United States Air and Radiation EPA420-F-02-007
Environmental Protection July 2002
Agency
Office of Transportation and Air Quality
for
and
The U. S. Environmental Protection Agency (EPA) is proposing emission
standards for new highway motorcycles and gasoline-powered
recreational boats. The proposed standards would help reduce the
harmful health effects of ozone and mobile source air toxics. These
standards would not affect existing motorcycles or boats, only those
manufactured after the effective date of the proposed standards.
Highlights of the Proposal
EPA has been working to reduce emissions from motor vehicles for over
thirty years, including emissions standards for highway motorcycles that
we adopted in 1978. Since 1994, we have also established emission-
control programs for various classes and categories of nonroad engines,
including those used in farm and construction, marine, locomotive, and
lawn and garden applications. We set exhaust emission standards for
outboard engines and personal watercraft in 1996. In this rulemaking, we
are proposing to adopt new emission standards for exhaust emissions
from highway motorcycles and evaporative emissions from gasoline-
powered recreational boats (including yachts, sport boats, fishing boats,
jet boats and other types of pleasure craft such as personal watercraft and
boats with outboard engines).
We are proposing emission standards for highway motorcycles based on
comparable requirements adopted in California. The proposal would
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extend the California requirements nationwide two years after they
initially take effect in California. We are also proposing emission stan-
dards for previously unregulated motorcycles with engines of less than
50 cubic centimeters displacement (such as scooters and mopeds).
The proposed marine standards would require boat builders to incorpo-
rate designs to prevent the loss of evaporating gasoline from marine fuel
systems. This can be done with a mix of technologies, including perme-
ation-resistant materials for fuel hoses and fuel tanks, and various ap-
proaches to keep fuel vapors inside the tank during heating and cooling
cycles. In addition, we are requesting comment on our intention to
propose exhaust emission standards for spark-ignition sterndrive and
inboard marine engines at a later date, after completion of a technology
study currently underway.
Background
Highway The proposed highway motorcycle standards are being proposed under
motorcycle Section 202(a) of the Clean Air Act, which calls on EPA to review and
proposal periodically revise standards for engines subject to that section. This
proposal follows an Advance Notice of Proposed Rulemaking that was
published on December 7, 2000, (65 FR 76797) and expands on the
program elements discussed in that document. EPA last implemented
new standards for highway motorcycles in 1980. This proposal aligns
exhaust emission control standards with the state of the technology
currently available and also addresses potential evaporative emission
control requirements.
Gasoliine The proposed standards are a continuation of the process of establishing
powered nonroad standards as required by section 213 of the Clean Air Act. That
boats section directs EPA to study emissions from nonroad engines and ve-
proposal hides to determine, among other things, whether these emissions "cause,
or significantly contribute to, air pollution that may reasonably be antici-
pated to endanger public health or welfare." Section 213 further requires
EPA to determine whether emissions of carbon monoxide (CO), volatile
organic compounds (VOC), and oxides of nitrogen (NOx) from all
nonroad engines significantly contribute to ozone or CO emissions in
more than one nonattainment area. If the Agency determines that emis-
sions from all nonroad engines are significant contributors, section
213(a)(3) requires us to establish emission standards regulating CO,
VOC, and NOx emissions from classes or categories of new nonroad
engines and vehicles that in our judgment cause or contribute to such
pollution.
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EPA completed the Nonroad Engine and Vehicle Emission Study in
November 1991. On June 17, 1994, we determined under section
213(a)(2) that nonroad emissions are significant contributors to ozone or
CO in more than one nonattainment area. In the same document, we
began the process of setting emission controls for nonroad engines. Also,
in October 2001, EPA proposed standards for nonroad spark-ignition
engines over 19 kilowatts (kW), recreational vehicles, and recreational
marine diesel engines, which are subject to court-ordered deadlines. The
standards proposed in this rulemaking were originally combined with
these court-ordered proposals, but the proposal was divided to allow
additional time for inter-agency review of the elements proposed here.
Emission Limits
Highway EPA is proposing new exhaust emission standards for highway motor-
motorcycles cycles, which federal regulations currently define as "any motor vehicle
with a headlight, taillight, and stoplight and having: two wheels, or three
wheels and a curb mass less than or equal to 793 kilograms (1749
pounds)" (see 40 CFR 86.402-98). Generally any motorcycle or motor-
cycle-like vehicle that falls outside that definition would be considered a
nonroad vehicle and would be subject to different requirements. The
following table shows the proposed standards for highway motorcycles,
including scooters and mopeds.
Proposed Highway Motorcycle Exhaust Emission Standards
Class
Class 1
Class II
Class III
Engine Size (cc)
less than 180
180-279
280 and above
Implementation
Date
2006
2006
2006
2010
HC
(g/km)
1.0
1.0
-
-
HC+NOx
(g/km)
-
-
1.4
0.8
CO
(g/km)
12.0
12.0
12.0
12.0
For Class III motorcycles, we expect these standards to be met by an
increased use of technologies already demonstrated as being effective on
4-stroke motorcycle engines, such as secondary air injection, electronic
fuel injection systems, and catalytic converters. The standards are not
expected to result in the universal use of catalytic converters.
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Gasoline- EPA is proposing evaporative emission standards that would apply to all
powered gasoline-fueled boats (e.g., yachts, sport boats, fishing boats, jet boats,
boats and other types of pleasure craft, including personal watercraft and boats
with outboard engines). We are proposing that these boats reduce evapo-
rative hydrocarbon emissions by 80 percent. The proposed evaporative
emission standard would apply to all boats (and fuel tanks) built in 2008
and later. Manufacturers could show that they meet this standard with a
variety of emission-control technologies, including (but not limited to)
nonpermeable fuel tanks and hoses, pressurized fuel tanks with pressure-
relief valves, insulated tanks, bladder fuel tanks, and volume compensat-
ing air bladders.
Health Environmental
This proposal covers important sources of mobile source air pollution.
They currently account for about 12 percent of hydrocarbon (HC) emis-
sions, 3 percent of CO emissions, and 0.3 percent of NOx emissions
from mobile sources. The highway motorcycle standards would reduce
the combined emissions of HC and NOx in the exhaust by 50 percent.
The proposed marine standards are expected to reduce evaporative HC
emissions by 80 percent. These standards will help avoid a range of
adverse health effects associated with ambient ozone, CO, and PM
levels, especially in terms of respiratory impairment and related ill-
nesses.
EPA has not revised the motorcycle emission standards for over 20 years.
There have been many vehicle emission control technology advances
over the past two decades. Since EPA must now pursue emission stan-
dards for off-road motorcycles as the result of an order from the court,
this is an appropriate time to review the highway motorcycle require-
ments.
In fact, motorcycles produce more harmful emissions per mile than a car
or even a large sport utility vehicle (SUV). The current federal motor-
cycle standard for hydrocarbon emissions is about 90 times the hydrocar-
bon standard for today's passenger cars. Although many of today's
motorcycles will actually meet the current California standards, the
California hydrocarbon standard is still 18 to 24 times the current federal
passenger car limits, depending on the displacement of the motorcycle
engine.
Beginning in 2004, all passenger cars, light trucks, and SUVs will be
required to meet even more stringent standards. When these standards
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become effective, new SUVs will be meeting hydrocarbon standards
about 95 percent cleaner than today's typical motorcycle.
Costs
We project average costs of $26 per highway motorcycle to meet the
2006 standards and $35 to meet the 2010 standards. Increased costs for
marine vessels are estimated to be about $36 per boat on average. This
may be higher or lower, depending on the size of the boat and the ap-
proach the manufacturer uses to meet the standards. This increased cost
for boats is partially offset by a discounted fuel savings of about $27 due
to keeping more gasoline in the fuel tank.
Public Participation Opportunities
EPA desires full public participation in arriving at rulemaking decisions.
We welcome your comments on this proposed rule, especially specific
suggestions for changes to any aspect of the proposal that you believe
needs to be modified or improved. You may comment on the proposal by
sending an E-mail to mcnprm@epa.gov.
We will hold public hearings on this proposal on September 17, 2002, in
Ypsilanti, Michigan, for motorcycles, and October 7, 2002, in Ann
Arbor, Michigan, for boats. For more information on the public hearings
or for instructions on submitting written comments, please see the
Federal Register notice. The Federal Register notice and related docu-
ments are available electronically on the Office of Transportation and
Air Quality (OTAQ) Web site at www.epa.gov/otaq. These documents
are also available from the EPA Air and Radiation Docket by calling
202-566-1742; please refer to Docket No. A-2000-02.
For IViore information
For more information on this proposed rule, please visit the OTAQ Web
site given above or contact us at:
U.S. Environmental Protection Agency
Office of Transportation and Air Quality
Assessment and Standards Division
2000 Traverwood Drive
Ann Arbor, MI 48105
Email: asdinfo@epa.gov
Voicemail: (734)214-4636
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