United SlHl«s
Environ menial Protection
Office of Transportation EPA420-S-05-008
and Air Quality August 2005
Model State Idling Law
Workshop — Baltimore,
Maryland
Meeting Summary
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EPA420-S-05-008
August 2005
Model State Idling Law Workshop
Baltimore, Maryland
Meeting Summary
Transportation and Regional Programs Division
Office of Transportation and Air Quality
U. S. Environmental Protection Agency
NOTICE
This Technical Report does not necessarily represent final EPA decisions or positions.
It is intended to present technical analysis of issues using data that are currently available.
The purpose in the release of such reports is to facilitate an exchange of
technical information and to inform the public of technical developments.
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The U.S. Environmental Protection Agency (EPA) sponsored a meeting on May 6, 2005, in
Baltimore, Maryland, to develop a model state idling law. Participants included EPA Region III
stakeholders, such as representatives from states and local governments, and the trucking
industry. This document summarizes the views and opinions of the participants which do not
necessarily represent official EPA policy, positions, or views. The purpose of this meeting was,
among other things, to reach consensus on a model state idling law. EPA takes no position on
state or local idling laws. EPA's role in these meetings was that of organizer and facilitator only.
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List of Issues
A: Purpose of the law 1
B: Incentives 1
C: Exemption for Traffic and Adverse Weather 2
D: Exemption for Emergency Vehicles 3.
E: Exemption for Maintenance 3_
F: Exemption for Research and Development 3_
G: Exemption for Power Take Off 4
H: Exemption for Transportation Refrigeration Units 4
I: Exemption for OEM Warm-Up and Cool-Down 4
J: Exemption for Weather (Long Haul Trucks) 5.
K: Exemption for Weather (School, Transit, Tour Buses) 5.
L: Exemption for Required Inspections 6
M: Exemption for Clean Vehicles 6
N: Motor Coach/Tour Bus/Passenger Bus Loading/Unloading 6
O: Exemption for Mobile Idle Reduction Technologies 7
P: Penalties 7
Q: Enforcement £
R: Outreach and Education 8
S: Other 9
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A
Issue:
Discussion:
Consensus:
Purpose of the law
Idling laws should articulate their purpose. These laws are more than reductions
in noise and emissions. The purpose of these laws should include all of the
following benefits: emission reductions, noise reductions, fuel savings,
maintenance reductions, and improved driver health and safety. This last one is
often overlooked, but if a truck driver does not get sufficient rest they may be
prone to accidents.
The group agreed that stating the benefits of reducing idling should be included in
the "purpose" section of the law.
B
Issue: Incentives
Discussion: Today's idle laws restrict idling yet provide a long list of exemptions. While
many of these exemptions are absolutely necessary as the list below demonstrates,
some idling behavior is simply a matter of personal choice and behavior
(discretionary). Especially when considering a weather related exemption or a
sleeper berth exemption, many participants felt that a blanket exemption for this
activity simply defeated the purpose of an idling law which is to reduce emission
by deterring idling, and not simply excuse or exempt every type of idling
behavior. If the purpose of these laws is to reduce idling, then the model law
needs to provide some kind of incentive to reduce this discretionary type of idling
and not simply exempt it. An incentive that provides for idle reduction
technologies is an important component of the effort to reduce idling because they
allow for the driver to rest comfortably without idling the main engine. The laws
by themselves have minimal impact, especially when considering all the
exemptions. If we want to balance drafting a humane and reasonable law that
allows truck drivers to idle for cab comfort needs with a law that reduces idling,
then the law must provide incentives for technologies.
Consensus: Many participants agreed that this was an important goal to reach, but some
expressed the difficulty in legislating a technology solution because of the high
up-front capital costs associated with some technologies, the need for a voluntary
approach to technology use, and in some cases, the unreasonable request to
mandate technology that may not yet be ready. The group agreed that the way to
get this done is through a voluntary approach at encouraging technology use. One
example is EPA's SmartWay Transport Partnership for Truck Parking
Locations. This is a voluntary agreement whereby truck parking location
owners/operators create a non-idling zone to encourage non-idlers and those with
mobile idle reduction technologies to use a designated area for non-idling. By
doing this, they would receive EPA recognition under EPA's SmartWay
Transport Program. A co-benefit is that SmartWay trucking partners would visit
their location and use the non-idling zone as a means to receive more credit
towards their own truck program goals. An addendum to the SmartWay
agreement for truck parking locations encourages the voluntary deployment of
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electrified parking spaces in return for a State agreement to place the location on a
"low enforcement priority." The State gets the benefit of knowing that the truck
parking location has an alternative to idling even in extreme weather conditions
where an idling law would have exempted the idling, and the truck drivers get
their cab comfort needs. This is especially helpful for those states that exempt
sleeper berths from the idling law or have weather exemptions. In the case of a
sleeper berth or weather exemption, truck idling is permitted. Under this
voluntary approach, the weather and sleeper berth idling can be addressed through
the use of electrified parking spaces. Therefore, the State receives the benefit of
greater emission reductions where the law would not have achieved such
reductions. States may want to consider adopting this voluntary approach with
truck stops in their state as a means to encourage the voluntary adoption of idle
reduction technologies. For more information contact your EPA SmartWay
representative.
Another related idea was the use of the SmartWay logo on SmartWay Trucks.
The logo would mean the truck meets certain emission reduction and energy
efficiency standards established by the SmartWay program. Similar to the State
agreement not to enforce at SmartWay truck stops, law enforcement would agree
not to enforce against SmartWay trucks.
C
Issue: Exemption for Traffic and Adverse Weather
Allow idling when a vehicle is forced to remain motionless because of traffic, an
official traffic control device or signal, or at the direction of a law enforcement
official. Also, exempt vehicles idling while waiting in a queue. Finally, exempt
vehicle idling when adverse weather conditions affect the safe operation of the
vehicle (e.g., operating defrosters, heaters, air conditioning) to prevent a safety or
health emergency.
Discussion: Issues beyond the control of a truck driver, like traffic, should always be included
as an exemption in any state idle law. Same with idling due to adverse weather
conditions. Many of us have all experienced the need to idle to operate the
defroster so we can see out the window. The harder issue is idling due to waiting
in a queue. Much depends on the movement of the queue. For a queue that is
moving along very slowly, it doesn't make much sense to require drivers to keep
turning their engine on and off. However, in the circumstance of a queue to enter
a port or distribution center in the morning, where the queue is not expected to
move for awhile, the truck drivers should not be allowed to idle merely to wait.
Some discussion focused on who is responsible for the queue. If it is a Federal,
state, or local authority causing the wait then there's not much the truck driver
can do. But if the truck driver shows up early at a private facility to get a good
place in the queue, then he is more responsible for this behavior.
Consensus: The group agreed that an exemption to idling applies to traffic and weather
conditions, but no consensus was reached on idling in a queue. Much depends on
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the movement of the queue and who is responsible for the wait. If the queue is
not in a "creep" mode (i.e., inching forward) and the driver is responsible for the
wait, then the driver should not be exempted from idling.
D
Issue: Exemption for Emergency Vehicles
Exempt idling for police, fire, ambulance, public safety, military, and other
emergency or law enforcement vehicles in an emergency or training mode.
Discussion: Almost everyone understood the need for an exemption for emergency vehicles.
Some discussion focused on whether or not the emergency vehicle had to be in an
emergency mode to qualify for the exemption.
Consensus: General consensus reached on this exemption.
E
Issue: Exemption for Maintenance
Exempt idling of a vehicle when the primary propulsion engine is being operated
for maintenance, servicing, repairing, or diagnostic purposes. Also, exempt a
vehicle if idling due to mechanical difficulties over which the driver has no
control.
Discussion: Most participants recognized the need for an exemption for vehicle idling while
undergoing maintenance; however, some participants mentioned that this was an
area subject to abuse. For example, some truck drivers have claimed mechanical
difficulties to avoid receiving an idling ticket when there was no real mechanical
difficulty or the mechanical difficulty did not require engine idling. This is an
issue of enforcement, and interpretation of specific idling exemption provisions.
To try to define what mechanical repairs would require engine idling would be
too difficult.
Consensus: General consensus reached on this exemption.
F
Issue: Exemption for Research and Development
Exempt a vehicle when the primary engine, vehicle, or device is engaged in idling
testing operated by the manufacturers or their partners (including labs, research
facilities, and trucking companies).
Discussion: General agreement by participants for this exemption. However, this is another
area subject to abuse. Participants recommended that any truck undergoing this
testing be required to carry official documentation verifying that the truck is, in
fact, part of a test. While there are no guidelines for what constitutes official
documentation, at a minimum this additional language adds some protection
against egregious abuses.
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Consensus: General consensus reached on this exemption.
G
Issue:
Discussion:
Consensus:
Exemption for Power Take Off
Exempt a vehicle when the primary propulsion engine is providing a power
source necessary for mechanical or electrical operations other than propulsion
such as loading or unloading, mixing or processing cargo, direct drive trailer
refrigeration, or providing a mechanical extension to perform work functions.
Participants found this exemption important. It was widely recognized that this
exemption was necessary.
General consensus reached on this exemption.
H
Issue:
Discussion:
Consensus:
Exemption for Transportation Refrigeration Units
Exempt any trailer with an independent engine used for the sole purpose of
controlling cargo temperature.
Participants stressed that TRUs don't technically idle but operate to keep their
cargo cool. At times the TRU will cycle on and off once the appropriate
temperature is reached. The fact that the cargo can be (and should be) rejected if
the temperature falls below acceptable standards is a considerable economic
incentive to not turn off the TRU's auxiliary power unit.
General consensus reached on this exemption.
I
Issue:
Discussion:
Consensus:
Exemption for OEM Warm-Up and Cool-Down
Exempt the vehicle when the primary propulsion engine is idling to reach the
manufacturer's recommended operating temperature or idling to cool down the
engine.
Most participants agreed that truck engines need a warm-up and cool-down
period. The warm-up period will depend on the ambient temperature. The
Engine Manufacturer's Association informed EPA that they will provide OEM
recommended warm-up and cool-down times for future meetings. The group
talked about the need to pick a conservative estimate so law enforcement did not
have to distinguish between different engine warm-up/cool-down times among
the different engines.
General consensus reached on this exemption, but pending more specific
information from EMA.
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J
Issue:
Discussion:
Consensus:
Exemption for Weather (Long Haul Trucks)
Exempt vehicles during certain weather conditions, both low and high
temperature conditions.
One of the more difficult issues to reconcile is recognizing that truck drivers must
live in their sleeper berth, and during hot or cold days/nights the truck driver will
need to operate the air conditioning or heat to rest comfortably. Much discussion
centered around the fact that states without weather exemptions have an
unrealistic and inhumane view of truck drivers. For those states with a weather
exemption, most were considered unrealistic. For example, a 20 degree
Fahrenheit exemption was considered absurd. Trying to determine the
appropriate weather exemption temperatures proved difficult. One group agreed
that a broad exemption for all sleeper berths was appropriate because the comfort
level of one person may not be that of another. Another group selected a low
range of 50 degrees Fahrenheit and a high range of 80 degrees Fahrenheit. The
third group could not agree on any weather exemption, and the discussion focused
on creating incentives. See Section B above for discussion on incentives.
No consensus reached. One option is possible implementation of the SmartWay
Transport Partnership Agreement for Truck Parking Locations. This approach
recognizes that truck drivers need to rest comfortably, and encourages the
deployment of technology that allows the truck driver to rest comfortably without
idling the engine. In this case no exemption for weather or sleeper berths would
exist. The state applies a "low enforcement priority" status to the location, and
focuses enforcement of the law at other non-partner locations. In time, the hope
is that all locations deploy technology that allow for non-idling.
K
Issue: Exemption for Weather (School, Transit, Tour Buses)
Exempt vehicles during certain weather conditions, both low and high
temperature conditions.
Discussion: For school, transit, and tour buses the need for cab comfort differs from that of a
long haul truck driver. The long haul truck drivers needs a 8-10 hour mandated
rest period, and during this time the engine may be at idle. Buses, on the other
hand, have distinct idling times throughout the day. School and transit buses need
to warm up at the beginning of the day; tour buses need to cool and warm the
compartment whenever passengers are about to board the bus. School and transit
buses have openable windows, but tour buses do not. Pre-heaters are common on
newer buses which would require a relatively short warm-up period. The need for
idling is to allow the engine to reach its optimal engine temperature before
starting the trip, and to begin to warm or cool the interior. Buses should not be
allowed to wait until the entire compartment reaches a comfortable temperature
because this could take hours at idle for buses.
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Consensus: One group reached the following consensus: (1) allow 20 minutes of idling in any
90 minute period if above 75 degrees Fahrenheit and the vehicle has air
conditioning and non-openable windows; (2) allow 10 minutes of idling in any
90 minute period if below 32 degrees Fahrenheit; (3) allow 20 minutes of idling
in any 90 minute period if between -10 degrees Fahrenheit and 32 degrees
Fahrenheit; and (4) completely exempt idling if below -10 degrees Fahrenheit.
These apply to buses only.
L
Issue: Exemption for Required Inspections
Exempt the time required for a truck to pass through any State/Federal inspection
where the engine must be in idle.
Discussion: All participants agreed that there was a need to exempt trucks during any State or
Federal inspection. However, the group was divided about the need to exempt
idling during the pre-trip inspection period. While some noted that the engine
needed to be on to check the air brake pressure, they also noted that this would
take only a couple of minutes, and that the time needed would overlap with the
engine warm-up time to bring the truck to the OEM's recommended operating
temperature.
Consensus: No consensus reached on this exemption.
M
Issue: Exemption for Clean Vehicles
Exempt natural gas, electric, or hybrid vehicles
Discussion: The group felt strongly that there should not be an exemption for these types of
vehicles because the policy to reduce idling should apply to all vehicles
regardless of their fuel source. The idea here was to encourage fuel conservation.
Consensus: General consensus reached on not allowing this exemption.
N
Issue: Motor Coach/Tour Bus/Passenger Bus Loading/Unloading
Discussion: Passenger buses should be allowed to idle while loading or unloading. Some
considered this a PTO function, especially if the bus needed to be lowered or
there was a wheel chair lift. Generally, this idea would not allow idling while the
bus waited for its passengers to return to the bus, but it recognizes the need for the
bus to warm or cool the interior while the passengers where boarding. No time
limit should be imposed for this activity because of the different sizes of buses.
Consensus: General consensus on the need to allow passenger buses an idling exemption only
when passengers where loading or unloading.
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o
Issue:
Discussion:
Consensus:
Exemption for Mobile Idle Reduction Technologies
Exempt any mobile idle reduction technology (generator sets, auxiliary power
units, direct fuel fired heaters) operating to provide heating, air conditioning, or
auxiliary power to the vehicle.
Currently no state has an exemption for these technologies. While these
technologies may not be technically idling (they cycle on and off to provide the
necessary heat or air conditioning), reports of truck drivers receiving idling
tickets for using an auxiliary power unit has been confirmed. The group felt that
it was important to exempt these technologies because we should be encouraging
their use. One state has proposed regulating auxiliary power units (APUs) more
stringently than current state law on the basis that heavy-duty diesel engines in
the near future will emit less on a grams per hour basis than the APUs. Several
participants questioned how this state could make such a determination since the
newer engines have not been tested in a long duration idle mode, and that some of
the anticipated control technologies may perform effectively for some pollutants
but not others, and that generally not enough is known. Finally, some participants
expressed concern on how to define a mobile idle reduction technology.
General consensus reached on the need to exempt mobile idle reduction
technologies. Further, any action to more stringently regulate APUs should wait
until testing is conducted on the newer engines in the long duration idle mode.
Finally, EPA should verify mobile idle reduction technologies.
P
Issue: Penalties
Discussion: Some states issue the fine to the truck driver, while other states mail the fine to
the company owner. Participants felt that making the company pay was one way
to ensure that companies required that their drivers not idle, but other participants
noted that company owners have little or no control over their driver behavior.
Compounding this issue is the fact that many company owners who passed on this
fine to the driver resulted in that driver leaving the company (truck drivers have a
notoriously high turn-over rate). Truck owners want their drivers to reduce idling
times to conserve fuel costs, but many of these owners were drivers themselves so
they recognize the need to idle for cab comfort needs. Another issue is the
escalating fine (first offense - warning; 2nd offense - $100, 3rd offense - $500,
etc.). If the fine is sent to the owner and passed on to the driver, a first time
offender who is the 4th or 5th offender in the company ends up paying hundreds of
dollars for their first offense. The truck owner still needs to be involved in their
employee actions, so education about the laws and the benefits of not idling are
important.
Consensus: The fines should be issued to the truck driver only, with accompanying
documentation warning the truck company owner to educate their drivers about
the idling law. For each subsequent fine issued to the truck driver, a warning
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should be sent to the company owner indicating that the 10th offense by one of
their employees will result in a fine to the company. At the 10th violation of a
company driver, the truck owner should be issued a fine. The first infraction by a
truck driver should always be a warning, and the next fine should begin at $100,
then $500, and then $1,000 for the third and subsequent offenses. The 10th
company driver violation should result in a $1,000 fine to the company, and any
subsequent fine should be at $1,000 to the truck company owner.
Q
Issue: Enforcement
Discussion: Enforcement is a sensitive issue whereby a few states are actively enforcing the
law but many other states are not actively enforcing. This is partly due to higher
priorities, limited budgets, and an unwillingness to issue tickets at some locations.
Some in the trucking industry felt that if all the laws were uniformly enforced
then they would make the investment in a idle reduction technology, but since
that is not the case they are more likely to gamble that they will not be caught.
Another issue involves issuing a ticket to the truck parking location facility owner
(e.g., truck owner or distribution center owner). Participants felt strongly that
unless the facility owner has control over the drivers, they should not be held
responsible for the violation. Truck parking location owners should not be made
to enforce the state's laws, especially if the state's own enforcement officials
were not doing so. One exception would be if the company driver is idling on
company property. In this case, the company owner has greater control over their
driver and their location.
Consensus: (1) If the states adopt a uniform idling law, they should also adopt a policy of
active enforcement so truck drivers and owners invest in technology to reduce
idling. (2) Fines should not be issued to the truck parking location owner, unless
the owner has direct control over the driver (employee-employer relationship).
R
Issue: Outreach and Education
Discussion: While an idling law would not explicitly mandate outreach or education, it should
accompany any state effort to reduce idling. If a state has an idling law, they
should make an effort at educating the affected entities about the law. This may
include publishing brochures, creating signs, and distributing the brochures and
signs in areas where trucks park.
Consensus: States should conduct outreach by educating truck drivers and owners about the
idling law. Signs should be posted at public truck parking locations. During state
truck registration, driver training, or licensing information about the law should
be distributed. Private truck parking facility owners should be required to post
permanent signs that state the idling law and its fine for violation.
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s
Issue: Other
Discussion: The groups felt that a discussion of a sleeper berth exemption was redundant
because of the weather related discussion. In other words, the sleeper berth
exemption and a weather related exemption, at least for long haul trucks,
addresses the same concern. As stated above under B, both weather and sleeper
berth exemptions, while important to recognize the need for drivers to rest
comfortably, should not simply be given a blanket exemption. Rather, States
should implement voluntary incentives whereby the State recognizes trucks and
truck stops that use or deploy idle reduction technologies. These trucks or
locations should be exempt from the law, and law enforcement should concentrate
on those entities that do not have the idle reduction technologies.
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