BOARD MEETING DATE: January 21, 2000 AGENDA NO. 34
PROPOSAL:
Approve AQMD Position on CARB’s Proposed Adoption of a Public Transit Fleet Rule and Emission Standards for New Urban Buses
SYNOPSIS:
CARB is scheduled to consider the adoption of a public transit fleet rule and emission standards for new urban buses on January 27, 2000. Staff recommends that the Board approve a specific agency position on this matter.
COMMITTEE:
None
RECOMMENDED ACTION:
Request that CARB allow air districts with an extreme ozone air quality designation the authority within CARB’s Public Transit Bus Fleet Rule and Emission Standards for New Urban Buses to decide locally whether to eliminate completely or partially the diesel path proposed for new transit bus purchases.
Barry R. Wallerstein, D.Env.
Executive Officer
Background
In 1984, the Board made several findings [Resolution 84-36] concerning the adverse health impacts of particulate emissions from diesel engines in taking action to urge the U.S. EPA to set stringent standards for heavy-duty diesel vehicle emissions. The findings included: (a) diesel particulate emissions contribute to the exceedance of the federal and state fine particulate standard in the South Coast Air Basin and (b) NOx emissions from trucks and buses adversely affect the respiratory system, contribute to ozone formation and acid deposition problems in Southern California.
In March, 1997, the Board adopted a position [March 14, 1997, Agenda No. 35 - in response to a Department of Energy proposal to increase utilization of diesel engines for sport utility vehicles] to encourage federal agencies to promote advancement of engine design, exhaust treatment and clean fuel usage to meet emission requirements. In October, 1997 [October 10, 1997, Agenda No. 38] , in adopting the Environmental Justice Initiatives, the Board reiterated its policy position to "incentivize the early clean-up or removal of diesel engines in the Basin." In September, 1998, the Board unanimously approved Supervisor Mikels' motion that the Board support a designation of diesel--whether it is exhaust or fuel or particulate--as a toxic air contaminant, if the scientific data demonstrates that it meets the criteria of a toxic air contaminant. Subsequently, in August of 1998, CARB designated diesel exhaust particulate emissions as a toxic air contaminant based on their potential to cause human cancer. In October, 1998 [October 8, 1998, Agenda No. 42A] the Board reaffirmed its policy encouraging the purchase and use of alternative fuel vehicles, including transit fleet vehicles. In November, 1999 the District released the Multiple Air Toxics Exposure Study-II to the public for a 90-day review and comment period. Among the draft report’s findings is that about 70% of all ambient airborne risk of cancer in the Basin is attributed to diesel particulate emissions.
CARB has proposed a public transit fleet rule and emission standards for new urban buses to be considered at its January 27, 2000 Board Meeting. This regulatory proposal contains: (a) a multi-component urban transit bus fleet rule applicable to transit agencies and (b) more stringent emission standards for new urban bus engines applicable to manufacturers of such engines. The proposed urban transit bus fleet rule is designed to reduce ozone precursor emissions (NOx and NMHC) and toxic air contaminants (diesel PM) by encouraging transit agencies to purchase or lease low-emission, alternative-fuel urban buses. However, the proposed rule allows transit agencies to choose between two compliance paths, either the diesel path or the alternative-fuel path. For transit agencies choosing the alternative-fuel path, a minimum 85 percent of new bus purchases would have to be low-emission, alternative-fuel buses, beginning with the adoption of the proposed regulation through model year 2015. The proposed fleet rule contains six components: (1) a NOx fleet average requirement; (2) PM retrofit requirements; (3) low-emission bus purchase requirements; (4) a zero-emission bus (ZEB) demonstration project; (5) ZEB purchase requirements; and (6) requirements for transit agencies to use low-sulfur diesel fuel. The NOx fleet average requirements, PM retrofit requirements, and low-sulfur diesel fuel requirements are the same for transit agencies on either the diesel or alternative-fuel path. The two paths differ in their applicable emission standards and their timing, ZEB demonstration project requirements, and ZEB purchase requirements.
The alternative-fuel path provides immediate NOx and PM emissions benefits, although the two paths have been structured to provide approximately equivalent NOx emissions over the lifetime of the requirements. However, PM reductions will not be the same for the two paths.
Proposal
The staff proposes that the Board endorse the position that CARB allow air districts with an extreme ozone air quality designation the ability to decide locally whether to eliminate, completely or partially, the diesel path for all new transit bus purchases. Such a position places its main emphasis on the need for local decision-making and flexibility to address the significant public health needs of individual districts. There are three primary reasons for the staff’s recommendation. First, new stationary sources within the South Coast Air Basin are already subject to stringent Best Available Control Technology (BACT) and Lowest Achievable Emission Rate (LAER) requirements, and it is appropriate to apply this principle uniformly to new mobile sources as well as new stationary sources. Second, there is significant uncertainty about the potential commercial availability of add-on control devices and low sulfur fuel by the timeframes established in CARB’s proposed rule for the diesel path. Third, ARB acknowledges in its notice of rulemaking that "the alternative-fuel path will provide greater PM emission benefits due to inherently low in-use PM emissions from alternative-fuel buses." Given the need to achieve significant PM 2.5 and PM-10 emission reductions as soon as possible to comply with federal and state air quality standards, as well as to reduce ambient cancer risk, there is substantial urgency for reducing diesel particulate emissions.
The staff therefore recommends that the Board endorse the policy position urging CARB to provide local air districts which are designated as an extreme ozone non-attainment area with the flexibility to decide locally to eliminate, completely or partially, the diesel path for all new transit bus purchases subject to the CARB’s rulemaking.
CARB’s table, "Proposed Urban Transit Bus Fleet Rule Requirements and Emission Standards," summarizing emission standards proposed for transit agencies on both the diesel and alternative-fuel path.
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