[Federal Register Volume 74, Number 215 (Monday, November 9, 2009)]
[Notices]
[Pages 57671-57674]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: E9-26924]
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ENVIRONMENTAL PROTECTION AGENCY
[FRL-8979-4]
Control of Emissions From New Highway Vehicles and Engines:
Approval of New Scheduled Maintenance for Selective Catalyst Reduction
Technologies
AGENCY: Environmental Protection Agency (EPA).
ACTION: Notice.
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SUMMARY: This notice announces that EPA has granted certain
manufacturers new and limited variations in emission-related scheduled
maintenance intervals for the replenishment of the nitrogen containing
reducing agent for Selective Catalyst Reduction (SCR) technologies used
in light-duty and chassis certified diesel vehicles for model years
2009-2010, and used in heavy-duty diesel vehicles and heavy-duty diesel
engines for model years 2009-2011. SCR replenishment is considered
critical emission-related maintenance.
FOR FURTHER INFORMATION CONTACT: David Dickinson, Compliance and
Innovative Strategies Division, U.S. Environmental Protection Agency,
1200 Pennsylvania Ave., NW. (6405J), Washington, DC 20460. Telephone:
(202) 343-9256. E-mail Address: [email protected].
SUPPLEMENTARY INFORMATION: EPA adopted new emission standards for
[[Page 57672]]
light-duty vehicles and trucks on February 10, 2000 (65 FR 6698).
Similarly EPA adopted new requirements for heavy-duty highway engines
and vehicles on January 18, 2001 (66 FR 5002). Diesel engine and
vehicle manufacturers have examined the use of several different types
of NOX reduction technologies in order to meet these
requirements, including SCR systems which can achieve up to 90%
NOX conversion efficiencies. We expect that most
manufacturers will use SCR systems to meet the NOX reduction
requirements for their diesel engines. SCR systems use a nitrogen
containing reducing agent that usually contains urea and is known as
diesel exhaust fluid (DEF). The DEF is injected into the exhaust gas
and requires periodic replenishment by refilling the DEF tank.
Under 40 CFR 86.1834-01(b)(7)(ii) and 86.094-25(b)(7)(ii), a
manufacturer must submit a request for approval for any new scheduled
maintenance it wishes to recommend to purchasers and perform during
durability testing. ``New scheduled maintenance'' is that maintenance
which did not exist prior to the 1980 model year, including that which
is a direct result of the implementation of new technology not found in
production prior to the 1980 model year. In this instance EPA believes
the maintenance of performing DEF refills on SCR systems should be
considered as ``critical emission-related scheduled maintenance.'' EPA
believes the existing allowable schedule maintenance mileage intervals
applicable to catalytic converters are generally applicable to SCR
systems which contain a catalyst, but that the DEF refills are a new
type of maintenance uniquely associated with SCR systems. Therefore,
the 100,000-mile interval at 40 CFR 86.1834-01(b)(4)(ii) for catalytic
converters on diesel-cycle light-duty vehicles and light-duty trucks
(and any other chassis-certified vehicles) and the 100,000-mile
interval (and 100,000 mile intervals thereafter) for light heavy-duty
diesel engines and the 100,000-mile interval (and 150,000 mile
intervals thereafter) for medium and heavy heavy-duty diesel engines at
40 CFR 86.004-25(b)(4)(iii) are generally applicable to SCR systems. As
noted, the SCR systems are a new type of technology designed to meet
the newest emission standards and the DEF refill intervals represent a
new type of scheduled maintenance; therefore, EPA believes that
manufacturers may request from EPA the ability to perform the new
scheduled maintenance of DEF refills. Requests from manufacturers for
new scheduled maintenance intervals must include: (1) Detailed evidence
supporting the need for the maintenance requested and (2) supporting
data or other substantiation for the recommended maintenance category
and for the interval suggested for the emission maintenance. Any
emission-related maintenance must be technologically necessary to
assure in-use compliance with the emission standards since minimum
service intervals are established in part to ensure that the control of
emissions is not compromised by a manufacturer's overly frequent
scheduling of emission-related maintenance.
EPA has received information from the Alliance of Automobile
Manufacturers (the Alliance) \1\ indicating that it is technologically
necessary and otherwise appropriate for light-duty vehicles and light-
duty trucks to refill the DEF at intervals equal to the applicable
vehicle's scheduled oil change interval for the 2009 and 2010 model
years. The Alliance maintains that such vehicles do not yet have the
carrying and storage capacity required for the quantity of DEF needed
to satisfy the much longer maintenance intervals such as the 100,000
mile scheduled maintenance interval generally applicable to catalytic
converters. In addition to the limited space available on vehicles for
a large DEF tank, the Alliance also indicates that vehicles will be
designed and equipped to ensure vehicle compliance with emission
standards, DEF will be readily available and accessible to drivers, and
that maintenance is likely to be performed.
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\1\ The Alliance of Automobile Manufacturers represents BMW
Group, Chrysler Group, Ford Motor Company, General Motors, Jaguar
Land Rover, Mazda, Mercedes-Benz USA, Mitsubishi Motors, Porsche,
Toyota, and Volkswagen Group of America.
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EPA generally receives ``new scheduled maintenance'' requests,
under 40 CFR 86.1834-01(b)(7)(ii) and 86.094-25(b)(7), from individual
manufacturers. However, as discussed below EPA knows of no SCR
technology for any light-duty or chassis certified vehicle that is yet
capable of attaining higher mileage without a DEF refill. For example,
one SCR light/duty vehicle in current production must find space to
accommodate an 8 gallon DEF tank in addition to the separate fuel tank
of 21 gallons in order to meet the oil change interval target. Assuming
an oil change interval even of 10,000 miles in an 8 gallon DEF tank
scenario, then a DEF tank size of 80 gallons would be required to meet
a 100,000 mile DEF refill maintenance interval. Even a 16-20 gallon DEF
tank (to meet a 2 oil change interval) would interfere with the space
that is necessary for typical light-duty vehicle design and
transportation needs of the consumer. Interior cabin volume and cargo
space are highly valued attributes in light-duty vehicles.
Manufacturers have historically strived to optimize these attributes,
even to the point of switching a vehicle from rear-wheel drive to
front-wheel drive to gain the extra interior cabin space taken up by
where the drive shaft tunnel existed, or switching the size of the
spare tire from a conventional sized tire to a small temporary tire to
gain additional trunk space. Thus any significant interior, cargo or
trunk space used to store a DEF tank would be unacceptable to
customers. There are also packaging concerns with placing a large DEF
tank in the engine compartment or in the vehicles undercarriage. Most
vehicle undercarriages are already crowded with the engine, exhaust
system, including catalytic converters and mufflers, fuel tank, etc.
limiting any available space for a DEF tank.
In addition to the inherently space constrained areas on the
vehicle to place both fuel tanks and DEF tanks (an additional 8 gallon
tank represents a very significant demand for space) the addition of
the weight associated with the DEF represents significant concerns
(e.g. performance and efficient operation) on the operation of the
vehicle. For example, assuming a density of 9 lb/gallon, an 8 gallon
DEF tank represents an additional 72 lbs on a vehicle already looking
to optimize performance. Adding additional DEF tank size to even
accommodate a two-oil change interval is not feasible given these
weight constraints. EPA expects manufacturers to face similar and
significant engine or fuel tank compartment size and configuration
constraints and to expend substantial effort to accommodate similar DEF
tank and fuel tank size ratios. Therefore, EPA finds it appropriate to
approve the DEF refill interval as requested for all light-duty vehicle
and light-duty truck and other chassis certified vehicles in the 2009
or 2010 model years for manufacturers that are members of the Alliance
of Automobile Manufacturers. For any manufacturers of light-duty
vehicles and light-duty trucks that are not members of the Alliance of
Automobile Manufacturers that introduce SCR technology in the 2009 or
2010 model years, such manufacturers would need to request this
schedule separately, but we would expect to grant a similar maintenance
schedule, based on the fact that SCR systems operate in
[[Page 57673]]
a similar manner that would similarly implicate the maintenance
interval issues discussed above.
EPA believes it important to note that while not a specific
criteria under paragraph (b)(7) of the regulations, because the DEF
refill maintenance is considered ``critical emission-related
maintenance,'' paragraph (b)(6) requires that there be a reasonable
likelihood that the DEF maintenance refill will be performed in use.
See Sec. Sec. 86.1834-01(b)(6)(ii) and 86.094-25(6)(ii). EPA finds
that it is likely such maintenance will be performed. A number of means
are available to make this showing, including a clearly displayed
visible signal system approved by the Administrator or data is
presented which establishes for the Administrator a connection between
emissions and vehicle performance such that as emissions increase due
to lack of maintenance, vehicle performance will simultaneously
deteriorate to a point unacceptable for typical driving.
As discussed in EPA's Dear Manufacturer Letter of March 27, 2007
(``Certification Procedure for Light-Duty and Heavy-Duty Diesel
Vehicles and Heavy-Duty Diesel Engines Using Selective Catalyst
Reduction (SCR) Technologies'' reference number CISD-07-07 (LDV/LDT/
MDPV/HDV/HDE), an SCR system utilizing a reducing agent that needs to
be periodically replenished would meet the definition set forth in
Sec. Sec. 86.094-22(e)(1) and 86.1833-01(a)(1) and could be considered
an adjustable parameter by the Agency. The regulations establish the
requirements for determining the physically adjustable ranges of
parameters, and EPA issued non-binding guidance in the March 27, 2007
Dear Manufacturer Letter concerning the determination under the
regulations of whether operation without DEF is within the scope of
such range for the particular engine. SCR design and manufacturer
submitted information in that context can be used to assure that the
DEF levels remain at proper ranges during the operation of the engine.
In addition, EPA notes that DEF refill maintenance interval being
equivalent and occurring with the oil change interval is a fairly long
interval (e.g. 7,500 to 12,500 miles) and is not likely to result in
the overly frequent maintenance under typical vehicle driving. EPA also
believes that an adequate DEF supply will be available to perform the
DEF refills at the stated intervals. EPA believes it important to also
consider when, where and how often vehicle owners or operators are most
likely to perform the DEF refill maintenance. For light-duty vehicles
and light-duty trucks EPA believes the requested DEF refill interval's
association with the oil change interval is appropriate given the
likelihood of DEF availability at service stations and the likelihood
that DEF refill would occur during such service. The Agency has limited
this approval to 2009 and 2010 model years due to the expectation that
SCR related technologies and the urea infrastructure will continue to
develop and mature and EPA plans to revisit this category of vehicles
to determine appropriate future intervals. Should manufacturers
continue to believe that the identified interval or other intervals are
technologically necessary or otherwise appropriate after the 2010 model
year we expect them to take this up with the Agency in a timely manner.
EPA has also received requests from Volvo Powertrain, Cummins, and
from the Engine Manufacturers Association \2\ seeking a series of DEF
refill maintenance intervals for certain categories of heavy-duty
engine applications. For vocational vehicles such as dump trucks,
concrete mixers, refuse trucks and similar typically centrally fueled
applications, the manufacturers believe the DEF tank refill interval
should equal the range (in miles or hours) of the vehicle operation
that is no less that the vehicle's fuel capacity (i.e., a 1:1 ratio).
For all other vehicles equipped with a constantly viewable DEF level
indicator (e.g. a gauge or other mechanism on the dashboard that will
notify the driver of the DEF fill level and the ability to warn the
driver of the necessity to refill the DEF tank before other inducements
(noted below) occur), the DEF tank refill interval must provide a range
of vehicle operation that is no less than twice the range of vehicle's
fuel capacity (i.e., a 2:1 ratio) and for all other vehicles that do
not have a constantly viewable DEF level indicator the DEF tank refill
interval must provide a range of vehicle operation that is no less than
three times the range of the vehicle's fuel capacity (i.e., a 3:1
ratio).
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\2\ The Engine Manufacturers Association (EMA) represents, among
others, American Honda Motor Company, Inc, Briggs & Stratton Corp,
Caterpillar Inc, Chrysler LLC, CNH Global N.V., Cummins Inc.,
Daimler Trucks North America LLC, Deere & Company, Deutz
Corporation, Dresser Waukesha, Fiat Powertrain Technologies S.p.A,,
Kohler Company Inc, Komatsu Ltd, Kubota Engine America Corp, MTU
Detroit Diesel Inc, Ford Motor Company, General Motors Corp, Hino
Motors Ltd, Isuzu Manufacturing Services of America, Navistar Inc.,
Onan--Cummins Power Generation, PACCAR Inc, Scania CV AB, Volkswagen
of America Inc, Wartsala North America, Inc, Yamaha Motor
Corporation, and Yanmar America Corporation.
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EPA believes it is reasonable to base the DEF refilling event on
diesel refueling intervals given that it is likely that the DEF refill
maintenance would be undertaken at the time of fuel refill due to DEF
infrastructure developed at diesel refueling stations. EPA agrees with
manufacturers that the DEF refilling intervals requested are
technologically necessary. EPA knows of no SCR technology for any
heavy-duty engine application that is yet capable of attaining higher
mileage without a DEF refill. As an example, assuming that 25,000
gallons of diesel fuel were consumed to reach a 150,000 mile interval,
the amount of DEF required (assuming a 3% DEF consumption rate) would
require 750 gallons of DEF weighing approximately 6,750 lbs. A line-
haul truck is allowed a maximum gross vehicle weight of 85,000 lbs of
which approximately 45,000 pounds is for cargo carrying. A DEF tank of
this size would reduce the cargo-carrying capacity by 15%. Another
example from the line haul industry suggests that a DEF tank size of
over 900 gallons would be needed, to reach the 150,000 mile interval,
for a common highway vehicle with a diesel fuel capacity of 200 gallons
and achieving 6.5 miles per gallon fuel efficiency. Similarly, a medium
heavy-duty engine (``chassis cabs'') example would require 375 gallons
of DEF weighing 3,275 lbs to meet a 150,000 mile interval. EPA believes
that such tank sizes are clearly not technologically feasible in light
of the weight and space demands and constraints on heavy-duty trucks
and the consumer demand for as much cargo carrying capacity as
possible.
The Agency has also received information demonstrating that longer
intervals than those requested by the manufacturers would require DEF
tanks that are too large or too heavy to be feasibly incorporated into
vehicles. Manufacturer representatives note that available data show
that heavy-duty engines equipped with SCR-based systems will consume
DEF at a rate that is approximately 2%-4% of the rate of diesel fuel
consumption. Because of inherent space and weight constraints in the
configuration and efficient operation of heavy-duty vehicles, there are
size limits on the DEF tanks. Currently, there are truck weight limits
that manufacturers must address when making, adding or modifying truck
designs. EPA expects and believes that manufacturers are taking
significant and appropriate steps in order to install reasonably sized
DEF tanks to achieve the DEF refills intervals noted. For example,
manufacturers are taking such steps as reducing the number of battery
[[Page 57674]]
packs on vehicles despite customer demands or designing space saver
configurations, in some instances extending an already very limited
frame rail distance to incorporate the DEF tanks and SCR systems,
moving compressed air tanks inside the frame rails, redesigning fuel
tank configurations at significant cost, and otherwise working with
significant size and weight constraints to incorporate DEF tanks. EMA
notes that there are several factors that support the good engineering
judgment that underlies the recommended DEF refill intervals. The great
majority of heavy-duty engines produced will provide a range of vehicle
operation that is no less than twice the range of the vehicle's fuel
capacity; thus, the DEF tank size will provide at least double the
vehicle's operating range as provided by the fuel tank. EMA notes that
vehicle operators will generally refill DEF at the same time and
location that they refill the tanks; thus, these vehicles will already
be carrying twice as much DEF as the SCR system could ever consume
between refills.
EPA was provided with examples of the consequences of requiring
heavy-duty vehicles to accommodate a DEF refill interval of 5:1, and
the information provided to the Agency strongly suggested that great
compromises would be required in cost, weight and utility. Increased
tank sizes and weights on the magnitude of 150 to 325 lbs. would be
required and in some cases diesel fuel volumes would need to be
reduced. The extra weight associated with the DEF required to meet the
2:1 or 3:1 refill intervals (again, operators are expected to refill
the DEF and each diesel fuel refilling event) represents a significant
challenge to manufacturers seeking to meet both weight and size
requirements for their vehicle designs. EPA believes that in light of
the existing tight space constraints and the overall desire to maximize
cargo-carrying capacity to minimize emissions and meet consumer
operational demands, and the built-in DEF tank size buffer to insure
DEF refills, that the tank DEF tank sizes associated with the 2:1
refill and 3:1 intervals are technologically necessary. EPA believes
that requiring tank sizes above these ratios will cause increases in
space constraints and weight that would not be appropriate for these
vehicles. Similarly, manufacturers note that only a small number of
applications will employ the 1:1 refilling ratio and that such vehicle
applications have very limited vehicle space available to house surplus
DEF. Such applications (e.g., a garbage truck, concrete mixer, beverage
truck, or airport refueler) will also be refueled daily at central
locations. At approximately 0.134 ft\3\ per gallon, any extra DEF would
displace significant space available to vehicle components and
subsystems on both the vocational trucks at the 1:1 refill interval as
well as the 2:1 and 3:1 vehicles.
After reviewing this data and information, EPA believes that longer
refill intervals than those noted above would require larger and
heavier DEF tanks, and the design and engineering work performed by
manufacturers thus far indicate that the recommended DEF refill
intervals noted above approximate the maximum feasible maintenance
intervals associated with reasonable DEF tank sizes. The maintenance
intervals recommended ensure that the functions and operational
efficiency of such vehicles are not overly compromised. Based on this
information we believe the intervals noted above are warranted.
Therefore, EPA finds it appropriate to approve the DEF refill
intervals as requested by Volvo, Cummins, and for all heavy-duty engine
manufacturers that are represented by EMA. For any manufacturers of
heavy-duty engines that are not members of EMA that introduce heavy-
duty engines with SCR technology, such manufacturers would need to
request this schedule separately. EPA expects it would grant a similar
maintenance schedule based on the fact that SCR systems run in a
similar manner that would similarly implicate the maintenance interval
issues discussed above. In addition, to make use of the intervals noted
above, manufacturers must indicate their intention in the applications
for certification, including how the above requirements will be met.
The Agency has limited this approval to model years 2009 to 2011
due to the expectation that SCR-related technologies and the urea
infrastructure will continue to develop and mature, and EPA plans to
revisit this category of vehicles to determine appropriate future
intervals. Should manufacturers continue to believe that the identified
interval or other intervals are technologically necessary or otherwise
appropriate after the 2011 model year, we expect them to take this up
with the Agency in a timely manner.
EPA believes it important to note that while not a specific
criteria under paragraph (b)(7) of the regulations, there are a number
of factors helping to provide confidence that the DEF refill
maintenance intervals noted above are likely to be properly performed.
First, because DEF refills are considered ``critical emission-related
maintenance,'' manufacturers are ``required to show the reasonable
likelihood of such maintenance being performed in use.'' (See
Sec. Sec. 86.1834(b)(6)(ii) and 86.094-25(6)(ii)). A number of means
are available to make this showing, including a clearly displayed
visible signal system approved by the Administrator, or data is
presented which establishes for the Administrator a connection between
emissions and vehicle performance such that as emissions increase due
to lack of maintenance, vehicle performance will simultaneously
deteriorate to a point unacceptable for typical driving.
As discussed in EPA's Dear Manufacturer Letter of March 27, 2007
(``Certification Procedure for Light-Duty and Heavy-Duty Diesel
Vehicles and Heavy-Duty Diesel Engines Using Selective Catalyst
Reduction (SCR) Technologies'' reference number CISD-07-07 (LDV/LDT/
MDPV/HDV/HDE), an SCR system utilizing a reducing agent that needs to
be periodically replenished would meet the definition set forth in
Sec. Sec. 86.094-22(e)(1) and 86.1833-01(a)(1) and could be considered
an adjustable parameter by the Agency. The regulations establish the
requirements for determining the physically adjustable ranges of
parameters, and EPA issued non-binding guidance in the March 27, 2007
Dear Manufacturer Letter concerning the determination under the
regulations of whether operation without DEF is within the scope of
such range for the particular engine. SCR design and manufacturer-
submitted information in that context can be used to assure that the
DEF levels remain at proper ranges during the operation of the engine.
EPA plans to continue to work with manufacturers, based on their
individual design plans, during the certification process to ensure
that the adjustable parameter and allowable maintenance regulatory
provisions are met.
Dated: November 3, 2009.
Gina McCarthy,
Assistant Administrator, Office of Air and Radiation.
[FR Doc. E9-26924 Filed 11-6-09; 8:45 am]
BILLING CODE 6560-50-P