Chapter 8. Local, State, and Federal Controls Ozone Plan

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1 Chapter 8 Local, State, and Federal Controls

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3 8.1 INTRODUCTION This chapter presents the fourth facet of the District s control strategy, Local, State, and Federal Controls. For this first draft plan, only the Local component is available. Future drafts will include information on the State and Federal Controls. 8.2 LOCAL COMPONENT: MEASURES TO REDUCE EMISSIONS BY IMPROVING VEHICLE USE Motor vehicles are a large source of ozone precursor emissions in the San Joaquin Valley. The District is in a partnership with federal, state, and local agencies to combine efforts to reduce the impact of motor vehicles on air quality. This cooperative integration of numerous agencies presents the difficult challenge of balancing the need to provide increased mobility for the enhancement of the social and economic well being of our valley, with the equally important goal of attaining healthy air quality for all the residents. The District is involved in reducing emissions from motor vehicle use primarily through its Indirect Source Review (ISR) Program; additional District control options for motor vehicle use (including incentives) are presented elsewhere in this Plan. Also, ARB controls motor vehicle emissions by establishing motor vehicle emissions standards and motor vehicle fuel formulations; additional ARB measures developed for 8-hr ozone are described elsewhere in this Plan. The San Joaquin Valley has eight Federally-designated Metropolitan Planning Organizations (MPOs), which represent the eight counties of the San Joaquin Valley Air Basin. Collectively, the San Joaquin Council of Governments, the Stanislaus Council of Governments, the Merced County Association of Governments, the Madera County Transportation Commission, the Council of Fresno County Governments, Kings County Association of Governments, the Tulare County Association of Governments and the Kern Council of Governments work in concert with their numerous cities, public interest groups, the District, state, and federal agencies in order to create regional transportation plans (RTPs). The eight MPOs are also referred to as the Regional Transportation Planning Agencies (RTPAs) for the San Joaquin Valley Legislative Requirement The CAA regulates air pollutant emissions from area, stationary, and mobile sources. In addition, the CAA authorizes the EPA to establish NAAQS to protect public health and the environment. The goal of the Act was to set maximum pollutant standards and direct the States to develop SIPs for achieving and maintaining these standards. Because emissions from motor vehicles make a significant contribution to air pollution, the SIP establishes an emissions budget for each pollutant for the attainment year, as 8-1

4 well as reasonable further progress milestone years. This serves as a regulatory limit for on-road mobile source emissions. As a condition to receive federal transportation funding, transportation plans, programs, and projects are required to meet those emission budgets through strategies that increase the efficiency of the transportation system and reduce motor vehicle use. Transportation plans and programs within the San Joaquin Valley Air Basin are also required to conform with the air quality plans in the region, as established by the Clean Air Act and reinforced by the Safe, Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for Users (SAFTEA-LU). This act is the foundation for federal surface transportation laws. Transportation conformity is discussed in Appendix C of this Plan; because ARB is not releasing its mobile source emissions model until later this fall, and because this model is critical to preparing transportation conformity budgets, this first draft 8-hr ozone plan does not present transportation conformity budgets. The budgets will be in the next draft plan to be released in the November-December 2006 time frame. The Valley MPOs have limited legal authority to implement emission reduction measures. However, their status as Regional Transportation Planning Agencies places them in a position to help coordinate and facilitate consensus among their member jurisdictions, which do have authority to implement local measures. The MPOs and their member jurisdictions have adopted Reasonably Available Control Measures (RACM) affecting motor vehicle use in the Valley. Three sets of RACM have been adopted in the past five years for the following District-adopted air quality plans: (1) The 2002/2005 Amended Rate of Progress Plan for San Joaquin Valley Ozone; (2) The 2003 PM10 Plan; and (3) The 2004 Extreme Ozone Attainment Demonstration Plan. 1 Of these, EPA has only approved the measures for the 2003 PM10 Plan into the SIP. 2 The transportation RACM for the 2003 PM10 Plan provide for the reduction of NOx and direct PM10 emissions for attainment of the PM10 standards by December 31, No emission reductions were developed for these measures, either individually or as a group. Consequently, reductions from the measures were not used in the Plan to meet federal planning requirements. Implementation of these measures is underway. For the, the RTPAs are currently evaluating options for what additional measures can be developed and implemented to meet federal planning requirements for 8-hour ozone. The NOx measures developed for the 2003 PM10 Plan will help attain the federal 8-hour ozone standards; however, since they are already Federally approved, they are not included in this plan by reference. The MPO approach will be described in the next draft of the 8-hour ozone plan. 1 See each individual plan for a description of the measures and the process used to develop the measures. 2 As of September 22, 2006, EPA has taken no final approval action on the Amended 2002/2005 Rate of Progress Plan for San Joaquin Valley Ozone or the 2004 Extreme Ozone Attainment Demonstration Plan. 8-2

5 8.3 SUMMARY OF THE NEW STATEWIDE STRATEGY UNDER EVALUATION BY THE AIR RESOURCE BOARD STAFF The ARB is developing a new statewide emission reduction strategy to achieve the additional reductions needed to bring areas of the State into attainment of both the federal PM2.5 and ozone standards. The statewide strategy currently under development will provide the next installment of new reductions. The currently quantified emission reduction estimates from the mix of concepts being evaluated for the statewide strategy are shown in Table 8-1. We have also included a list of short descriptions of the measures under evaluation by ARB staff. ARB staff will provide several formal opportunities for the public to provide input and comment on the California s State Implementation Plan development efforts. The first such opportunity will be on October 12 th, 2006 in Sacramento, when ARB staff will host a SIP Symposium ( The SIP Symposium will provide the public with the first look at the developing strategy, including control concepts under evaluation by ARB staff. At this time, ARB staff will seek input into these and other emission control concepts which should be evaluated in order to reduce emissions and attain the ozone and PM2.5 standards as quickly as possible. Table 8-1 Emission Reduction Estimate 3 from Near Term Concepts Under Evaluation for State and Federal Measures Ozone and PM2.5 Precursor Reductions (2014, tpd) NOx ROG Passenger Vehicles 6 12 Smog Check Improvements Expanded BAR Vehicle Retirement plus Parts Replacement California Phase 3 Reformulated Gasoline Modifications Expanded Motorcycle Standards Trucks Expanded Diesel Truck Fleet Modernization Program Additional Reductions from Out-of-State Trucks in California Diesel Truck Emissions Tracking and Inspection Program 3 These are initial concepts. ARB staff will work closely with the regulated communities, manufacturers of emission control technologies and equipment, environmental and community advocacy groups, and local, state and federal governmental agencies to develop the emission control strategy the Board ultimately considers in the spring of As ARB refines the fleet modernization concept, additional effort will be focused on addressing the characterization of fleets unique to the San Joaquin Valley

6 Ozone and PM2.5 Precursor Reductions (2014, tpd) NOx ROG Goods Movement 5 12 NYQ Tugboat Cold Ironing Auxiliary Ship Engine Hotelling Main Ship Engine Clean Fuel Enhanced Main Ship Engine Control Port Truck Modernization Locomotive Engines Construction Equipment 4 1 Construction Equipment Fleet Averages/Fleet Modernization Construction Equipment Idling Limitations Agricultural Equipment NYQ NYQ Other Engine Exhaust and Evaporation 1 1 Accelerate Turnover of Pre-1999 Outboard/Personal Water Craft (PWC) Engines Lower (Catalyst-Based) Exhaust Standards for Outboard/PWCs GSE - Increase Percent ZEVs / Lower Fleet Averages Recreational Vehicle Evaporative Standards 2006 Large Spark Ignited Engine Regulation Consumer Products -- 2 Pesticides 6 -- NYQ Approximate Total from State and Federal Measures * NYQ Not Yet Quantified 5 San Joaquin Valley emission benefits are based on the full implementation of the strategies in the Emission Reduction Plan for Ports and Goods Movement in California adopted by ARB in April 2006, excluding emission reductions from the private truck fleet rule component. Emission reductions from the private truck fleet rule are evaluated in the Trucks category... 6 The California Department of Pesticide Regulation is currently developing pesticide emission control concepts for inclusion in the statewide strategy. 8-4

7 Passenger Vehicles Smog Check Improvements Low Pressure Evaporative Test. Require low pressure evaporative system testing and repair of evaporative system leaks for all vehicles subject to Smog Check inspection. More Stringent Cutpoints. Set more stringent Smog Check cutpoints. Many vehicles that are repaired under Smog Check are likely to fail the next time they are tested. More stringent cutpoints would require more cars to be repaired, and help ensure more complete and durable repairs. Annual Inspections for Older Vehicles. Inspect older vehicles annually rather than every two years. Older vehicles tend to have more deterioration of emission controls, and consequently, higher emissions. Annual Inspections for High Annual Mileage Vehicles. Inspect annually, rather than every two, vehicles that accrue very high mileage on an annual basis years. High mileage vehicles tend to have more deterioration of emission controls, and consequently, higher emissions. Add Visible Smoke Test. Check for visible smoke as part of the Smog Check inspection identify vehicles with excess PM emissions that would otherwise pass Smog Check. Idle Testing in Enhanced Smog Check Areas. Supplement the dynamometer testing currently required in Enhanced Smog Check areas with an idle emissions test. Results from a pilot program conducted in Enhanced Smog Check areas indicate that testing emissions at idle has the potential to identify excess emissions that would not be identified through dynamometer testing alone. Inspection of Light and Medium Duty Diesels. Include light and medium duty diesel vehicles in the Smog Check program. This control concept would reduce excess emissions from these vehicles by encouraging improved maintenance for this part of the fleet, and by requiring the repair of poorly maintained or old emission systems. Inspection of Motorcycles. Include motorcycle inspections as part of Smog Check. Studies indicate that motorcycles are subject to high rates of exhaust system tampering. Expanded BAR Vehicle Retirement Program plus Parts Replacement. Ramp up BAR scrappage program from current 18,000 per year. Offer scrap for vehicles within 20 percent of cutpoints and off the regular Smog Check cycle. Additionally, provide consumer incentives to replace emission control system parts (particularly catalysts) in 8-5

8 vehicles that pass their Smog Check Inspections but have ROG or NOx emissions concentrations within 20 percent of cut-points. California Phase 3 Reformulated Gasoline Modifications. Modify California s Reformulated Gasoline Program to offset ROG emissions due to the increased use of ethanol. This rulemaking activity is currently underway and is intended to fully mitigate the emission increase. These increases are in the current inventory. Tighter Motorcycle Standards. Reduce motorcycle exhaust and evaporative emissions standards by 50 percent beginning in Trucks Expanded Truck Fleet Modernization Program. Accelerate the modernization of California s heavy-duty truck fleet by requiring older trucks to be replaced with newer, cleaner trucks that use advanced technology engines (trucks that meet Tier 3 standards) in calendar years Use incentive funds, where available, to assist in the replacement, repowering, or retrofit of older captive fleets used for short to medium distance hauling. Additional Reductions from Out-of-State Trucks in California. Reduce emissions from out-of-state trucks that operate in California, using either a rule or another mechanism such as an MOU. Trucks registered outside of California are estimated to account for approximately 25 percent of statewide mileage accrued by heavy duty trucks. Truck Emissions Tracking and Inspection Program. Reduce excess emissions from heavy duty trucks that can be attributed to engine deterioration, poor maintenance, or tampering by expanding the Heavy Duty Vehicle Inspection Program (HDVIP) to include visual, under-the-hood inspections of the emission control devices, an electronic check of the truck s on-board computer, and use of remote emission sensing technology to identify and screen trucks for roadside inspections. Goods Movement Tugboat Cold Ironing. Require tugboats to use shore-based electrical power when idling. Auxiliary Ship Engine Hotelling. Reduce hotelling emissions with at-dock technologies such as cold ironing and other clean technologies (i.e., the hood ). Main Ship Engine Clean Fuels. Require ships to use low sulfur diesel fuel (one percent) in main engines when operating within 24 miles of shore. Enhanced Main Ship Engine Control. Modernize main engines through added retrofits such as selected catalytic reduction. Support efforts by ports and appropriate 8-6

9 local entities to encourage the accelerated use of cleaner ships and rebuilds through other tools such as lease restrictions. Port Truck Modernization. Retrofit or replace the older heavy-duty diesel trucks that service ports, and work with port authorities to prevent older trucks from joining the fleet. Retrofit all trucks with diesel particulate filter by 2010 and, where feasible, NOx retrofits. Require trucks entering port service in 2007 and later years to meet 2003 standards; trucks entering port service after 2012 to meet 2007 standards, and trucks entering port service after 2015 to meet 2010 standards. Require remaining pre-2007 trucks to be retired or replaced with newer trucks by Locomotive Engines. Replace existing line haul locomotive engines with newer, cleaner Tier 3 engines beginning 2012; concurrently rebuild older engines to more modern (Tier 2.5) standards. Efforts are already underway to reduce community exposure to toxic diesel particulate matter from locomotives through reduced locomotive idling, the increased use of clean fuels, and the accelerated replacement of older switcher locomotives with newer, cleaner technologies. Construction Equipment Construction Equipment Fleet Averages/Fleet Modernization. Establish fleet average emission limits for construction fleets that would require older, dirtier engines to be replaced with engines reflecting current technologies. Construction Equipment Idling Limitations. Adopt regulations to eliminate unnecessary idling by construction equipment. Agricultural Equipment Agricultural Equipment Fleet Modernization. Accelerate the modernization of the fleet of agricultural equipment used in California, removing older, dirtier equipment from service to be replaced with engines reflecting cleaner technologies. Other Engine Exhaust and Evaporation Outboard Motors. Accelerate the retirement of pre-1999 two-stroke outboard engines. Adopt catalyst-based standards (5 g/kw-hr) for new outboard engines. Recreational Vehicle Evaporative Standards. Adopt evaporative emission standards to reduce the amount of reactive organic gases that evaporate from sources such as fuel tank, carbon canisters, and fuel lines. Airport Ground Service Equipment. Set requirements for the use of zero emission equipment and lower fleet average emission. 8-7

10 2006 LSI Regulation. More stringent exhaust standards and declining fleet average to accelerate turnover of older, higher emitting engines. (adopted in 2006) Consumer Products Consumer Products. Continue setting standards based on the current survey and reformulation approach in the near-term followed by new more innovative approaches post Pesticides Pesticides. The California Department of Pesticide Regulation will identify strategies to reduce emissions from commercial and agricultural pesticide use in California through reformulation, reduced usage, and use of innovative technologies and practices. 8-8