92o CONGRESS! QFVATT? / DOCUMENT
1st Session } btJMATB j No 92_n
PROGRESS IN THE PREVENTION AND
CONTROL OF AIR POLLUTION
ANNUAL REPORT
OF THE
ADMINISTRATOR OF THE ENVIRONMENTAL
PROTECTION AGENCY
TO THE
CONGRESS OF THE UNITED STATES
IN COMPLIANCE WITH
Public Law 90-148
THE CLEAN AIR ACT OF 1967
MAY 1971
MAY 3,1971.—Ordered to be printed
U.S. GOVERNMENT PRINTING OFFICE
60-218° WASHINGTON i 1971
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COMMITTEE ON PUBLIC WORKS
JENNINGS BANDOLPH, West Virginia, Chairman
EDMUND S. MUSKIE, Mains JOHN SHERMAN COOPER, Kentucky
B. EVERETT JORDAN, North Carolina J. CALEB BOO OS, Delaware
BIRCH BAYH, ludlana HOWARD H. BAKER, JR., Tennessee
JOSEPH M. MONTOYA, New Mexico ROBERT J. DOLE, Kansas
THOMAS F. EAQLETON, Missouri J. GLENN BEALL, JR., Maryland
MIKE GRAVEL, Alaska JAMES L. BUCKLEY, New York
JOHN V. TUNNEY, California LOWELL P. WEICKER, JR., Connecticut
LLOYD BENT8EN, Texas
RICHARD B. ROYCZ, Chit} Clerk ant Staff Director
J. B. HUYETT, Jr., Aubtmi Chief Clerk and Anlstant Staff Director
BARRY MEYER, Counsel
BAILEY GUARD, Minority Staff Director
TOM C. JORLINO, Minority Counsel
Professional Staff Membert: JOSEPH F. VAN VLADRICKEN, LEON G. BILLINGS, RICHARD D. GKUNDY, JOHN
YAOO, HAROLD H. BRAYMAN, RICHARD W.WILSON, PHILIP T. CUMMINCS, JUDY PARENTS, and RICHARD
HEROD.
SENATE RESOLUTION 88
Submitted by Mr. Randolph of West Virginia
IN THE SENATE OF THE UNITED STATES,
Agreed to May S, 1971.
Resolved, That the annual report of the Administrator of the En-
vironmental Protection Agency to the Congress of the United States
(in compliance with Public Law 90-148, the Clean Air Act, as amended)
entitled "Progress in the Prevention and Control of Air Pollution", be
printed as a Senate document. .
SEC. 2. There shall be printed two thousand five hundred additional
copies of such document for the use of the Committee on Public Works.
Attest: „ FRANCIS R. VALEO,
Secretary.
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CONTENTS
Page
Letter of Trai ismittal v
Preface vii
Summary ix
I. Effects and Surveillance 1
A. Air quality criteria 1
B. Health effects research 2
C. Economic effects research ;!
]). Air Quality and emissions data 3
E. Instrumentation 4
F. Atmospheric processes ,r>
G. Research grants 0
II. Control and Compliance i;
A. Air quality control regions 7
T\. Public information 8
C. Assistance to State and local agencies 8
D. Manpower development ]l)
E. Abatement action 11
F. Prevention of episodes 12
G. Control of pollution at Federal facilities 12
II. Stationary source technology I!J
I. Motor vehicle emission standards 1">
J. Motor vehicle control technology 1(1
K. Fuel additives registration 18
L. Aircraft pollution control 18
M. International activities 19
(in)
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LETTER OF TRANSMITTAL
ENVIRONMENTAL PROTECTION AGENCY,
Washington, D.C., March 5,1971.
Hon. SPIRO T. AGNEW,
President of the Senate,
Washington, D.C.
DEAR MR, PRESIDENT: In accordance with section 313 of the Clean
Air Act, as amended, we are pleased to transmit the enclosed report
to the Congress on "Progress in the Prevention and Control of Air
Pollution."
This report covers progress during the period January-December
1970. Prior to December 2, 1970, the activitie3 described in the report
were conducted under the direction of the Secretary of Health,
Education, and Welfare. Under the provisions of Reorganization
Plan No. 3, effective December 2, 1970, the responsibility lor imple-
mentation of the Clean Air Act was assigned to the Einvronmental
Protection Agency.
The Clean Ah1 Act was substantially amended by the Clean Air
Amendments of 1970, approved by the President December 31, 1970.
The enclosed report describes activities under the \&\v as in effect
prior to that date and generally refers to the law as it existed previous
to amendment.
A year from now, when the next report under section 313 is sub-
mitted, we expect that it will show substantial additional progress
toward a solution of the Nation's air pollution problems.
Sincerely yours,
WILLIAM D. RUCKELSHAUS,
Administrator.
(V)
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PREFACE
The Clean Air Act authorizes a national program of air pollution
research and control activities. This program is conducted by the Air
Pollution Control Office (APCO) of the Environmental Protection
Agency. APCO formerly was known as the National Air Pollution
Control Administration and until December 2, 1970, was an agency
of tho Department of Health, Education, and Welfare.
For the past 3 years, the Secretary of Health, Education, and Wei-
faro has submitted to the Congress an annual report on progress under
the Cloan Air Act. This report, covering activities during calendar
year 1970, is the first one submitted by the Administrator of the
Environmental Protection Agency.
This report is submitted annually in accordance with section 313 of
the Clean Air Act, which reads as follows:
"SEC. 313. Not later than six months after the effective date of this
section and not later than January 10 of each calendar year beginning
after such date, the Administrator shall report to the Congress on
measures taken toward implementing the purpose and intent of this
Act including but not limited to (1) the progress and problems asso-
ciated with control of automotive exhaust emissions and the research
efforts related thereto; (2) the development of air quality criteria and
recommended emission control requirements; (3) the status of enforce-
ment actions taken pursuant to this Act; (4) the status of State am-
bient ah' standards setting, including such plans for implementation
and enforcement as have been developed; (5) tho extent of develop-
ment and expansion of air pollution monitoring systems; (6) progress
and problems related to development of new and improved control
techniques; (7) tho development of quantitative and qualitative in-
strumentation to monitor emissions and air quality; (8) standards set
or under consideration pursuant to title II of this Act; (9) the status
of State, interstate, and local pollution control programs established
pursuant to and assisted by this Act; and (10) tho reports and recom-
mendations made by the President's Air Quality Advisory Board."
It should be noted that this report reflects activities conducted under
the provisions of the Clean Air Act in effect through December 30.
1970. On December 31, 1970, the President signed into law a bill
amending the act; generally, the amendments were not taken into
account in tho preparation of this report.
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SUMMARY
The Clean Air Act authorizes the Environmental Protection Agency
(EPA) to carry on a national program of air pollution research and
control activities. EPA's Air Pollution Control Office has the principal
operational responsibility for this program.
Among the principal accomplishments of this program during the
calendar year 1970, the following were particularly significant:
The machinery for adoption and implementation of air quality
standards had been set in motion in 100 air quality control
regions, three-fourths of which wore designated during the past
year. These 100 regions contain about 140 million persons, about
70 percent of the Nation's population.
Air quality criteria for carbon monoxide, hydrocarbons, and
photochemical oxidants wore issued. Reports on control tech-
niques for these pollutants and for nitrogen oxides also were
issued.
Funds budgeted for State and local air pollution control activi-
ties reached $G4 million, including both Federal and non-Federal
funds.
Three large-scale control technology demonstration projects
were initiated with joint Government-industry support. Two of
them deal with the important problem of sulfur oxides pollution.
New procedures for determining whether motor vehicles will
comply with applicable national standards were established.
An intensified effort to insure the development and demonstra-
tion of low-pollution motor vehicles was initiated.
(IX)
>^71 2
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PROGRESS IN THE PREVENTION AND CONTROL OF
AIR POLLUTION
CHAPTER I. EFFECTS AND SURVEILLANCE
This chapter covers those activities by which the Air Pollution
Control Office (APCO) seeks to define and document the adverse
effects of air pollution on public health and welfare and the nature and
magnitude 01 air pollution problems affecting the Nation. Effects of
air pollution are indentured through research. APCO's research is
divided into two principal areas—studies of the effects of air pollution
on human health and studies of economic and esthetic effects, es-
pecially damage to materials and vegetation. Knowledge derived from
such research, (whether conducted by APCO or other groups) is
summarized in air quality criteria documents, which define the health
and welfare factors that State governments must consider in setting
air quality standards for air quality control regions. Data on the
nature and magnitude of the Nation's air pollution problems and on
air quality trends are derived from air quality monitoring activities,
including APCO's own monitoring network and those operated by
State and local agencies. Also covered in this chapter are APCO's
efforts to gain an improved understanding of the interactions between
ah* pollution and environmental factors. The totality of knowledge
derived from effects and surveillance activities is a vital element m
evaluating the Nation's needs for prevention and control of ah1
pollution and in planning and carrying out programs capable of
meeting those needs.
A. To develop and publish air quality criteria documents reflecting the
latest available scientific knowledge of the health and welfare hazards
of air pollution
Air quality criteria documents summarize available scientific knowl-
edge of the relationship between concentrations of pollutants in the
air and their adverse effects on public health and welfare. APCO
prepares air quality criteria documents with the assistance of con-
sultants and contractors. Through arrangements made during the past
year, the National Academy of Sciences is now contributing to the
preparation of such documents. Prior to publication, air quality cri-
teria documents are reviewed by governmental and nongovernmental
scientists, Federal agencies, and the National Air Quality Advisory
Committee.
Three air quality criteria documents were issued during the past
year. They deal with carbon monoxide, hydrocarbons, and photo-
chemical oxidants. The previous year, documents on sulfur oxides and
particulate matter had been issued.
A number of additional air quality criteria documents were in prep-
aration during 1970; they wul deal with nitrogen oxides, fluorides,
polycyclic organic matter, and lead; the National Academy of Sciences
CD
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is contributing to the preparation of the documents dealing with all
of those pollutants except nitrogen oxides.
The role being played by the National Academy of Sciences (NAS)
involves the preparation of state-of-the-art reports reviewing and
evaluating the latest available scientific knowledge of the health and
welfare hazards of pollutants. These reports provide a basis for prepa-
ration of the actual air quality criteria documents. In addition, the
National Academy is conducting a special study to determine the need
for, and feasibility of, interim steps to reduce public exposure to
asbestos.
B. To identify and interpret the risk to health resulting from exposure to
air pollutants
APCO's health effects research program includes individual labora-
tory and field studies of the effects of specific air pollutants and com-
binations of pollutants as well as a broader effort to establish and
maintain surveillance of people's health in relation to their exposure
to air pollution.
One epideraiological study conducted by APCO in the Chattanooga
region has provided, for the first time, evidence that ambient air levels
of nitrogen dioxide are associated with adverse health effects (beyond
the effects resulting from the involvement of nitrogen oxides in forma-
tion of photochemical smog). Within the Chattanooga region, the
occurrence of respiratory illness was studied in areas of differing
nitrogen dioxide levels. In the area with higher nitrogen dioxide levels,
there was a higher rate of respiratory illness during an A2/Hong Kong
influenza epidemic, and during the period between the A2 epidemic and
a subsequent influenza B epidemic. The rate was higher among second
grade schoolchildren included in the study, their brothers and sisters
and their parents. The rate was nearly 19 percent higher in the area of
higher nitrogen dioxide levels. In that area, the second grade school-
children also produced significantly poor results on test of ventilatory
performance.
In another area, an APCO study showed a consistent relationship
between sulfur dioxide levels and the rate of asthma attacks among
members of the group studied. The rate increased progressively from
33.0 attacks per 100 persons on days with a 24-hour mean level of
0.30 parts per million or less to 46.9 attacks per 100 persons on days
with levels higher than 0.09 parts per million.
A laboratory study demonstrated that animals repeatedly exposed
to ozone and nitrogen dioxide develop some degree to tolerance to these
pollutants but that the tolerance is limited. It was found that while
direct injury to lung tissue becomes less acute after repeated exposure,
the occurrence of subtle alterations in cellular chemistry and mor-
phology, which are associated with exposure to nitrogen dioxide, does
not subside.
About 2 years ago, APCO initiated a major air pollution and health
surveillance effort—a coordinated series of epidemiological studies
designed to document the relationship between community health and
changes in air quality. Over the past year, this program has been
expanded to include three cities in the southeastern United States,
three in the New York area, four communities in Utah, and five com-
munities in Montana and Idaho. Within each of these four grouping!
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of communities, there is to be a continuing program of data-gathering
on selected health indicators known to be sensitive to variations in
air pollution (for example, rates of acute and chronic respiratory
diseases, occurrence of asthma attacks, and pulmonary functioning),
coupled with monitoring of air pollution levels. For the most part, this
project is conducted through contracts with State and local health
agencies. It is anticipated that this program will provide, among other
things, evidence of the benefits to be derived from improvements in
air quality.
C. To identify and quantify the economic and esthetic effects oj air
pollution
A number of studies completed during the past year helped provide
an improved basis for assessing the economic and esthetic impact of
air pollution.
A systems analysis of the effects of air pollution on materials indi-
cated that deterioration of materials as a result of exposure to polluted
air is costing the Nation about $4 billion annually. Affected materials
include structural materials, such as steel and concrete, rubber and
leather products, fabrics, and so on.
A separate assessment of the effects of air pollution on rubber
products indicated that damage and deterioration resulting from air
pollution, plus measures taken by manufacturers to retard such de-
terioration, cost consumers about $500 million annually. Ozone and
nitrogen oxides are the types of air pollutants that are primarily
responsible for deterioration of rubber products.
A field study of the effects of air pollution on dyed fabrics showed
that ah- pollution is a significant cause of fading. A total of 67 dye-
fabric combinations was exposed at seven locations across the Nation.
In four instances, fabric samples were placed not only in an urban area
but also, for purposes of comparison, in a contiguous rural area. There
was a significant urban-rural difference in fading at all four sites.
An inquiry into the economic effects of air pollution on electrical
contacts produced an estimate of annual losses amounting to $64
million. The impact is greatest with respect to computer and instru-
mentation circuits. A large part of the estimated loss is associated with
the use of special techniques and special materials to minimize expo-
sure to polluted air nnd/or to minimize the effects of air pollution on
exposed materials.
D, To maintain nationwide surveillance of air quality and emissions and
to facilitate access to, and use of, air quality and emissions data
The evolution of APCO'a air quality and emissions surveillance
activities entered a new and very significant phase during the past
year with the formulation of plans for, and initial steps toward
implementation of, a national aeromotric data information service
(NADIS). NADIS, when it is fully operational, will gather, process.
and disseminate data on air quality, emissions, and meteorological
factors in all parts of the Nation. A great deal of the data, particularly
with respect to air quality, will be derived from State and local air
monitoring activities; State and local agencies, in turn, will be able
to look to NADIS for data evaluation services.
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NADIS has evolved from, but will go well beyond, APCO's earlier
work on creation of a national air data bank and on development of a
system for storage and retrieval of aerometric data. Througn NADIS,
data will be available for a variety of purposes, including assessment
of progress toward attainment of air quality standards, evaluation of
emission control strategies, and implementation of plans for prevention
of high air pollution episodes.
APCO's current air quality surveillance network includes stations
in more than 300 places. It includes approximately 300 high-volume
samplers for collection of participate matter suspended in the air and
approximately 200 mechanized instruments for measurement of sulfur
dioxide and nitrogen dioxide concentrations; each of these instruments
is used to take a 24-hour sample on a biweekly schedule. Also included
in the network are 57 membrane filter samplers, which permit measure-
ment of ambient air levels of asbestos and certain other materials that
cannot be measured through the use of high-volume samplers. In
addition, APCO assumed responsibility during the past year for
operation of a 70-station network equipped to measure radioactivity
in the atmosphere.
For the most part, needed servicing of APCO's air monitoring
stations (e.g., removing filters, mailing them to APCO's laboratories
and inserting new filters) is performed on a voluntary basis. In some
instances, the persons involved work for State and local air pollution
control agencies, but in many cases they are teachers, firemen, police,
and so on.
E. To develop and evaluate new and improved techniques and instrumen-
tation jar sampling and analysis of pollutants in the ambient air
and in effluent streams from air pollution sources
During the past year there has been significant further progress in
APCO's work on the development of air pollution measurement
techniques and instrumentation, particularly with respect to measure-
ment of air pollutants which are coming under control through State
implementation of air quality standards or Federal enforcement of
emission standards for new motor vehicles.
Techniques originally developed for measurement of nitrogen oxides
levels in the ambient an- have been adapted for possible use in measur-
ing nitrogen oxides emissions from stationary and mobile sources.
One such technique, based on a light-producing reaction between
ozone and nitric oxide, is under intensive evaluation as a candidate
method for use in assessing compliance with projected future national
standards applicable to nitrogen oxides emissions from new motor
vehicles.
A major effort is underway to develop a technique for measuring
particulate emissions from motor vehicles; it is anticipated that
particulate emission standards applicable to new motor vehicles also
will be placed in effect within the next few years. A prototype instru-
ment designed for the measurement of particulate matter in the
ambient air has been assembled and is being evaluated not only for
this use but also for possible application to the motor vehicle situation.
An instrument developed for the purposes of identifying and measur-
ing odorous sulfur compounds has been employed in two studies of
emissions from pulp and paper mills. In these studies, this instrument
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helped identify those processes within the mills which were the pre-
dominant sources of hydrogen sulfide, a particularly ordorous and
toxic compound.
New or improved instruments for measurement of sulfur oxides,
ozone (a constituent of photochemical smog), and hydrocarbons also
were evaluated. The ozone and hydrocarbon instruments are now
commercially available.
F. To define the ways in which atmospheric processes, including mete-
orological and chemical processes, alter or are altered by air
pollutants
APCO's research in the areas of meteorology and atmospheric
chemistry is designed not only to produce needed knowledge of inter-
actions between air pollutants and atmospheric processes out also to
permit the development of techniques that permit forecasting of the
extent to which such interactions will affect community air pollution
levels.
APCO's meteorology research is conducted by personnel on assign-
ment from the National Oceanic and Atmospheric Administration of
the Department of Commerce. Efforts to develop new diffusion models
and to improve and refine existing models are a continuing part of
the meteorology research program; atmospheric diffusion models
simulate the diffusion and transport of pollutants in the air and there-
fore can be used to predict the impact of new sources of air pollution
or the effects of reductions in emissions from sources already in ex-
istance. A computerized multiple source dispersion model has been
developed and validated. A model for predicting the concentration
distribution of carbon monoxide from motor vehicles in urban areas
has been developed and is being evaluated.
A comprehensive effort to assess the environmental efforts of efflu-
ents from large electric generating plants is continuing. This effort
involves studies by APCO and contractors of the chemical transfor-
mation and ultimate fate in the atmosphere of sulfur compounds
emitted from fossil fuel-burning electric generating plants. This
project includes studies of the dilution efficiency of tall (800 feet)
stacks, the washout of powerplant effluents by natural precipitation,
and the effects on local climate and weather of large amounts of water
vapor and heat from cooling towers.
Because atmospheric temperature gradients (differences in tempera-
ture with increasing altitude) are among the factors that influence the
transport and dispersion of air pollutants, and because of the limita-
tions of conventional means of obtaining atmospheric temperature
profiles, APCO has been supporting the development of remote sensing
techniques. In this regard, a prototype radiometer for measuring
vertical temperature profiles has been developed and successfully
tested. APCO also is supporting the development and demonstration
of ground-based acoustic and laser techniques for measuring at-
mospheric turbulence and wind.
In the area of atmospheric chemistry, studies of various aspects of
the formation of photochemical smog are continuing. One of the
purposes of such studies is to determine the photochemical reactivity
of various substances present in the air. One such study helped estab-
lish that aldehydes, which are present in emissions from combustion
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processes (including emissions from motor vehicles), are about as
reactive as the corresponding olefinic hydrocarbons, the reactivity of
which was already well known. Another study, still in progress, has
indicated that vapors from certain oxygenated solvents are reactive
and therefore can be involved in smog formation, but that many com-
monly used solvents have only slight reactivity.
Other studies are underway to define the chemical and physical
reactions involved in the formation of sulfates and nitrates, which have
been shown to account jor a substantial portion of the particulate
matter that affects visibility. There is evidence that sulfates and
nitrates are the end products of atmospheric reactions involving
gaseous sulfur oxides and nitrogen oxides emitted by stationary and
mobile sources of air pollution.
G. To provide grant support oj research projects related to the Air Pollu-
tion Control Office's program objectives
Through awards of research grants, primarily to colleges and
universities, APCO supports efforts to expand the frontiers of scientific
knowledge relating to various aspects of air pollution and its preven-
tion and control. Most research grants are in the effects and surveillance
category of APCO's programs; that is, they contribute mainly to
defining the nature, magnitude, and effects of air pollution.
In fiscal 1970, APCO supported 280 research grant projects through
awards amounting to some $7.1 million. A breakdown of these projects
by subject matter follows:
1. Effects of air pollution on human health 35
2. Agricultural effects 35
3. Economic and social studies 11
4. Physicochemical investigations 73
5. Development of analytical methods and equipment 34
6. Meteorology 26
7. Nature and control of air pollution sources 58
8. Communications 8
In May 1970, APCO published the first edition of "Highlights of
Selected Air Pollution Research Grants," which provides more
detailed information on many APCO-supported projects. A second
edition is being prepared for publication in the near future.
A symposium sponsored by the National Air Pollution Research
Grants Advisory Committee and held in June 1969 at the annual
meeting of the Air Pollution Control Association led to the publication
of "Recognition of Air Pollution Injury to Vegetation: A Pictorial
Atlas." A number of the contributors to this publication were scientists
whose research was supported in part by APCO grants.
CHAPTER II. CONTROL AND COMPLIANCE
This chapter covers APCO's research and development and regula-
tory activities. These activities have two basic purposes: First, to
insure the application of available techniques^ as needed, to prevent
and control air pollution, and, second, to identify and help meet needs
for new or improved techniques. Under the Clean Air Act, control of air
and local governments, while the Federal Government has a corre-
sponding responsibility with respect to motor vehicles. APCO con-
ducts and supports research and development activities and demon-
stration projects relating to control techniques for both stationary and
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mobile sources. APCO also funishes State and local agencies financial
and technical assistance to help them fulfill their responsibilities in the
field of air pollution control.
A. To insure that air pollution problems are attacked on a regional basis
through the adoption and implementation of air quality standards
In November 1967, in amendments to the Clean Air Act, the Con-
gress set up a mechanism for adoption and implementation of air
quality standards as the principal means of providing for prevention
and control of air pollution. In accordance with the express intent of
the legislation, APCO has been devoting a subatantial share of ita
efforts and energy to putting this mechanism into action. The following
is a summary of the status of this activity as of December 1, 1970:
Air quality control regions had been designated in 100 areas.
This total included one or more areas in every State. It included
29 interstate areas earmarked for designation in accordance with
the President's Message on Environment, which was transmitted
to the Congress on February 10, 1970, as well as 24 other inter-
state areas previously identified as candidates for designation.
Also included were several areas designated at the request of
State officials.
In addition, APCO had held consultations with State and local
officials with respect to designation of an additional 22 ah* quality
control regions; in each instance, APCO's action was taken at the
request of State officials. A number of States had asked that their
entire land area be divided into air quality control regions.
The issuance of ah- quality criteria documents is the signal for
States to begin adopting air quality standards and implementation
plans for ah" quality control regions. In March 1970, air quality
criteria for carbon monoxide, hydrocarbons, and photochemical
oxidants were issued. A year earlier, air quality criteria had been
issued with respect to sulfur oxides and particulate matter. In each
instance, reports on applicable control techniques have been issued
simulataneously with the air quality criteria documents.
In accordance with the timetable set forth in the Clean Air Act,
States had adopted air quality standards for sulfur oxides and particu-
late matter for more than 20 air quality control regions and were in
the process of doing so for many other regions. Of those submitted
for review, most had been found consistent with the corresponding
air quality criteria. State plans for implementation of these standards
had been or were being formulated.
For the air quality control regions already designated, nearly all
the States involved had signified their intention of adopting air
quality standards for carbon monoxide, hydrocarbons, and photo-
chemical oxidants. Adoption of the first such standards was due to
be completed by the States by mid-December 1970. Formulation of
implementation plans will follow.
Thus far, the principal difficulties encountered in this process have
been related to the development of State implementation plans.
Largely because the development of implementation plans designed
to insure attainment of specific air quality standards is a procedure
that had not previously been widely employed, many States do not
have sufficient air quality and emission data and have had limited
experience with techniques for formulating and evaluating emission
control strategies.
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APCO has taken a number of steps to help States overcome these
difficulties. Formats for the preparation of implementation plans have
been made available to the States. Two computer programs have been
devised to assist States in employing diffusion modeling (a technique
for relating emissions to air quality) and in assessing the costs and
effectiveness of various emission control strategies. APCO has made
arrangements that permit States to enlist the expertise of several
non-Federal organizations, on a contractual basis, to assist in the
formulation of implementation plans. In December 1969 and January
1970, APCO held three workshops to familiarize State officials with
the requirements of the Clean Air Act insofar as implementation plans
arc concerned; these workshops were a foliowup to Guidelines for the
Development of Air Quality Standards and Implementation Plans,
which was issued by APCO in May 1969. More recently, APCO
had a series of meetings with State officials in every part of the Nation
to discuss problems of mutual interest, including problems relating
to the formulation of implementation plans. Finally, because there
have been particular difficulties with the formulation of plans for
preventing highair pollution episodes, a special seminar on this matter
was held early in December 1970.
B, To furnish the public information on the nature and effects of air
pollution and to encourage public involvement in air pollution
control efforts
Over the past year, there has been a continued high level of public
participation in State hearings on air quality standards. Under the
Clean Air Act, States are required to hold such hearings before
adopting air quality standards for an air quality control region. APCO
has continued its program of assistance to persons and groups in-
terested in participating in such hearings; this assistance consists
primarily of providing technical information on, and evaluation of,
air pollution problems and their effects on public health and welfare
and air quality standards proposed for adoption by State governments.
A large number of national, regional, and local groups have re-
quested and received assistance from APCO in formulating and carry-
ing on programs to stimulate public awareness of the threat of air
pollution and public involvement in control efforts. These groups in-
clude the National Tuberculosis and Respiratory Disease Association
and other health-oriented organizations, the League of Women Voters,
various labor organizations, the Conservation Foundation, and the
General Federation of Women's Clubs.
The past year also has been one of continued increases in requests
for information and publications, including requests from the news
media and the general public. Publications distributed by APCO
totaled nearly 2 million items, twice that of the previous year. APCO
also received about 5,000 requests for films on air pollution. In addi-
tion, assistance was given to about 150 persons or groups involved in
preparation of films, books, articles, ana other audiovisual materials.
C. To assist State, local, and regional agencies in preventing and con-
trolling air pollution by furnishing them financial ana technical
support
Over the past several years, there has been a steady increase in
State and local expenditures for air pollution control activities. In
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large measure, this trend reflects the effect of Federal matching grants
made available under the Clean Air Act. Table I shows the history of
Federal and non-Federal (i.e., State and local) spending for air
pollution control programs since fiscal 1965, the first year in which
Federal grants were available.
TABLE I.-BUDGETING FOR AIR POLLUTION CONTROL PROGRAMS
lln millions of dollars]
FUealyear Federal Non-Federal Total
1965
1966
1967
1968
1969
1970
... 4.1
5.5
7.6
18 6
22 9
26 0
9 6
11 8
18 1
28 9
34 4
38 4
13 7
n3
25 7
47 5
57 3
fil 4
Over the same period, the number of air pollution control agencies
in operation increased from 92 to 220. Of the 220 agencies in operation
at the end of fiscal 1970, Federal grant support was being provided to
202, including 12 that had not previously received such support.
In the 39 State legislatures that had sessions during 1970, some
800 bills dealing with air pollution and related environmental problems
were introduced. About 100 were enacted. Among them was an air
pollution control law enacted in South Dakota. With the enactment
of the South Dakota law, all 50 States, plus the territories of Puerto
Rico and the Virgin Islands, have basic legislation dealing with air
pollution.
In addition, State, local and regional air pollution control agencies
were active in strengthening many previously adopted regulations
and in promulgating new regulations, particularly with respect to
sulfur oxides and particulate emissions and open burning. There also
was continued progress in enforcement activities in a number of places.
Examples of accomplishments include:
Stringent particulate emission standards for large new electric
generating plants were adopted by the States of Arizona, New
Mexico, and Nevada.
Sulfur oxides emission standards for primary nonferrous
smelters were adopted by the States of Arizona, Montana, and
Washington; these standards are the first regulations of their
kind.
Enforcement action in St. Louis resulted in shutdown of 375
small incinerators and upgrading of about 40 others.
Compliance with regulations governing the sulfur content of
fuels produced significant reductions in sulfur oxides levels in the
New i ork-northern New Jersey metropolitan area.
In New York City, 780 small incinerators were upgraded and
1,000 were shut down. Three municipal incinerators also were
shut down. Emission control systems are being tested at four
municipal incinerators.
In response to requests during the past year, APCO furnished State,
local, and regional agencies a great deal of technical aid in the develop-
ment of regulations, evaluation of specific air pollution problems,
planning of air monitoring systems and emission inventories and so on.
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D. To assist State, local, and regional agencies in recruiting and training
personnel for work in air pollution control programs
A number of significant changes were made in APCO's manpower
development and training activities during the past year.
To provide immediate help to State agencies, APCO initiated a
program under which qualified personnel are employed by APCO and
assigned to State agencies for periods of up to 2 years. It is anticipated
that many of these personnel, at the end of their service as APCO
assignees, will be employed by the State agencies.
A total of 105 personnel will be detailed to State agencies during
the first year of this program; it is expected that all of them will have
been recruited and assigned by December 31, 1970. The great majority
will be recent college and university graduates with B.S. degrees in
engineering. A few will have M.S. degrees. Practically none of them
will have had any previous experience in air pollution control.
State response to this program has been enthusiastic. Nearly all
State air pollution control agencies have requested assignment of one
or more persons.
As another means of responding to State, local, and regional air
pollution control agencies' manpower needs, APCO has begun re-
directing its training grants activity. Training grants to educational
institutions will be primarily for programs leading to BS and MS
degrees and for technician training programs; support of training be-
yond the MS level will be limited.
This shift in the training grants activity reflects findings reported
to the Congress in June 1970 in "Manpower and Training Needs for
Air Pollution Control." Very briefly, APCO found that air pollution
control agencies are most in need of personnel who have a basic educa-
tion in occupational categories such as engineering, chemistry, and
meteorology, as well as technicians, who can be trained on the job
to perform the specific functions involved in air pollution control
programs.
During the summer, APCO conducted the first of a projected annual
series of 12-week training-work programs for undergraduate students
interested in air pollution control. Each such program will include
6 weeks of classroom instruction, followed by 6 weeks of on-the-job
training and work experience with State or local air pollution control
agencies. The first such program was conducted in Houston, Tex., in
cooperation with the University of Houston, the University of Texas,
and several State and local agencies in the Southwest. Thirty-five
students participated; included among them were students in engineer-
ing and other technical fields as well as in economics and social sciences.
A number of the students indicated that they would be interested,
after graduation, in full-time employment with air pollution control
agencies; some are continuing part-time work with the agencies to
which they were assigned during the summer program.
Also for the purpose of stimulating students' interest in careers in.
air pollution control, APCO sponsored three workshops for college
students. They were held in Idyllwild. Calif., New Braunfels, Tex.j
and Pawling, N.Y. In each case, several colleges and universities wer»
involved. A total of 217 students participated.
To facilitate the recruiting process, APCO is taking stepa toward
sotting up a national recruitment and placement service. In effect,
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this service will be a clearinghouse for persons interested in employ-
ment with air pollution control agencies and for agencies in need of
qualified personnel. It is expected that this service will begin operation
in the coming year.
APCO's short-course training program is being expanded; this pro-
gram is designed primarily as a supplement to on-the-job training of
air pollution control agency personnel. Though such courses always
have been offered at various locations around the country, scheduling
was on an ad hoc basis. Now, short-course training centers have been
set up at six sites, and schedules have been established for course
offerings at each one. In addition, many courses still will be offered
at APCO's facilities in the Research Triangle Area in North Carolina.
Several new courses are being developed and will be added to the
curriculum in the near future.
With APCO sponsorship, two university consortia on air pollution
have been established. One includes three institutions in the Research
Triangle Area of North Carolina, and the other includes seven institu-
tions in the New England area. It is anticipated that similar consortia
will be set up in other parts of the country. The consortium arrange-
ment is designed to facilitate pooling of research and training resources
and to foster interdisciplinary work relating to air pollution control.
E. To take Federal action, where appropriate, for the purpose of abating
interstate and intrastaU air pollution problems
Though adoption and implementation of air quality standards is
the principal mechanism for dealing with air pollution problems under
the provisions of the Clean Air Act, the act also authorizes a three-
step Federal abatement procedure. Thus far, this abatement pro-
cedure has been employed hi 10 areas.
The first case in which abatement proceedings were initiated in-
volved odors from a rendering plant in Bishop, Md. This case, which
had been initiated in November 1965, was concluded in June 1970,
when the plant was closed in accordance with a court order. Previously,
after failing to comply with recommendations arising from an abate-
ment conference and a public hearing, the owners of the plant had
taken the case to th« U.S. Supreme Court, which declined to hear it.
In response to recommendations arising from an abatement con-
ference held in July 1969, the Ohio Edison Co. has agreed to shut down
seven small boilers at its Toronto electric generating plant by De-
cember 31, 1970; the boilers would be reactivated only in the event of
emergency. Particulate emission control equipment is being installed
on the three largest boilers at the Toronto plant. APCO previously had
rejected several company proposals to keep the seven small boilers in
service for extended periods of time.
In the Parkersburg. W. Va.-Marietta, Ohio area, where an abate-
ment conference had led to recommendations for abatement of emis-
sions from several industrial sources, nearly all the companies involved
are making progress toward abating particulate emissions. Thus far,
however, no progress has been made toward abatement of sulfur oxides
emissions from the Union Carbide plant in the area. In mid-November,
Union Carbide was given 3 weeks to submit an abatement plan; this
step followed rejection of ft previously submitted plan, under which the
Federal Government was asked to pay one-half of the abatement cost.
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A revised plan was submitted in December and was being reviewed at
the time this report was being prepared.
In tbe other areas where abatement action had been initiated,
APCO has continued to monitor the progress of abatement efforts.
In some areas, substantial progress has been made, for example,
significant reductions of sulfur oxides emissions in the New York-
northern New Jersey and National Capital metropolitan areas, sub-
stantial reductions of fluorides emissions in the Garrison, Mont., area.
In several instances, the areas covered by abatement proceedings have
since been included in air quality control regions.
F, To prevent the occurrence of high air pollution episodes
Section 108(k) of the Clean Air Act authorizes direct Federal action
to abate air pollution in order to prevent substantial endangerment
to the health of persons. This provision of the act is primarily aimed at
preventing the^ occurrence of air pollution episodes like those that
have caused widespread illness and death in places such as London,
New York, and Donora.
State and local agencies in the area where such an episode is occur-
ring or is expected to occur are in the best position to initiate necessary
action on short notice, but Federal support, and, in some instances,
direct Federal action, will be required. Accordingly, APCO has set up
an emergency operations control center (EOCC) to perform the
functions involved not only in providing such Federal support but also
in taking direct Federal action.
EOCC, located at the APCO Technical Center in the Raleigh-
Durham area of North Carolina, is responsible for maintaining con-
tinuous nationwide surveillance of meteorological conditions and air
quality and of the actions taken by State and local agencies during
all phases of actual and potential air pollution episodes. Air quality
data are received daily from more than 25 places around the country.
If and when forecasts of meteorological conditions indicate that an
episode may occur, data-gathering is stepped up, and EOCC estab-
lishes contact with the cognizant State and local agencies in order to
advise and assist them and to determine whether they are taking
adequate steps to prevent substantial endangerment to persons'
health. Federal action can be taken under section 108 (k) only where
State and local agencies have not initiated appropriate action.
APCO also is preparing to issue guides to physicians arid health
agencies to assist them in dealing with air pollution episodes. These
documents will provide advice on caring for persons who may be par-
ticularly sensitive to high levels of air pollution and on gathering data
for the purpose of documenting the impact of episodes. It is antici-
pated that the guides will be issued early next year.
G. To assist Federal departments and agencies in preventing and con-
trolling air pollution arising from their activities
All the departments and agencies of the executive branch of the
Federal Government are responsible for preventing and controlling
ah* pollution arising from their facilities. Their air pollution, control
activities now are planned and conducted in accordance with Executive
Order 11507, issued February 4, 1970. This new Executive order super-
seded one that had been in effect since May 1966.
The new Executive order requires, among other things, that air
pollution abatement projects actions necessary to comply with regula-
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tions previously promulgated by the Secretary of Health, Education,
and Welfare must be underway or completed by December 31, 1972,
unless a specific exception is requested and granted. The order also
requires that all facilities which are built in the future must be designed
to be in compliance with applicable Federal air quality standards and
implementation plans, budget requests for new facilities must include
all necessary funds for air pollution control. It should bo rioted that
the Executive order contains similar provisions pertaining to water
pollution control.
Primary responsibility for administering the executive order is
assigned to the Office of Management and Budget (OMB), and the
Environmental Protection Agency has standard-setting powers. APCO
provides technical assistance not only to OMB but also the various
departments and agencies, all of which must submit abatement plans
and progress reports annually. A detailed report on progress in the
Federal facilities air pollution abatement program is submitted
separately to the Congress each year.
One noteworthy development during the past year was the initial
success of an interdepartmental effort to insure effective control of air
pollution from electric generating plants built and operated by private
firms under land-lease or water-use agreements with the Bureau of
Reclamation of the Department of the Interior. Through this effort,
initiated by APCO, plans are being made to provide thebest available
particulate emission control technology for more than 15,000 mega-
watts of electric generating capacity in New Mexico, Arizona, Nevada,
Utah, and Colorado. APCO now is attempting to carry this inter-
departmental effort a step further to include control of sulfur oxides and
nitrogen oxides emisssions, as well.
H. To identify needs jar new or improved control techniques Jor stationary
sources of air -pollution and to participate in developing and
demonstrating such techniques
APCO's success in enlisting the participation of several nongovern-
mental organizations in conducting and supporting large-scale demon-
strations of sulfur oxides and particulate emission control techniques
was a particularly significant accomplishment during the past year.
Three projects were initiated with joint government-industry support.
They represent a breakthrough in private sector reluctance to partici-
pate in cost-sharing projects, which are specifically authorized and
encouraged by section 104 of the Clean Air Act.
Two of the projects involve demonstrations of privately developed
flue gas desuliurization processes, both of which result in recovery
of sulfuric acid. The magnesium oxide wet scrubbing process, de-
veloped by the Chemico Corp., is to be demonstrated at an oil-fired
electric generating plant operated by the Boston Edison Co., testing
is expected to begin late in 1971. The catalytic oxidation process,
developed by the Monsanto Co., is to be demonstrated at a coal-fired
electric generating plant operated by the Illinois Power Co.; testing
IB expected to begin mid-1972. These two processes are known to
be technically feasible; the projects now underway will demonstrate
the reliability economics of the processes on a large scale.
Another sulfur oxides control process one developed by APCO and
the Tennessee Valley Authority, is already undergoing large-scale
demonstration testing at a TVA electric generating plant; this process
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is known as dry limestone injection. Following completion of the dry
limestone project, demonstration of a second process, the limestone
injection and wet scrubbing process, will be undertaken at the same
plant. Though these processes do not yield a byproduct now considered
usable, they are relatively close to commercial applicability. It is
anticipated that limestone injection and wet scrubbing will be capable
of achieving better than 90 percent removal of sulfur oxides, that it
will also remove particulate matter, and that its costs will be reasonable.
Through a demonstration grant to the city of Key West, Fla.,
APCO is supporting another demonstration of limestone injection and
wet scrubbing at an electric generating facility. Because of the avail-
ability of a local supply of limestone (derived from coral), an ample
low-cost water supply, and inexpensive waste treatment in a diked
lagoon, the Key West facility provides a unique opportunity to
demonstrate the economic and technical feasibility of the wet lime-
stone process.
Among the processes described above, it is anticipated that one or
more will go into commercial use within the next few years, partic-
ularly at electric generating plants, which are major sources of sulfur
oxides pollution. But it is not expected that these processes will pro-
vide a full solution to the sulfur oxides problem. Accordingly APCO
is supporting pilot-scale investigations of several other processes; the
purpose is to identify processes that may have a lugher sulfur oxides
control efficiency, have more favorable economics, produce elemental
sulfur rather than sulfuric acid as a byproduct, and simultaneously
remove more than one pollutant. Four such processes currently are
under investigation: the Westvaco regenerable char process, which
produces elemental sulfur (easier and cheaper to store and ship than
is sulfuric acid); the Tyco modified chamber process to remove sulfur
oxides, nitrogen oxides, and particulate matter with production of
sulfuric and nitric acids as byproducts; Atomics International's molten
carbonate process, which produces elemental sulfur; and the ammonia
scrubbing process, which can be made to produce sulfuric acid.
Among electric generating plants, as well as other fuel-burning
facilities, the use of fuels having a naturally low sulfur content or fuels
from which some of the sulfur has been removed is another means of
reducing sulfur oxides emissions. APCO has been supporting projects
aimed at identifying coals amenable to a significant degree of de-
sulfurization; through these projects, it has been found, thus far,
that about 40 million tons of the Nation's annual coal production can
be cleaned to a level of 1 percent sulfur; additional amounts can be
cleaned to a level of 1.5 to 2 percent sulfur. APCO is also supporting
work on the design of a prototype plant to demonstrate optimum coal-
cleaning techniques appjicable to various types of coals and is seeking
a commitment from private firms to share the cost of constructing
such a plant.
In recognition of a need for techniques that are capable not only of
reducing sulfur oxides emissions but also are more compatible with the
Nation's long-range interests in efficient use of fuels and other natural
resources, APCO also is supporting research and development dealing
with new combustion concepts, including fiuidized bed combustion
and fuel conversion, particularly coal gasification. APCO is planning
to support research and development on advanced power cycles,
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including one with a projected energy conversion efficiency of about
50 percent, versus 37 percent for conventional electric generating
plants and 30 to 35 percent for nuclear plants. These techniques are
considered to be a number of years away from commercial application.
APCO's research and development in the area of stationary source
pollution control also includes work on pollutants other than sulfur
oxides. One of the three cost-sharing projects initiated during the
past year involves a technique for reducing participate emissions from
coke-charging operations at steel mills. This technique is being demon-
strated at a Jones and Laughlin coke-oven battery in Pittsburgh. The
American Iron and Steel Institute is sharing the cost.
A comprehensive study of the nature and extent of nitrogen oxides
emissions from stationary sources has been completed. A major objec-
tive of the study was to assess the state-of-the-art of nitrogen oxides
control and identify needed research and development projects. It is
anticipated that several such projects will be underway in the near
future.
/. To establish national standards jor the control of air pollution from
new motor vehicles and to insure compliance with the standards
t A significant step toward improved control of motor vehicle pollu-
tion was taken in November 1970 with the promulgation of revised
emission standards and testing regulations applicable to passenger cars
and light-duty trucks. The new emission standards and testing regula-
tions take effect in the 1972 model year.
One of the major objectives of the revision is to insure that new
light-duty vehicles are, in fact, designed and equipped to achieve the
degree of emission reduction that the emission standards are intended
to produce. APCO has found that the new test procedures and emis-
sion measurement methods more accurately reflect the total amounts
of hydrocarbons and carbon monoxide emitted by light-duty vehicles.
The revised regulations prescribe a driving cycle (combination of
the various modes of operation, that is, start, idle, acceleration,
deceleration, cruising) that is more representative of urban driving
patterns. New and more accurate emission measurement methods are
to be employed, and emissions are to be measured throughout the
driving cycle.
The revised emission standards are 3.4 grams per vehicle-mile for
hydrocarbons and 39 grams per vehicle-mile for carbon monoxide.
While in strictly numerical terms, these values are higher than those
previously in effect, when the new test procedures are employed, the
net effect is to reduce the allowable emissions well below those of
1970-71 light-duty vehicles.
The new emission standards and testing regulations, as published
in the Federal Register on November 10, 1970, incorporate many
other changes. Among them is a tightening of the standard applicable
to evaporation of hydrocarbons from fuel tanks and carburetors. The
revised standard is 2 grams per test, as compared to the previous
requirement of 6 grams per test.
A separate revision 01 the motor vehicle regulations, promulgated
earlier in the year, requires labeling of all HgnVduty vehicles. l£ach
label must contain, among other things, the engine tuneup specifica-
tions and adjustments recommended by the manufacturer.
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There were several significant developments bearing on the use of
lead additives in gasoline. These developments reflected growing con-
cern about the potential public health hazards associated with con-
tinued use of lead additives and about the likelihood that the use of
lead additives would impose serious limitations on the techniques that
could be used to reduce emissions of other pollutants from motor
vehicles.
By direction of the President, the Administrator of General Services
issued a regulation under which new contracts for procurement of
gasoline for use by Federal departments and agencies within the 50
States generally must provide for procurement of low-lead (no more
than 0.5 grams per gallon) or lead-free gasoline.
On request from APCO, the Department of Commerce Technical
Advisory Board (CTAB) established a special panel to undertake a
study of the implications of discontinuing the use of lead additives in
gasoline. In June 1970, the panel made an interim report which recom-
mended, among other things, that legislation be enacted to authorize
Federal regulation of the use of fuel additives and that the agency
charged with implementing such legislation begin taking steps toward
insuring wide availability of unleaded gasoline by July 1974 and wide
availability of low-lead gasoline by the end of calendar year 1972.
The panel also recommended that Federal tax or subsidy policies be
employed to complement regulations dealing with production and
distribution of unleaded and low-lead gasoline.
Legislation conforming to the panel's recommendations had been
proposed by the President in February 1970. The Clean Air Act
amendments passed in December 1970 reflected this proposal. A
separate proposal to impose a tax on lead used as an additive to gas-
oline was submitted subsequently, but action on it was deferred by
the Congress.
J. To insure the development and demonstration of low-pollution motor
vehicles
On February 10,1970, in his Message on Environment, the President
announced the start of an intensified Federal effort to find solutions
to the problem of motor vehicle pollution:
I am inaugurating a program to marshal both Government
and private research with the goal of producing an uncon-
ventionally powered, virtually pollution-free automobile
within 5 years.
I have ordered the start of an extensive Federal research
and development program in unconventional vehicles, to be
conducted under the general direction of the Council on
Environmental Quality.
As an incentive to private developers, I have ordered that
the Federal Government should undertake the purchase of
privately produced unconventional vehicles for testing and
evaluation.
In accordance with the President's directives, APCO has stepped
up its support of research and development activities relating to
alternatives to the conventional internal combustion engine and haa
initiated a program involving demonstration testing and fleet testing
of privately produced low-pollution vehicles.
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In the research and development program, emphasis is being placed
on those engine systems which appear to have the greatest potential
for becoming viable alternatives to the conventional internal com-
bustion engine.
One promising alternative is the gas turbine engine, which has been
the subject of a great deal of research and development over the past
several years; in fact, one automobile manufacturer has built and
tested a substantial number of experimental turbine-powered pas-
senger cars. A number of problems remain to be solved, however,
before the turbine engine can be considered practical for general use
hi passenger cars. The relatively high level of nitrogen oxides emissions
from turbine engines is one of the major problems. Another one is
the cost of manufacturing turbine engines, which has been indicated
to be relatively high. APCO has initiated a study of the prospective
manufacturing costs and ways of reducing them.
A heat-electric hybrid engine is another candidate. A hybrid engine
is one which consists of more than one type of propulsion system.
In a heat-electric hybrid, a small heat engine (which can be a turbine,
Rankine cycle, or internal combustion engine) is combined with a
battery energy source. Such a combination may offer advantages that
cannot be derived from either propulsion system operating separately.
The Rankine cycle engine ia still another prospective alternative to
the internal combustion engine. A steam engine is one type of Rankine
enguie. In a steam engine, water is heated and converted to steam,
which is used to drive pistons or turbines. But the Rankine engine
also can be designed to use fluids other than water; one reason for
using other fluids is to get around the freezing problem.
With respect to both heat-electric hybrids and Rankine engines, a
great many technical problems remain to be solved. APCO currently
is supporting a number of research and development projects relating
to Rankine engines and is considering projects necessary f or ^ further
development or heat-electric hybrids. In addition, attention is being
given to various other types of propulsion systems that may be
adaptable for general use in passenger cars, including flywheel,
stratified charge, and diesel engines.
In keeping with the President's directives that this research and
development program be conducted under the general direction of the
Council on Environmental Quality (CEQ), the CEQ has formed a
technical advisory committee composed of several nongovernmental
experts. This group has been working closely with APCO in examining
prospective low-pollution engines and in identifying needed research
and development.
A parallel program to provide incentives for private sector research
and development was formally launched in August 1970. This pro-
gram involves evaluation of vehicles,purchased or leased from private
developers. Those types of vehicles which show promise in preliminary
testing would be obtained in quantities of up to 500 for fleet testing.
The objective is to promote the development of motor vehicles that
we satisfactory not only from the standpoint of air pollution control
but also with respect to cost, road performance, and safety. Many
private firms already have expressed interest in participating in this
program.
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APCO is conducting and supporting other research and develop-
ment relating not only to motor vehicles but also to other mobile
sources of air pollution. This work is increasingly focused on meeting
needs associated with regulatory activities (e.g., defining the nature
and amounts of emissions from various types of mobile sources, de-
veloping emission testing procedures, assessing the state-of-the-art
of emission control, and so on).
K. To develop and implement procedures jor the registration of fuel ad-
ditives, with initial emphasis on motor vehicle fv el additives
Under the Clean Air Act, manufacturers of fuels and fuel additives
may be required to register any additives used in a fuel sold in inter-
state commerce. Registration is solely for the purpose of gathering
information; no regulatory activity is involved.
On June 13, 1970, motor gasoline, excluding aviation gasoline was
designated as the first fuel to be covered. On the same day, regulations
for registration of motor fuel additivies were published in the Federal
Register,
Producers of the designated fuel had 90 days to notify APCO of
the names of additives used in the fuel, the purpose and range of con-
centration of each such additive, and the additive manufacturer's
name and address. They also were expected to provide summaries of
available information on the emission products resulting from the use
of the additive and on the toxicity of such emission products.
Additive manufacturers then are required to furnish information
on the recommended purposes and concentrations of all additives
identified by fuel producers, and on the chemical composition and
structure of the additives. They also are requed to furnish summaries
of available information on emission products and their toxicity.
On December 15, 1970, 226 additives, including lead additives,
were registered. Notifications of such registration were sent to the
35 companies which manufacture these additives and to the 98 fuel
manufacturers which had reported use or anticipated use of them.
After January 9, 1971, no fuel manufacturer or processor may_use
an additive in motor gasoline (with the exception of aviation gasoline)
introduced into interstate commerce unless the additive is registered
and the manufacturer has complied with registration requirements.
L. To encourage the application of the best available control techniques
for dealing with air pollution from aircraft
Following a meeting in January 1970 with the Secretary of Health
Education, and Welfare and the Secretary of Transportation, virtually
all of the Nation's airlines agreed to initiate a program to reduce
smoke emissions from about 3,300 jet aircraft engines. The program
involves installation of new types of combustors in JT8D engines.
New combustors are to be installed during routine overhauls of such
engines; on the average, such engines undergo routine overhaul after
every 5,000 hours of operation. As of November 15, 1970, the new
cumbustors had been installed on nearly 10 percent of the engines,
and production of additional new combustors was reported to be on
schedule. The program is to be completed by Decernber 31, 1972.
In October 1970, after learning that jet aircraft ordinarily discharge
into the air the fuel that seeps from engines during stops, APCO
asked the airlines to take steps to curtail this practice. APCO estimated
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that such fuel dumping may result in release of about 110 tons of
fuel per year in the vicinity of National Airport in Washing on,
D.C., and that nationally, the total may be in excess of 7,700 tons
(2 million gallons) annually. The airlines indicated that they are
interested hi developing a long-range solution to this problem and
that they would submit a proposal to APCO by February 1, 1971.
M. To encourage and participate in international efforts to deal with air
pollution
With the creation of the Committee on the Challenges of Modern
Society (CCMS) in November 1969, the North Atlantic Treaty
Organization inaugurated a significant new international effort to deal
with problems of air pollution. A study of air pollution involving the
United States, Turkey, and West Germany is one of eight pilot studies
that comprise the CGMS program. As the U.S. participant in the air
pollution study, APCO has been working with officials in Turkey and
West Germany in a project to demonstrate how existing knowledge
can be used to formulate long-range air pollution control programs for
urban areas. The urban areas selected as examples for the purpose of
the study are St. Louis, Ankara, and Frankfurt.
APCO's international activities also include participation in the air
pollution-related programs of the World Health Organization (WHO),
the Organization for Economic Cooperation and Development, the
Economic Commission of Europe, and the World Meteorological
Organization; support of research in the United Kingdom, Poland,
Yugoslavia, and Israel; and bilateral cooperative projects with Japan,
Germany, and France. In 1970, APCO was designated a WHO in-
ternational reference center and assigned the functions of advising
WHO on air pollution matters, particularly with regard to establish-
ment of reference analytical methods and the development of air
quality guides.
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