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United States Environmental Protection Agency
Office of Air and Radiation
EPA/43Q-R-96-O12
July 1996
1995 Compliance Results
ACID RAIN PROGRAM
HIGHLIGHTS
: tfBQz Eniissions from Phase I
Program Costs and;Effi<:iency on Target \v;5 !,
Inbr.nriicr. r.ssouroes Center
US tW ^404)
401 M Street, SW /
Washington, DC 20460
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Background
The Acid Rain Program was established under Title IV of the 1990 Clean Air Act
Amendments. The program calls for major reductions of sulfur dioxide (SCy and nitrogen oxides
(NOx), the pollutants that cause acid rain, while establishing a new approach to environmental
protection through the use of market incentives. The program sets a permanent cap on the total
amount of sulfur dioxide that may be emitted by electric utilities nationwide, about one half of the
amount emitted in 1980, and allows flexibility for individual utility units to select their own
methods of compliance. The program is being implemented in two phases: Phase I began in 1995,
will last until 1999, and currently involves 445 utility units; Phase n begins in 2000 and is
expected to involve over 2,000 units.
Acid rain causes acidification of lakes and streams and contributes to the damage of trees
at high elevations. In addition, acid rain accelerates the decay of building materials, paints, and
cultural artifacts, including irreplaceable buildings, statues, and sculptures. While airborne, SO2
and NOX gases and their participate matter derivatives, sulfates and nitrates, contribute to
visibility degradation and impact public health.
The Acid Rain Program represents a dramatic departure from traditional command and
control regulatory methods that establish source-specific emissions limitations. Instead, the
program introduces a trading system for S02 that facilitates lowest-cost emissions reductions and
an overall emissions cap that ensures the maintenance of the environmental goal. The program
features tradable SO2 emissions allowances, where one allowance is a limited authorization to
emit one ton of SO2. Allowances may be bought, sold, or banked by utilities, brokers, or anyone
else interested in holding them. Existing utility units were allocated allowances for each future
compliance year and all participants of the program are obliged to surrender to EPA the number
of allowances that correspond to their annual emissions.
At the end of each year, utilities are granted a 30-day grace period during which additional
SO2 allowances may be purchased, if necessary, to cover each unit's emissions for the year. At
the end of the grace period (the Allowance Transfer Deadline), the allowances a unit holds in its
Allowance Tracking System (ATS) account must equal or exceed the unit's annual SO2
emissions. In addition, in 1995-1999 (Phase I of the program), units must have sufficient
allowances to cover certain other deductions as well. Any remaining allowances may be sold or
banked for use in future years.
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1995 Compliance Results — Acid Rain Program
100% Compliance by the 445 Phase I Utility Units for 1995
Of the more than 2,000 utility units currently operating in the U.S., all 445 Phase I affected units that underwent annual
reconciliation for 1995 successfully met their compliance obligations under the Acid Rain Program. The total number of
allowances deducted in 1995 was 5,302,509, which represents 61 percent of all 1995 allowances issued. Almost all (99
percent) of the deducted allowances were for emissions (5,298,429), but other deductions were also made as required by
the Acid Rain regulations.
Cfl
O
'35
tn
o
10.9
1995 '
Allowable
.Emissions
Level
8.7
5.3
1980
1995
Phase I Units Cut their 1980 Emissions in Half;
1995 Emissions were 39% Below the Allowable
-Emissions Level Required by the Clean Air Act
The emissions reductions to date have been impressive for the first year of
compliance. For the 445 units participating in Phase I, actual emissions
measured by continuous emission monitoring systems (CEMS) were reduced
by more than half relative to 1980 levels with emissions plummeting from 10.9
to 5.3 million tons. Emissions for these units were 3.4 million tons (or 39
percent) below the 1995 allowable emissions level of 8.7 million tons required
by the Clean Air Act.
Rainfall in Eastern U.S. Less Acidic in 1995
According to a recent study prepared for the U.S. Geological Survey (USGS),
reductions in sulfur dioxide emissions have resulted in rainfall being less
acidic in 1995 as a result of the first year of the Acid Rain Program. The study
reports a 10-25 percent drop in rainfall acidity, particularly at some sites
located in the Mid-West, Northeast, and Mid-Atlantic Regions.
Monitoring Performance Excellent
The monitors used by participants of the Acid Rain Program provide some of the most accurate data ever collected by
the EPA. Not only were these monitors demonstrated to be accurate but their availability was also excellent.
Accuracy: 98 percent of the installed and tested monitors passed the required 10 percent relative
accuracy standard; 93 percent achieved relative accuracy of less than 7.5 percent.
Availability: These monitors were successfully operating over 95 percent of the time.
Program Costs and Efficiency on Target
The cost of reducing a ton of SO2 from the utility sector continues to decline: scrubber costs have dropped, removal .
efficiencies have improved, and expected increases in cost associated with the increased use of low sulfur coal have not
materialized. These reductions in cost are being reflected in allowance prices. In just two years, allowance prices have
dropped from $ 150/ton to less than $80/ton. Administratively, allowance trades are being processed quickly and
efficiently: Ninety nine percent of allowance trades have been processed within 5 days; 81 percent were processed
within 24 hours.
\
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State
At
FL.
GA
IL
IN
IA
KS
KY
MD
MA
Ml
MN
Table 1
Units
10
5
19
17
37
6
1
17
6
0
2
1
S&C
Units
4
5
14
25
5
0
2
3
4
8
3
5
State
MS
MO
NH
NJ
NY
OH
PA
TN
UT
WV
Wl
WY
Table 1
Units
2
16
2
. 2
10
43
21
19
0
14
13
0
S&C
Units
4
14
1
0
11
35
5
0
1
8
21
4
The 445 affected utility units include
263 units specifically required to
participate during Phase I ("Table 1
units"), and an additional 182 units
required to participate in Phase II, but
electing to participate early as
substitution and compensating units
("S & C units"). Over<2;000 units are
expected to participate in Phase II,
which begins in the year 2000.
Emissions Summary
445 Phase I Units
SO, Emissions (Million tons)
1980 Emissions 10.9
Table 1 Units 9.4
S&C Units 1.5
1995 Allowable Emissions 8.7
Table 1 Units' Allocation 5.6
S&C Units' Allocation 1 .3
Other 1995 Allocations 1.8
1995 Actual Emissions 5.3
Table 1 Units 4.4
1995S&C Units 0.9
J
1995 Allowance Summary
445 Phase I Units
Million Allowances
Allowances Held 1/30/96 8.74
Table 1 Units 6.21
S&C Units 1.27
Other Accounts 1.26
Allowable Deducted for Emissions 5.30
Table 1 Units 4.45
S&C Units 0.85
Other Allowances Deducted <0.01
Allowances Carried Over to 1996 3.44
Table 1 Units 1.76
S&C Units 0.42 J
Other Accounts '1 .26 ^1
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1995 Compliance Results — Summary
100% Compliance by the 445 Phase I Utility Units for 1995
Of the more than 2,000 utility units currently operating in the U.S., all 445 Phase I affected units that underwent annual
reconciliation for 1995 successfully met their compliance obligations under the Acid Rain Program. The total number of
allowances deducted in 1995 was 5,302,509, which represents 61 percent of all 1995 allowances issued Almost all (99
percent) of the deducted allowances were for emissions (5,298,429), but other deductions were also made as required by
the Acid Rain regulations.
55 O
10.9
1995
Allowable
Emissions
Level
8.7
5.3
1980
1995
Phase I Units Cut their 1980 Emissions in Half;
1995 Emissions were 39% Below the Allowable
Emissions Level Required by the Clean Air Act
The emissions reductions to date have been impressive for the first year of
compliance. For the 445 units participating in Phase I, actual emissions
measured by continuous emission monitoring systems (CEMS) were reduced
by more than half relative to 1980 levels with emissions plummeting from 10.9
to 5.3 million tons. Emissions for these units were 3.4 million tons (or 39
percent) below the 1995 allowable emissions level of 8.7 million tons required
by the Clean Air Act.
Rainfall in Eastern U.S. Less Acidic in 1995
According to a recent study prepared for the U.S. Geological Survey (USGS),
reductions in sulfur dioxide emissions have resulted in rainfall being less
acidic in 1995 as a result of the first year of the Acid Rain Program. The study
reports a 10-25 percent drop in rainfall acidity, particularly at some sites
located in the Mid-West, Northeast, and Mid-Atlantic Regions.
Monitoring Performance Excellent
The monitors used by participants of the Acid Rain Program provide some of the most accurate data ever collected by
the EPA. Not only were these monitors demonstrated to be accurate but their availability was also excellent.
Accuracy: 98 percent of the installed and tested monitors passed the required 10 percent relative
accuracy standard; 93 percent achieved relative accuracy of less than 7.5 percent.
Availability: These monitors were successfully operating over 95 percent of the time.
Program Costs and Efficiency on Target
The cost of reducing a ton of SO2 from the utility sector continues to decline: scrubber costs have dropped, removal
efficiencies have improved, and expected increases in cost associated with the increased use of low sulfur coal have not
materialized. These reductions in cost are being reflected in allowance prices. In just two years, allowance prices have
dropped from $ 150/ton to less than $80/ton. Administratively, allowance trades are being processed quickly and
efficiently. Ninety nine percent of allowance trades have been processed within 5 days; 81 percent were processed
within 24 hours.
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1995 Compliance Results .
Over the past few months, EPA has evaluated the actions of participating utility units and
their compliance with the Acid Rain Program. EPA is pleased to report that all units have
complied with the program in this first year, 1995. In other words, all Phase I units complied with
the requirement to hold enough allowances to cover their end-of-year allowance deductions. This
report discusses the process of determining compliance for these units, a process known as annual
reconciliation. Detailed appendices provide information on 1995 emissions, allowance holdings
and allowance deductions for each Phase I unit.
445 Utility Units Underwent Annual Reconciliation for 1995
There were 445 affected utility units that underwent annual reconciliation for 1995 to
meet their compliance obligations under the Acid Rain Program. These units are listed in
Appendix A and include 263 utility units specifically required to participate during Phase I, and an
additional 182 utility units not initially required to participate until Phase II, but electing to
participate early as part of multi-unit compliance plans.
The 263 utility units, residing at 110 power plants, were selected by Congress in the 1990
Amendments to the Clean Air.Act because they were the highest emitting and largest units. These
units emitted 57 percent of all utility emissions in 1985, and had emissions rates ranging from 2.5
to 10.2 Ibs of SCymmBtu of heat input, with an average of 4.2 Ibs/mmBtu. These units are often
referred to as-"Table 1 units" because they are officially listed iri Table 1 of the allowance
allocation regulation, 40 CFR 73.10. "
The other 182 utility units have been designated by certain Table 1 units to serve either as
substitution or compensating units. A unit brought into Phase I as" a substitution unit can assist a
Table 1 unit in meeting its emissions reductions obligations. Utilities may make cost-effective
emissions reductions at the substitution unit instead of at the Table 1 unit, by achieving the same
overall emissions reductions that would have occurred without the participation of the
substitution unit. .
A Table 1 unit may designate any Phase II unit as a substitution unit only if both units are
under the control of the same owner or operator. For 1995, 91 Table 1 units designated 175
Phase II units to be substitution units. These units are listed in Appendix B. Of these 91 Table 1
units, almost half were located in the Midwest (TL, IN, MI, MO, OH, WI) and almost a quarter in;
the South (AL, FL, GA, KY, .MS). In addition, almost a third of these Table 1 units designated
substitution units that were located at the same plant. • -
The remaining seven Phase II units that participated in the Acid Rain Program in 1995
entered as compensating units. Table 1 units that reduced their utilization below their baseline
may designate compensating units to provide compensating generation that would account for the
reduced utilization of the Table 1 unit. (A unit's baseline is defined as its heat input averaged
over the years 1985-1987). A Table 1 unit may designate any Phase II unit as a compensating
unit if the Phase II compensating unit is in the Table 1 unit's dispatch system or has a contractual
\
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agreement with the Table 1 unit, and the emissions rate of the compensating unit has not declined
substantially since 1985.
Program Established 1995 Target of 8.7 Million Tons for Selected Utility Units
The total number of allowances available in a particular year, the amount representing that
year's allowable emissions level, is the sum of a collection of allowance allocations granted to
sources under many provisions of the Act. In 1995, the emissions target for the 445 participating
units is 8.7 million tons.
Exhibit A: Origin of 1995 Allowable Emissions Level
Type of Allowance Number of
Allocation Allowances
Initial Allocation
Phase I Extension
Allowances for
Substitution Units
Early Reduction
Credits (ERCs)
Allowance Auctions
Allowances to
Compensating Units
Small Diesel
Allowances
Conservation
Allowances
TOTAL
5,550,231
1,350,068
1,220,044
314,248
150,000
109,116
37,558
12,816
8,744,081
Explanation of Allowance Allocation Types
Initial Allocation is the number of allowances granted to units based on
their historic utilization, emissions rates specified in the Clean Air Act
and other provisions of the Act.
Phase I Extension allowances are given to Phase I units that reduce
their emissions by 90 percent or reassign their emissions reduction
. obligations to units that reduce their emissions by 90 percent.
Allowances for Substitution Units are the initial allocation granted to
Phase II units which entered Phase I as substitution units.
Early Reduction Credits (ERCs) are additional allowances allocated to
certain units for voluntary emissions reductions made after enactment
and before January 1,1995.
Allowance Auctions provide allowances to the market that were set
aside in a Special Allowance Reserve when the initial allowance
allocation was made.
Allowances for Compensating Units are the initial allocation granted to
Phase II units which entered Phase I as compensating units.
Small Diesel Allowances are allocated annually to small diesel
refineries that produce and desulfurize diesel fuel during the previous
year. These allowances can be earned through 1999.
Conservation Allowances are awarded to utilities that undertake
efficiency and renewable energy measures. The allowances come from
a special Conservation and Renewable Energy Reserve set aside when
the initial allowance allocation was made.
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The initial allocation and the allowances for substitution and compensating units represent
the basic allowances granted to units that authorize them to emit SO2 under the Acid Rain
Program. Additional allowances for the year 1995 were also made available through the 1993,
1994, and 1995 allowance auctions. Other allowances issued in 1995 were from bonus provisions
in the Act. These provisions are briefly explained in Exhibit A with more explanation given below
for the Phase I extension and conservation allowances.
In 1993, a total of 3.5 million Phase I Extension allowances were distributed to 80 Phase I
units (1.35 million of these allowances were 1995 allowances). These allowances were awarded
to encourage utilities to install effective control technology without being penalized for. not
meeting their emissions reduction requirements while they were awaiting installation of the
equipment. To qualify for these allowances, a unit had to show that it would (1) use a qualifying
technology by January 1, 1997 that would reduce its S02 emissions by at least 90 percent; or (2)
reassign its emissions reduction obligation to another unit that would, by January 1,1997, use
such a technology to reduce its emissions by 90 percent. Overall, 19 of the units adopted
qualifying technologies and must meet the 90 percent reduction by 1997.
Conservation allowances were awarded to utilities that initiated efficiency and renewable
energy programs. The allowances came from a special Conservation and Renewable Energy
Reserve set aside when the initial allowance allocation was made. For 1995, eight utility
companies earned 7,744 allowances for the installation of demand side, energy efficient
technologies (e.g., energy efficient lighting) within their service territories. Two other utility
Exhibit B: 445 Phase I Affected Utility Units
SO2 Emissions in Million Tons / Year
12
10
8
6
4
2
0
263 Table 1 Units
182 S&C Units
10.9
10.7
10.0
1995 Allowable
Emissions ,
8.7
1980
am 9.4
ss; 1 .5
1985
9.3
1.4
1990
8.7
1.3
1994
7.4
1.1
1995
4.4
0.9
\
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companies received 815 allowances for purchased or generated electric power from geothermal
resources. Finally, one utility, which also had installed demand side measures, earned 4,257
allowances for purchased or generated electric power from biomass energy. .
Phase I Units Better 1995 Allowable Emissions Level by Almost 40 Percent
Emissions from the 445 units participating in Phase I have been reduced dramatically to
5.3 million tons of SO2, or 39 percent below the 1995 allowable emission limit of 8.7 million tons
(see Exhibit B). These reductions occurred both for the designated Table 1 units and for units
brought into the program as substitution and compensating units (S & C units). The 263 Table 1
units reduced their emissions to 4.4 million tons, substantially below their initial allocation of 5.6
million tons. Most of this reduction took place over the past calendar year with 3 million tons,
representing 40 percent of their total emissions, reduced since 1994. The substitution and
compensating units also reduced their emissions to less than 1 million tons — a reduction below
their 1995 allowance allocation (1.3 million tons) also occurring in the past calendar year.
The reduction from the 1980 baseline level is even more dramatic; emissions were reduced
by more than 5.6 million tons of SO2, representing a 51 percent drop in emissions from these 445
units.
Since 1980, emissions from Phase I units
have declined in every one of the 21 states
containing Phase I units, as shown in Appendix
C. Over 43 percent of this 5.6 million ton
emissions reduction was achieved by the utilities
in just three states: Ohio, Indiana, and Missouri.
These three states contained close to a third of
the units participating in Phase I and represented
some of the highest emitting plants. As a result
of their compliance with the Acid Rain Program,
units in Indiana, Ohio, and Missouri saw their
average emissions rate drop from 4.4 Ibs/mmBtu
in 1985 to 1.8 Ibs/mmBtu in 1995.
Emissions and emissions reductions for.
1995 are shown on a unit basis in Appendices D
and E. In 1995, over half of the units (237)
reduced their emissions by more than 50 percent
compared to their 1985 emissions. Many of
these reductions resulted from either switching to
a lower sulfur fuel or by the adoption of control
technology. Other reductions were caused by
reductions in the unit's utilization. Specifically,
42 units ceased emitting SO2 because they
reduced their utilization to zero, 31 of which
Exhibit C: Emissions Summary
445 Phase I Units
SO, Emissions (Million tons)
1980 Emissions
Table 1 Units
S & C Units
10.9
9.4
1.5
1995 Allowable Emissions 8.7
Table 1 Units' Allocation 5.6
S & C Units' Allocation 1.3
Other 1995 Allocations 1.8.
1995 Actual Emissions
Table 1 Units 4.4
1995 S&CUnits 0.9
5.3
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accounted for this decrease in utilization by demonstrating a replacement by sulfur-free
generation. The remaining 11 units that ceased operations in 1995 accounted for their drop in
utilization by increased generation at other Phase I units. (For more discussion on reductions in
utilization, refer to the section below on allowance deductions and Appendix E.)
; Not all .units decreased their emissions relative to 1985 levels. In fact, 52 units saw
increases: 27 Table 1 units and 25 substitution and compensating units. Three-quarters of these
units increased their emissions by less.than 5,000 tons, but the range of these emissions increases
spanned from 11 tons (Grand Tower 07 in Illinois) to 48,777 tons (Paradise 3 in Kentucky).
•* •
Clearly, the Acid Rain Program has begun fulfilling its promise of significant emissions
reductions from some of the largest and highest emitting power plants in the country. The
summary presented in Exhibit C shows the overall reductions achieved to date relative to 1980
levels and the extent to which Phase I participants achieved these reductions earlier than expected.
Deducting Allowances for Compliance -,
The total number of allowances deducted in 1995 was 5,302,509, which represents 61
percent of all.1995 allowances issued. Almost all (99 percent) of the deducted allowances were
for emissions, but some deductions were also made for other ..compliance considerations including
underutilization, state caps, and failure to meet control-by-contract requirements. The four types
of deductions are discussed below. , . • •
Emissions Deductions . •
Description: At an individual unit, the number of allowances surrendered was equal to the
number of tons emitted at the unit, except where the unit shared a common stack with other units.
For the purposes of surrendering allowances for emissions at a common stack, the utility was
allowed to divide up a stack's emissions among the units sharing the stack, as long as enough
allowances were surrendered to cover the total number of tons emitted. If no apportionment was
made, EPA divided up the total emissions reported by the stack equally among the units sharing
the stack. Appendix D reflects the deductions for emissions at each unit after the common stack
apportionment was made. Units sharing a common stack are listed in Appendices D and E
directly under the entry for their common stack.
7995 Deductions: Phase I units had a total of 5,298,429 allowances deducted for emissions in
1995. Of the 445 units, Paradise Unit 3 in Kentucky surrendered the most allowances.for
emissions (155,612), while 42 units that were not operated at all during the year surrendered the
least (0). Half of the units surrendered 6,083 allowances or less, while the average number of.
allowances deducted at a unit was 11,907.
Underutilization Deductions
Description: Phase I units make up only a portion of the universe of units that will ultimately be
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affected by the Acid Rain Program in Phase II, which means that there is no effective emissions
cap during Phase I for Phase II units. Therefore, if underutilization were not taken into account,
Phase I units could potentially shift their generation responsibilities to Phase II units without
surrendering allowances for the additional emissions resulting at those units.
To ensure that allowances are surrendered in this instance, each Phase I unit must explain
any underutilization during Phase I (1995-1999). Any Phase I unit that had a lower heat input in
1995 than the average heat input during the 1985-87 baseline years (i.e., was utilized less) must
surrender allowances unless it explains this decrease by shifts in generation to sulfur-free
generators (e.g., hydroelectric or nuclear generators), energy conservation, improved unit
efficiency, overutilization at other Phase I units in the dispatch system, utilization of compensating
units, or a decrease in dispatch system sales. If the reasons for the underutilization do not fall
into one or more of these categories, then it is presumed that the Phase I unit shifted generation to
sulfur-emitting Phase II units and the Phase I unit has to surrender allowances. The amount of
allowances surrendered is based on the amount of unexplained underutilization and the emissions
rate of Phase II units.
1995 Deductions: For 1995, 3,426 allowances were deducted for underutilization at eight units in
the Central Hudson Gas and Electric Corp., Long Island Lighting Company, and Southern
Mississippi Electric Power Association dispatch systems. Roseton Unit 1 in New York
surrendered the highest number of allowances (1,748) and Port Jefferson Unit 4, also in New
York, surrendered the lowest (4 allowances).
The total number of allowances deducted for underutilization and the number of units at
which they were deducted appears surprisingly low in light of data showing that 207 (47 percent)
of the Phase I units had lower utilization in 1995 compared to their 1985-1987 baseline.
(Utilization information on all 445 units participating in Phase I is shown in Appendix E.)
However, 199 of the units could account for their underutilization in ways that assured no net
increase in emissions and therefore these units did not have to give up allowances.
Of the eight units that could not account for all of their underutilization, two identified
shifts to sulfur-free generators only and three identified shifts to sulfur-free generators and energy
conservation. However, because the demonstrations did not account for all of the underutilization
at these units, these five units and the three others that did not make any demonstration were='
required to surrender allowances for underutilization.
State Cap Deductions
Description: Some substitution and compensating units are subject to a state-mandated,
operating company-wide emissions cap (state cap), whose stringency cannot be determined until
the end of the compliance year when monitoring data is available. For these units, EPA did not
consider the cap when allocating allowances, but adjusts their allowance holdings at the end of the
compliance year if the Agency determines that the cap is the most stringent limit.
As a general rule, if the state cap is determined to be the most stringent limit, then EPA
recalculates the number of allowances that should be allocated to the unit," and any allowances
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received in excess of that amount are deducted from the unit's account. However, for the first
year that units become substitution or compensating units, that unit may effectively use •
allowances from a future year account to cover the allowance deduction. In these instances, there
Exhibit D: Allowance Reconciliation
Summary
1995 Allowances Held in Allowance Tracking System Accounts as of 1/30/96*
Table 1 Unit Accounts
Substitution & Compensating Unit Accounts
Other Accounts**
1995 Allowances Deducted for Emissions
Table 1 Unit Accounts
Substitution & Compensating Unit Accounts
1995 Allowances Deducted Under Special Phase I Provisions***
Table 1 Unit Accounts
Substitution & Compensating Unit Accounts
1995 Allowances Carried Over to 1996
Table 1 Unit Accounts
Substitution & Compensating Unit Accounts
•
Other Accounts**
6,214,310
1,268,045
1,261,726
4,450,496
847,933
829
3,251
1,762,985 .
416,861
1,261,726
8,744,081
• •
5,298,429
•
4,080
3,441,572
* The number of allowances held in ATS accounts equals the number of 1995 allowances allocated (see Exhibit A).
January 30, '1996 represents the Allowance Transfer Deadline, the point in time at which the 1995 Phase I affected unit
accounts are frozen and after which no transfers of 1995 allowances will be recorded. The freeze on these accounts is
removed when annual reconciliation is complete.
** Other accounts refers to general accounts within the Allowance Tracking System (ATS) that can be held by any
utility, individual or other organization, and unit accounts for units not affected in Phase I.
*** Allowances deducted under special Phase I provisions are deductions made for underutilization and control-by-
contract units. The allowances deducted under special Phase I provisions do not include the allowances deducted under
the state cap provisions, because the same number of allowances (56,638) were allocated among the affected
substitution units prior to annual reconciliation. (See discussion of state cap provisions for more detail.)
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will be no net deduction for state caps. (Units that are allowed this early use of future year
allowances were parties to a settlement of prior litigation concerning .the substitution and reduced
utilization provisions.)
1995 Deductions: In applying the state caps under the annual reconciliation process, EPA
deducted 56,638 allowances at eleven units. Because all of these units are covered by the
settlement agreement and 1995 represents the first year that they were required to deduct
allowances under the state cap provisions, these units were allowed to use future year allowances
to cover their required emissions deductions. In practice, allowances were added to their 1995
accounts to cover 1995 deductions and simultaneously deducted from future year accounts. Units
surrendering allowances under the state cap provisions are listed in the notes of Appendix D.
Control-by-Cojntract Deductions
Description: A Table I unit is allowed to designate a Phase n unit as a substitution unit only if
both units are under the control of the same owner or operator. A Table I unit must show a
certain level of ownership interest and/or share a common operator with the substitution unit, or
have a contract between the owners and operators of the units that demonstrates a certain level of
control of the substitution unit (control-by-contract) by the Table I unit's owners and operators.
This contract, among other things, is required to contain a commitment to reduce the emissions
rate at the substitution unit designated under this provision by 30 percent or more. If the
substitution unit fails to meet this reduction, it is not subject to an enforcement action, but the
Phase I unit that designated it must surrender allowances to cover the additional emissions
released by the substitution unit.
1995 Deductions: For 1995, four Phase II units were designated as substitution units under the
control-by-contract provision in the permits regulation: Charles R Lowman Units 2 and 3 in
Alabama and R D Morrow Units 1 and 2 in Mississippi. These substitution units were designated
by the same Phase I unit, C P Crane Unit 2 in Maryland. Three of the four Units designated,
Charles R Lowman Units 2 and 3 and R D Morrow Unit 2, did not meet the requirement to
reduce their emissions rates by 30 percent. As a result, C P Crane Unit 2 surrendered 654
allowances to cover the extra emissions emitted at those units.
Program Costs and Efficiency on Target
As presented earlier, the Acid Rain Program achieved the emissions reductions goals for
1995 by allowing sources flexibility in complying with their SO2 reduction obligations. The 445
units participating in Phase I have pursued a variety of compliance options including installing
scrubbers, fuel switching, and allowance trading. The allowance market has given some sources
the incentive to overcontrpl their SO2 emissions in the near term, and bank their allowances for
use in future years. Other sources have been able to postpone and possibly avoid their
expenditures for control by acquiring allowances. This flexibility enabled all 445 sources to be in
compliance in 1995 and significantly reduced the cost of achieving these emissions reductions as
compared to the cost of a technological mandate.
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Securing the Program?s Cost Savings
The cost of reducing a ton of SO2 from the utility sector continues to drop. Recent
studies by Resources for the Future and the Electric Power Research Institute (EPRI) have
highlighted the efficiency and innovation in pollution controls that have accompanied the
implementation of the Acid Rain Program.1 For example, scrubber costs have dropped
dramatically in the past six years and their sulfur removal efficiencies have improved.
In addition, there have been innovations in the blending of high- and low-sulfur coals, while
expected increases in cost associated with the increased use of low sulfur coal have not
materialized. .
The price of allowances has reflected these "declines in control costs. The price of an
allowance has dropped from an estimated $500-600/ton when the Act was passed to a low of just
$68/ton at the 1996 allowance auction. Even over the past two years, allowance prices have
dropped from $ ISO/ton to the current $80/ton. Some market observers believe low allowance
prices are due primarily to larger than expected emission reductions, which have increased the
supply of allowances and depressed prices.
Finally, estimates of the overall cost savings associated with emissions trading remain
high. A recent GAO report estimated that $2-3 billion dollars will be saved with the
implementation of the Acid Rain Program through its allowance trading program.2
Maintaining the Credibility of S(X Allowances
In order to ensure the nationally mandated reductions of SO2 emissions, each affected unit
(boiler or turbine) was required to install a Continuous Emissions Monitoring System (CEMS) (or
for oil and gas units, an approved alternate measurement method) to measure and report the
concentration and mass of emissions. Among the tests performed on a unit's CEMS, the relative
accuracy test ensures that the installed monitor measures the "true" value of the pollutant by
comparing the monitor to a reference method, which measures the pollutant in the stack gas
concurrently with the monitor. Thus, the lower the relative accuracy achieved; the more accurate
the monitor. Of the 4,923 monitors tested and reviewed by EPA for the Acid Rain Program, 98
percent passed the required 10 percent relative accuracy standard; 93 percent of the monitors
achieved relative accuracy standards of less than 7.5 percent. Not only are the monitors
remarkably accurate; their availability has been excellent; these monitors were measuring actual
stack data over 95 percent of the time.
Burtraw, Dallas,.Cosf Savings Sans Allowance Trades? Evaluating the SO} Emission Trading Program to
Date, Resources for the Future Discussion Paper 95-30, September, 1995. Electric Power Research Institute, Coal
Supply and Transportation Markets During Phase One: Change, Risk and Opportunity, EPRI TR-105916, January
1996.
U.S. General Accounting Office, Air Pollution: Allowance Trading Offers an Opportunity to Reduce
Emissions at Less Cost, GAO/RCED-95-30, December, 1994.
-------
Because highly accurate monitoring systems are operating most of the year, the public can
place great confidence in the monitored data used to measure the progress of emissions reductions
under the program and those trading allowances can be assured that every allowance represents
onetonofSO2.
Facilitating the Allowance Market
EPA seeks to reduce transaction costs for allowance traders by quickly and efficiently
recording trades reported to the Agency. EPA quickly enters transfers into the accounting system
developed for allowance trading, known as the Allowance Tracking System (ATS), keeping
transaction costs associated with transferring allowances as low as possible. Overall, EPA has
processed 99 percent of allowance trades within 5 days, 81 percent of which were processed
within 24 hours. Data on allowance transactions and holdings are also made available to the
public, updated weekly on the Acid Rain Division's Internet site, to better inform trading
participants. Finally, the annual allowance auction provides an additional venue for participants to
purchase allowances. All of these actions facilitates the allowance market, reduces transaction
costs, and
-------
with areas downwind of affected utility units which have significantly reduced their emissions.
Yet, despite the significant progress made in reducing S02 emissions, the long term goal
of an overall 10 million ton emissions reduction will only be achieved through continued
reductions by these Phase I participants and by reductions required from Phase n units. The
flexibility inherent in the allowance trading system does not mandate where these reductions must
be made, but overall reductions must be sufficient to reach by 2010 the 8.95 million ton emissions
cap established for electric utilities.
to
S
o
II
30
25
20
15
10
5
Exhibit E:
Total U.S. SO2 Emissions
Phase I Units
1980
1985
1990
1995
The allowance trading system and the dramatic departure from traditional "command and
control" regulation that it represents create a new framework for units to pursue the lowest cost
emissions reductions. The program allows both the government and industry to focus on what
they do best: the government by protecting the environment and public health through setting and
enforcing emission reduction standards, and industry by producing electricity in the most cost-
effective manner. The cost savings, flexibility, and environmental protection of the Acid Rain
Program make it a model for market-based approaches for the reduction of other pollutants. The
program's successful first year proves that specific environmental goals with flexible mechanisms
can achieve significant improvements in the quality of the nation's environment.
11
-------
-------
Appendix A: Units Participating in Phase I of the Acid Rain Program
Table 1 Units
Albright 3 (WV) :
Allen 1,2,3 (TN)
Armstrong 1,2 (PA)
Asbury 1 (MO)
Ashtabula 7 (OH)
Avon Lake 11,12 (OH)
BL England 1,2 (NJ)
Bailly 7,8 (IN)
Baldwin 1,2,3 (IL)
Big Bend BBO1, BB02, BB03 (FL)
Bowen 1BLR, 2BLR, 3BLR, 4BLR (GA)
Breed 1 (IN)
Brunner Island 1,2,3 (PA)
Burlington 1 (IA)
CPCranel,2(MD)
Cardinal/ridd 1,2 (OH)
Cayugal,2(IN)
Chalk Point 1,2 (MD)
Cheswick 1 (PA)
CUny Creek 1,2,3,4;5,6 (IN)
Cofieen01,02(IL)
Colbert 1,2,3;4,5(AL)
ColemanCl,C2,C3(KY)
Conemaugh 1,2 (PA)
Conesville 1,2,3,4 (OH)
Cooper 1,2 (KY)
Crist 6,7 (FL)
Cumberland 1,2 (TN)
DesMoinesll(IA)
Dunkirk 3,4 (NY)
ECGastonl,2,3,4,5 (AL)
EW Brown 1,2,3 (KY)
E W Stout 50,60,70 (IN)
Eastlake 1,2,3,4,5 (OH)
Edgewater 4 (WI)
Edgewater 13 (OH)
Elmer Smith 1,2 (KY)
'FBCulley2,3(IN)
Fort Martini,2 (WV)
Frank ERatts 1SG1.2SG1 (IN)
Gallatin 1,2,3,4(TN)
Gen JM Gavin 1,2 (OH)
Genoa 1 (WI)
George Neal North 1 (IN)
Ghent 1 (KY)
Gibson 1,2,3,4 (IN)
Grand Tower 09 (IL)
Green River 5 (KY)
Greenidge 6 (NY)
HLSpurlockl(KY) •
HMP&L Station 2 HI, H2 -
HTPritchard6(IN)
Hammond 1,2,3,4 (GA)
Harrison 1,2,3 (WV)
Halfield's Ferry (PA)
Hennepin 2 (IL)
High Bridge 6 (MN) .
JH Campbell 1,2 (MI)
Jack McDonough MB1, MB2 (GA)
Jack Watson 4,5 (MS)
James River 5 (MO)
Johnsonville 1,2,3,4,5,6,7,8,9,10 (TN)
Joppa Steam 1,2,3,4,5,6 (IL)
Kammerl,2,3(WV)
Kincaidl,2(IL)
Kyger Creek 1,2,3,4,5 (OH)
Labadiel,2,3,4(MO)
Martins Creek 1,2 (PA)
Meredosia 05 (IL)
Merrimackl,2(NH)
Miami Fort 5-1,5-2,6,7 (OH)
Michigan City 12 (IN)
Millikenl,2(NY)
Milton LKapp 2 (IA)
Mitchell 1,2 (WV)
Montrose 1,2,3 (MO)
Morgantown 1,2 (MD)
Mt Storm 1,2,3 (WV)
Muskingum River 1,2,3,4,5 (OH)
Nelson Deweyl,2 (WI)
New Madrid 1,2 (MO)
Nilesl,2(OH)
North Oak Creek 1,2,3,4 (WI)
Northport 1,2,3 (NY)
Paradise 3 (KY)
Petersburg 1,2 (IN)
Picway 9 (OH)
Port Jefferson 3,4 (NY)
Portland 1,2 (PA)
Prairie Creek 4 (IA)
Pulliam8(WI)
Qunidaro 2 (KS)
A-1
-------
RE Burger 5,6,7,8 (OH)
R Gallagher 1,2,3,4 (IN)
Riverside 9 (IA)
ShawneelO(KY)
Shawville 1,2,3,4 (PA)
Sibley 3 (MO)
Sioux 1,2 (MO)
South Oak Creek 5,6,7,8 (WI)
Sunbury 3,4 (PA)
Tanners Creek U4 (IN)
Thomas Hill MB 1, MB2 (MO)
Vermilion 2 (IL)
WHSammis 5,6,7 (OH)
Wabash River 1,2,3,5,6 (IN)
Walter C Beckjord 5,6 (OH)
Wansleyl,2(GA)
Warrick 4 (IN)
Yates Y1BR, Y2BR, Y3BR, Y4BR, Y5BR, Y6BR,
Y7BR (GA)
Substitution Units
Acme 13,14,15,16,91,92 (OH)
Albright 1,2 (WV)
AlmaB4JB5(Wl)
Arkwrightl,2,3,4 (GA)
Avon Lake 9,10 (OH)
Bay Shore 1,2,3,4 (OH)
Big Bend BB04 (FL)
Bruce Mansfield 1,2 (PA)
C R Huntley 63,64,65,66 (NY)
Chalk Point 3,4 (MD)
Charles R Lowman 2,3 (AL)
Collins 1,2,3 (IL)
Crist 4,5 (FL)
DanEKaml (MI)
East Bend 2 (KY)
Edgewater 3 (WI)
Edgewaterll,12(OH)
Gadsby 3 (UT)
Gadsdenl,2(AL)
Gorge 25,26 (OH)
Grand Tower 07,08 (IL)
HTPritchard 3,4,5 (IN)
Harllee Branch 1,2,3,4 (GA)
Havana 1,2,3,4,5,6,7,8 (IL)
Hawthorn 5 (MO)
High Bridge 3,4,5 (MN)
Hutsonville 05,06 (IL)
latan 1 (MO)
JM Stuart 1,2,3,4 (OH)
JPMadgettBl(WI)
JR Whiting 2,3 (MI)
James River 3,4 (MO)
Jim Bridger BW71,BW72,BW73 (WY)
Kraft 1,2,3 (GA)
LaCygnel,2(KS)
Lake Shore 18,91,92,93,94 (OH)
Mcintosh 1 (GA)
Meramec 1,2,3,4 (MO)
Meredosia 01,02,03,04,06 (TL)
Mitchell 3 (GA)
Mitchell 33 (PA)
Mount Tom 1 (MA)
New Castle 1,2 (PA)
Newington 1 (NH)
Newton 1,2 (IL)
Northport 4 (NY)
Oswego 3,4,5,6 (NY)
Petersburg 3,4 (IN)
Port Washington 1,2,3,4,5 (WI)
Poston 1,2,3 (OH)
PIeasantsl,2(WV)
Pulliam 5,6,7 (WI)
RD Green G1,G2(KY)
RD Morrow 1,2 (MS)
RE Burger 1,2,3,4 (OH)
RPSmiui9,ll(MD)
Rivesville 7,8 (WV)
Rock River 1,2 (WI)
Rosetonl,2(NY)
Rush Island 1,2 (MO)
Scherer3(GA)
Scholzl,2(FL)
Sherburne County 1,2 (MN)
Sibley 1,2 (MO)
Thomas Hill MB3 (MO)
Toronto 9,10,11 (OH)
Southwest 1 (MO)
Valley 1,2,3,4 (WI)
Vermilion 1 (IL)
Victor J Daniel Jr 1,2 (MS)
Westonl,2,3(WI)
Willow Island 1,2 (WV)
Wood River 1,4 (EL)
WyodakBW91(WY)
Compensating Units
Brayton Point 1,2,3,4 (MA)
Salem Harbor 1,2,3 (MA)
A-2
-------
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-------
Appendix C: State Summary Data for 445 Phase I Units
STATE
ALABAMA
S & C Units
Table I
FLORIDA
S & C Units
Table I
GEORGIA
S&C Units
Table I *
ILLINOIS
S&C Units
Table I
INDIANA
S & C Units
Table I
IOWA
S&C Units
Table I
KANSAS
S & C Units
Table 1
KENTUCKY
S&C Units
Table I
MARYLAND
S & C Units
Table I
MASSACHUSETTS
S & C Unite
Table I
MICHIGAN
S&C Units
Table I
MINNESOTA
S & C Units
Table I
MISSISSIPPI
S&C Units
Table i
MISSOURI
S&C Units
Table I
1985
326,698
26,270
300.428
266,872
40.580
226.292
962,484
147,766
814,718
852,766
70,393-
782,373
1,331,643
27,837
1,304,436
75,183
0
75,183
39,636
36,381
3,255
506,398
34,169
472,229
149,624
15,129
134,495
106,227
106.227
0
81,991
21,461
60.530
30,132
27.956
2.176
100,116
27.497
72.619
919,877
147,204
772.673
1990
251,071
14,372
236,699
267,338
40.858
226,480
842,158
-139.211
702,947
755,227
57,330
697,897
1,259,190
32,581 .
1,226.609
60,303
0
60,303
41,458
37,690
3,768
492,541
- 30,568
461,973
191,750
14,849
176.901
116,699
116,699
0
41,962
19,178
- 22,784
11,624
10.077
1.547
115,805
28.667
87.138
756,949
124,023
632,926
Reduction in
. " Number Emissions (Tons) % Change
1995 of Units 1985-1995 1985-1995
149,995
17,350
132,645
130,730
22,178
108,552
397,590
121,586
276.004
432,219
40,042
392.177
681,308
44.806
636.502
27,389
0
27.389
29,049
26,156
2,893
334,721
14,647
320,074
125,822
6,018
119,804
72,770
72,770
0
29.501
16.330
13,171-
12,503
11,010
1,493
81,238
24.617
56.621
326,047
98.522
227.525
14
4
10
10
5
5
33
14
19
42.
25
17
42
5
' 37
6
0
6
3
' 2
1
20
3
17
10
4
6 /
8
8
0
5
3
2
6
. 5
1
6
4
2
30
14
16
(176,703)
(8,920)
(167,783)
(136,142)
(18,402)
(117,740)
(564,894)
(26,180)
(538,714)
(420,547)
(30,351)
(390.196)
(650,335)
-. 16,969
(667,934)
(47,794)
0
(47.794)
(10,587)
(10.225)
(362)
(171,677)
(19,522) .
(152.155)
(23,802)
(9,111)
(14,691)
(33,457)
(33,457)
0
(52,490)
(5.131)'
(47,359)
(17,629)
(16.946)
(683)
(18,878)
(2.880)
(15.998)
(593,830)
(48.682)
(545.148)
-54.1%
-34.0% '
-55.8%
-51.0%
-45.3%
-52.0%
-58.7%
-17.7%
-66.1%
-49.3%
-43.1%
-49.9%
-48.8%
61.0%
-51.2%
-63.6%
N/A
-63.6%
-26.7%
-28.1%
-11.1%
-33.9%
-57.1%
-32.2%
-15.9%
-60.2%
-10.9%
-31.5%
-31.5%
N/A
-64.0%
-23.9%
-78.2%
-58.5%
-60.6%
-31.4%
-18.9%
-10.5%
-22.0%
-64.6%
-33.1%
-70.6%
PageC-1
-------
Appendix C: State Summary Data for 445 Phase 1 Units
STATE
NEW HAMPSHIRE
S & C Units
Table!
NEW JERSEY
S & C Units
Table I
NEW YORK
S & C Units
Table I
OHIO
S & C Units
Table i
PENNSYLVANIA
S & C Units
Table I
TENNESSEE
S & C Units
Table I
UTAH
S & C Units
Table I
WEST VIRGINIA
S & C Units
Table I
WISCONSIN
S & C Units
Table I
WYOMING
S & C Units .
Table I
1985
69,324
15.086
54,238
34,122
0
34,122
262,672
88,611
174,061
2,036,181
283,544
1.752,637
703,869
27.777
676.092
638,221
0
638,221
1,664
1,664
0
786,678
62,244
724,434'
315,676
88,903
226,773
80,744
80.744
0
1990
61,654
21,479
40,175
31,517
0
31,517
239,239
109,506
129,733
2,077,277
275,274
1,802,003
705,693
30.156
675,537
590,351
0
590,351
0
0
0
804,062
62.929
741.133
207,154
72.345
.134.809
34,269
34,269
0
Reduction in
Number Emissions (Tons) % Change
1995. of Units 1985-1995 1985-1995
47,283
11.155
36.128
21,720
0
21,720
95,826
25,340
70.486
910,992
140,635
770,357
529,559
13.755
515,804
287,446
0
287,446
2
2
0
436,885
63,914
372,971
107,080
52.411
54,669
30,754
30.754
0
3
1
2
2
0
2
21
11
10
78
35
43
26
5
21
19
0
19
1
1
0
22
8
.14
34
21
13
4
4
0
(22,041)
(3,931)
(18.110)
(12,402)
0
(12,402)
(166,846)
(63,271)
(103,575)
(1,125,189)
(142.909)
(982,280)
(174,310)
(14.022)
(160,288)
(350,775)
0
(350.775)
(1,662)
(1,662)
0
(349,793)
1.670
(351,463)
(208,596)
(36.492)
(172,104)
(49,990)
(49,990)
0
-31.8%
-26.1%
-33.4%
-36.3%
N/A
-36.3%
-63.5%
-71.4%
-59.5%
-55.3%
-50.4%
-56.0%
-24.8%
-50.5%
-23.7%
-55.0%
N/A
-55.0%
-99.9%
-99.9%
N/A
-44.5%
2.7%
-48.5%
-66.1%
-41.0%
-75.9%
-61.9%
-61.9%
N/A
National Totals:
S & C Units
Table I
10,678,798 9,955,291 5,298,429 445
1,377,443 1,272,061 853,998 182
9,301.985 8,683,230 4,444,431 263
(5,380,369)
(523.445)
(4,857.554)
-50.4%
-38.0%
-52.2%
Page C- 2
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US EPA (3404)
401 M Street, SW
Washington! DC 20460
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