   Compactor Body Type     Mid-Range Estimates
    
                      Front Loader                $1,110
                      Side Loader                  2,114
                      Rear Loader                  3,679
    
                           Total                  $6,903
         The total annual costs (capital expenditures, operating and main-
    
    tenance costs) for a 100 percent quieted compactor body population  in
    
    1993 and beyond are estimated to be $43 million.
    
         *  Summary
    
         Analysis of the resource costs required to quiet solid waste compactor
    
    bodies indicates that:  The capital costs associated with sound attenuation
    
    are significant.  Total solid waste compactor body sales were approxi-
    
    mately $125 million in 1974.  First year capital costs are projected to be
    
    approximately $10.8 million for Stage 1, $27.4 million for Stage 2  and
    
    $31.6 million for Stage 3.
    
         For a 100 percent quiet population at Stage 3 in 1993 and beyond,
    
    total annual costs are estimated to be $43 million.
    
         Market Impact:
    
         *  Purpose
    
         This section describes additional impacts anticipated from the adop-
    
    tion of noise control technology, and includes consideration of both the
    
    upstream component suppliers and the downstream distributors and end
    
    users.
    
                                       7-64
    

    -------
         * Suppliers
    
    
    
         General suppliers to truck mounted solid waste compactor body manu-
    
    
    
    facturers will not be adversely affected by the adoption of noise control
    
    
    
    technology, mainly because all suppliers derive only a small portion of
    
    
    
    their business from the packer body industry.  The effects of quieting
    
    
    
    solid waste compactors on the major suppliers are briefly described below:
    
    
    
         A.  Truck Chassis Manufacturers.  The major truck chassis manufacturers
    
    
    
    
    are large, financially sound companies with strong technical capabilities,
    
    
    
    and truck chassis on which to mount solid waste compactors are not a major
    
    
    
    portion of the truck chassis market.  Manufacturers are not expected to
    
    
    
    
    make design changes as a result of packer body noise attenuation.
    
    
    
         No meaningful change in sales volume is expected as a result of
    
    
    
    regulation.  Using an extremely conservative truck chassis shipment level
    
    
    
    (i.e., 1975 medium and heavy duty shipments), the unit reductions associ-
    
    
    
    ated with Stages 1, 2, and 3 are .09, .27 and .31 percent respectively.
    
    
    
         B.  PTO, Pump and Valve Manufacturers.  Power Take-Off units, hydraulic
    
    
    
    pumps and valves are the major components affected by the proposed regula-
    
    
    
    tions.  The components utilized by the solid waste compactor body industry
    
    
    
    are standard product items, and the volume purchased by the industry is
    
    
    
    insignificant relative to total production and sales.  No significant
    
    
    
    changes are expected.
    
    
    
         C.  Distributors.
    
    
    
         Solid waste compactor body distribution channels and distributor
    
    
    
    operations will not be significantly affected by the noise emission
    
    
    
    standards.  EPA has established that enforcement of the standards will
    
    
    
    be at that level which mounts or assembles the compactor body on the
    
    
    
    
                                        7-65
    

    -------
    truck chassis.  An estimated 30 percent of total new bodies are mounted by
    
    
    
    distributors.
    
    
    
         The worst case impact of noise regulation on distributors is considered
    
    
    
    by applying the following assumptions:
    
    
    
             (1)  New compactor body sales are $1.75 million (70 percent of $2.5
    
    
    
    million).
    
    
    
             (2)  The average price of a new compactor body is $11,580  (the
    
    
    
    average list price of a rear loader) and the average distributor sells
    
    
    
    151 bodies annually.
    
    
    
             (3)  The distributor mounts 45 of the 151 bodies sold (30  percent
    
    
    
    of 151).
    
    
    
             (4)  The revenue derived from mounting bodies is between $300 to
    
    
    
    $500 per unit.  For the 45 mounted annually, total revenue is between
    
    
    
    $13,500 and $22,500.
    
    
    
             (5)  The above estimated revenue loss represents between .5 and .9
    
    
    
    percent of current sales.
    
    
    
         It is not believed that loss of these revenues will directly impact
    
    
    
    total net profit before taxes since costs will also be reduced.
    
    
    
         D.  End Users
    
    
    
         The potential impact of regulation on end users will be reflected
    
    
    
    in their ability to finance purchases of new packer bodies and the
    
    
    
    incremental annual costs to operate quieted units.
    
    
    
               (1)  Ability to Finance New Unit Purchases.  End users view the
    
    
    
    purchase of a packer truck as being comprised of a packer body and  truck
    
    
    
    chassis as a unit.  The regulations under study affect only the packer body.
    
    
    
    Consequently, the price increases reflected in this report overstate
    
    
    
    
    
                                         7-66
    

    -------
    the perceived price increase from an end user perspective.  It can be seen
    
    in the following table that the total packer truck price increases are more
    
    moderate than previously presented:
    
                                    Table 7-40
    
                            ESTIMATED TOTAL PACKER TRUCK
                         PRICE INCREASES BY REGULATORY LEVEL
    
                    STAGE 1               STAGE 2               STAGE 3
    
    
    
    Type
    of
    Loader
    Front
    Side
    Rear
    
    
    Compactor
    Body
    Price
    Increase
    6.9%
    7.3
    7.4
    Compactor
    Body and
    Truck
    Chassis
    Price
    Increase*
    3.5%
    3.7
    3.7
    
    
    Compactor
    Body
    Price
    Increase
    12.7%
    25.6
    19.5
    Compactor
    Body and
    Truck
    Chassis
    Price
    Increase
    6.4%
    12.8
    9.8
    
    
    Compactor
    Body
    Price
    Increase
    13.7%
    28.0
    21.1
    Compactor
    Body and
    Truck
    Chassis
    Price
    Increase
    6.9%
    14.0
    10.6
    * It is conservatively estimated that the packer body and truck chassis
      individually account for 50 percent of total purchase price.
    
    SOURCE:  Table 7-6
    
         It is expected that price increases will reduce overall demand for
    
    packer bodies in both the private hauler and municipality end user segments.
    
    The level of reduction is reflected in the estimates of price elasticity
    
    previously presented.
    
             (2)  Incremental Annual Costs.  Changes in depreciation, maintenance,
    
    capital costs and vehicle operating costs resulting from regulation are reflec-
    
    ted in increased annual costs per vehicle as shown in Table 7-41.  It should be
    
    noted that the total annual costs to operate a quieted compactor vehicle are
    
    less than one percent greater than preregulation levels for Stage 1 and less
    
    than 1.4 percent greater for Stages 2 and 3 for all types of compactors.
    
         Cost increases of this level will not be difficult to pass on to consumers
    
    in the form of either higher collection rates for private haulers or higher
    
    taxes to fund municipal collection operations.
    
                                         7-67
    

    -------
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                                                 7-68
    

    -------
    Impact on Solid Waste Compactor Manufacturing Operations:
    
    
    
         * Purpose
    
    
    
         The purpose of this section is to evaluate the potential impacts
    
    
    
    from adoption of noise standards on manufacturers of solid waste compactor
    
    
    
    bodies.
    
    
    
         The assembly operations in the manufacturing process are most
    
    
    
    affected by noise abatement technology (Ref. 7-1).  Basically, new
    
    
    
    purchased components are substituted for purchased components currently
    
    
    
    utilized.  Consequently, significantly different plant and equipment
    
    
    
    investment levels are not expected to result from regulation.
    
    
    
         Assessment of regulation impact on overall industry employment
    
    
    
    levels involves consideration of the expected reduction in units produced
    
    
    
    and the incremental labor required to intergrate the new technology.  These
    
    
    
    factors are considered for each regulatory level in the following para-
    
    
    
    graphs .
    
    
    
         * Stage 1
    
    
    
         Total unit reduction under Stage 1 regulation is expected to be
    
    
    
    approximately 1.5 percent with a similar reduction in employment.  How-
    
    
    
    ever this reduction is offset by increases in employment to integrate
    
    
    
    the new technology.  The estimated number of incremental direct labor
    
    
    
    hours required to integrate the new technology for each regulatory level
    
    
    
    are shown in the following table:
                                        7-69
    

    -------
                                        TABLE 7-42
    
                             ESTIMATED CURRENT AND INCREMENTAL
                                   DIRECT LABOR HOURS BY
                                      REGULATORY LEVEL
                  Current
                  Unit     	INCREMENTAL DIRECT LABOR HOURS**	
                  Direct      Stage 1          Stage 2          Stage 3
    Compactor     Labor    Abso-  Percent   Abso-  Percent   Abso-  Percent
    Type	     Hours*   lute   Increase  lute   Increase  lute   Increase
    
    Front Loader   290      18      6.2      27      9.3      27       9.3
    
    Side Loader    120       9      7.5      39     32.5      39      32.5
    
    Rear Loaders   180       9      5.0      39     21.7      39      21.7
    
    
         Note that direct labor inputs to produce units increase from 5.0 to
    
    6.2 percent depending upon body type.  A net increase in employment  is
    
    expected under Stage 1.
    
         * Stages 2 and 3
    
         Demand reduction resulting from Stage 2 regulation would produce an
    
    employment reduction of 2.5, 5.1 and 3.9 percent for front, side and rear
    
    loaders, respectively.  It can be seen in Table 7-42 that these reductions
    
    are more than off-set by increases in direct labor inputs required by the
    
    new technology.  The same pattern is expected to result under Stage  3.
    
         Foreign Trade:
    
         * Purpose
    
         This section covers the impact of the regulation on export and  import
    
    patterns for truck mounted solid waste compactor bodies.  Noise regulations
    *Estimated direct labor hours were derived by utilizing  the
     typical manufacturer model shown in Section II  (Reference 7-1).
     Total direct labor costs account for  12 percent of  total list
     price.  Labor hours were calculated using $7.80 per hour.
    **Incremental direct labor hours are taken from Section  II
       (Reference 7-1).
                                        7-70
    

    -------
    do not apply to export products, but do apply to products imported for use
    
    
    
    in the United States.
    
    
    
         * Exports
    
    
    
         Domestic solid waste compactor body manufacturers will be able to
    
    
    
    export quieted and unquieted products to foreign countries depending on the
    
    
    
    requirements of the foreign market.  To the extent that some foreign markets
    
    
    
    require quiet compactor bodies, domestic manufacturers will be in an improved
    
    
    
    competitive position.
    
    
    
         life expect no negative change in compactor body export patterns to
    
    
    
    result from regulation.
    
    
    
         * Imports
    
    
    
         Imports have not significantly penetrated the United States solid
    
    
    
    waste compactor body market.  This indicates that U.S. producers have a net
    
    
    
    cost/technology advantage over foreign producers have a net cost/technology
    
    
    
    advantage over foreign producers.  This is not expected to change as a
    
    
    
    result of regulation.
    
    
    
         * Balance of Trade
    
    
    
         Based on the factors reviewed above, no material impact on the balance
    
    
    
    of trade is anticipated from setting any of the noise abatement levels.
    
    
    
         Individual Impacts:
    
    
    
         * Purpose
    
    
    
         This section addresses differential impacts which may develop,
    
    
    
    affecting a single firm or set firms.
    
    
    
         * Truck Mounted Solid Waste Compactor Body Manufacturers
    
    
    
         The modifications necessary to meet all regulatory levels require a
    
    
    
    minimum level of technical expertise in quieting technology.  Small
    
    
    
    
    
                                        7-71
    

    -------
    manufacturers will be less able to support requirements for specialized
    
    
    
    personnel than larger companies but the relative impact is considered
    
    
    
    minimal in view of the technology.  Further, it is believed that the lead
    
    
    
    times are adequate for compliance with the impending regulations.  Conse-
    
    
    
    quently, no differential impacts on manufacturers of different size of mix
    
    
    
    of product offering are expected.
    
    
    
         Distributive Impacts:
    
    
    
         * Purpose
    
    
    
         This section assesses the potential for disruptive economic impacts due
    
    
    
    to the establishment of noise standards per se.  It concerns "real" world
    
    
    
    impacts as opposed to impacts which are a change in a forecasted future.
    
    
    
    With adequate lead time and appropriate planning, business management is able
    
    
    
    to adjust its plans to reflect changing conditions and avoid adverse impacts
    
    
    
    of its operations.  Through adjustments in planning, future over-capacity,
    
    
    
    unemployment and other adverse conditions are avoided.
    
    
    
         * Assessment
    
    
    
         The adoption of the noise emission levels suggested for study will have
    
    
    
    the following probable effects:
    
    
    
         A.   Stage 1 — 1979.  No disruptive impacts are indicated at this
    
    
    
    level.  Cost changes for the bodies are from 6.9 to 7.4 percent, and
    
    
    
    volume changes are minor from baseline conditions.  The solid waste com-
    
    
    
    pactor body industry would be expected to continue its normal growth
    
    
    
    pattern with a Stage 1 noise standard.  No unemployment would be
    
    
    
    anticipated.
    
    
    
         B.  Stage 2 — 1982.  Adoption of a Stage 2 standard will result in
    
    
    
    high costs reflected in substantial price increases  (12.7,  25.6 and 19.5
    
    
    
    
    
                                        7-72
    

    -------
    percent for front, side and rear loader bodies, respectively).  This will
    
    result in an overall 4 percent decrease in domestic solid waste compactor
    
    body demand.  The growth pattern of the solid waste compactor body  industry
    
    will remain at the baseline average annual rate.  No unemployment is
    
    anticipated.
    
         C.  Stage 3 — 1985.  Compactor body price increases for Stage 3 range
    
    from 13.7 to 28.0 percent.  Demand is expected to decrease by 4.3 percent.
    
    No unemployment is anticipated and the growth of the industry will  continue
    
    at the baseline average annual rate.
    
         Given the size of the solid waste compactor body industry, no  signifi-
    
    cant economic disruption to the national or a regional economy will occur
    
    from these changes.
    
         Summary:
    
         In this section, the economic impact has been assessed based on
    
    required product technology modifications provided by EPA.  A brief
    
    summary of the results are:
    
         A.  Equipment prices will increase as shown in Table 7-43 and  will be
    
    passed on to end users.
                            TABLE 7-43
             SUMMARY OF ESTIflATED LIST PRICE INCREASES
                                         Percent
                                   List Price Increase
           Compactor Body Type  Stage 1  Stage 2  Stage 3
    
           Front Loader           6.9      12.7     13.7
           Side Loader            7.3      25.6     28.0
           Rear Loader            7.4      19.5     21.1
           Quieted Rear Loader    	       9.5     11.1
    
           SOURCE:  Tables 7-14, 7-15
    
    
                                        7-73
    

    -------
         B.   Unit volume will be affected as indicated below:
    
                            TABLE 7-44
    
              SUMMARY OF ESTIMATED FIRST YEAR UNIT
                REDUCTION FROM BASELINE FORECAST
    
                                     Unit Reduction
                               Stage 1  Stage 2  Stage 3
          Compactor Body Type  (1979)   (1982)   (1985)
    
          Front Loader            21       44       55
          Side Loader             55      231      293
          Rear Loader            110      296      320
    
          Total                  186      571      668
    
          SOURCE:  Tables 7-24, 7-28 and 7-33
    
         Stage 1 will result in an overall 1.5 percent decline in unit volume
    
    Stage 2 in an overall 4.0 percent decline in unit volume, and Stage 3 in
    
    an overall 4.4 percent decline.
    
         C.   The cost of noise abatement is presented in Table 7-45.
    
                           TABLE 7-45
    
                  SUMMARY OF THE RESOURCE COSTS
                 ASSOCIATED WITH NOISE ABATEMENT
                             $(OOOs)
    
                          First Year of Enforcement
         Noise Standard  Capital Costs  Annual Costs
    
         Stage 1 - 1979    $10,881        $1,947
         Stage 2 - 1982     27,431         6,520
         Stage 3 - 1985     31,651         6,903
    
         The cost of noise attenuation is high in relation to the  total  1974
    
    dollar volume of the solid waste compactor body market of approximately
    
    $125 million.
    
         D.   There will be little effect on upstream component suppliers,
    
    or downstream distributors or end users.
                                         7-74
    

    -------
         E.   There will be no effect on factory operations at any of the
    
    
    
    regulatory levels.
    
    
    
         F.   No unemployment is expected to occur at any of the regulatory
    
    
    
    levels.
    
    
    
         G.   No changes in import and export patterns will occur because
    
    
    
    of noise regulations.
    
    
    
         H.   No manufacturers are likely .to withdraw from the solid waste
    
    
    
    compactor body market as a result of regulation.
    
    
    
         I.   There is no expected disruptive impacts from adoption of noise
    
    
    
    standards.
                                        7-75
    

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                         SECTION 7 EXHIBIT
    
                    METHODOLOGY FOR DEVELOPMENT
                         OF COST ESTIMATES
    
         The methodology used to develop cost estimates for applying noise
    
    abatement technology is described in this Exhibit.
    
    METHODOLOGY
    
         The approach used to estimat the costs of applying noise abatement
    
    technology is summarized below:
    
         1.   Conducted plant visits.
    
         2.   Collected published data relating to manufacturers' cost structure.
    
         3.   Identified costs expected to be impacted by noise regulation.
    
         4.   Collected component cost data from suppliers, manufacturers
    
              and end-users.
    
         5.   Utilized industrial engineering analysis of production and en-
    
              use changes.
    
         6.   Analyzed changes in overhead expenses.
    
         7.   Formulated the profile of a typical company and developed the
    
              overall estimated cost and charges resulting from noise regulation.
    
    Plant Visits
    
         The plants of several manufacturers of truck mounted solid waste compac-
    
    tor bodies were visited in order to obtain an understanding of production
    
    process, the level of vertgical integration in manufacturing major components,
    
    and the nature of other products being made at these plants.
    
         The basic manufacturing process for compactors was similar among the
    
    manufacturers though a wide variation appears to exist in the technical
    
    sophistication of the process.  In general, compactors are manufactured in
    
    the following sequence:
    
                                        7-76
    

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         1.   Purchased sheet steel  is cut to size using  shears  and  torch-
    
    
    
              burning equipment.   (One manufacturer purchases  coil stock,  which
    
    
    
              is more economical,  and shears the coil sheet  to size).
    
    
    
         2.   The cut-outs are formed and machined to final  specifications.
    
    
    
         3.   The basic body parts are kitted and moved to the first assembly
    
    
    
              station where they are placed in assembly fixtures and spot  welded.
    
    
    
         4.   Dimensions and tolerances are checked and welding  of the  body
    
    
    
              is completed.
    
    
    
         5.   Welds are ground down  and checked for quality.
    
    
    
         6.   The balance of the compactor components including  the  hydraulic
    
    
    
              system are assembled onto the body.
    
    
    
         7.   The body is moved to the paint shop for prime  and  top  costs.
    
    
    
         8.   The completed body is  inspected (and reworked  if necessary)  and
    
    
    
              then moved into storage or to the mounting  area.
    
    
    
         9.   The compactor bodies are lifted onto the truck chassis and secured.
    
    
    
              Hydraulic and control  systems are installed and  the completed  unit
    
    
    
              inspected prior to shipment.
    
    
    
         Some of the individual characteristics of compactor manufacturers are
    
    
    
    discussed in more depth subsequently.
    
    
    
    Manufacturers' Cost Structure
    
    
    
         An overall estimate of manufacturer cost structure  was  constructed
    
    
    
    from data from the 1972 Census of Manufacturers and Dun  &  Bradstreet,
    
    
    
    Analysitcl Financial Reports for selected companies.  The  contractor's
    
    
    
    own experience with the operating ratios of similar industries was  also
    
    
    
    utilized in this analysis.  A representative cost structure  for  the
    
    
    
    industry is shown in the following table:
    
    
    
    
    
                                         7-77
    

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                            TABLE 7-46
    
                     REPRESENTATIVE SOLID WASTE
                  COMPACTOR MANUFACTURER COST AND
                          PROFIT STRUCTURE
    
                                            Net Percent of
              Element                       Sales Revenue
    
              Direct Material                 44%
              Direct Labor                    12
              Manufacturing Overhead          24
                Total Cost of Goods                   80%
              General, Sales, and
                Administrative                        13
              Profit                                 	7_
    
              Total                                  100%
    
    Impacted Costs
         The nature of costs expected to be impacted by noise regulation are
    
    specified below in accordance with the sequence in the production process:
                                                          •
    
         !•   Planning.  The planning effort associated with noise control is a
    
    one-time overhead cost consisting of preliminary design and review in the
    
    functional areas of engineering, marketing, and data processing.  The
    
    engineering effort generally includes:
    
              a.   A review and possible redesign of affected components
                   and systems.
              b.   Testing of prototype vehicles to assure desired results.
              c.   A review of manufacturing facilities, layout, equipment,
                   tooling, etc., to insure optimal manufacturing practices.
    
         The marketing effort consists of a review of sales and technical
    
    literature, updating of training programs, and evaluations of warranty and
    
    other policies.  The data processing effort includes design or modification
    
    of manufacturing support systems required by process changes.
    
         2.   Implementation.  Implementation of the noise control technology is
    
    a one-time overhead cost incurred as a result of material sourcing, tooling
    
    and equipment acquisition, production facility changes, hiring and training,
    
    management information system modifications, and marketing changes.
    
                                        7-78
    

    -------
         3.   Production.  The production cost represents an ongoing incremen-
    
    
    
    
    tal cost associated with each unit produced.  It is comprised of direct
    
    
    
    labor and direct material costs.  The direct labor cost reflects the
    
    
    
    additional time required to manufacture and/or assemble quieting components.
    
    
    
    It also includes the cost of any additional production checking or inspec-
    
    
    
    tions.  "The direct material cost reflects the cost of additional raw
    
    
    
    materials and components or the cost increase over existing levels.
    
    
    
         4.   Enforcement/Compliance.  The enforcement/compliance costs repre-
    
    
    
    sent an on-going overhead cost related to product warranty and anticipated
    
    
    
    EPA requirements related to testing and recordkeeping.  Additional warranty
    
    
    
    costs may result if the noise control technology reduces the component life
    
    
    
    and/or reliability of the equipment.  Testing costs include sound measure-
    
    
    
    ment equipment and the cost of administering tests.  Recordkeeping costs
    
    
    
    relate to the need to maintain test data for product verification and
    
    
    
    selective enforcement audits.
    
    
    
         Overhead Expense
    
    
    
    
              Overhead is broken down into two areas:  manufacturing overhead; and,
    
    
    
         general, sales, and administrative (GS&A) overhead.  Overhead costs are
    
    
    
         usually allocated to a product as a percentage of the direct labor cost.
    
    
    
         As indicated in Table 7-45, manufacturing overhead is estimated to be 200
    
    
    
         percent (24/12) of direct labor and GS&A is estimated to be an additional
    
    
    
         108 percent (13/12) of direct labor. It is likely that the application of
    
    
    
         noise control technology will result in some increases in overhead cost,
    
    
    
         but it is unlikely that the increase will be as large as that derived by
    
    
    
         applying the existing rates to the additional labor cost resulting from
    
    
    
         the quieting technology.
    
    
    
    
    
    
                                        7-79
    

    -------
    COMPANY PROFILE
    
    
    
         The typical company developed for the purposes of estimating costs does
    
    
    
    not represent an existing manufacturer but instead reflects a composite of
    
    
    
    firms in the industry.  The composite is based on an evaluation of the indus-
    
    
    
    try in terms of production rates, manufacturing processes, and estimated cost
    
    
    
    and profit structure.  The following paragraphs describe the general and spe-
    
    
    
    cific assumptions on which the typical company is based and the factors used
    
    
    
    to estimate the cost of noise control technology.
    
    
    
         (a)  Background and General Assumptions
    
    
    
              The general manufacturing process for truck mounted solid waste
    
    
    
         compactor bodies is described in Section 2 (Reference 7-1).  While
    
    
    
         the basic process is essentially the same for all manufacturers,
    
    
    
         there are some variations in the methods of operation.  The following
    
    
    
         paragraphs describe the differences among manufacturers noted in
    
    
    
         terms of manufacturing methods and technology, product mix,
    
    
    
         production rates, and level of vertical integration.
    
    
    
         The differences in manufacturing methods and technology are most
    
    
    
    pronounced in the areas of physical plant, tooling, and equipment sophisti-
    
    
    
    cation.  These differences are characterized in the following company
    
    
    
    profiles.  One manufacturer has a large, modern plant, a large number of
    
    
    
    technologically advanced, numerical control machines, and sophisticated
    
    
    
    assembly jigs and fixtures.  A second manufacturer also has a modern
    
    
    
    plant, but does not have as mucn state of the art equipment as the first.
    
    
    
         The third manufacturer has a very old and generally run down facility,
    
    
    
    does not appear to have any numerical control equipment, and uses
    
    
    
    relatively unsophisticated jigs and fixtures in the assembly process.
    
    
    
    
    
    
                                        7-80
    

    -------
         Although the range of manufacturer labor versus capital intensity is
    
    
    
    considerable, the EPA contractor concluded that the proposed noise control
    
    
    
    technology would not have a significant impact on either existing manufac-
    
    
    
    turing operations or labor content and thus should not result  in unique
    
    
    
    cost advantages to either the labor intensive or the capital intensive
    
    
    
    manufacturer.
    
    
    
         Differences were also noted in production rates.  Some manufacturers
    
    
    
    produce truck mounted compactors in sufficient volume to justify continuous
    
    
    
    production lines while others produce in intermittent small lots.  The
    
    
    
    proposed quieting treatment is concentrated primarily in the mounting
    
    
    
    operation where the compactor body is mounted on the chassis.  The techno-
    
    
    
    logy has little impact on the actual production of the compactor body
    
    
    
    itself.  Thus, the quieting technology does not appear to result in cost
    
    
    
    disadvantages to either continuous or intermittent production.
    
    
    
         All of the manufacturers visited produce items other than truck mounted
    
    
    
    compactors including stationary compactors, dump bodies, hoists, and trash
    
    
    
    containers.  The overall product mix varies with each company.  The primary
    
    
    
    reason for the industry's general product mix is commonality of manufacturing
    
    
    
    processes.
    
    
    
         According to manufacturers, there is very little commonality of non-
    
    
    
    purchased components between these products.  Thus, it was concluded that
    
    
    
    product mix should not be a factor in the cost of applying quieting
    
    
    
    technology.
    
    
    
         It appears that the make versus buy mix for the components affected
    
    
    
    by the quieting technology is similar among manufacturers.  All manufac-
    
    
    
    turers purchase power take-off units, instrumentation and speed control
    
    
    
    
    
                                        7-81
    

    -------
    components from the same group of vendors.  In addition, most companies
    
    purchase the hydraulic pumps used on cmpactors.  However, it appears that
    
    most companies produce their own hydraulic cylinders since the process is
    
    relatively simple and the necessary equipment can be used to produce
    
    cylinders for a wide line of products.
    
         The implementation of noise standards should not significantly effect
    
    the existing make versus buy mix.  It can be assumed that those components
    
    presently purchased will still be purchased after quieting and that the
    
    same type of purchase economies will be achieved.  The only potential
    
    impact of significance relates to the in-house production of hydraulic
    
    cylinders for rear loading vehicles.  If cushioned cylinders are required
    
    to reduce impact noise, then some manufacturers may elect to purchase these
    
    items rather than incur the expense of redesigning the cylinder and produc-
    
    tion process.
                                                    *
         In summary, the EPA contractor concluded that the proposed noise
    
    control technology would not result in any major changes or disruptions  in
    
    the existing patterns of operation.  Consequently, the contractor developed
    
    cost estimates for noise control technology based on the profile of a
    
    "typical" company.
    
         b.   Specific Assumptions for the Typical Company
    
              1.   Production Rates.  The estimated production levels for the
    
    industry and estimated market share of existing companies have been presen-
    
    ted in the economic profile phase of this study.  Using this information,
    
    the following production rates have been assumed for the typical company
    
    manufacturing one of the three types of equipment:
                                         7-82
    

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                            TABLE 7-47
    
                     ESTIMATED UNIT PRODUCTION
                       OF A TYPICAL COMPANY
    
                                             Typical
                                             Company
                                             Production
              Manufacturers of;              (units/year)
    
              Front Loader                      200
              Side Loader                       300
              Rear Loader                       400
    
              The production rates for the typical company have been used to
    
    estimate annualized unit cost (i.e., annual cost - units per year = cost
    
    per unit).
    
              2.   Cost Structure and Profitability.  Manufacturers have not
    
    divulged cost and profitability data, so it was necessary to develop estimates
    
    based on Analytical Financial Reports (Dun and Bradstreet,Inc.), industry
    
    statistics (1972 Census of Manufacturers), and the contractor's experience in
    
    similar industries.  The following cost and profit estimates are assumed to
    
    be representative of the "typical" company:
    
                            TABLE 7-48
    
                    ESTIMATED COST STRUCTURE
                      FOR A TYPICAL COMPANY
                                                  Percent
                                       Percent    of Average
              Cost Category            of COGS*   Sales Price
    
              Direct Material            58%         44%
              Direct Labor               15          12
              Manufacturing Overhead     30          24
              General, Sales and
                Administrative           —          13
              Gross Profit               —         	7_
    
                Total                   100%        100%
    *Cost of Goods Sold.
                                       7-83
    

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              This breakdown shows that direct material represent the largest
    
    cost element and that the total cost of goods sold is approximately 80
    
    percent of the average sales price.
    
              3.   Overhead Expenses.  Based on the assumed overhead cost
    
    structure fo the typical company, the full overhead allocation would be
    
    308 percent of direct labor costs.**  It is unlikely that quieting will
    
    lead to overhead cost increases of this magnitude and, therefore, estimates
    
    of the actual incremental overhead expenses for the typical company have
    
    been developed.
    **Full Overhead =  [Manufacturing Overhead  (24%) + GS&A  (13%)]
                      /Direct Labor (12%) = 308%
                                        7-84
    

    -------
                                     REFERENCES
    
    
    
    
                                      SECTION 7
    
    
    
    7-1.  A Study to Determine the Economic Impact of Noise Emissions Standards
    
    
    
          in the Speciality Truck Components Industry.  Truck Mounted Solid
    
    
    
          Waste Compactor Bodies, A.T. Kearney, Inc.  Draft report submitted to
    
    
    
          EPA Office of Noise Abatement and Control, December 1976.
    
    
    
    7-2.  Shuster, Kenneth A., "Eleven Residential Pickup Systems compared for
    
    
    
    
          Cost and Productivity", Solid Waste Management Magazine, flay 1975.
    
    
    
    7-3.  Residential Collection Systems, U.S. Environmental Protection Agency
    
    
    
          (530/SW-97C-1), March 1975.
                                        7-85
    

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                                        Section 8
                                       ENFORCEMENT
    
    GENERAL
    
         The EPA enforcement strategy will place a major share of the
    
     responsibility on the manufacturers who will be required to conduct pre-sale
    
    testing to determine the compliance of truck mounted solid waste compactors
    
    with these regulations and emission standards. Besides relieving EPA of an
    
    administrative burden, this approach benefits the manufacturers by leaving
    
    their personnel in control of many aspects of the compliance program and
    
    imposing only a minimum burden on their business.  Therefore, monitoring by
    
    EPA personnel of the tests and manufacturers' actions taken in compliance
    
    with these regulations is advisable to ensure that the Administrator is
    
    provided with the accurate test data necessary to determine whether the
    
    compactors distributed in commerce by manufacturers are in compliance with
    
    these regulations.  Accordingly, the regulations provide that EPA Enforcement
    
    Officers may be present to observe any testing required by these regulations.
    
    In addition, Enforcement Officers under previously promulgated regulations  [40
    
    CFR Part 205 Subpart A] are empowered to inspect records and facilities in
    
    order to assure that manufacturers are carrying out their responsibilities
    
    properly.
    
         The enforcement strategy proposed in these regula tions consists of three
    
    parts:  (1)  Production Verification, (2) Selective Enforcement Auditing, and
    
    (3) In-Use Compliance Provisions.
    
    
                                       8-1
    

    -------
    PRODUCTION VERIFICATION
    
         Production verification is testing by a manufacturer of selected early
    
    production models of a configuration intended for sale.  The objective is
    
    
    to verify that a manufacturer has the requisite noise control technology in
                                                                               %
    hand to comply with the standard at the time of sale and during the two year
    
    
    acoustical assurance period and is capable of applying the technology to the
    
    manufacturing process.  The early production models of a configuration tested
    
    must not exceed the level of the standard minus that configuration's expected
    
    sound level degradation factor (SLDF) before any models in that configuration
    
    
    may be distributed in commerce.  Any testing shall be done in accordance
    
    with the proposed test procedure.
    
         Production verification does not involve any formal EPA approval or
    
    
    issuance of certificates subsequent to manufacturer testing, nor is any
    
    extensive testing required of EPA.   All testing is performed by the manufac-
    
    
    turer.  However, the Administrator reserves the right to be present to monitor
    
    
    any test (including simultaneous testing with Agency equipment) or to require
    
    that a manufacturer supply the Agency with products for testing at EPA's Noise
    
    Enforcement Facility in in Sandusky, Ohio, or at any other site the Administra-
    
    tor may find appropriate.  When the Administrator tests a product, that test
    
    becomes the official test for that model.  The manufacturer is afforded an
    
    opportunity to invalidate any test that the Administrator conducts.
    
         The production unit selected for testing is a product configuration.  A
    
    
    product configuration is defined on the basis of the parameters delineated in
    
    
    
                                       8-2
    

    -------
    section 205.205-3 of the regulation and any additional parameters that a
    
    
    
    manufacturer or the Administrator may select.  The basic parameters for
    
    
    
    configuration identification include the types of truck engine, exhaust and
    
    
    
    transmission, compactor capacity, and power taken off type or auxiliary engine
    
    
    
    type.
    
    
    
         A manufacturer shall verify production products prior to sale by one of
    
    
    
    two methods:  The first method will involve testing an early production
    
    
    
    product (intended for sale) of each configuration.
    
    
    
         Alternatively, production verification testing of all configurations
    
    
    
    produced by a manufacturer may not be required where a manufacturer can
    
    
    
    establish that the sound levels of some configurations at the end of their
    
    
    
    defined acoustical assurance period (based on tests or on engineering judge-
    
    
    
    ment) are consistently representative of other configurations. In such a case,
    
    
    
    that product which emits the highest noise level at the end of the defined
    
    
    
    acoustical assurance period would be the only configuration requiring verifi-
    
    
    
    cation testing.
    
    
    
         The second method allows a manufacturer, in lieu of testing products of
    
    
    
    every configuration, to group configurations into categories.  A category
    
    
    
    will be defined by basic parameters of truck engine and fuel type, compactor
    
    
    
    type, compactor power system and hydralic power system. Again, the manufacturer
    
    
    
    may designate additional categories based on additional parameters of his
    
    
    
    choice.
                                       3-3
    

    -------
         Within a category, the configuration estimated by the manufacturer to be
    
    
    
    emitting the greatest. A-^weighted sound pressure level at the end of the two
    
    
    
    year acoustical assurance period is determined either by testing or good
    
    
    
    engineering judgment.  The manufacturer can then satisfy the production
    
    
    
    verification requirements for all configurations within that category by
    
    
    
    demonstrating that the loudest configuration at the end of the acoustical
    
    
    
    assurance period complies with the applicable standard.  This can eliminate
    
    
    
    the need for a substantial amount of testing.  However, it must be emphasized
    
    
    
    that the loudest configuration at the end of the acoustical assurance period
    
    
    
    must be clearly identified.
    
    
    
         These proposed regulations also provide that the Administrator may test
    
    
    
    products at a manufacturer's facility using either Agency equipment or the
    
    
    
    manufacturer's equipment.  This will provide the Administrator with an oppor-
    
    
    
    tunity to determine that the manufacturer's test facility and equipment are
    
    
    
    technically qualified as specified in section 205.204 for conducting the
    
    
    
    tests required by this subpart.  If it is determined that the equipment and/or
    
    
    
    facilities are not technically qualified, the Administrator may disqualify
    
    
    
    them from further use for testing under this subpart.  Procedures that are
    
    
    
    available to the manufacturer subsequent to disqualification are delineated
    
    
    
    in the regulation.
    
    
    
         A production verification report must be filed by the manufacturer before
    
    
    
    any products of the configuration represented are distributed in commerce.
    
    
    
    A product configuration is considered to be production verified when the
    
    
    
    
    
                                        8-4
    

    -------
    manufacturer has shown, based on the application of the noise measurement
    
    
    
    test, that a configuration conforms to the standard minus the SLDF and when a
    
    
    
    timely report has been mailed to EPA indicating that it complies with the
    
    
    
    standard.
    
    
    
         If a manufacturer is unable to test due to weather conditions, the
    
    
    
    production verification of a configuration is automatically waived by the
    
    
    
    Administrator for a period of up to 45 consecutive days without the manufac-
    
    
    
    turer's request provided that the test is performed on the first day that the
    
    
    
    manufacturer is able.  This procedure will minimize disruptions to manufactur-
    
    
    
    ing facilities.  The manufacturer may request an additonal extension of up to
    
    
    
    45 days if it is demonstrated that weather or other uncontrollable conditions
    
    
    
    prohibited testing during the first 45 days.  However, to avoid any penalties
    
    
    
    under these proposed regulations, the manufacturer must test for purposes of
    
    
    
    production verification on the first day that he is able.
    
    
    
         If a manufacturer proposed to add a new configuration to a product line
    
    
    
    or change or deviate from an existing configuration with respect to any of hbe
    
    
    
    parameters which define a configuration, the manufacturer must verify the new
    
    
    
    configuration either by testing a product and submitting data or by filing a
    
    
    
    report which demonstrates verification on the basis of previously submitted
    
    
    
    data.
    
    
    
         Production verification is an annual requirement.  However, the Adminis-
    
    
    
    trator, upon request by a manufacturer, may permit the use of data from
    
    
    
    previous production verification reports for specific product configurations
    
    
    
    
    
                                       8-5
    

    -------
    and/or categories.  The considerations that are cited in the regulations as
    
    
    
    being relevant to the Administrator's decision are illustrative and not
    
    
    
    exclusive.  The manufacturer can submit all data and information that he
    
    
    
    believes will enable the Administrator to make a reasoned decision.  It must
    
    
    
    be' again emphasized that the manufacturer must request the use of previous
    
    
    
    deta.  If the manufacturer fails to do so, then all categories and configura-
    
    
    
    tions for each subsequent year must be production verified.
    
    
    
    
         The manufacturer need not verify configurations at any particular point
    
    
    
    in a year.  The only requirement is that a configuration be verified prior to
    
    
    
    distribution in commerce.  The inherent flexibility in the scheme of categori-
    
    
    
    zation in many instances will allow a manufacturer to either verify, based on
    
    
    
    representation, a configuration that may not be produced u.itil late in a year
    
    
    
    or else wait until actual production of that configuration to verify it.
    
    
    
         If a manufacturer fails to properly verify and a configuration is found
    
    
    
    not to conform with the regulations, the Administrator may issue an order
    
    
    
    requiring the manufacturer to cease the distribution in commerce of products
    
    
    
    of that configuration.  The Administrator will provide the manufacturer the
    
    
    
    opportunity for a hearing prior to the issuance of such an order.
    
    
    
         Production verification performed on the early production models provides
    
    
    
    EPA with confidence that production models will conform to the standards and
    
    
    
    limits the possibility that nonconforming products will be distributed in
    
    
    
    commerce.  Because the possibility still exists that subsequent models may
    
    
    
    
    not conform, selective enforcement audit testing of assembly line products is
    
    
    
                                       8-6
    

    -------
    made a part of this enforcement strategy in order to determine whether produc-
    
    
    
    tion products continue to comply with the standard.
    
    
    
    SELECTIVE ENFORCEMENT AUDITING
    
    
    
          Selective enforcement auditing (SEA) is the term used in this regulation
    
    
    
    to describe the testing of a statistical sample of production products from a
    
    
    
    specified product category or configuration selected from a particular assembly
    
    
    
    plant in order to determine whether production products comply with the noise
    
    
    
    emission standard, including the acoustical assurance period standard, and to
    
    
    
    provide the basis for further action in the case of noncompliance.  The
    
    
    
    selective enforcement audit plan is designed to determine the acceptability of
    
    
    
    a batch of items for which one or more inspection criteria have been estab-
    
    
    
    lished.  As applied to product noise emissions, the items being inspected are
    
    
    
    compactors and the inspection criterion is the noise emission standard.
    
    
    
        Testing is initiated by a test request which will be issued to the manufa-
    
    
    
    cturer by the Assistant Administrator for Enforcement or his authorized
    
    
    
    representative.  A test request will address itself to either a category
    
    
    
    or a configuration.  The test request will require the manufacturer to test a
    
    
    
    sample of products of the specified category or configuration produced at a
    
    
    
    specified plant.  An alternative category or configuration may be designated
    
    
    
    in the test request in the event products of the first category or configura-
    
    
    
    tion are not available.
    
    
    
         Upon receipt of the test request the manufacturer will randomly select
    
    
    
    the sample from the first batch of products of the specified category or
    
    
    
    configuration that is scheduled for production.  (The purpose of the random
    
    
    
    
    
    
                                      8-7
    

    -------
    selection is to ensure that a representative sample is drawn.)  The Adminis-
    
    
    
    trator also reserves the right to designate specific products for testing.
    
    
    
    Generally, a batch will be defined as the number of products produced during a
    
    
    
    time period specified in the test request.  A batch defined in this manner
    
    
    
    will allow the Administrator to select batch sizes small enough to keep the
    
    
    
    number of products to be tested at a minimum and still enable EPA to eventually
    
    
    
    draw statistically valid conclusions about the noise emission performance of
    
    
    
    all products of the category or configuration which is the subject of the test
    
    
    
    request.
    
    
    
         One important factor that will influence the decisions of the Adminis-
    
    
    
    trator not to issue a test request to a manufacturer is the evidence that a
    
    
    
    manufacturer offers to demonstrate that a product category or configuration
    
    
    
    complies with the applicable standard.  If a manufacturer can provide evidence
    
    
    
    that his products are meeting the noise emission standard based on testing
    
    
    
    results, the issuance of a test request may not be necessary.
    
    
    
          The particular type of inspection plan which has been adopted for SEA of
    
    
    
    compactors is known as sequential batch sampling.  Sequential batch sampling
    
    
    
    differs from single sampling in that small test samples are drawn from sequen-
    
    
    
    tial batches rather than one large sample being drawn from a batch.  This
    
    
    
    sampling offers the advantage of keeping the number of products tested to a
    
    
    
    minimum when the majority of products are meeting the standard.
                                       8-8
    

    -------
         Once the test sample of a batch has been selected from the batch sample,
    
    
    
    each item is tested to determine whether it meets the prescribed criterion;
    
    
    
    this is generally referred to as inspection by attributes.  The basic criteria
    
    
    
    for acceptance or rejection of a batch is the number of sample products whose
    
    
    
    parameters meet specification rather than the average value of some parameter.
    
    
    
         The sampling plans (A, B, C, and D) are arranged according to the size of
    
    
    
    the batch from which a sample is to be drawn.  Each plan specifies the
    
    
    
    sample size and acceptance and rejection number for the established acceptance
    
    
    
    quality level (AQL).  As applied to compactor noise emissions, this AQL is the
    
    
    
    maximum percentage of failing products that for purposes of sampling inspection
    
    
    
     can be considered satisfactory.
    
    
    
         A product is considered a failure if it exceeds the noise emission
    
    
    
    standard minus the SLOP.  An AQL of 10% was chosen to take into account some
    
    
    
    test variability.  The number of failing products in a sample is compared to
    
    
    
    the acceptance and rejection numbers for the appropriate sampling plan.  If
    
    
    
    the number of failures is less than or equal to the acceptance number, then
    
    
    
    there is a high probability that the percentage of noncomplying products in
    
    
    
    the batch is less than the AQL and the batch is accepted. On the other hand,
    
    
    
    if the number of failing products in the sample is equal to or greater than
    
    
    
    the rejection number, then there is a high probability that the percentage of
    
    
    
    noncomplying products in the batch is greater than the AQL and the batch
    
    
    
    fails.  Since the sampling strategy involves a sequential batch sampling plan,
    
    
    
    in some instances the number of failures in a test sample may not allow
    
    
    
    
    
                                      8-9
    

    -------
    acceptance or rejection of a batch so that continued testing may be required
    
    
    
    until a decision can be made to either accept or reject a batch.
    
    
    
         Regardless of whether a batch is accepted or rejected, failed products
    
    
    
    would have to be repaired and/or adjusted and pass a retest before they can be
    
    
    
    distributed in commerce.
    
    
    
         The proposed regulation establishes two types of inspection criteria.
    
    
    
    These are normal inspection and 100 percent testing.  Normal inspection is
    
    
    
    used until a decision can be made as to whether a batch sequence is accepted
    
    
    
    or rejected. When a batch sequence is tested and accepted in response to a
    
    
    
    test request, the manufacturer will not be required at that time to do any
    
    
    
    further testing pursuant to that test request. When a batch sequence is tested
    
    
    
    and rejected, then the Administrator may require 100 percent testing of
    
    
    
    the compactors of that category or configuration produced at that plant.  The
    
    
    
    Administrator will notify the manufacturer of the intent to require 100
    
    
    
    percent testing.  The manufacturer can request a hearing on the issue of
    
    
    
    noncompliance of the rejected category or configuration.
    
    
    
         Subparagraph (1) of section 205.207-1(d) pertains to batches which
    
    
    
    consist of three or less compactors.  The subsection requires  that each
    
    
    
    compactor in that batch be tested and comply with the noise emission standard
    
    
    
    minua rhw SLDF.  This subparagraph will allow testing to take  place within a
    
    
    
    more reasonable period of time when a test request is issued for particular
    
    
    
    categories or configurations which are not produced in a sufficiently high
    
    
    
    volume for the normal SEA scheme to be applicable.
    
    
    
    
    
                                      8-10
    

    -------
         Since the number of oonpactors tested in response to a test order may
    
    
    
    vary considerably, a fixed time limit cannot be placed on completing all
    
    
    
    testing.  The proposed approach is to establish the time limit on a test-time-
    
    
    
    per-product basis, taking transportation requirements, if any, into considera-
    
    
    
    tion.  The manufacturer would be allowed a reasonable amount of time for
    
    
    
    transport of products to a test facility if one were not available at the
    
    
    
    assembly plant.
    
    
    
         The Administrator estimates that the manufacturers can test a minimum of
    
    
    
    five (5) compactors per day.  However, manufacturers are requested to present
    
    
    
    any data or information that may effect a revision of this estimate.
    
    
    
    ADMINISTRATIVE ORDERS
    
    
    
         Section ll(d)(l) of the Act provides that:
    
    
    
         "Whenever any person is in violation of section 10(a) of this Act, the
    
    
    
    Administrator may issue an order specifying such relief as he determines is
    
    
    
    necessary to protect the public health and welfare."
    
    
    
         Clearly, this provision of the Act is intended to grant to the Adminis-
    
    
    
    trator discretionary authority to issue administrative orders to supplement
    
    
    
    the criminal penalties of section 11(a).  If compactors which were not designed,
    
    
    
     built, and equipped so as to comply with the noise emission standard at the
    
    
    
    time of sale and during the two year acoustical assurance period were dis-
    
    
    
    tributed in commerce, such act would be a violation of section 10(a) and
                                       8-11
    

    -------
    remedy of such non-compliance would be appropriate.  Remedy of the affected
    
    
    
    products shall be carried out pursuant to an administrative order.
    
    
    
         The proposed regulation provides for the issuance of such orders in the
    
    
    
    following circumstances:  (1) recall for the failure of a product or group of
    
    
    
    products to comply with the applicable noise emission standard, (2) cease to
    
    
    
    distribute products not properly production verified, and (3) cease to
    
    
    
    distribute products for failure to test.
    
    
    
         In addition, 40 CFR §205.4(f) provides for cease to distribute orders for
    
    
    
    substantial infractions of the regulation requiring entry to manufacturers'
    
    
    
    facilities and reasonable assistance.  These provisions do not limit the
    
    
    
    Administrator's authority to issue orders, but give notice of cases where such
    
    
    
    
    orders would in his judgment be appropriate.  In all such cases, notice and
    
    
    
    opportunity for a hearing will be given.
    
    
    
    COMPLIANCE LABELING
    
    
    
         This regulation requires that compactors subject to it shall be labeled
    
    
    
    to provide notice that the product complies to the noise emission standard.
    
    
    
    The label shall contain a notice of tampering prohibitions. The effective date
    
    
    
    of the applicable noise emission standard is also required on the label.  A
    
    
    
    coded rather than actual date of manufacture has been used so as to avoid
    
    
    
    disruption of marketing and distribution patterns.
    
    
    
    APPLICABILITY OF PREVIOUSLY PROMULGATED REGULATION
    
    
    
         Manufacturers who will be subject to this regulation must also comply
    
    
    
    with the general provisions of 40 CFR Part 205 Subpart A.  These include the
    
    
    
    
    
    
                                      8-12
    

    -------
    provisions for inspection and monitoring by EPA Enforcement Officers of
    
    
    
    manufacturer's actions taken in compliance with this proposed regulation and
    
    
    
    for granting exemptions from this proposed regulation for testing, pre-verifi-
    
    
    
    cation products, national security reasons, and export products.
    
    
    
    ACOUSTICAL ASSURANCE PERIOD COMPLIANCE
    
    
    
         The manufacturer is required to design, build, and equip compactors
    
    
    
    subject to this regulation so that the products comply with the standard
    
    
    
    during the acoustical assurance period provided that they are properly main-
    
    
    
    tained, used, and repaired.
    
    
    
         EPA does not specify what testing or analysis a manufacturer must conduct
    
    
    
    to determine that his product will be in compliance throughout the acoustial
    
    
    
    assurance period of this regulation.  However, these regulations require the
    
    
    
    manufacturer to make such a determination and maintain records of the test
    
    
    
    data and other information upon which the determination was based.  This
    
    
    
    determination may be based on information such as testing of critical noise
    
    
    
    producing or abatement components, rates of noise control deterioration,
    
    
    
    engineering judgements based on previous experience, and physical durability
    
    
    
    characteristics of the product.
    
    
    
         An SLDF is the degradation (sound level increase in A^weighted decibels)
    
    
    
    which the manufacturer expects will occur on a configuration during the two
    
    
    
    year acoustical assurance period.  The manufacturer must determine an SLDF for
    
    
    
    each of his product configurations.
                                       8-13
    

    -------
         To ensure that the products will meet the noise standard throughout the
    
    
    
    two year accoustical performance period, they must emit a time of sale sound
    
    
    
    level less than or equal to the noise standard minus the SLDF.  A product is
    
    
    
    in compliance only if its measured dBA level, added to the SLDF, is less than
    
    
    
    or equal to the applicable standard. Production verification and selective
    
    
    
    enforcement audit testing both embody this principle.
    
    
    
         All compactors must emit a sound level that is less than or equal to the
    
    
    
    standard at the time of sale, so a negative SLDF cannot be used.  A product
    
    
    
    that becomes quieter during the two year accoustical performance period must
    
    
    
    still meet the standard on the day of sale; so an SLDF of 0 must be used for
    
    
    
    that configuration.
    
    
    
         As stated above, the Agency is not requiring durabilty testing as a
    
    
    
    matter of course, however, should it be necessary, §13(a) of the Noise Act
    
    
    
    authorizes EPA to require the manufacturer to run such tests on selected
    
    
    
    compactors.
    
    
    
    IN-USE COMPLIANCE
    
    
    
         These provisions include a requirement that the manufacturer
    
    
    
    provide a warranty to purchasers  [required by section 6(d)], assist the
    
    
    
    Administrator in fully defining those acts which constitute tampering  [under
    
    
    
    section 10(a)(2)(A)], and provide retail purchasers with instructions speci-
    
    
    
    fying the proper maintenance, use, and repair required to minimize degradation
    
    
    
    during the life of the compactor, and with a log book to record maintenance
    
    
    
    and repairs performed.
    
    
    
                                       8-14
    

    -------
                                    SECTION 9
                EXISTING LOCAL, STATE, AND FOREIGN NOISE REGULATIONS
    
         According to section 6 of the Noise Control Act of 1972, the proposed
    
    Federal regulation of new trash compactor trucks will preempt new product
    
    standards for the local and state level* unless those standards are
    
    identical to the Federal standards.  Further, according to section 9 of
    
    the Act, regulations will be issued to carry out the provisions of the
    
    Act with respect to new products imported or offered for importation.
    
         EPA reviewed available literature and conducted a survey to determine
    
    the number of existing regulations that are applicable to refuse truck
    
    noise and that may be affeted by the proposed Federal regulation.  In the
    
    following subsections, the findings of the review are summarized.
    
    LOCAL LAWS APPLICABLE TO REFUSE TRUCK NOISE
    
         This section of the report presents the results of a detailed study
    
    of nineteen local noise laws, which are specifically applicable to refuse
    
    truck noise.  In this study, the sources listed below were reviewed.
    
         •    Compilation of noise laws maintained by the Technical Assistance
    
              Division of the EPA Ofice of Noise Abatement and Control
    
         •    Compilation of noise laws maintained by Dr. Clifford R. Bragdon
    
              of the Georgia Institute of Technology
    
         •    Noise publication data base maintained by Informatics for
    
              the EPA Office of Noise Abatement and Control
    *Local and state governments are. not prohibited from "establishing or
    enforcing controls on environmental noise through licensing, regulation
    or restriction of the use, operation or movement of any product" or
    from establishing or enforcing new product noise standards for types
    of equipment not regulated by the Federal Government.
                                         9-1
    

    -------
         •    Noise abatement staff at each of the EPA Regional Offices
    
    
    
         •    State noise abatement staffs.
    
    
    
         The study showed that there are presently nineteen city and county
    
    
    
    laws specifically applicable to truck^mounted solid waste compactor
    
    
    
    noise in the United States.  These laws are summarized in Table 9-1,
    
    
    
    where it can readily be observed that there is a great deal of variation
    
    
    
    from one jurisdiction to the next.  Of the nineteen laws, eight specify
    
    
    
    sound levels for the product.  All the remainder have curfew provisions,
    
    
    
    usually applying only to residential areas, prohibiting night collections
    
    
    
    of garbage.
    
    
    
         Interviews with the local people involved have revealed that five
    
    
    
    of the refuse truck noise laws have not been enforced to this date.
    
    
    
    For the remaining laws, which are in fact being enforced, the approach
    
    
    
    has generally been to try to get the cooperation of the scavenger companies
    
    
    
    through negotiation rather than to bring them into court.  The study
    
    
    
    has found that there have been gargabe truck noise court prosecutions
    
    
    
    so far only on Cook County, Illinois, and Littleton, Colorado.  All
    
    
    
    these prosecutions have been for curfew violations.
    
    
    
         The local solid waste compactor truck noise laws which specify
    
    
    
    a maximum source level have a very wide variation in those levels.
    
    
    
    The degree of variation is shown by the scale in Figure 9-1, which shows
    
    
    
    the source levels in equivalent terms of dB(A) at 50 feet.  Those regula-
    
    
    
    tons which call for a different measurement distance are shown in terms
    
    
    
    of equivalent 50-foot levels, assuming 6 dB per double-distance spreading
                                         9-2
    

    -------
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                                             9-3
    

    -------
    of sound.  It can be observed that the levels range from 87 dB(A) at
    
    
    
    50 feet for Toledo to 75 dB(A) at 10 feet for New York City  [equivalent
    
    
    
    to about 61 dB(A) at 50 feet].
    
    
    
         The community programs vary as much in their degree of enforcement
    
    
    
    as in their levels, ranging from continuous in-use enforcement on all
    
    
    
    garbage trucks to no enforcement at all.  In the subsections which follow,
    
    
    
    each of the local noise laws listed in Table 9-1 is briefly discussed.
    
    
    
    The order of discussion is cities first and then countries, with cities
    
    
    
    addressed in alphabetical order by the states in which they are located.
    
    
    
    The text of the refuse truck noise provisions for each jurisdiction
    
    
    
    is presented in Appendix A.
    
    
    
    1.   Los Angeles, California
    
    
    
         The Los Angeles noise law provides for a 9:00 p.m. to 6:00 a.m.
    
    
    
    curfew on garbage collections.  There is no numerical sound level specified
    
    
    
    in this law for truck-mounted solid waste compactors.  As in other laws
    
    
    
    that specify curfews, the provisions apply to the scavenger operations
    
    
    
    themselves rather than to the truck or the compactor.  Violations of
    
    
    
    the law are treated as a misdemeanor, as in most municipalities, with
    
    
    
    fines ranging up to $200 or imprisonment ranging up to 6 months.  The
    
    
    
    law is enforced by the Los Angeles Police Department, with the cooperation
    
    
    
    of the Acoustics Division of the Department of Environmental Quality.
    
    
    
    2.   San Anselmo, California
    
    
    
         San Anselmo has a year-old law specifying a maximum source level
    
    
    
    for the compactor of 75 dB(A) at 50 feet.  There is an unusual provision
    
    
    
    in the San Anselmo law, found in none of the other laws analyzed, that
    
    
    
    states the noise is "not unlawful if sound deadening devices are used
    
    
    
    
    
                                         9-4
    

    -------
                        90-
                        85-
                        80-
                        75-
                        70
                        65
                              • SPRINGFIELD, N.J
                              -TOLEDO. OHIO
    
                              - SAN DIEGO, CAL.  (Repealed in 1977)
                               SAN FRANCISCO, CAL AND SACRAMENTO COUNTY, CAL.
                              •SAN ANSELMO, CAL
    
                              • ARVADA, COL.
                               SAN JOSE, CAL. (75 @ 25')
                              -NEW YORK, N.Y. (75@10'1
    Figure 9-1.  Range of Maximum Source Levels for Solid Waste
                  Compactor  Trucks in Noise Ordinances*
    
    
    *A11  levels not measured at 50  feet have been normalized  to an
     equivalent 50  feet level.
                                             9-5
    

    -------
    to the extent reasonably feasible."  Nominally the law is to be enforced by
    
    
    
    the Police Department on an in-use basis, with violations of the law treated
    
    
    
    as infractions.  Up to the present, however, the law has not yet been enforced,
    
    
    
    and no sound level measurements have been made on refuse trucks.
    
    
    
    3.   San Diego, California
    
    
    
         The former San Diego noise law was one of two in the nation which had
    
    
    
    contained both a curfew provision and a maximum source level provision for
    
    
    
    refuse trucks (the other is Salt Lake County, Utah).  However, an amended ver-
    
    
    
    sion of the law was adopted in March, 1977 which strikes the source level
    
    
    
    provision and leave only the curfew.  The maximum source noise level provision
    
    
    
    was repealed because it was not found to be as effective as the curfew.
    
    
    
         The noise law in San Diego is administered by the Noise Abatement and Con-
    
    
    
    trol Administration of the Building Inspection Department.  This is one of the
    
    
    
    more active noise programs in the nation.  Since April 1976 they have been per-
    
    
    
    forming noise measurements of solid waste compactor trucks at a test site near
    
    
    
    the Chollar landfill.  The measurements are made at a distance of  50 feet at
    
    
    
    four points:  front, rear, and both sides.  The tests are conducted on a spot
    
    
    
    check basis, with the duration of each test running one to five minutes for
    
    
    
    two compacting cycles.  The company name, license number, and vehicle type are
    
    
    
    recorded for each test.  Scavenger companies receive   copies of the test
    
    
    
    reports on their vehicles and are required to correct vehicles found to be
    
    
    
    excessively noisy.
    
    
    
         The garbage truck curfew provision of the San Diego noise law is also
    
    
    
    enforced by the Noise Abatement and Control Administration.  The refuse
    
    
    
    companies have cooperated by planning their routes and schedules around the
    
    
    
    curfew.
    
    
    
    
    
                                         9-6
    

    -------
    4.   San Francisco, California
    
    
    
         San Francisco presently has the most active refuse truck noise
    
    
    
    abatement program of any city in the United States.  The noise standard
    
    
    
    of 80 dB(A) at 50 feet is enforced on an in-use basis by mobile units
    
    
    
    operated by the Bureau of Environmental Health.  These units generally
    
    
    
    operate from marked cars equipped with sound level meters and strip
    
    
    
    chart recorders.  The sound measurements they perform are unannounced
    
    
    
    spot checks of refuse vehicles operating on the streets, often in the
    
    
    
    pre-dawn hours of the morning.
    
    
    
         One of EPA's study investigators observed the San Francisco refuse
    
    
    
    truck noise measurement procedure during an actual enforcement operation
    
    
    
    conducted on the morning of November 6, 1975.  After locating a refuse
    
    
    
    truck on the street, an Environmental Health man pulled his car up 50
    
    
    
    feet to the rear of the truck.  This particular truck was a rear-loader
    
    
    
    No. 3941, operated by Co. F, having a Co. I compactor and a Co. K chassis.
    
    
    
    Measurements were made with a GR 1933 sound level meter with the microphone
    
    
    
    on a 5-foot probe out the driver's side car window.  Sound levels were
    
    
    
    recorded on a Simpson Model 2745 strip chart recorder.  In recording a
    
    
    
    compacting cycle the peaks from the sounds of bottles popping and cans
    
    
    
    crushing during compaction were noted on the strip chart.  The sound
    
    
    
    level assigned to the trace was 76 dB(A), the highest level attained
    
    
    
    aside from the extraneous peaks.
    
    
    
         In the course of enforcing the San Francisco refuse truck noise
    
    
    
    law, over 150 such strip chart recordings have been made by the Department
    
    
    
    of Environmental Health.  On the basis of the strip chart recordings,
    
    
    
    the Department has issued abatement orders to the scavenger when trucks
    
    
    
    
    
                                         9-7
    

    -------
    have been found to be over the limit.  The scavengers have generally
    
    
    
    been cooperative in retrofitting their trucks when necessary to make
    
    
    
    the 80 dB(A) limit.
    
    
    
    5.   San Jose, California
    
    
    
         The San Jose Refuse truck noise level is a part of the regulation
    
    
    
    of garbage and rubbish vehicles which was added in October of 1975.
    
    
    
    The law is administered by the Property Codes Department of the Bureau
    
    
    
    of Housing and Community Development.  The Department has tested newly
    
    
    
    manufactured refuse trucks and found them to comply with the law.  Besides
    
    
    
    enforcement through refuse truck licensing, San Jose puts similar wording
    
    
    
    in its contracts with scavenger companies for municipal trash collection.
    
    
    
    6.   Arvada, Colorado
    
    
    
         The Arvada noise ordinance provides a maximum noise level of 74
    
    
    
    dB(A) at 50 feet.  The noise law has been in effect for a year, but
    
    
    
    no enforcement actions have yet been taken against refuse trucks.  Arvada
    
    
    
    has not yet made any refuse truck measurements.
    
    
    
         The administering agency for the noise law is the Police Department.
    
    
    
    Penalties up to $300 are provided for violations.
    
    
    
    7.   Englewood, Colorado
    
    
    
         The Englewood, Colorado, refuse truck noise provision was apparently
    
    
    
    patterned after that of Lakewood, Colorado.  It calls for a 10 p.m.
    
    
    
    to 7 a.m. curfew on scavenger operations within a residential district
    
    
    
    or within 300 feet of a hotel or motel.
    
    
    
    8.   Lakewood, Colorado
    
    
    
         The Lakewood noise ordinance has been in effect since 1973.  It
    
    
    
    provides a 10 p.m. to 7 a.m. curfew on scavenger operations in residential
    
    
    
    
    
                                         9-8
    

    -------
    districts or within 300 feet of a hotel or motel.  Lakewood has an active
    
    
    
    enforcement program for the curfew using the "soft fuzz" approach.
    
    
    
    No summonses have yet been issued to scavenger companies for curfew
    
    
    
    violations.  Good cooperation has been obtained from the scavenger companies
    
    
    
    by the Department of Community Development in changing routes and schedules.
    
    
    
    The Department has required these changes on several occasions in response
    
    
    
    to citizen complaints of refuse truck noise at night.
    
    
    
    9.   Littleton, Colorado
    
    
    
         Littleton, Colorado, is another community located near Denver with
    
    
    
    considerable noise awareness.  There are 30,000 people and an active noise
    
    
    
    abatement program dating from 1974.  The refuse truck noise provision
    
    
    
    provides a curfew of 10 p.m. to 7 a.m., which was copied from the Lakewood
    
    
    
    ordinance.
    
    
    
         In drafting the Littleton noise ordinance the noise officer used
    
    
    
    as inputs the Lakewood ordinance and the NIMLO/EPA model ordinance.
    
    
    
    There were three or four refuse collection noise complaints per year
    
    
    
    in the years before the noise ordinance was passed in 1974, and a total
    
    
    
    of 15 since that time.
    
    
    
         The enforcement approach is similar to Lakewood and Englewood in
    
    
    
    trying to work with the scavengers in getting them to change routes and
    
    
    
    schedules in response to complaints.  In Littleton, however, one scavenger
    
    
    
    company refused to cooperate, and it was cited and taken to court.  The
    
    
    
    company was convicted and issued a $30 fine.  Apparently this was still not
    
    
    
    convincing enough for them and they were later brought into court again
    
    
    
    for a second violation and received a $45 fine.  Upon being convicted the
    
    
    
    second time the company changed its schedules and has not broken the curfew
    
    
    
    
    
                                         9-9
    

    -------
    since.  These two convictions represent the only examples outside Cook
    
    
    
    County, Illinois, where a speciality truck noise case has gone to court.
    
    
    
    There has not yet been a court challenge to any specialty truck noise law.
    
    
    
         The Littleton refuse truck curfew appears to be a success, like its
    
    
    
    neighbors in Lakewood and Englewood.  After proving the seriousness
    
    
    
    of the law with two convictions, Littleton appears to be receiving co-
    
    
    
    operation from  the scavengers.
    
    
    
    10.  Chicago, Illinois
    
    
    
         The Chicago noise ordinance provides a 9:30 p.m. to 7 a.m. curfew
    
    
    
    for all areas of the city except the downtown business district and
    
    
    
    the airport.  The ordinance is enforced by the Police Department and
    
    
    
    provides fines up to $500 for the second and subsequent offenses.
    
    
    
    11.  Dubuque, Iowa
    
    
    
         The Dubuque noise ordinance provides a 9 p.m. to 7 a.m. curfew
    
    
    
    on scavenger operations in residential areas.  The law is enforced by
    
    
    
    the Police Department.  The law provides penalties of fines up to $100
    
    
    
    and imprisonment of up to 30 days.
    
    
    
    12.  Princeton, Hew Jersey
    
    
    
         The Princeton noise ordinance provides a 1 p.m. to 7 a.m. curfew
    
    
    
    on scavenger operations Monday through Saturday, with scavenger operations
    
    
    
    prohibited completely on Sunday.  This particular law is unusual in providing
    
    
    
    a provision for its own suspension for emergency garbage collections.
    
    
    
    The law is enforced by the Police Department, and penalties for violations
    
    
    
    can go up to a $200 fine or 90 days imprisonment.
    
    
    
    13.  Springfield, New Jersey
    
    
    
         The Springfield, New Jersey, noise law specifies a maximum noise
    
    
    
    
    
                                         9-10
    

    -------
    level for garbage trucks of 94 dB(A) at 50 feet.  This level is far higher
    
    
    
    than that specified in any other noise law.  The reason is that an erroneous
    
    
    
    provision of the New Jersey Model Community Noise Ordinance was copied by
    
    
    
    Springfield.  According to the State of New Jersey Noise Control Office, the
    
    
    
    New Jersey Model Community Noise Ordinance (discussed further in this
    
    
    
    report under State Laws) supplied filled in noise levels for the NIMLO/EPA
    
    
    
    
    model ordinance.  Unfortunately, the level which they filed in for "compactor"
    
    
    
    was copied from another noise ordinance which referred to a piece of
    
    
    
    construction equipment used for compacting the ground and not to a device
    
    
    
    which goes on a garbage truck.  The writers of the Springfield ordinance
    
    
    
    accepted the 94 dB(A) level without checking any further or making any
    
    
    
    measurements.  This level is so high that even the noisiest compactor is
    
    
    
    not likely to exceed it.  No refuse truck noise measurements have been made
    
    
    
    by Springfield either before or since passage of their noise law.  They had
    
    
    
    one sound level meter which they borrowed from the State Department of
    
    
    
    Environmental Protection but they have since given it back.
    
    
    
    
         The Springfield noise law also contains a curfew provision of 10 p.m.
    
    
    
    to 7 a.m., which is apparently not being enforced.  They receive about
    
    
    
    5 complaints per year of refuse truck compactor noise, which is approximately
    
    
    
    what they received before passage of the law.  The rate of complaints
    
    
    
    generally runs higher in the summer when people keep their windows open.
    
    
    
    The scavenger companies have resisted any changes in schedule, claiming that
    
    
    
    they interfere with logistics of getting to the dump on time.  No citations
    
    
    
    have been issued to the scavengers.
    
    
    
         Besides its own difficulties, the Springfield, New Jersey, noise law
    
    
    
    is also under legal challenge for its zone-ambient noise provisions.  A
    
    
    
    
    
    
                                         9-11
    

    -------
    local quarry has been cited for noise violations and intends to fight the
    
    
    
    
    law in court.  None of the municipal officials interviewed had information
    
    
    
    on the current status of this challenge or whether it applied to the whole
    
    
    
    law or just one provision.
    
    
    
         Apparently the noise law had been passed primarily with the quarry  in
    
    
    
    mind, with the refuse truck provisions as an afterthought.  There was no
    
    
    
    input from the scavenger in formulating the noise law and there was no
    
    
    
    
    discussion of the refuse truck provisions at the hearings.  One difficulty
    
    
    
    with the noise law is that it was passed as a Board of Health ordinance
    
    
    
    rather than a township ordinance, which makes its enforcement weaker.
    
    
    
    
    Besides the quarry noise situation, the law has been used primarily
    
    
    
    in neighbor vs neighbor noise complaints.
    
    
    
         In summary, the Springfield, New Jersey, noise law has been unsuccessful
    
    
    
    in dealing with refuse truck noise, due both to the law itself and to
    
    
    
    its enforcement program.
    
    
    
    14.  New York, New York
    
    
    
         The New York noise ordinance as amended provides a maximum noise
    
    
    
    level of 75 dB(A) at 10 feet for vehicles manufactured after December
    
    
    
    31, 1974.  The law as presently worded calls for measurements with the
    
    
    
    slow scale of the sound level meter.  The earlier version of the New
    
    
    
    York noise law called for 70 dB(A) measured at 10 feet from the side
    
    
    
    of the compactor using the fast scale.  However, the city was not able
    
    
    
    
    to obtain trucks which met the provision and held up in service.  The
    
    
    
    amended version of the law, therefore, relaxed the requirement to  75
    
    
    
    
    dB(A) with the slow scale.  The New York City Environmental Protection
    
    
    
    Agency has measured newly manufactured refuse vehibles which meet the
    
    
    
                                          9-12
    

    -------
    relaxed requirement.  However, the law contains a provision to ratchet the
    
    
    
    level back down to 70 dB(A) on December 31, 1978.
    
    
    
         Since the law exempts the city's own fleet of garbage trucks, the only
    
    
    
    enforcement would be against newly manufactured privately operated trucks.
    
    
    
    So far the law has not been enforced against them, because of other problems
    
    
    
    affecting refuse collections in New York City and because other noise
    
    
    
    enforcement has had higher priority.
    
    
    
         Since New York's noise law applies to newly manufactured refuse vehicles,
    
    
    
    it is the type of law which would be preempted by a Federal new product noise
    
    
    
    regulation for truck-mounted solid waste compactors if one is promulgated by EPA.
    
    
    
    15.  Toledo, Ohio
    
    
    
         The Toledo noise ordinance is unique in its refuse truck provision in that
    
    
    
    it provides a curfew-like maximum noise level requirement, with a higher level
    
    
    
    permitted during the day.  The daytime level is 87 dB(A) at 50   feet and the
    
    
    
    nighttime (9 p.m. - 7 a.m.) level is 80 dB(A) at 50 feet. This, in effect,
    
    
    
    provides that only quieted equipment may operate at night.  The law also contains
    
    
    
    a ratchet provision to lower the permitted daytime noise level to 82 dB(A) in
    
    
    
    1979.  An additional margin of 5 dB is allowed for impulsive sounds from the
    
    
    
    compactor.
    
    
    
         The law is administered by the Toledo Pollution Control Agency.  It has an
    
    
    
    unusual penalty provision, in that the fine is $100 for an individual but $1000
    
    
    
    for an organization.
    
    
    
    16.  Ogden, Utah
    
    
    
         Ogden, Utah, has a 7 p.m. to 6 a.m. curfew on scavenger operations
    
    
    
    in areas zoned residential.  The law has been in effect there since
    
    
    
    1972, with enforcement responsibility given to the City Manager.  Penalties
    
    
    
    
    
                                         9-13
    

    -------
    provided are fines up to $300 and imprisonment of up to 30 days.
    
    
    
    17.  Salt Lake City, Utah
    
    
    
         The Salt Lake City noise law provides a curfew of 9 p.m. to 7 a.m.
    
    
    
    for scavenger operations.  The curfew applies in areas zoned residential
    
    
    
    and is enforced by the City-County Health Department.  Penalties provided
    
    
    
    in law are fines up to $299 and improsinment of up to 6 months.
    
    
    
    18.  Cook County, Illinois
    
    
    
         Cook County, Illinois, in which Chicago is located, has a noise
    
    
    
    law which provides a 6 p.m. to 1 a.m. curfew for scavenger operations
    
    
    
    in residential zones.
    
    
    
         Cook County's enforcement program is unique among all those in the
    
    
    
    nation because of the policy of routinely giving citations for refuse
    
    
    
    truck curfew violations.  It is estimated that 15 citations per year
    
    
    
    are handed out to the scavenger companies.  When this occurs the company
    
    
    
    has to appear in court with its lawyer.  Convictions almost always are
    
    
    
    returned.  The only exception is when the arresting officer has a discrepancy
    
    
    
    in his report,  such as an error in transcribing the license numbe.  Fines
    
    
    
    of $50 are typically required.  Since the law was enacted, there have only
    
    
    
    been two firms cited more than once.  Generally the scavengers become very
    
    
    
    careful in their schedules once they have gone through the inconvenience of
    
    
    
    hiring a lawyer and appearing in court to answer a citation.  Because of
    
    
    
    this policy of strict prosecution, the situation has now come to the point
    
    
    
    where most of the firms cited are small new companies that do not know the
    
    
    
    law.  There has been good cooperation from the larger firms in obeying
    
    
    
    curfews.  In all the prosecutions there has never been a challenge to the
    
    
    
    law itself.
    
    
    
    
    
                                         9-14
    

    -------
    19.  Sacramento County/ California
         The Sacramento County, California, noise ordinance was recently passed
    
    and has an effective date of July 1, 1976.  The maximum refuse  truck noise
    
    level provision of 80 dB(A) at 50 feet, however, has an effective date of
    
    January 1, 1977.  This level is slated to ratchet down the 75 dB(A) at 50
    
    feet on January 1, 1980.  The refuse truck provisions are quite similar  to
    
    those in nearby San Francisco except for the later effective date.
    
         The noise ordinance was written by a committee which included the
    
    industrial hygienist who administers the noise program.  There  have been a
    
    large number of complaints of garbage collection noise at night in Sacramento
    
    County, typically averaging about 200 per year.  This is particularly true
    
    of areas near hotels and schools in the city areas, where complaints often
    
    refer to such things as banging of cans and racing the motor.
    
         Although the new law has a maximum penalty of a $500 fine  or 6 months
    
    imprisonment, the Environmental Health Office does not plan to  issue cita-
    
    tions for refuse truck noise once that provision goes into effect.  Instead
    
    the San Francisco approach will be used which is working with the scavengers
    
    in trying to get them to retrofit their trucks or buy quieter new ones.
    
    OTHER MUNICIPAL NOISE LAWS
    
         The nineteen noise laws discussed above were of the most immediate
    
    interest because:
    
         •    They specifically mentioned either waste compactors or
    
              garbage collection.
    
         •    They are presently in effect.
    
         Each of the above laws was discussed in detail here and summarized  in
    
    Table 9-1.  The full texts of their noise provisions are provided at the end
    
    of this section.
    
                                  9-15
    

    -------
         Besides these nineteen laws there are others worthy of mention, but not
    
    of as immediate interest because they are still drafts, not yet in effect,
    
    already repealed, or do not specifically mention the product.  Those laws hav-
    
    ing a motor vehicle provision usually have a general truck provision which can
    
    be used against specialty trucks when they are in motion.  Of course, the non-
    
    quantitative nuisance noise laws can also be applied to refuse trucks.
    
         Those noise laws (and draft laws) which mention refuse trucks
    
    but have not been treated in detail because they are not presently in
    
    effect are the following:
    
         •    Cape Canaveral, Florida—repealed.  It had a maximum of 80 dB(A)
    
              at 50 feet, but it was never enforced.  The sucessor noise law
    
              has no refuse truck provision.
                                                          »
         •    Kansas City, Missouri—early draft.  An early draft had a provi-
    
              sion for 70 dB(A) at 10 feet, like the original New York City
    
              Noise law.  The present draft has removed the provision.
    
         •    Cleveland, Ohio—still in draft.  It has a 10 p.m. to 7 a.m.
    
              curfew for scavenger operations.
    
         •    Portland, Oregon—early draft.  An earlier draft had a provision
    
              of 70 dB(A) at 25 feet for newly manufactured refuse compacting
    
              vehicles.  The present draft has removed this provision.
    
         •    Harrisburg, Pennsylvania—early draft.  It applied to the  "loading
    
              and unloading of garbage cans" rather than to the compactor or
    
              the vehicle.  It called for a maximum level of 15 dB(A) above
    
              ambient as measured at the property line for 10 percent of the
    
              measurement period which must be at least 10 minutes long.  The
    
              present draft has removed all mention of refuse trucks.
    
    
    
                                         9-16
    

    -------
         o    Salt Lake County, Utah - early draft.  It specified a maximum
    
    
    
    level of 80 dB(A) at 25 feet for solid waste compactors, measured at the
    
    
    
    rear.  There was also a curfew of 9 p.m. to 7 a.m. provided for collections.
    
    
    
    Penalties called for in the law were fines up to $299 and imprisonment up to
    
    
    
    6 months.  An amended version of the Salt Lake County noise law is now being
    
    
    
    considered and may be adopted in the near future.  This amended draft does not
    
    
    
    contain the maximum noise level provision.
    
    
    
    Conclusions - Local Refuse Truck Noise Laws
    
    
    
         The above analysis discussed in detail the nineteen local refuse truck
    
    
    
    noise law which are presently in effect and have also noted those laws that
    
    
    
    were repealed or stayed in draft form.  The analysis indicated that the re-
    
    
    
    fuse truck laws specifying curfews have generally been more successful than
    
    
    
    those specifying maximum levels.  In cases where a law specifies both a curfew
    
    
    
    and a maximum level, it has been the curfew enforcement which has reduced the
    
    
    
    number of complaints.
    
    
    
         Curfews, however, have varying effects on the garbage collection
    
    
    
    process in different local areas.  The interference with collection logistics
    
    
    
    appears to be least in flat areas with wide streets that are not too densely
    
    
    
    populated.  In those areas where curfews can be applied to an area, they appear
    
    
    
    to offer the best possibility of relief from refuse collection noise.  A vigorous
    
    
    
    enforcement of the curfew is a necessary factor in such an approach.
                                         9-17
    

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    STATE LAWS APPLICABLE TO REFUSE TRUCK NOISE
    
    A search of all state noise laws has established that there are none which
    
    apply specifically to solid waste compactor truck noise.  However, the
    
    States of Florida and New Jersey have model community noise ordinances which
    
    have provisions covering refuse vehicles.  The text of their refuse truck
    
    provisions follow below:
    
         Model Coromunity Noise Control Ordinance, Florida
    
              8.1.1     Refuse Collection Vehicles.  No person shall collect
    
         refuse with a refuse collection vehicle between the hours of 7 p.m.
    
         and 7 a.m. the following day in a residential area or noise sensitive
    
         zone.
    
         It is apparent from the above language that this is a typical
    
    curfew provision, similar to the ones found in eleven local juris-
    
    dictions discussed in the previous section.  As of this writing, however,
    
    none of the municipalities in Florida has yet adopted the suggested
    
    wording for its own ordinance.
    
         Model Community Noise Ordinance, New Jersey
    
         9.1.3  Refuse Collection Vehicles.  No person shall:
    
         (a)  On or after (2 years) following the effective date of
              this ordinance, operate or permit the operation of the
              compacting mechanism of any motor vehicle which compacts
              refuse and which creates, during the compacting
              cycle, a sound level in excess of 86 dB  (A) when measured
              at 50 feet from any point on the vehicle;
    
         (b)  Operate or permit the operation of the compacting mechanism
              of any motor  vehicle which compacts refuse, between  the
              hours of 8 p.m. and 6 a.m. the following day  in a residential
              area or noise sensitive zone;
    
         (c)  Collect refuse with a refuse collection vehicle between
              the hours of  8 p.m. and 6 a.m. the following  day  in  a  resi-
              dential area
               [Choose b or  c]
    
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         The above provisions have been recommended by New Jersey since
    
    
    
    1976.  Before that time a provision with a 94 dB  (A) level had appeared
    
    
    
    in the New Jersey Model Community Noise Ordiance, as shown below:
    
    
    
              6.2.11    Refuse Compacting Vehicles.  The operating or permitting
    
    
    
         to be operated, of any motor vehicle which can compact refuse and
    
    
    
         which creates, during the compacting cycle, a sound pressure level
    
    
    
         in excess of 94 dB(A) when measured at 50 feet from any point of
    
    
    
         the vehicle, or between the hours of 10 p.m. and 7 a.m. the following
    
    
    
         day (in residential use districts).
    
    
    
         This provision combines a maximum sound level and curfew similar
    
    
    
    to the way recommended in the NIMLO/EPA model ordinance.  The difficulty
    
    
    
    in the above model is that it contains an erroneously high level of
    
    
    
    94 dB(A) at 50 feet for the compactor noise requirement.  This resulted
    
    
    
    when those who promulgated the New Jersey Model Ordinance mistook the
    
    
    
    word "compactor" in another ordinance for a solid waste compactor.
    
    
    
    The "compactor" whose 94 dB(A) level they put into their model ordinance
    
    
    
    was in fact a piece of construction equipment used for compacting the
    
    
    
    ground.  Subsequent editions of the New Jersey Model Community Ordinance
    
    
    
    will have this error corrected.
    
    
    
         Besides the Florida and New Jersey model ordinances the only applicable
    
    
    
    state laws found were the state laws specifying general truck noise
    
    
    
    levels.  These have been tabulated by the Motor Vehicle Manufacturer's
    
    
    
    Association, (Exhibit 9-1).  These general truck noise laws are only of
    
    
    
    limited interest for this study because:
    
    
    
         o    Those truck noise laws that specify levels of newly manufactured
    
    
    
              vehicles are preempted by the recent EPA new truck noise regulation.
    
    
    
    
    
    
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         •    The laws specify passby levels.  Since the compactor is generally
    
    
    
              not in operation when the truck is underway, the passby tests
    
    
    
    
              do not measure compactor noise.
    
    
    
    FEDERAL REGULATIONS APPLICABLE TO SPECIALTY TRUCK NOISE
    
    
    
         Current Federal regulations applicable to specialty truck noise are
    
    
    
    
    the EPA noise emission standards for motor carriers engaged in interstate
    
    
    
    commerce (39 FR 38208) and the EPA noise emission standards for medium and
    
    
    
    heavy trucks (41 FR 15538).  The U.S. Bureau of Motor Carrier Safety of the
    
    
    
    U.S. Department of Transportation has also issued regulations for the
    
    
    
    purpose of establishing measurement procedures and methodologies for
    
    
    
    determining whether commercial motor vehicles conform to the Interstate
    
    
    
    Motor Carrier Noise Emission Standards of EPA.
    
    
    
    EPA Interstate Motor Carrier Noise Regulation
    
    
    
         This regulation was promulgated by EPA under authority of the Noise
    
    
    
    
    Control Act of 1972.  Section 18 of the Noise Control Act requires the
    
    
    
    Administration to promulgate noise emission regulations for motor carriers
    
    
    
    engaged in interstate commerce.  The Secretary of Transportation is respon-
    
    
    
    sible for promulgating regulations to insure compliance with the EPA
    
    
    
    standards, through the enforcement and inspection powers authorized by the
    
    
    
    Interstate Commerce Act, the Department of Transportation Act, and the
    
    
    
    Noise Control Act of 1972.
    
    
    
         Section 18(c)(l) of the Act requires that "no State or political
    
    
    
    subdivision thereof may adopt or enforce any standard applicable to the
    
    
    
    same operation of such motor carrier unless such standard is identical to a
    
    
    
    standard applicable to noise emissions resulting from such operation
    
    
    
    prescribed by any regulation under this section."
    
    
    
    
    
    
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         On February 1, 1973, an Advance Notice of Proposed Rulemaking was
    
    
    
    published in the Federal Register soliciting public comment.  Proposed
    
    
    
    standards were published in the Federal Register (38 FR 20102) on July 17,
    
    
    
    1973, and final noise emission standards were established on October 29, 1974
    
    
    
    (39 FR 38208).  The standards went into effect on October 15, 1975.
    
    
    
    Maximum noise level under test conditions established by DOT is 86 dB(A)
    
    
    
    at 50 feet from centerline of the lane of travel on highways with speed
    
    
    
    limits of 35 mph or less; or 90 dB(A) at 50 feet on highways with speed
    
    
    
    limits or more than 35 mph.
    
    
    
         The interstate motor carrier emission standards are relevant to
    
    
    
    future specialty truck noise emission regulations.  The proposed standards
    
    
    
    did not originally specify clearly whether "auxiliary equipment" noise
    
    
    
    is to be included in the specified "total vehicle" noise levels.  Based
    
    
    
    on the comments received during the public comment periods and hearings,
    
    
    
    the final regulation included a clarification as follows:
    
    
    
              "The provisions of subpart B (Interstate Motor Carrier Operations
    
    
    
         Standards) do not apply to auxiliary equipment which is normally
    
    
    
         operated only when the transporting vehicle is stationary or is
    
    
    
         moving at; a speed of 5 miles per hour or less.  Examples of such
    
    
    
         equipment include but are not limited to, cranes, asphalt spreaders,
    
    
    
         ditch diggers, liquid or slurry pumps air compressors, welders,
    
    
    
         and trash compactors."
    
    
    
         The noise from trash compactors is not included in the "total vehicle"
    
    
    
    noise.  The Interstate Motor Carrier Noise Emission Compliance Regulations
    
    
    
    issued by the U.S. Department of Transportation on September 12, 1975,
    
    
    
    include additional language in the scope of the regulations.  It is
    
    
    
    
    
                                         9-21
    

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    stated that the rules do not apply to the sound generated by auxiliary
    
    
    
    equipment which is normally operated only when the motor vehicle on
    
    
    
    which it is installed is stopped or is operating at a speed of 5 mph
    
    
    
    (8 kph) or less, unless such a device is intentionally operated at speeds
    
    
    
    greater than 5 mph (8 kph) in order to preclude an otherwise valid noise
    
    
    
    measurement.  Trash compactor noise would be included in the total vehicle
    
    
    
    noise under such circumstances.  The need for this language arose out
    
    
    
    of comments received by the Director of the Bureau of Motor Carrier
    
    
    
    Safety after publication of a text of the proposed regulations in the
    
    
    
    Federal Register (40 FR 8658).  Several commenters suggested that it
    
    
    
    would be possible to intentionally thwart noise measurements by sounding
    
    
    
    warning devices or by operating auxiliary equipment even if it is not
    
    
    
    designed for operation above 5 mph.
    
    
    
    EPA Noise Emission Standards for New Medium and Heavy Duty Trucks
    
    
    
         The EPA new truck noise standards appeared in the Federal Register
    
    
    
    on April 13, 1976 (41 FR 75538).  The standards call for a new truck
    
    
    
    low speed acceleration passby test level of 83 dB(A) at 50 feet, effective
    
    
    
    January 1, 1978.  The level will be reduced to 80 dB(A) effective January
    
    
    
    1, 1982, and may be reduced further to an as yet unspecified level effective
    
    
    
    January 1, 1985.
    
    
    
         The medium and heavy  truck noise regulation standards apply to
    
    
    
    any vehicle which has a gross vehicle weight rating  (GVWR) in excess
    
    
    
    of 10,000 pounds, which is capable of transportation of property on
    
    
    
    a highway or street and which meets the definition of the term  "new
    
    
    
    product" in the Act.  However, in paragraph 205-50(b) of Subpart B,  it
    
    
    
    is stated that the vehicle noise emission standards  included in this
    
    
    
    
    
    
                                         9-22
    

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    subpart "do not apply to highway, city, and school buses or to special
    
    
    
    purpose equipment which may be located on or operated from vehicles.
    
    
    
    
    Tests performed on vehicles containing such equipment may be carried
    
    
    
    out with the special purpose equipment in nonoperating condition.  For
    
    
    
    purposes of this regulation special purpose equipment includes but is
    
    
    
    
    not limited to construction equipment, snow plows, garbage compactors,
    
    
    
    
    and refrigeration equipment."
    
    
    
         Clearly, the intent of this statement is that garbage compactors
    
    
    
    were to be regulated under independent rules and operating conditions
    
    
    
    after the Administrator had determined that noise emission standards
    
    
    
    are feasible for these types of special purpose equipment.
    
    
    
    FOREIGN SPECIALTY TRUCK NOISE LAWS
    
    
    
         The only foreign specialty truck noise law on which information
    
    
    
    has been found is a municipal solid waste compactor truck noise ordinance
    
    
    
    which is in effect in Stockholm, Sweden.  The law sets a noise limit
    
    
    
    during loading of 70 dB(A) at a distance of 3 meters from the truck
    
    
    
    side.  This law is more stringent that any presently in effect in the
    
    
    
    United States.  It is comparable to the Mew York City noise ordinance
    
    
    
    level of 70 dB(A) at 10 feet which was scheduled to go into effect on
    
    
    
    January 1,  1977.
    
    
    
         An extensive effort has been made to uncover other foreign laws
    
    
    
    relating specifically to specialty trucks; it appears that the Stockholm
    
    
    
    law is indeed the only one in existence.  There appear to be no specialty
    
    
    
    truck noise laws in Australia, Japan, Switzerland, or Germany.
                                         9-23
    

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    MODEL LOCAL SPECIALTY TRUCK NOISE ORDINANCES
    
    
    
         This section provides model provisions for local noise laws for
    
    
    
    solid waste compactor trucks.  The general problem is first discussed,
    
    
    
    then the product is defined and the model law provision is presented.
    
    
    
         As can be observed from examining the nineteen local noise laws
    
    
    
    
    discussed earlier, there are many different legal approaches to controlling
    
    
    
    refuse truck noise.  Basically the approaches are of two types:  maximum
    
    
    
    source noise level standards and curfews.  The approach we propose here,
    
    
    
    which combines both, is patterned after the refuse truck provision of
    
    
    
    the model community noise control ordinance prepared by the National
    
    
    
    Institute of Municipal Law Officers (NIMLO) in conjunction with EPA.
    
    
    
    The NIMLO model provision is as follows:
    
    
    
         Refuse Collection Vehicles.  No person shall:
    
    
    
         (a)  On or after (2 years) following the effective date of this
    
    
    
              ordinance, operate or permit the operation of the compacting
    
    
    
    
              mechansim of any motor vehicle which compacts refuse and which
    
    
    
              creates, during the compacting cycle, a sound level in excess
    
    
    
              of 	dB(A) when measured at 	feet (meters) from any
    
    
    
              point on the vehicle;
    
    
    
         (b)  Operate or permit the operation of the compacting mechanism
    
    
    
              of any motor vehicle which compacts refuse, between the hours
    
    
    
              of 	p.m. and 	a.m. the following day in a residential
    
    
    
              area or noise sensitive zone;
    
    
    
         (c)  Collect refuse with a refuse collection vehicle between the
    
    
    
              hours of 	p.m. and 	a.m. the following day  in a
    
    
    
              residential area or noise sensitive zone.
    
    
    
    
    
    
                                         9-24
    

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         The only modification which we have made to the NIMLO model  is
    to introduce some noise measurement procedures which are used in  the
    San Francisco enforcement program.
         (1)  Definition
              In each noise law a definition of each product to be regulated
    is usually provided.  The definition adopted by EPA is:
              "A truck-mounted solid waste compactor is a vehicle comprising
              an engine-powered truck cab and chassis or trailer, equipped
              with machinery for receiving, compacting, transporting  and
              unloading solid waste."
    The above definition was chosen to specifically exclude non-compacting
    container handling vehicles, non-compacting open top dump trucks,
    stationary compactors not mounted on trucks, and containers.
         (2)  Model Ordinance Provision
              By combining the NIMLO provision with the San Francisco measure-
    ment procedure one can generate a broad and probably effective ordinance,
    as follows:
              Refuse Collection Vehicles.  No person shall:
              (a)  On or after (2 years) following the effective date on
                   this ordinance, operate or permit the operation of the
                   compacting mechanism of any motor vehicle which compacts
                   refuse and which creates, during the compacting cycle, a
                   sound level in excess of 	 dB(A) when measured at 	
                   feet (meters) from the rear of the vehicle.  Measurements
                                         9-25
    

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                   shall be made with whatever load is present in the compactor
    
    
    
                   at the time.  The measurement shall be that of the average
    
    
    
                   compaction noise level, and peaks due to transient phenomena
    
    
    
                   in the load, such as cans crushing, shall be ignored.
    
    
    
              (b)  Operate or permit the operation of the compacting mechanism
    
    
    
                   of any motor vehicle which compacts refuse, between the
    
    
    
                   hours of 	p.m. and	a.m. the following day in
    
    
    
                   residential area or noise sesitive zones;
    
    
    
              (c)  Collect refuse with a refuse collection vehicle between
    
    
    
                   the hours of 	p.m. and 	a.m. the following day
    
    
    
                   in the residential area or noise sensitive zone.
    
    
    
         Note in the above model provision that the noise level measurement
    
    
    
    distance and hours of the curfew have been left blank.  Since this is
    
    
    
    an in-use noise law the level and distance will be community options, as
    
    
    
    long as it is consistent with EPA's new product noise law.  As EPA noise
    
    
    
    levels are specified for an empty compactor, some adjustment may have to be
    
    
    
    made in the level in the above community noise ordinance to account for the
    
    
    
    slight additional noise when loaded and possible reverberant effects in
    
    
    
    narrow streets and alleys.  The curfew hours should be strictly the preroga-
    
    
    
    tive of each community.  In the ordinances surveyed, the curfews were
    
    
    
    observed to start as early as 6 p.m. and as late ao 10 p.m.  Curfews ran
    
    
    
    until 6 a.m. in some localities and 7 a.m. in others.
    
    
    
         The provisions in the model ordinance for measurement at the rear for
    
    
    
    load condition as found on the street, and for ignoring transient peak sound
    
    
    
    levels orginating in the load are all patterned after the successful
    
    
    
    San Francisco program.  There is much to be said for the repeatability
    
    
    
    
    
                                         9-26
    

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    of measuring vehicles in an open area isolated test site, away from
    
    
    
    the sound reflecting surfaces of the city streets, with a standard empty
    
    
    
    compactor condition.  However, repeatability as a primary consideration
    
    
    
    is better suited to product certification measurements.  In an in-use
    
    
    
    enforcement such as this, it is more important that the noise measurement
    
    
    
    be applicable to impromptu spot checks and that it disturb the waste
    
    
    
    collection process as little as possible.  The fact that spot checks
    
    
    
    are being made also seems to encourage the refuse collectors to be quieter
    
    
    
    in other parts of the process not connected with compaction, such as
    
    
    
    banging cans and shouting to one another.
                                         9-27
    

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    MUNICIPAL SOLID WASTE COMPACTOR TRUCK NOISE LAWS  (FULL TEXT)
    
    
    
    Los Angeles, California (1/24/73)
    
    
    
         SEC. 113.01.  Rubbish and Garbage Collections and Disposal.  It
    
    
    
    shall be unalwful for any person engaged in the business of collecting
    
    
    
    or disposing of rubbish or garbage in any residential zone or within
    
    
    
    500 feet thereof to collect, load, pickup, trnasfer, unload, dump, discard
    
    
    
    or dispose of any rubbish or garbage as such terms are defined in Sec.
    
    
    
    66.00 of this Code between the hours of 9:00 p.m. of one day and 6:00
    
    
    
    a.m. of the next day, unless a permit therefore has been duly obtained
    
    
    
    beforehand from the Board of Police Commissioners,  Such permits shall
    
    
    
    be issued pursuant to standards established by said Board and approved
    
    
    
    by the City Council by ordinance.
    
    
    
         No permit shall be required to perform emergency work as defined
    
    
    
    in Sec. ll.Ol(c) of this chapter.
    
    
    
    San Anselmo, California (2/11/75)
    
    
    
         Section 4-7.09.  Refuse Collection.
    
    
    
         (a)  It shall be unlawful for any person authorized to engage in
    
    
    
    waste disposal services or garbage collection to provide such services
    
    
    
    in such a manner a reasonable person of normal sensitiveness working
    
    
    
    or residing in the area is caused discomfort, annoyance, or whose peace
    
    
    
    is disturbed.  For the purpose of this section noise emitted by equipment
    
    
    
    shall not be deemed unlawful if  the person engaged  in such services has,
    
    
    
    to the extent reasonably feasible in the judgment of the Director of
    
    
    
    Public Works incorporated available sound-deadening devices  into equipment
    
    
    
    used in rendering those services.
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          (b)  Any person authorized to engage in waste disposal services
    
    
    
    or garbage collection shall not operate any truck-mounted waste or garbage
    
    
    
    loading and/or compacting equipment or similar mechanical device acquired
    
    
    
    after the effective date of this chapter in a manner to create noise
    
    
    
    exceeding 75 dBA measured at a distance of 50 feet from the equipment.
    
    
    
    
    
          (c)  Mechanical street sweepers shall not operate in the manner
    
    
    
    to create noise exceeding 80 dBA and 75 dBA six  (6) months and twenty-four
    
    
    
    (24) months respectively after the effective date of this chapter.
    
    
    
    San Diego/ California
    
    
    
         Present Law [since March 22, 1977]
    
    
    
         SEC. 59.5.0406.  Refuse Vehicles and Parking Lot Sweepers.
    
    
    
    No person shall operate or permit to be operated a refuse compacting,
    
    
    
    processing or collection vehicle or parking lot sweeper between
    
    
    
    the hours of 7:00 p.m. to 7:00 a.m. in any residential area unless
    
    
    
    a permit has been applied for and granted by the Administrator.
    
    
    
         Repealed March 22, 1977
    
    
    
         SEC. 59.5.0406.  Refuse Vehicles.  No person shall operate or permit
    
    
    
    to be operated a refuse compacting, processing or collection vehicle
    
    
    
    after December 31, 1973, within the City of San Diego which when compacting
    
    
    
    creates a sound level in excess of eighty-six (86) decibels when measured
    
    
    
    at a distance of fifty (50) feet from any point of the compacting vehicle
    
    
    
    unless a variance has been applied for and granted by the Administrator
    
    
    
    or Appeals Board.  No refuse collection shall be permiteed from 7:00
    
    
    
    p.m. to 7:00 a.m. in any residential area.  Notwithstanding the above,
    
    
    
    on or after a date forty-eight (48) months after the effective date
                                         9-29
    

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    of this article, no person shall operate or permit to be operated, a refuse,
    
    
    
    compacting, processing or collection vehicle which when compacting creates a
    
    
    
     sound level in excess of eighty (80) decibels when measured at a distance of
    
    
    
    
    fifty (50) feet from any point of the compacting vehicle.
    
    
    
    San Francisco, California (9/18/72)
    
    
    
    
         SEC. 2904.  Waste Disposal Services.  It shall be unlawful for any person
    
    
    
    authorized to engage in waste disposal services or garbage colletion to provide
    
    
    
    such services so as to create an unnecessary amount of noise, in the judgment of
    
    
    
    the Director of Public Health or his authorized representative.  For the purpose
    
    
    
    of this section or Sec. 2915 noise  emitted by equipment shall not be deemed
    
    
    
    unnecessary or without justification if the person engaged in such services has,
    
    
    
    to the extent reasonably feasible in the judgment of the Director, incorporated
    
    
    
    available sounddeadening devices into equipment used in rendering those services.
    
    
    
         Notwithstanding the foregoing, it shall be unalwful for any person
    
    
    
    authorized to engage in waste disposal services, or garbage collection
    
    
    
    
    to operate any truck-mounted waste or garbage loading and/or compacting
    
    
    
    equipment or similar mechanical device in any manner so as to create
    
    
    
    any noise exceeding the following levels when measured at a distance
    
    
    
    of 50 feet from the equipment:
    
    
    
         (a)  On and after a date 6 months after the effective date of this
    
    
    
              Article  ... 80 dBA
    
    
    
         (b)  On and after a date 66 months after the effective date of this
    
    
    
              Article  ... 75 dBA
    
    
    
    San Jose, California (10/14/75)
    
    
    
         PART 7A.  REGULATION OF CABBAGE AND RUBBISH VEHICLES
    
    
    
         5307.20.  Garbage and Rubbish Vehicles, Moise Levels.
    
    
    
    
    
    
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    No refuse collector shall use, in his business, for the purpose of collect-
    
    
    
    ing, transporting or disposing of any refuse within the City of San Jose
    
    
    
    any motor vehicle or any motor vehicle and trailer which exceeds, during
    
    
    
    stationary compaction, 75 dB at a distance of 25 feet from said vehicle
    
    
    
    at an elevation of 5 feet from the horizontal base plane of said vehicle.
    
    
    
         Notwithstanding the above provisions specifying refuse vehicle
    
    
    
    noise levels, the Council may arrange for other or different noise level
    
    
    
    requirements, or dispense with noise level requirements for certain
    
    
    
    refuse vehicles, as the Council may deem necessary.
    
    
    
    Arvada, Colorado (2/75)
    
    
    
         Section 2.2.14  Kefuse Compacting Vehicles.  The operating, causing
    
    
    
    or permitting to be operated or used, any refuse compacting vehicle which
    
    
    
    creates a sound pressure level in excess of 74 dB(A), at 50 feet (15
    
    
    
    meters) directly to the rear of the vehicle (is prohibited).
    
    
    
    Englewood, Colorado (7/18/74)
    
    
    
         SEC 6-8-5.  SPECIFIC PROHIBITIONS
    
    
    
    
         The following acts are declared to cause unnecessary noise in violation
    
    
    
    of this Ordinance provided however that the following enumerations shall
    
    
    
    not be deemed to be exclusive.
    
    
    
         (d)  Loading Operations - The loading, unloading, opening or otherwise
    
    
    
    handling boxes, crates, containers, garbage containers or other objects
    
    
    
    in such a manner as to cause a disturbance; the loading of any garbage,
    
    
    
    trash or compactor truck, or any other truck, whereby the loading,
    
    
    
    unloading or handling of boxes, crates, equipment or other objects
    
    
    
    is conducted within a residential district nor within 300 feet
    
    
    
    of any hotel or motel between the hours of 10:00 p.m. and 7:00 a.m.
    
    
    
    
    
    
                                         9-31
    

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    Lakewood, Colorado (7/23/73)
    
    
    
         9.52.130.  Truckloading.  No person shall load any garbage, trash
    
    
    
    or compactor truck, or any other truck, whereby the loading, unloading
    
    
    
    or handling of boxes, crates, equipment or other objects is conducted
    
    
    
    within a residential district nor within three hundred (300) feet of
    
    
    
    any hotel or motel between the hours of 10 p.m. and 7 a.m.
    
    
    
    Littleton, Colorado  (5/74)
    
    
    
         Truckloading.  No person shall load any garbage, trash or compactor
    
    
    
    truck, or any other truck, whereby the loading, unloading or handling of
    
    
    
    boxes, crates, equipment or other objects is conducted within a residential
    
    
    
    district nor within three hundred (300 feet) of any hotel or motel between
    
    
    
    the hours of 10 p.m. and 7 a.m.
    
    
    
    Chicago, Illinois
    
    
    
         167.8.  Scavengers.  Zone of Non-Operation:  No private scavenger,
    
    
    
    its agents or employees shall grind garbage, refuse or other matter
    
    
    
    (as defined in Section 267-3 of this Chapter), between the hours of
    
    
    
    9:30 p.m. and 7:00 a.m., within the boundaries of the City of Chicago,
    
    
    
    except that this Section shall not apply to that area within the boundaries
    
    
    
    of O'Hare International Airport and within that area bounded by Michigan
    
    
    
    Avenue on the East,  and south branch of the Chicago River on the West,
    
    
    
    the North branch of  the Chicago River on the North and Roosevelt Road
    
    
    
    on the South.
    
    
    
         Any person violating this Section shall be subject  to a fine of
    
    
    
    not less than $25.00 nor more than $200.00 for the first offense, not
    
    
    
    less than $50.00 nor more than $500.00 for the second and each  subsequent
    
    
    
    offense  in any one hundred  and eighty  (180) day period.
    
    
    
    
    
                                         9-32
    

    -------
    Dubuque, Iowa (4/8/74)
    
    
    
         Section 2.  Noises Prohibited.
    
    
    
         (h)  Garbage collection.  The collection of garbage, waste or refuse
    
    
    
    by any person in any area zoned and residential except between the hours
    
    
    
    of 7:00 a.m. and 9:00 p.m. of any day and then only a manner so as not
    
    
    
    to create a loud or excessive noise.
    
    
    
    Princeton, New Jersey (10/10/72)
    
    
    
         (k)  Refuse collection.  The collection, transportation or disposal
    
    
    
    of garbage, trash, cans, bottles, and other refuse by persons engaged
    
    
    
    in the business of scavenging or garbage collection, whether private
    
    
    
    or municipal, at any time on Sundays, or other than between the hours
    
    
    
    of 7:00 a.m. and 7:00 p.m. on all other days, except in case of urgent
    
    
    
    necessity in the interest of public health and safety, and, if the nature
    
    
    
    of the emergency will admit of the prior procurement of a permit, then
    
    
    
    only in accordance with a permit first obtained from the Borough Engineer
    
    
    
    pursuant to section 4 hereof.
    
    
    
    Springfield, New Jersey (3/75)
    
    
    
         6.2.11.  Refuse Compacting Vehicles.
    
    
    
         The operating or permitting to be operated, any motor vehicle which
    
    
    
    can compact refuse and which creates, during the compacting cycle, a sound
    
    
    
    pressure level in excess of 94 dB(A) when measured at 50 feet from any
    
    
    
    point of the vehicle, or between the hours of 10 p.m. and 7 a.m. the
    
    
    
    following day (in residential use districts).
    
    
    
    New York, New York (4/23/75)
    
    
    
         1403.3-5.15.  Refuse Compacting Vehicles.  No person shall sell,
    
    
    
    offer for sale, operate or permit to be operated a refuse compacting
    
    
    
    
    
    
                                         9-33
    

    -------
    vehicle manufactured after the effective dates set out in Table IIIA,
    
    
    
    which when compacting produces a maximum sound level, when measured by
    
    
    
    
    a sound level meter set for slow response at a distance of ten feet
    
    
    
    from the center line of the face of the compacting unit, exceeding the
    
    
    
    applicable sound level set out therein.
    
    
    
                                    Table IIIA
    
    
    
               Effective date                Allowable sound level
    
    
    
               December 31, 1974                   75 dB(A)
    
    
    
               December 31, 1976                   70 dB(A)
    
    
    
    This local law shall take effect immediately.
    
    
    
    Toledo, Ohio  (1/4/75)
    
    
    
         SECTION  17-15-115.  Waste Disposal Services.
    
    
    
         It shall be unlawful for any person authorized  to engage in waste
    
    
    
    disposal services or garbage collection to provide such services so
    
    
    
    as to create  an unnecessary amount of noise.  For the purpose of this
    
    
    
    section, noise emitted by equipment shall not be deemed unnecessary
    
    
    
    or without justification if the person engaged in such services has
    
    
    
    to the extent reasonably feasible in the judgment of the Director of
    
    
    
    Pollution Control,  incorporated available sound-deadening devices into
    
    
    
    equipment used in rendering those services.
    
    
    
         Notwithstanding the foregoing, it shall be unlawful for any person
    
    
    
    authorized to engage in waste disposal services, or  garbage loading
    
    
    
    and/or compacting equipment or similar mechanical device in any manner
    
    
    
    so as to create any noise exceeding the following levels when measured
    
    
    
    at a distance of 50 feet from the equipment when within  500 feet of
    
    
    
    a residential zone:
    
    
    
    
    
    
                                         9-34
    

    -------
          (a)  On or after a date
    
    
    
              one (1) year after
    
    
    
              the effective date   9 p.m. - 7 a.m.    7 a.m. - 9 p.m.
    
    
    
              of this ordinance       80 dB(A)            87 dB(A)
    
    
    
          (b)  On or after a date
    
    
    
              48 months after
    
    
    
              the effective date   9 p.m. - 7 a.m.    7 a.m. - 9 p.m.
    
    
    
              of this ordinance       80 dB(A)            82 dB(A)
    
    
    
          (c)  Impulsive sounds must not exceed the levels specified in  (a) or
    
    
    
              (b) of this section by more than 5 dB(A)
    
    
    
    unless said person has filed an Application for Variance in accordance
    
    
    
    with  the provisions of this ordinance.
    
    
    
    Ogden, Utah (5/25/72)
    
    
    
          19.9.2.  Prohibited acts specifically.  The following acts, among
    
    
    
    others, are declared to be loud, disturbing or unnecessary noises in
    
    
    
    violation of this ordinance, . . . namely:
    
    
    
          L.   Garbage trucks.  The operation of any garbage pick up in any
    
    
    
    area  zoned residential on at least one side of the street by the zoning
    
    
    
    ordinance between the hours of 7 p.m. anc? 6 a.m.
    
    
    
    Salt  Lake City, Utah (8/16/72)
    
    
    
          Section 39-9-3.  Moises Prohibited - Standards.  The following acts,
    
    
    
    among others, are declared to be in violation of this ordinance . . .:
    
    
    
          (i)  Garbage collection.  The collection of garbage, waste or refuse
    
    
    
    by any person in any area zoned residential except between the hours
    
    
    
    of 7:00 a.m. and 9:00 p.m. of any day and then only in a manner so as
    
    
    
    not to create a loud or excessive noise.
    
    
    
    
    
                                         9-35
    

    -------
    COUNTY SOLID WASTE COMPACTOR TRUCK NOISE LAWS
    
    
    
    Cook County, Illinois
    
    
    
         9.5  Scavenger Operations
    
    
    
         All scavenger operations in the County of Cook, commercial and
    
    
    
    municipal, shall limit the actual contact hours involved in the pickup
    
    
    
    of refuse and all other solid waste in any residential or business-
    
    
    
    commercial zone (Rl through R6 and Bl through B5) whenever regular human
    
    
    
    occupancy is involved by virtue of residence only and such place of
    
    
    
    regular residence or the institutional equivalents (hospitals, nursing
    
    
    
    homes, etc.) to the period of 7:00 a.m. to 6:00 p.m.  These limits apply only
    
    
    
    to those contact periods wherein the collection function is in progress in
    
    
    
    Rl through R6, Bl through B5 and contiguous portions of Hi through M4
    
    
    
    zones and are not intended to include or confine such functions as start
    
    
    
    up and shut down operations at the central operating point (transfer
    
    
    
    station, sanitary landfill, incinerator, etc.) or the transit time of
    
    
    
    the first trip to and the last trip from the defined collection areas.
    
    
    
    Noise levels in such central operating points shall be governed by the
    
    
    
    property line values applicable for their location (Section 9.14 through
    
    
    
    9.17).  The exemptions on engine operation when parked, of Section 9.7
    
    
    
    shall apply as will the restrictions on new vehicles of Section 9.8(b)
    
    
    
    and vehicle use of Section 9.9(a).  When under severe conditions it
    
    
    
    can be shown to the satisfaction of the Director that operation outside
    
    
    
    these hours is in the overall public interest or operationally essential,
    
    
    
    a special variance can be requested for such period as can likewise
    
    
    
    be shown necessary.
                                          9-36
    

    -------
    Sacramento County, California
    
    
    
         6.68.140.  Waste Disposal Vehicles.
    
    
    
         It shall be unlawful for any person authorized to engage in waste
    
    
    
    disposal service or garbage collection to operate any truck-mounted waste
    
    
    
    or garbage loading and/or composting equipment or similar mechanical device
    
    
    
    in any manner so as to create any noise exceeding the following level, when
    
    
    
    measured at a distance of fifty feet from the equipment in an open area.
    
    
    
              (a)  New equipment purchased or leased on or after a date six
    
    
    
    months from the effective date of this chapter shall not exceed a noise
    
    
    
    level of 80 dB(A).
    
    
    
              (b)  New equipment purchased or leased on or after forty-two
    
    
    
    months from the effective date of this chapter shall not exceed a noise
    
    
    
    level of 75 dB(A).
    
    
    
              (c)  Present equipment shall not exceed a noise level of 80
    
    
    
    ciB(A) on or after five years from the effective date of the chapter.
    
    
    
         The provisions of this section shall not abridge or conflict with the
    
    
    
    powers of the State over motor vehicle control.
                                         9-37
    

    -------
                         SECTION 9
                         EXHIBIT A
    
           STATE AND LOCAL LAWS A^'D REGULATIONS
    
                            ON
    
                   MOTOR VEHICLE NOISE
                         CONTENTS
    
    1.  List of states, counties and cities having  noise
        laws and regulations and date of onactrr.ent  or
        adoption.
    
    2.  A table showing the decibel limit.3 of  each  law
       .and ordinance and the test procedure utilized.
                       Prepared by
    
                State Relations Department:
    
         Motor Vehicle Manufacturers Association
               of the United States, Inc.
    
    
                      June 24, 1975
    
    
    
                           9-38
    

    -------
                              MOTOR vi:
     :LE NOIPC
     Laws and Regulations
    
     California
     Colorado
     Connecticut
     Florida
     Hawaii
     Idaho
     Indiana
     Minnesota
     Nebraska
     Nevada
     New York
     Oregon
     Pennsylvania
     Washington
    
     City Ordinances
    
     Albuquerque (New Mexico)
     Barrington (Illinois)
     Billings (Montana)
     Birmingham (Michigan)
     Boston
     Boulder (Colorado)
     Chicago  ..
     Denver (Colorado)
     Des Plair.es (Illinois)
     Grand Rapids  (Michigan)
     Helena (Montana)
     Lakevood (Colorado)
     Madison (Wisconsin)
     Minneapolis
     Missoula (Montana)
     New York
     Ogden (Utah)
     San Francisco
     Sparta (New Jersey)
    
     County Ordinances
    
     Arlington  (Virginia)
     Cook  (Illinois)
     Montgomery  (Maryland)
     Salt  Lake  (Utah)
    
     Administrative Authorities
    
     Baltimore  (Maryland)
     Louisiana
     Maryland
     Milwaukee  (Wisconsin)
     Minnesota
     New Jersey
     North  Dakota
     Washington
    
    Other
    Kew Jersey  Turnpike Authority
    law enacted  1967  (amended  1971,  1975)
    law enacted  1971
     ?y .regulation enacted  1971 (attended 1973)
    law enacted  1974  (amended  1975)
    by regulation enacted  1972
    law enacted  1971
    law enacted  1971
    law enacted  1971  (repealed 197-5)
    lav; enacted  1972
    by regulation enacted  1971
    law enacted  1965
    by regulation enacted  1974
    law enacted  1972
    by regulation enacted  1975
    law enacted  1975
    law enacted  1973
    law enacted  1972
    law enacted  1973
    law enacted  1972
    law enacted  1971
    law enacted  1971
    law enacted  1974
    law enacted  1972
    law enacted  1973
    law enacted  1972
    law enacted  1973
    law enacted  1972
    law enacted  1971  (attended  1972)
    law enacted  1972
    law enacted  1972
    law enacted  1972
    law enacted  1972
    law enacted  1972
    law enacted 1974
    law enacted 1972
    3aw enacted 1975
    law enacted 1972
    law enacted 1972
    law enacted 1972
    law enacted 1973  (amended  1974)
    law enacted 1973
    law enacted 1974
    law enacted 1971
    law enacted 1971
    law enacted 1974
    law enacted 1974
                                   9-39
    

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