United States Air and Radiation EPA420-F-02-005
Environmental Protection April 2002
Agency
Office of Transportation and Air Quality
&EPA Regulatory
Announcement
Emission Standards for New
Marine Diesel Engines
The U.S. Environmental Protection Agency (EPA) is proposing emission
standards for certain categories of new marine diesel engines. The
proposed standards would reduce the harmful health effects of ozone
from these engines, particularly in and around our commercial ports
and coastal areas.
Which engines would be covered?
EPA is proposing emission standards for new marine diesel engines at or
above 30 liters per cylinder. These are very large marine engines used
primarily for propulsion power on ocean-going vessels such as container
ships, tankers, bulk carriers, and cruise ships. While the vessels that use
these engines can be flagged in the United States and in other countries,
the proposed standards would apply only to engines on U.S.-flag vessels.
We are requesting comment on whether to apply them to engines on
foreign-flag vessels as well.
We are also proposing new requirements for marine diesel engines at or
above 2.5 liters per cylinder but less than 30 liters per cylinder on U.S.
vessels. These engines are used for propulsion power on marine vessels
such as tugs, fishing vessels, supply boats, and other small- and me-
dium-size commercial vessels. They are also used for auxiliary power on
vessels of all sizes. We set standards for these engines in our 1999
Commercial Marine Diesel Engine rule (64 FR 73300, December 29,
1999; 40 CFR 94).
i Printed on Recycled Paper
-------
Why is EPA regulating engines?
The engines covered by this proposal contribute to ozone and ambient
participate matter and carbon monoxide levels in commercial ports and
coastal areas. The proposed standards address a group of marine diesel
engines that were left unregulated in our 1999 commercial marine diesel
engine rule.
We estimate that these engines account for about 1.5 percent of national
mobile source nitrogen oxide (NOx) emissions. This contribution can be
higher on a port-specific basis. For example, these engines contribute
about 7 percent of mobile source NOx in Baton Rouge/New Orleans,
Louisiana, and Wilmington, North Carolina, and about 5 percent in
Miami/Fort Lauderdale, Florida, and Corpus Christi, Texas. In addition,
these ships can have a significant impact on inventories in areas without
large commercial ports. For example, Santa Barbara, California, esti-
mates that engines on ocean-going marine vessels contribute about 37
percent of total NOx in their area. The relative importance of these
emissions in the inventory, both national and local, is expected to in-
crease as emissions from other mobile sources decrease due to our
emission control programs for highway vehicles and heavy-duty trucks.
Engines on foreign-flag vessels are estimated to account for about 95
percent of in-port NOx emissions and about 60 percent of total NOx
emissions from this source. We are seeking comment on applying the
proposed standards to engines on foreign-flag vessels as well.
These engines are subject to internationally-negotiated NOx standards in
accordance with Annex VI to the International Convention for the
Prevention of Pollution from Ships (the Annex VI NOx limits). The
international standards are not currently enforceable because the required
number of countries have not ratified the Annex and it has not yet gone
into force. The U.S. government is preparing the appropriate documents
for the President to submit Annex VI to the Senate for its advice and
consent to ratification. Besides setting standards for NOx emissions,
Annex VI regulates ozone-depleting emissions, sulfur oxides emissions
and shipboard incineration, and contains other environmentally protec-
tive measures. In transmitting Annex VI to the Senate, the Administra-
tion will work with Congress on new legislation to implement the An-
nex. At the same time, the United States government supports a revision
of the Annex VI standards for NOx emissions, taking into account the
emission reduction potential of new control technologies. By ratifying
the Annex, the United States will promote environmentally responsible
international emission standards at the International Maritime Organiza-
-------
tion (IMO) and recognize the role the IMO plays in protecting the
world's marine environment from pollution. We have already requested
the Marine Environment Protection Committee of the IMO to begin
consideration of more stringent NOx emission limits for marine diesel
engines. In addition, once the Annex goes into force, amendment of
NOx standards will be made easier through the tacit amendment process
that would then apply.
The standards we are proposing today continue the process of establish-
ing nonroad standards as required by the Clean Air Act. We are required
to set emission standards for nonroad engines and vehicles if their
emissions of carbon monoxide (CO), NOx or volatile organic com-
pounds contribute significantly to air pollution in more than one area of
the country currently not meeting National Ambient Air Quality Stan-
dards (NAAQS) for ozone and carbon monoxide. We completed the
Nonroad Engine and Vehicle Emission Study in 1991. In 1994 we
determined that these sources contribute significantly to ozone or CO
nonattainment, and we proposed a first set of standards for land-based
nonroad engines. Since then, we have set emission standards for most
nonroad engines, including farm and construction equipment, locomo-
tives, other commercial marine engines, recreational vehicles, and
lawnmowers.
What are the requirements?
We are proposing enforceable emission limits under the Clean Air Act
for marine diesel engines at or above 30 liters per cylinder on U.S.
vessels. The proposed Tier 1 standards are equivalent to the internation-
ally negotiated NOx standards and would be enforceable under U.S. law
for new engines built in 2004 and later. We are also considering adop-
tion of a subsequent second tier of standards or, alternatively, not adopt-
ing Tier 2 standards in this rule but instead establishing a schedule for a
future rulemaking that will address Tier 2 standards. The second tier of
standards we are currently considering would be more stringent than the
international standards, reflecting continued improvements in emission
control technology that have occurred since the international standards
were agreed upon. Such a second tier of standards could be achieved
through engine-based emission controls and would apply to new engines
built in 2007 and later. The second tier of standards would also set HC
and CO emissions to ensure that these emissions do not increase on an
engine-specific basis. Particulate matter emissions from these engines
are primarily due to the characteristics of the fuel they use (residual fuel,
typically a high-sulfur fuel with a tar-like consistency that remains at the
-------
end of the refinery process), and we are requesting comment on whether
we should consider a sulfur content limit for that fuel. If we adopt a
second tier of standards, we would review them prior to their effective
date to take into consideration continued development of new technolo-
gies, such as selective catalytic reduction and water-based emission
reduction techniques, and international activity such as action at IMO to
set more stringent international standards.
We are also proposing new requirements for engines at or above 2.5
liters per cylinder but less than 30 liters per cylinder. The Tier 2 stan-
dards finalized for these engines in our 1999 commercial marine diesel
engine rule apply to engines built in 2007 and after. Until then, and until
Annex VI enters into force internationally, engine manufacturers are
encouraged to voluntarily comply with Tier 1 standards, which are
equivalent to the as yet unratified international NOx standards. Because
Annex VI has not yet gone into force, we believe it is appropriate to
require engine manufacturers to certify these engines to the Tier 1
standards beginning in 2004.
We are also proposing to eliminate the foreign trade exemption for all
marine diesel engines on U.S. vessels. That exemption was available for
engines installed on U.S. flag vessels that spend less than 25 percent of
total operating time within 200 nautical miles (230 statutory miles) of
U.S. territory.
How would the engines?
The proposed Tier 1 standards, as well as the Tier 2 standards under
consideration, could be achieved through the application of existing
diesel engine emission control technologies in varying degrees, depend-
ing on the type of engine. These technologies include improved fuel
injection (injection timing, injection pressure, rate shaping, common rail
injection systems and electronic controls), intake air management (more
effective turbocharging and aftercooling, and valve timing), and combus-
tion chamber modifications (higher compression ratios, piston geometry,
and injector location).
Are there any voluntary emission standards?
We are proposing voluntary low emission standards that reflect the use
of advanced technologies such as fuel cell or selective catalyst reduction
technology. These standards are included as part of the Blue Cruise
program described in the proposal. This is a voluntary multi-media
-------
incentive-based program in which participant vessel owners can receive
special recognition from EPA for installing and using technologies that
reduce waste and air emissions.
Are there any compliance provisions?
To implement these standards for marine diesel engines at or above 30
liters per cylinder in an effective way, we are proposing several compli-
ance requirements. In general, the proposed compliance program reflects
our traditional manufacturer-based approach. This is in contrast to the
international approach reflected in Annex VI, which holds the vessel
owner responsible for compliance once the engine is delivered onboard.
Many of the proposed compliance provisions, including certification,
engine labeling, and warranty requirements, are similar or identical to
the compliance provisions that we finalized in our 1999 rulemaking. In
addition, we are including a post-installation verification provision
which would require an emission test after an engine is installed on a
vessel. We are also proposing an onboard measurement provision that
would apply to engines with adjustable parameters or add-on emission
control devices. Manufacturers of these engines would be required to
equip the engine with an onboard measurement device. The owner of a
vessel with such an engine would have to perform an onboard measure-
ment when the vessel approaches within 175 nautical miles (200 statu-
tory miles) of the U.S. coastline from the open sea or when it adjusts an
engine parameter within that distance. The results of this onboard mea-
surement will demonstrate that the engine is in compliance with the
relevant standards when it is operated in an area that affects U.S. air
quality.
What are the health environmental
of the standards?
Engine manufacturers are already producing engines that achieve the
Tier 1 standards because the internationally equivalent standards apply
to engines installed on ships constructed on or after January 1, 2000. We
do not expect additional emission reductions from adopting the proposed
Tier 1 standards. A second tier of NOx limits, if adopted, is expected to
reduce national inventories of NOx emissions from these engines by
about 11 percent by 2030. Applying such a second tier of standards to
engines on foreign flag vessels could increase the 2030 NOx emission
reductions from Category 3 marine diesel engines to 26 percent.
-------
What are the of the
program?
The costs of the proposed Tier 1 standards are negligible and reflect
certification and compliance costs only. We do not anticipate that there
will be any engineering or design costs associated with the Tier 1 stan-
dards because manufacturers are already certifying engines to the Annex
VI standards through our voluntary certification program.
The estimated cost to industry of complying with the Tier 2 standards
being considered is about $115,000 per engine, with an additional
estimated cost of about $5,000 annually to maintain the equipment. This
represents a 7 percent increase in the total engine cost and about 0.1
percent increase in the total vessel cost. The estimated cost-per-ton for
the Tier 2 standards would be about $145 per ton of NOx emissions.
Public Participation Opportunities
The proposal and related documents are available at www.epa.gov/otaq/
marine.htm. We welcome your comments on this proposal. For instruc-
tions on submitting written comments, please see the Federal Register
notice. You may submit written comments until July 16, 2002. Please
refer to Docket No. A-2001-11. The address for submitting written
comments is: Margaret Borushko (Docket No. A-2001-11), U. S. Envi-
ronmental Protection Agency, Office of Transportation and Air Quality,
2000 Traverwood Drive, Ann Arbor, MI 48105. You may also submit
comments by email to c3marine@epa.gov.
We will hold a public hearing on June 13, 2002, at the Hyatt Regency
Long Beach, California. Detailed information about the hearings will be
published in the Federal Register and at www.epa.gov/otaq/marine.htm.
For More information
You can access documents on marine diesel engines electronically on
the OTAQ Web site given above, or by contacting the OTAQ library at:
U.S. Environmental Protection Agency
Office of Transportation and Air Quality Library
2000 Traverwood Drive
Ann Arbor, MI 48105
(734)214-4311
------- |