United States
Environmental Protection
Agency
Office of Noise Abatement
and Control (ANR-490)
Washington, D.C. 20460
December 1980
EPA 550/9-80-221
Noise
vvEPA
Environmental Impact Statement
for the Noise Emission
Regulations for Motorcycles and
Motorcycle Exhaust Systems
-------
U.S. ENVIRONMENTAL PROTECTION AGENCY
ENVIRONMENTAL IMPACT STATEMENT
FOR THE
NOISE EMISSION REGULATIONS
FOR MOTORCYCLES AND MOTORCYCLE EXHAUST SYSTEMS
Prepared by
Office of Noise Abatement and Control
U.S. Environmental Protection Agency
Washington, D.C. 20460
Approved by
Charles L. Elkins
Deputy Assistant Administrator
for Noise Control Programs
December 1980
Permission is granted to reproduce this material without further clearance.
This document has been approved for general availability. It does not consti-
tute a standard, specification or regulation.
-------
FINAL
Agency;
SUMMARY
U.S. Environmental Protection Agency
Office of Noise Abatement and Control (EPA/ONAC)
Action:
Noise Emission Regulations for Motorcycles and Motorcycle
Exhaust Systems.
Description
of Action:
1. The regulations are intended to complement existing
noise emission standards for surface transportation equipment
by reducing adverse health and welfare impacts resulting from
that portion of traffic noise attributable to motorcycles.
2. The regulations are Issued under the authority of Section 6
of the Noise Control Act of 1972 (42 U.S.C. 4905). Motorcycles
were identified by EPA as a major source of noise on May 28,
1975, (40 FR 23105) under the authority of Section 5(b)(l) of
the Noise Control Act. A Notice of Proposed Rulemaking (NPRM)
was published on March 15, 1978, (43 £R 10822).
3. Effective January 1, 1983, all street and off-road motor-
cycles with an engine displacement of 170 cc and less manufac-
tured after this date must not emit a noise level (A-weighted)
in excess of 83 decibels (dB) when measured in the manner
prescribed in the regulation; the not-to-exceed level is
reduced to 80 decibels for vehicles manufactured after January
1, 1986. All off-road motorcycles with an engine displacement
greater than 170 cc manufactured after January 1, 1983, must
not emit a noise level in excess of 86 decibels; this not-to-
exceed level 1s reduced to 82 decibels for vehicles manufac-
tured after January 1, 1986. All moped-type street motorcycles
manufactured after January 1, 1983, must not emit a noise level
in excess of 70 decibels.
4. After the effective dates all original equipment and
replacement exhaust systems designed to be installed on Fed-
erally regulated motorcycles must not cause those motorcycles
to exceed the applicable noise standards.
5. Standards have not been set for competition motorcycles
that are designed and marketed solely for use in closed-course
competition events.
6. The compliance provisions of the regulations require
manufacturers to submit Production Verification Reports to EPA
which certify that all of their product configurations meet
applicable standards, when tested according to the Federal test
procedure. EPA has provided for Selective Enforcement Audits
(SEA) which will allow the Agency to select products from the
manufacturers' production lines and to test those products to
-------
Benefits:
Economic
Effects:
Insure that they meet the noise emission standards. Also
Included are provisions for compliance labeling, maintenance
Instructions and antl-tampering warnings to consumers.
7. The regulations incorporate an Acoustical Assurance
Period (AAP) which specifies that new Federally regulated
motorcycles and motorcycle exhaust systems must be designed and
built so that when properly maintained and used, they will not
degrade or exceed the applicable standards for a specified
period of time or use. For street motorcycles and street
motorcycle exhaust systems the AAP 1s 1 year or 6,000 km (3730
ml.), whichever occurs first. The AAP for off-road motorcycles
and off-road motorcycle exhaust systems is 1 year or 3,000 km
(1865 mi.), whichever occurs first.
8. The motorcycle regulation specifies Low Noise Emission
Product (LNEP) standards and applicable effective dates (dis-
cussed in the Summary of the Regulation). Motorcycles meeting
LNEP standards are eligible under certain conditions for
premium payment when purchased by the U.S. Government.
1. EPA anticipates the standards will, on the average,
reduce the noise from new street motorcycles by 5 decibels (dB)
and by 2 to 7 dB from new off-road motorcycles by 1986. The
exhaust system regulation and the "antl-tampering" and labeling
provisions of the motorcycle regulation, in combination with
strong complementary State and local programs, should help
reduce exhaust modified motorcycles to between one-half and
one-fourth of their current numbers.
2. These motorcycle noise reductions are expected to result 1n
a 55 to 75 percent reduction 1n interferences with human
activities (Including sleep and verbal communication), depend-
ing on the extent to which State and local governments are able
to contribute to reducing the numbers of exhaust-modified
motorcycles. A 7 to 11 percent reduction 1n the extent and
severity of overall traffic noise Impact 1s expected, again
depending on complementary State and local programs.
3. In environments where off-road motorcycles are used,
the people and land area exposed to motorcycle noise should
be reduced 20 to 30 percent, depending on 1n-use enforcement.
4. EPA has Identified a maximum average day-night sound level
(Ldn) of 55 dB as requisite to the protection of public health
and welfare. By the year 2000, with an expected national
population of 285 million, the motorcycle regulations are
expected to reduce the number of people exposed to noise above
this level from 129 million people to between 113 and 117
million people.
1. Manufacturers will Incur costs 1n complying with the
regulations. These costs will vary depending on motorcycle
type and size and will be reflected in Increased purchase
prices for motorcycles and replacement exhaust systems.
11
-------
Rationale for
Regulation;
For street motorcycles, estimated purchase price increases will
average 2% (or $36.00); for off-road motorcycles price in-
creases will average 2% (or $21.00). For replacement exhaust
systems, the estimated purchase price increase will average 25%
(or $30.00). Since all mopeds that the Agency tested which
are sold in the U.S. comply with the 70 dB level, no signifi-
cant price increases are expected.
2. Most motorcycle manufacturers are expected to meet the
standards with little difficulty. A substantial impact is
expected on the replacement exhaust system industry. These
manufacturers are highly dependent on price, styling, perfor-
mance and tonal differences between their products and those of
original equipment manufacture ~ differences which may disap-
pear with imposition of the standards.
3. Although, higher retail prices for motorcycles could result
In some initial lost sales, total Industry sales (1n terms of
both units and dollars) are projected to significantly expand
1n the next decade.
Section 6 of the Noise Control Act of 1972 requires the
Administrator of EPA to propose regulations for each product
identified under Section 5(b)(l) as a major source of noise and
for which noise emission standards are feasible. Motorcycles
were Identified as a major source of noise on May 28, 1975.
The results of Agency studies, of best available noise control
technology and the attendant costs of compliance, show the
regulation to be feasible. No substantive evidence has been
received to indicate that motorcycles are not a major source of
noise. Based on the requirements of the Noise Control Act, the
Administrator must Issue a new-product noise emission regula-
tion for motorcycles.
Dates of
Availability;
1. The Draft EIS was made available to the public, November
1977.
2. The Final EIS was made available, December 31, 1980.
Address; 1. Additional copies of the EIS can be obtained by contacting:
Mr. Charles Mooney
EPA Public Information Center (PM-215)
U.S. Environmental Protection Agency
Washington, D.C 20460
Comments to
the Draft EIS; 1. There was one comment addressing the draft EIS (see page
19 of this EIS).
2. This and all other comments that were submitted during the
public comment period have been reviewed and discussed in the
"Docket Analysis for the Noise Emission Regulations for
Motorcycles and Motorcycle Exhaust Systems," EPA Document
No. 550/9-80-220.
-------
TABLE OF CONTENTS
Section Page
INTRODUCTION 1
REGULATORY ANALYSIS 1
ADDITIONAL INFORMATION 2
DESCRIPTION OF THE MOTORCYCLE NOISE PROBLEM 2
STATUTORY BASIS FOR ACTION 4
SUMMARY OF THE REGULATION 5
STATE AND LOCAL PROGRAMS COMPLEMENTARY TO FEDERAL
NOISE EMISSION STANDARDS FOR MOTORCYCLES 8
RATIONALE FOR REGULATION 10
BENEFITS AND ENVIRONMENTAL IMPACTS
OF THE REGULATION 11
ECONOMIC EFFECTS OF THE REGULATION 14
RESPONSE TO COMMENTS TO DRAFT ENVIRONMENTAL IMPACT STATEMENT 19
CONCLUSIONS 20
1v
-------
ENVIRONMENTAL IMPACT STATEMENT
FOR THE
NOISE EMISSION REGULATIONS
FOR MOTORCYCLES AND MOTORCYCLE EXHAUST SYSTEMS
INTRODUCTION
The U.S. Environmental Protection Agency (EPA) has issued final noise
emission regulations for newly manufactured motorcycles and motorcycle
exhaust systems. These regulations should reduce the impact of motorcycle
noise on streets, highways, and in off-road environments.
This Environmental Impact Statement (EIS), in summary form, addresses the
impacts of motorcycle noise and the projected benefits to be gained from
compliance with the regulations, and the potential economic Impact.
REGULATORY ANALYSIS
In arriving at the not-to-exceed standards, the Agency considered
the best available noise abatement technology, potential health and welfare
benefits, the attendant costs and economic effects of compliance. EPA's
decisions have been based on written comments submitted during the public
comment period and testimonies presented during three public hearings in
addition to information gathered and analyzed by EPA and its contractors from
manufacturers, and published works. This information, including that which is
presented in this EIS, has been compiled and analyzed by EPA and published
in the form of a Regulatory Analysis. This document, entitled "Regulatory
Analysis for the Noise Emission Regulations for Motorcycles and Motorcycle
Exhaust Systems" (EPA 550/9-80-217), may be obtained upon request from:
Mr. Charles Mooney
EPA Public Information Center (PM-215)
U.S. Environmental Protection Agency
Washington, D.C. 20460
-1-
-------
The public comments are discussed in the "Docket Analysis for the Noise
Emission Regulations for Motorcycles and Motorcycle Exhaust Systems,"
(EPA 550/9-80-217), which also may be obtained from the above address.
For the sake of brevity and simplicity, the information in this EIS is
presented in summary form only. Persons wishing more detailed explanation
and discussion of the facts and issues pertinent to this rulemaking are
encouraged to refer to the regulatory analysis and to the preamble of the
regulation.
The regulations, as well as additional copies of this EIS, can also be
obtained from the above address.
ADDITIONAL INFORMATION
For further technical information and specific questions related to
the regulations, please contact:
Mr. Fred Newberry
Project Officer—Motorcycles
Office of Noise Abatement and Control (ANR-490)
U.S. Environmental Protection Agency
Washington, D.C. 20460
DESCRIPTION OF THE MOTORCYCLE NOISE PROBLEM
Traffic noise constitutes the single most pervasive source of noise
pollution in the U.S. today. EPA estimates that approximately 93 million
people are currently exposed to traffic noise levels equal to or greater
•dn
1 2
than a day-night sound level (Lrt ) of 55 dB . Motorcycles are an
1. The Environmental Protection Agency has identified a yearly Ldn of 55
dB as the environmental noise level requisite to protect the public
health and welfare with an adequate margin of safety (Ldn being the
-2-
-------
integral component of the total traffic flow and are the source of more
annoyance and adverse community response than any other single traffic
noise source.
The A-weighted noise levels of current newly manufactured street motor-
cycles range as high as 85 dB at fifty feet, although about half of current
sales are no louder than 80 dB. The noise levels of off-road motorcycles
average several decibels higher than those of street motorcycles. Studies and
interviews with affected parties have indicated that noise from motorcycles
used in off-road environments constitutes a major noise problem, not only in
wilderness areas, but also in backyards, vacant lots and other near-residen-
tial areas. EPA recognizes that much of the current noise impact and negative
community response from both street and off-road motorcycle operations is due
to motorcycles with owner modified exhaust systems. This "modification"
problem consists of two parts: owner alterations to original equipment
exhaust systems (tampering); and the availability of replacement systems with
poor muffling performance. Motorcycles which are modified by either method
often exceed stock levels by ten to twenty decibels.
EPA has determined the effects of motorcycle noise on the public's health
and welfare by examining a number of anticipated noise effects. These in-
clude: (1) the general adverse response (measured in terms of annoyance) of
persons in communities exposed to motorcycle noise as a component of the
traffic stream; and (2) interferences with everyday activities (including
sleep and conversation). These studies indicate that significant health and
day-night sound level which is the A-weighted equivalent sound level for a
24-hour period with an additional 10 dB weighting imposed on the equiva-
lent sound levels occurring during nighttime hours (10 p.m. to 7 a.m.)).
2. All noise levels are A-weighted decibels.
- 3 -
-------
welfare benefits can be achieved both by reducing the current noise level of
new motorcycles and by reducing the number of modified motorcycles.
STATUTORY BASIS FOR ACTION
EPA has issued noise emission standards for motorcycles and motorcycle
exhaust systems under the authority of the Noise Control Act of 1972, as
amended by the Quiet Communities Act of 1978. Section 5(b)(l) of the Act
requires the Administrator of EPA to "identify products (or classes of prod-
ucts) which in his judgment are major sources of noise." Section 6 of the
Act requires EPA to publish regulations for products which are major sources
of noise, if, in the Administrator's judgment, noise standards are feasible.
Such regulations are to include noise emission standards which are "requisite
to protect the public health and welfare, taking into account the magnitude
and conditions of use of such product (alone or in combination with other
noise sources), the degree of noise reduction achievable through the applica-
tion of best available technology, and the cost of compliance."
The Agency identified motorcycles as a major source of noise on May 28,
1975 (40 £R 23105). The identification of motorcycles was based on the
contribution of current in-use motorcycles to the overall noise impact of
motor vehicle activity. A Notice of Proposed Rulemaking (NPRM) to regulate
noise emissions from motorcycles was published on March 15, 1978 (43 £R
10822). Public comment on the NPRM was solicited for 90 days and three public
hearings were held (Anaheim, California, April 28 to May 1, 1978; St. Peters-
burg, Florida on May 5, 1978; and in Washington, D.C., May 9, 1978). The
public comments were given careful review and consideration prior to the
issuance of the final rule. The issues that were raised during the public
comment period are discussed in the Docket Analysis.
-4-
-------
Compliance with the final regulations 1s expected to reduce the noise
Impact caused by newly manufactured street and off-road motorcycles. In
addition the standards for motorcycle exhaust systems are expected to cause
significant reductions 1n motorcycle noise Impact by controlling the avail-
ability of Ineffective exhaust systems.
The regulations will also establish uniform national noise standards for
motorcycles distributed 1n commerce, thereby preempting conflicting State and
local noise standards that may Impose an undue burden on the motorcycle
manufacturing Industry.
SUMMARY OF THE REGULATION
The regulation establishes noise emission standards for newly manufac-
tured motorcycles and motorcycle exhaust systems. EPA evaluated several test
procedures for measuring motorcycle noise and concluded that a test procedure
developed by modifying the SAE J331a test Is the most appropriate for the
final rule. This test procedure measures noise emissions of motorcycles
under full throttle acceleration at specified percentages of the motorcycle's
maximum rated engine speed, and at a fixed point in relation to a microphone
location. For a comprehensive description of the test procedures, refer to
Appendix I of the regulation. A detailed technical discussion 1s in the
Regulatory Analysis.
Effective on the dates listed, newly manufactured motorcycles must not
produce noise levels 1n excess of those listed 1n Table 1 for a specified
period, when tested and evaluated according to the methodology provided 1n
Appendix I of Subpart D and E of the regulation.
After the above effective dates, original equipment and replacement
exhaust systems designed and Installed on Federally regulated motorcycles
-5-
-------
Table 1
Motorcycle Standards and Effective Dates
Motorcycle Type
Not-to-Exceed
A-Weighted
Noise Level
Effective Date
1. Street Motorcycles
a. Displacement 170 cc and
Below
b. Displacement More
Than 170 cc
83 dB
80 dB
2. Moped-Type Street Motorcycles 70 dB
3. Off-Road Motorcycles
83 dB
80 dB
86 dB
82 dB
January 1, 1983
January 1, 1986
January 1, 1983
January 1, 1983
January 1, 1986
January 1, 1983
January 1, 1986
-6-
-------
shall not cause those motorcycles to produce noise levels 1n excess of the
new vehicle standards listed in Table 1.
To ensure lasting benefits from this regulation, the Agency requires
that manufacturers design and build each product so that, when properly
maintained and used, Its noise level will not degrade (Increase) above the
applicable levels 1n Table 1 for a specified period of time or use, from
the date of the product's sale to the ultimate purchaser. This period 1s
called the Acoustical Assurance Period (AAP). For street motorcycles and
street motorcycle exhaust systems the AAP 1s 1 year or 6,000 km (3,730 ml.),
whichever occurs first. The AAP for off-road motorcycles and off-road
motorcycle exhaust systems 1s 1 year or 3,000 km (1,865 ml.), whichever
occurs first.
In §205.162-4 of Subpart D and §205.173-5 of Subpart E of the regulation,
a manufacturer must establish records regarding the anticipated Increase in
the noise level of his product during the AAP. These records may consist of a
statement of engineering judgment, the results of durability testing or other
Information which the manufacturer deems adequate to support the fact that his
products comply with the standard for the AAP.
Under the authority of Section 15 of the Act, §205.152 of this regula-
tion specifies the levels for a product to qualify as a Low Noise Emission
Product (LNEP). Effective January 1, 1982, the following LNEP levels are
specified: 75 dB for off-road motorcycles with engine displacements greater
than 170 cc; 73 dB for street motorcycles with engine displacements greater
than 170 cc; 71 dB for street motorcycles and off-road motorcycles with engine
displacements 170 cc and lower; and 60 dB for moped-type street motorcycles.
Effective January 1, 1989, the LNEP level for street motorcycles with engine
displacements greater than 170 cc 1s lowered to 71 dB.
-7-
-------
The regulation also Incorporates an enforcement program which includes
production verification requirements, selective enforcement auditing, compli-
ance labeling, provisions for maintenance instructions, and anti-tampering
warnings to consumers.
STATE AND LOCAL PROGRAMS COMPLEMENTARY
TO FEDERAL NOISE EMISSION STANDARDS FOR
MOTORCYCLES
Although the primary responsibility for control of noise rests with State
and local governments, the Agency plans to assist States and localities
by effectively enforcing these regulations as to manufacturers of motorcycles
and aftermarket exhaust systems, and providing them with strong support for
adopting complementary programs.
The Agency believes, as discussed earlier, that a large part of the
current motorcycle noise problem can be attributed to vehicles with modi fed
exhaust systems. To give the public relief from this noise problem, the
Agency is issuing these regulations with provisions to control the number of
modified motorcycles, in addition to setting noise limits on newly manufac-
tured motorcycles. These provisions will assist States and localities 1n
their efforts in reducing the number of modified motorcycles. The Agency 1s
already directing, and will continue to direct, considerable efforts to
working with States and localities under the Quiet Communities Act. EPA
believes that, through such efforts, reductions in aftermarket exhaust system
modifications will be possible and will result in significant health and
welfare benefits.
Under subsection 6(e)(l) of the Noise Control Act, after the effective
date of a Federal regulation limiting noise emissions from a new product, no
-8-
-------
State or political subdivision may adopt or enforce any law or regulation
which sets a limit on noise emissions from such new product, or components of
such new product, which is not identical to the standard prescribed by the
Federal regulation. Subsection 6(e)(2), however, provides that nothing in
Section 6 precludes or denies the right of any State or political subdivision
to establish and enforce control on environmental noise (or one or more
sources thereof) through the licensing, regulation or restriction of the use,
operation or movement of any product or combination of products.
The noise controls which are reserved to State and local authority
by Section 6(e)(2) include, but are not limited to, the following:
1. Controls on the manner of operation of products.
2. Controls on the time of day or night in which products may be
operated.
3. Controls on the places in which products may be operated.
4. Controls on the number of products which may be operated together.
5. Controls on noise emissions from the property on which products are
used.
6. Controls on the licensing of products.
7. Controls on environmental noise level.
EPA strongly encourages State and local government authorities to adopt
and enforce laws and ordinances which complement this Federal motorcycle
noise rulemaking. The Agency specifically urges in-use noise regulations
which are consistent with reasonable operation of Federally regulated vehi-
cles. Restrictions on the registration of off-road motorcycles for highway
operations are also encouraged, as are vehicle inspection programs which
involve either stationary sound level testing or visual inspection of motor-
cycle exhaust systems.
-9-
-------
RATIONALE FOR REGULATION
Section 6 of the Noise Control Act of 1972 requires the Administrator
to issue regulations for each product which he has identified under Section
5(b)(l) of the Act as a major source of noise and for which noise emission
standards are feasible. Motorcycles were identified as a major source of
noise on May 28, 1975 (40 FT* 23069).
After motorcycles were identified as a major source of noise, compre-
hensive studies were performed to evaluate motorcycle noise emission levels
necessary to protect the public health and welfare, taking into account the
magnitude and condition of use, the degree of noise reduction achievable
through application of the best available technology and the attendant costs
of compliance. The Agency investigated, in detail, noise measurement methodo-
logies, available noise control technology, costs attendant to noise control
methods, testing and administrative costs for compliance, potential economic
impacts, and the potential environmental and health and welfare benefits
associated with the application of various noise control measures. The
results of these studies showed that the regulation and reduction of motor-
cycle noise is feasible.
On March 15, 1978, (43 £R 10822) a Notice of Proposed Rulemaking was
issued to regulate noise emissions from motorcycles. Subsequently no signi-
ficant evidence has been presented to the Agency in public comments or other-
wise, to indicate that motorcycles are not a major noise source, or that the
proposed standards are not feasible. Consequently, the Agency, as required by
the Noise Control Act, has issued final noise emission regulations for motor-
cycles and motorcycle exhaust systems.
A detailed discussion of the various regulatory options that were con-
sidered during this rulemaking is provided in the Regulatory Analysis.
-10-
-------
BENEFITS AND ENVIRONMENTAL IMPACTS OF THE REGULATION
Health and Welfare
Compliance with the standards is expected to result in an average 5
decibel reduction in noise levels of new street motorcycles and a 2 to
7 decibel reduction in noise levels of new off-road motorcycles by 1986.
The exhaust system regulation and the anti-tampering and labeling provisions
of the motorcycle regulation, in combination with strong complementary State
and local programs, should help reduce exhaust modified motorcycles to between
one-half and one-fourth their current numbers.
At the final 80 dB regulatory level for street motorcycles, the Agency
estimates that the extent and severity of interference with human activities
(including sleep and verbal communication), attributable to motorcycle noise,
will be reduced from current levels by 55-75 percent. These figures assume
that Federal regulation of replacement exhaust systems combined with com-
plementary State and local in-use actions will reduce the numbers of exhaust-
modified motorcycles from the currently estimated twelve percent of the street
motorcycle population (nationwide) to between three and seven percent.
Motorcycles account for less than 2 percent of total vehicular traffic
mileage. However, because they are presently among the noisiest vehicles in
the traffic stream, reduction of overall traffic noise levels and associated
reductions in the extent and severity of traffic noise impact due to Federal
motorcycle noise regulation, are greater than what otherwise would be expected.
From current levels, with medium and heavy trucks regulated to 80 dB,
this regulation is expected to reduce the Impact from overall traffic noise by
7-11 percent. In the year 2000, with an expected U.S. population of 285
million, this represents a reduction in the numbers of persons exposed to an
-11-
-------
average day-night level (Ldn) of traffic noise greater than 55 dB from
129 million persons to between 113 and 117 million persons.
At noise level standards of 82 dB and 80 dB for large and small off-road
motorcycles, respectively, the estimated number of people exposed to off-road
motorcycle noise will be reduced from 3.1 million to approximately 2.3 million
persons. This figure assumes an 80 dB regulatory level for street motorcycles
which are sometimes used off-road, and a reduction in the proportion of
exhaust system modifications from a currently estimated 26% of the off-road
population to between 8 and 16 percent. Furthermore, the reduction in the
total area and the number of people exposed to off-road motorcycle noise above
the detectability level will be approximately 20-30 percent, depending on
in-use enforcement.
Air Quality
The noise regulations are not expected to make it more difficult to
comply with street motorcycle air emission standards, or to significantly
impact exhaust emissions from off-road motorcycles.
Land Use
The regulation is expected to have no adverse effect on land use. Some
indirect benefits may result from in-use controls placed on motorcycles by
State and local authorities.
Energy
Additional weight and increased backpressure due to noise suppression
components are expected to negatively impact motorcycle fuel economy by an
estimated 2 percent. The average fuel consumption of current street motor-
cycles is 47 mpg. Off-road motorcycles are estimated to currently have an
average fuel consumption of 60 mpg. Based on 2300 miles per year for street
-12-
-------
motorcycles, and 1200 miles per year for off-road motorcycles, an Increased
fuel consumption of about one gallon per year for street motorcycles and less
than one gallon per year for off-road motorcycles Is expected. By the year
2000, when the majority of motorcycles 1n-use will have been manufactured to
comply with the 80 dB standard, the current population of motorcycles is
projected to have more than doubled to approximately 16 million vehicles.
The fuel penalty translates to about 15 million gallons of gasoline in the
year 2000, or one-half million barrels of crude oil which would represent
less than one-tenth of one percent of the total U.S. consumption of crude
oil at that time.
Solid Waste Disposal Requirements
No change in the amount of solid waste is expected. The scrapping of old
motorcycles should not increase as a result of the noise regulations. In
fact, Increased motorcycle prices and possible performance decrements should
have, to a small degree, a reverse effect: users may be encouraged to retain
old motorcycles longer.
Wildlife
Although it is difficult to quantify the detrimental impacts caused by
motorcycles on wildlife, quieting motorcycles may have beneficial effects on
wildlife and the extent of their habitats.
Raw Materials
In general, changes in the amount of raw materials used by motorcycle-
related industries are not expected to be significant, although some slight
increase in such use 1s foreseen.
Water Quality
No Impacts on water quality are expected.
-13-
-------
ECONOMIC EFFECTS OF THE REGULATION
Costs of applying noise reduction technology to meet the regulatory
levels, and the associated increases in retail prices, vary according to the
type and size of the specific motorcycle model. Expected unit purchase price
increases at the 80 dB regulatory level range from 0.2 percent for street
motorcycles with a displacement less than 100 cc, to 4 percent for medium
size street motorcycles, to 2 percent for large street motorcycles (average
retail price increase). Unit prices of large off-road motorcycles are pro-
jected to Increase 2 percent at the 82 dB level, while unit price increases of
small off-road motorcycles are projected to increase an average of less than
one percent at the final-step 80 dB level.
The total annualized cost of the noise emission standards for street and
off-road motorcycles is estimated to be approximately $95 million per year.
This figure, projected through the year 2010, accounts for increases in
retail prices and the increased cost of operating and maintaining the vehicle
due to noise control regulation.
Federal noise standards for replacement exhaust systems are expected
to cause retail prices of current quiet systems (meeting California's 83 dB
requirement) to rise to levels comparable to those predicted for stock re-
placement systems for 80 dB motorcycles, or approximately 25 percent more than
the average price of current original equipment systems, a $30 price rise.
Additionally, over time, a shrinkage of the total market for replacement
systems 1s forecast, provided that such replacement exhaust system manufac-
turers fully comply with the standards established by these regulations, since
styling and performance advantages of many current systems will largely
disapper. The total annualIzed cost of the motorcycle replacement exhaust
-14-
-------
system standards is estimated to be $3.4 million per year at the final 80 dB
level.
Several economic impacts were studied by EPA to determine the possible
effects of noise control regulations on the various segments of the motorcyle
industry. These impacts are summarized as follows:
Impact on Motorcycle Manufacturers
A net reduction in motorcycle demand is expected as a result of the
noise standards. Forecasting based on historical price-demand relationships
indicates that the demand for street and off-road motorcycles combined would
be about 2.1 percent below expected demand in the absence of noise regula-
tions. It should be noted, however, that this demand forecast would have
resulted in part even in the absence of these Federal rules because of the
State motorcycle noise laws planned to take effect. Significant shifts in
historic market shares due to Federal noise standards, however, are not
expected to occur among the major Japanese motorcycle manufacturers. Their
profitability is likewise not expected to be impacted to any large extent
since cost increases due to noise control are expected to be passed on to
consumers. Although higher retail prices will result in some lost sales,
total industry sales in terms of both units and dollars are projected to
significantly expand in the next decade.
For AMF/Harley-Davids on to achieve an 80 dB standard, major redesigning
of its current large engine types incorporating current engine quieting
techniques will be necessary. One attraction of Harley-Davidson motor-
cycles is a uniquely identifiable exhaust tone that must dominate other
subsources to be heard. Engine redesign to meet 80 dB could change tonal
characteristics and cause performance penalties that may reduce the demand
-15-
-------
for Harley-Davidson motorcycles. AMF/Harley- Davids on motorcycles occupy a
unique position in the U.S. motorcycle market with a devoted following, and
are expected to be relatively insensitive to small price changes. Con-
sequently, if engine designs acceptable to the consumer can be developed which
meet the standards, the firm is expected to be able to sell the new designs at
little sacrifice in profitability.
The other North American manufacturer of street motorcycles is Canada's
Bombardier, Ltd., which manufactures high performance dual purpose motorcy-
cles based on their off-road and competition models. The remaining street
motorcycle manufacturers are predominantly European firms which export large
displacement models on a limited scale to the United States, although several
export a sizable portion of their production to this country. Most of these
firms are considered capable of producing motorcycles at the 80 dB regulatory
level.
Japanese manufacturers of off-road motorcycles are not expected to
experience serious technical difficulty producing off-road motorcycles which
comply with these noise standards since the quieting technology is well
understood. Overcoming weight and horsepower penalties to produce high
performance motorcycles, however, will be a challenge. The smaller, predomi-
nantly European manufacturers, which often rely on superior performance for
marketing advantages, are expected to experience difficulty in maintaining
their present market positions at these regulatory levels, due to the consid-
erable impact to the performance of current models. The 82 dB regulatory
level for large off-road motorcycles is considered to be technically achiev-
able for almost all current manufacturers without requiring conversion to
four-stroke engines. However, the performance and cost impacts of this level
-16-
-------
may make it unprofitable for some of the smaller firms to remain in the U.S.
market.
Moped-type street motorcycles will be required to meet a 70 dB standard.
All mopeds that the Agency tested, which are sold in the U.S., comply with the
70 dB standard. The costs of compliance with this rule for these vehicles are
the administrative costs of production verification testing, recordkeeping,
and labeling, which are expected to be minimal as a result of the anticipated
use of the carry-over provision by moped manufacturers.
Impact on Replacement Exhaust System Manufacturers
The regulations are expected to have a substantial impact on the replace-
ment exhaust system industry. To meet the 80 dB standard, aftermarket
replacement exhaust system manufacturers will need to incorporate relatively
sophisticated noise attenuation techniques into the design of their mufflers
and exhaust systems. Of the more than 150 firms currently in the market,
most are small, low volume enterprises devoted exclusively to manufacturing
motorcycle exhaust systems, with little or no capability for innovative
product design or development. To produce complying systems for post-1980
(regulated) motorcycles, these firms are expected to copy the designs of
other manufacturers, a common practice at present. The ten to twenty leading
firms in the industry are expected to be able to design and produce their own
complying systems, although at similar price and performance penalties asso-
ciated with replacement systems sold by the original equipment manufacturer
(OEM).
Based on discussions with aftermarket manufacturers, a 25% reduction
in demand for aftermarket exhaust systems is forecast by the year 2000 when
-17-
-------
regulated motorcycles at the 80 dB level will have replaced most unregulated
motorcycles in use. The adverse impact of the regulations on aftermarket
manufacturers will be gradual since the standards are phased in over a five
year period and since firms can continue to produce systems for motorcycles
manufactured prior to the applicability of each noise standard. However, in
the longer term, as unregulated motorcycles are gradually scrapped, and as the
demand for complying non-OEM systems falls, many of the small volume manu-
facturers are likely to switch to alternate product lines, or go out of
business. While the revenues of the ten to twenty leading firms are expected
to also decrease as a result of this regulation, these larger firms are
expected to continue manufacturing replacement exhaust systems. In fact,
although a net shrinkage in the replacement exhaust system industry is
forecast, these larger firms may actually experience increased sales as other
manufacturers exit from the market.
Impact on Foreign Trade
Since motorcycles comprise substantially less than 1 percent of total
U.S. foreign trade with Europe and North America, the impact of a Federal
motorcycle noise regulation on the balance of trade with these areas is
expected to be negligible. Motorcycles currently account for some 15 percent
of the approximately $10 billion in annual imports from Japan. EPA does not,
however, anticipate any substantial changes in net revenue to Japanese motor-
cycle manufacturers resulting from these noise standards, and thus no appre-
ciable change in the U.S.-Japan balance of trade is forecast.
Impact on Exports
The small percentage of AMF/Harley-Davidson's domestic motorcycle pro-
duction that is currently exported is not expected to change significantly as
a result of noise regulations.
-18-
-------
Impact on Employment
If demand reduction forecasts based on historical relationships are
applicable, eventual reductions in current U.S. motorcycle industry employment
resulting from the final Federal noise standards could be approximately 1,760
positions from future levels in the absence of noise regulations. This
impact would occur at least in part in the absence of Federal regulations
because of the more stringent State regulations that would otherwise go into
effect. However, projected growth in the industry is expected to more than
compensate for any employment losses that do occur.
The aftermarket exhaust system Industry is the only segment of the total
industry predicted to experience an actual net decline 1n employment, possibly
impacting some 500 positions, assuming compliance with these standards.
Impact on Gross National Product
The proposed regulations are not expected to have any consequential
effect either directly or indirectly, on the U.S. Gross National Product
(GNP).
RESPONSE TO DRAFT EIS COMMENTS
Comment;
During the public comment period one comment was made to the Draft EIS.
Motorcycle Product News commented that "'wilderness1 has an exact and Im-
portant definition, 1n that all motor vehicles are excluded from designated
wilderness areas regardless of sound level. To claim that the motorcycle
regulation is required because of motorcycle operation in wilderness areas
is to make a gross misrepresentation of the facts."
-19-
-------
EPA Response:
The term 'wilderness' was used by the Agency in a general way to define a
wooded or pristine environment where any man-made motorized sound is unwanted.
EPA agrees that all motor vehicles are prohibited from operating in a "desig-
nated wilderness" area as defined in the Wilderness Act of 1964. The Wilder-
ness Act defines such an area as one that is untraveled by man and where
man is a visitor and does not stay.
In the Draft EIS, the Agency did not state that motorcycle regulations
are required because of motorcycle operations in wilderness areas. The Agency
believes that Incompatible land use 1s the main problem of off-road motorcycle
noise and that reducing noise emission levels will only reduce, not solve
the problem.
CONCLUSIONS
The Agency has concluded that at this time the designated noise emission
levels for motorcycles and attendant effective dates represent the best com-
bination of public benefits, available noise control technology and cost.
The required noise control technology to achieve the designated levels
has been demonstrated and the attendant effective dates have been established
to allow manufacturers the lead time requisite to incorporate the necessary
design and component changes without disruption to production or the market.
Typical changes for some manufacturers may Include increasing muffler volume,
adding lining to the air Intake system, or stiffening fins and webs of engine
casing.
The cost of compliance and possible economic effects have been consi-
dered and are believed to be commensurate with the anticipated benefits.
-20-
-------
EPA is pursuing a strategy through which major contributors to overall
noise will be identified and subsequently controlled. This coordinated
approach is necessary because a number of different noise sources may be
operating at the same time, and the quieting of only one such source may not,
in itself, be sufficient to reduce the environmental noise to a level the
Agency believes is requisite to protect the public health and welfare, as the
Act requires.
Surface transportation noise is considered by EPA as the major con-
tributor, on a national basis, to current environmental noise levels. To
further reduce this major national noise source, the Agency intends to con-
tinue its investigations pursuant to noise regulatory actions for other
surface transportation vehicles. Consequently, the noise emission levels
specified for motorcycles in the rulemaking are consistent with the Agency's
objective of ultimately reducing the total noise emitted from all surface
vehicles, including medium and heavy trucks, buses, and light duty vehicles.
EPA believes that the standards are necessary to protect the public
health and welfare and are achievable through use of best available tech-
nology taking into account the cost of compliance. However, as technological
advances occur, lower levels may be achievable. EPA will consider all new
information and data which become available or are presented to it, and may
subsequently revise the regulation.
-21-
-------
TECHNICAL REPORT DATA
(Plfaie read luunicliunt on tin1 /vivrw hrftire t'ompletiiiRl
1. REPORT NO.
EPA 550/9-80-221
3. RECIPIENT'S ACCESSION* NO.
4. TITLE AND SUBTITLE
Environmental Impact Statement for the Noise Emission
Regulations for Motorcycles and Motorcycle Exhaust
Systems
6. PERFORMING ORGANIZATION CODE
EPA/200/02
7. AUTHOR(S)
8. PERFORMING ORGANIZATION REPORT NO.
EPA 550/9-80-221
9. PERFORMING ORGANIZATION NAME AND ADDRESS
10. PROGRAM ELEMENT NO.
U.S. Environmental Protection Agency
Office of Noise Abatement and Control (ANR-490)
Washington, D.C. 20460
11. CONTRACT/GRANT NO.
12. SPONSORING AGENCY NAME AND ADDRESS
13. TYPE OF RE PORT AND PERIOD COVERED
U.S. Environmental Protection Agency
Office of Noise Abatement and Control (ANR-490)
Washington, D.C. 20460
Final
14. SPONSORING AGENCY CODE
EPA/200/02
15. SUPPLEMENTARY NOTES
16. ABSTRACT . . f. ,
This document presents an assessment of the expected benefits and impacts of the rinai
noise emission regulations for motorcycles and motorcycle exhaust systems. The infor-
mation presented includes a description of the motorcycle and motorcycle exhaust
noise problem, the statutory basis for action, a summary of the regulation, State and
local programs complementary to Federal noise emission standards for motorcycles and
motorcycle exhaust systems, the rationale for regulation, the expected benefits of
the regulation, the potential economic effects of the regulation, public comments
on the draft environmental impact statement, and conclusions.
7.
KEY WORDS AND DOCUMENT ANALYSIS
DESCRIPTORS
b. IDENTIFIERS/OPEN ENDED TERMS
c. COSATI Field/Group
Street 'Motorcycles, mopeds, off-road
motorcycles, motorcycle exhaust system,
noise emission regulation, environmental
benefits, health and welfare benefits,
economic effects.
8. DISTRIBUTION STATEMENT
Release unlimited
19
Si ( Iliis Kvpori)
21. NO. OK PAGES
28
20. SECURITY CLASS, f
Unclassified
22. PRICE
EPA Form 2220-1 (9-73)
------- |