South Coast Air Quality Management District
South Coast Air Quality Management District
BOARD MEETING DATE: July 20, 2001 AGENDA NO. 8
Execute Contract to Co-Sponsor Demonstration of Passive Particulate Trap Technologies on Existing Off-Road Heavy-Duty Construction Equipment Fueled by Low-Sulfur Diesel Fuel
SYNOPSIS:
The contribution of heavy-duty diesel construction equipment to mobile source NOx and PM emissions inventory is projected to increase over other mobile sources in the near future. The proposed demonstration evaluates emission benefits and durability of passive particulate traps, and assesses the effect of such traps on construction equipment operational performance and structural and mechanical durability. This project could lead to PM emissions reduction of over 80%. Cost to the AQMD for the proposed $910,000 demonstration shall not exceed $455,000. CARB will provide $300,000 and $100,000 in direct cash and in-kind contributions, respectively. The Sanitation Districts are contributing $55,000. Additional cost-shares are expected from particulate trap manufacturers. The Sanitation Districts, Sukut Construction, and C. W. Poss will supply equipment.
COMMITTEE:
Technology, June 22, 2001, Recommended for Approval
RECOMMENDED ACTION:
Barry R. Wallerstein, D.Env.
Executive Officer
Background
In the 1997 AQMP, off-road mobile sources are estimated to represent 24 and 34 percent of the entire 1993 Basin mobile source nitrogen oxides (NOx) and particulate matter (PM) emissions, respectively. Currently, off-road heavy-duty construction equipment accounts for 15 percent of all PM emissions; however, its proportional contribution to the mobile source emissions inventory is projected to steadily increase over other mobile sources. AQMD’s MATES-II Study results also indicate that diesel emissions contribute about 70 percent of the cancer risk attributable to air toxics in the South Coast air basin.
CARB and U.S. EPA established technology-forcing requirements for controlling emissions from mobile sources as one of the measures to assure compliance with the National Ambient Air Quality Standards (NAAQS). Since the enactment of these requirements, vehicle and engine manufacturers, emission control manufacturers, and researchers have continued to direct considerable efforts and resources to developing strategies for reducing mobile source emissions. These strategies have reduced emissions from passenger cars, light-duty trucks, and medium-duty vehicles to very low levels, and yielded significant emission reductions from buses, trucks, and heavy-duty highway vehicles. Therefore, as further emission reductions from passenger cars and heavy-duty trucks become more challenging to attain, the same retrofit technologies are increasingly being evaluated for their potential to reduce exhaust emissions from in-use off-road heavy-duty diesel equipment. Specifically, these evaluations focused on (1) developing emission control techniques that address unique characteristics of construction applications such as vibrations, operating cycles, exhaust temperature, and dusty operating and load conditions, and (2) assessing the contribution of emissions from in-use heavy-duty diesel construction equipment to the emissions inventory. At the Salem Harbor, Massachusetts power station site,1 recent field test of fleet vehicles shows that significant PM, carbon monoxide (CO), and volatile organic compounds (VOC) emissions can be achieved by retrofitting off-road heavy-duty construction equipment with existing aftertreatment technologies such as catalyzed diesel particulate filters.
1 Ainslie, B., et. Al., The Impact of Retrofit Exhaust Control Technologies on Emissions From Heavy-Duty Diesel Construction Equipment SAE 1999-01-0110
In response to increasing public concern and technology opportunities to reduce emissions and cancer risk from off-road equipment, the U.S. EPA established new emission standards for most new off-road engines, and plans similar regulations for major modifications of existing off-road engines. As a result, the County Sanitation Districts of Los Angeles County (CSDLAC), the Construction Industry Air Quality Coalition (CIAQC) and some of its members, AQMD, and CARB have joined efforts offering a unique opportunity to investigate the emission benefits and durability of particulate filters in existing off-road heavy-duty construction equipment fueled by diesel fuel with a maximum sulfur content of 15 ppm.
Outreach
On April 20, 2001, the Governing Board approved the release of RFP #P2001-38 to solicit proposals for the investigation of emission benefits and durability of passive particulate trap technologies in existing off-road heavy-duty construction equipment fueled by low-sulfur diesel fuel. In accordance with the AQMD’s consulting and contracting policies, a public notice advertising the RFP and inviting bids was published in the following publications:
Additionally, potential bidders were notified utilizing the Los Angeles County MTA and Cal Trans Directories of Certified Minority, Women, Disadvantaged and Disabled Veterans Business Enterprises; the Inland Area Opportunity Pages Ethnic/Women Business & Professional Directory; AQMD’s own electronic listing of certified minority vendors; and AQMD Purchasing’s mailing list. Notice of the RFP was mailed to the Black and Latino Legislative Caucuses and various minority chambers of commerce and business associations; and placed on the Internet at AQMD’s Web site [http://www.aqmd.gov, "Business and Job Opportunities" icon] and AQMD’s bidder’s 24-hour telephone message line (909) 396-2724.
Bid Evaluation
Booz Allen & Hamilton Inc. (BAH) is the only company that submitted a proposal in response to the RFP. The proposal was received by the closing date, and was reviewed and evaluated on June 12, 2001 by an evaluation panel for technical acceptability2 in accordance with established AQMD guidelines, using technical criteria outlined in the RFP. The six-member evaluation panel consisted of: two each from AQMD and CARB, and one each from CSDLAC and CIAQC staff; all male, one African American, one Asian American, and four Caucasian.
2 A proposal is technically acceptable if it meets or exceeds a minimum score of 56 out of 70 points.
Upon evaluating the BAH proposal, the panel unanimously requested the presence of BAH to clarify some elements of its proposal, so that a final resolution could be attained. On June 14, 2001 BAH presented its proposal to the panel clarifying (1) fuel cost estimates, (2) engine dynamometer test, (3) project cost estimates, (4) test cycle for transient emission test, and (5) project management. Based on this presentation, the BAH proposal is rated with an average score of 56, thereby meeting the criteria for technical acceptability.
The AQMD and CARB staff had several discussions with trap manufacturers, fuel producers, wet-hose providers, testing facilities, and others to estimate the cost of the demonstration program. Based on these discussions and previous experience, staff believes that BAH cost estimates are within an acceptable margin of similar projects.
Qualification
Booz Allen & Hamilton Inc. is the prime contractor for this demonstration program, and has managed several major advanced vehicle and technology demonstration projects for local, state, and federal agencies. The lead person is experienced in managing similar demonstration programs, and has supported AQMD and CARB on a variety of projects related to technology analysis, economic assessment, emissions inventory measurements and engine testing. In addition, the team consists of individuals with a wide range of knowledge and experience in off-road heavy-duty construction equipment, heavy-duty engine and vehicle testing, and alternative fuel technologies. AQMD staff believes that BAH and its partners meet the needs of AQMD, CARB, CSDLAC, and CIAQC as described in the RFP, and are qualified to coordinate all aspects of this demonstration program, including obtaining regulatory permits, scheduling and coordinating all necessary installation and testing, procuring fuel and particulate traps, conducting data analysis, and preparing reports.
Staff proposes that the AQMD enter into agreement with Booz Allen & Hamilton Inc. for an amount not to exceed $810,000.
Proposal
The primary objective of the proposed demonstration is to test and evaluate the emission reducing potential and durability of passive particulate trap technologies in existing off-road heavy-duty construction equipment fueled by low-sulfur diesel fuel. A secondary consideration is to assess the effect of these traps on construction equipment operational performance, structural integrity, and mechanical durability.
Upon reviewing the only response to the RFP, the specifics of the proposed project were as amended to include seventeen in-use off-road heavy-duty construction vehicles with a total of twenty-two engines, of which sixteen will be fueled exclusively with low-sulfur fuel and retrofitted with passive diesel particulate traps. The remaining six engines will be operated, for comparative purposes, without a particulate trap; three fueled by low-sulfur fuel; and the other three by CARB diesel fuel. The proposed work also includes steady-state dynamometer testing; an on-board sampling of particulate matter emissions; and a monthly survey of equipment operators for any detectable changes in engine performance. The field portion of the project is expected to be completed within a 12-month duration.
Future Demonstration Program
Based on the success of this study, the AQMD will convene a meeting of an oversight committee3 and BAH to discuss the feasibility and scope of continuing a second phase of this demonstration program after the demonstration vehicles have accumulated at least 1,120 hours and 10 months of field operation. The second phase which would be considered by the Board at a later date would include valuable additional elements such as: (1) increasing the total number of demonstration vehicles by removing traps from some original vehicles and installing them on similar but untested vehicles at another work site, and (2) continuing this demonstration for an additional 12 months or 1,400 hours.
3 The oversight committee consists of AQMD, CARB, CSDLAC, and CIAQC and two of its members.
Benefits to AQMD
The proposed project is included in the March 2001 update of the Technology Advancement Plan under Projects 2001CFM6-3, "Multi-Year Demonstration of Low-Sulfur Diesel Fuels in Heavy-Duty Off-Road Equipment," and 2001CFE-3, "Evaluation of Benefits and Emission Inventory Impact of Advanced Mobile Source Control." The proposed project supports the implementation of advanced alternative fuel technology that could potentially be used to reduce PM emissions from diesel-powered heavy-duty off-road construction equipment. In addition, the outcome of this project will help participants better characterize the durability and emissions reduction potential of passive particulate trap technologies and low-sulfur diesel fuel on heavy-duty off-road construction equipment. This project, if successfully implemented, could lead to PM emissions reductions of over 80 percent.
Resource Impact
The total cost of this project is estimated to be $910,000, of which AQMD cost shall not exceed $455,000. The CARB direct and in-kind contributions for this project amount to $300,000 and $100,000, respectively. The CSDLAC also is contributing $55,000 as part of a settlement agreement with AQMD. Additional in-kind contributions are expected from particulate trap manufacturers.
Sufficient funds are available from the Clean Fuels Fund, established as a special revenue fund resulting from the state-mandated Clean Fuels Program. The Clean Fuels Program, under Health and Safety Code Sections 40448.5 and 40512 and Vehicle Code Section 9250.11, establishes mechanisms to collect revenues from mobile sources to support projects to increase the utilization of clean fuels, including the development of the necessary advance enabling technologies. Funds collected from motor vehicles are restricted, by statute, to be used for projects and program activities related to mobile sources that support the objectives of the Clean Fuels Program.
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