PROPOSED 2003 STATE AND FEDERAL STRATEGY FOR CALIFORNIA SIP

SECTION IV – LONG-TERM STRATEGY

-- REVISED --

PROPOSED 

2003 STATE AND FEDERAL STRATEGY FOR 

THE CALIFORNIA STATE IMPLEMENTATION PLAN

SECTION IV

LONG-TERM STRATEGY

Release Date: August 25, 2003

Hearing Date: September 24-25, 2003
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SECTION IV – LONG-TERM STRATEGY

TABLE OF CONTENTS

CHAPTER A. INTRODUCTION..............................................................................IV-1

1. Need for Long-Term Strategy......................................................................IV-1

2. Sources of Remaining Emissions in 2010...................................................IV-2

CHAPTER B. CONCEPTS FOR LONG-TERM MEASURES.................................IV-4

1. Possible State Approaches .........................................................................IV-4

2. Possible Federal Approaches ...................................................................IV-11

CHAPTER C. STATE IMPLEMENTATION PLAN COMMITMENTS....................IV-15

1. 2003 South Coast State Implementation Plan...........................................IV-15

2. Future State Implementation Plans ...........................................................IV-18
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Staff Contact List

Subject Contact Email Phone

South Coast Ozone SIP

Commitment Joe Calavita jcalavit@arb.ca.gov (916) 327-5783
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INTRODUCTION

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CHAPTER A. INTRODUCTION

The federal Clean Air Act (CAA) recognizes that extreme ozone nonattainment

areas, such as the South Coast, must rely on evolving technologies to meet attainment

goals. As such, CAA Section 182(e)(5) specifically authorizes the inclusion of long-term

measures that anticipate the development of new control techniques or improvement of

existing control technologies. When the San Joaquin Valley acts on its intended

request for reclassification as an extreme ozone area, it will also be eligible for these

long-term technology provisions.

 

This Section describes the concepts that the State will explore to reduce

emissions beyond the levels achievable with the proposed State defined measures, and

presents approaches the federal government could use to reduce the contribution from

sources under its control. It also includes a commitment to identify additional strategies

in a public process.

As part of the public process to develop new emission reduction strategies, ARB

staff also identified approaches that, although promising, face barriers to successful

implementation. Examples include strategies that could not be successful without

significant technological advances, improvements to reduce cost or increase costeffectiveness, or the securing of a dependable stream of financial incentives. 

ARB has a long-standing history of successfully adopting and implementing both

technology-advancing strategies and innovative emission control techniques. By

working closely with the regulated industry and research scientists, ARB staff have been

able to craft regulations that are stringent enough to compel technology development,

yet flexible enough to encourage industry innovations. Since 1998, the State has also

provided over $200 million in funding for innovative incentive programs to speed the

conversion to cleaner trucks, off-road equipment, agricultural irrigation pumps, and

harborcraft; another $50 million (from Proposition 40 funds) is earmarked for the next

two years. Although this funding is not permanent, it is helping to reduce nitrogen oxide

(NOx) and inhalable particulate matter (PM10) emissions, as well as demonstrate the

feasibility of retrofit technologies. 

1. Need for Long-Term Strategy

The defined State measures will provide sizeable benefits, but not enough to

meet existing SIP attainment needs in the South Coast and San Joaquin Valley. Both

of these areas, and perhaps others, will need significant additional emission reductions

beyond those we will realize with defined State measures. To meet our current

obligations under federal law, we must secure extensive further emission reductions

from long-term measures by 2010.

Other regions in California would also benefit from statewide long-term

strategies. In 1997, U.S. EPA promulgated tighter new federal air quality standards for
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INTRODUCTION

IV-2

eight-hour ozone and PM2.5. Almost half of the counties in California are anticipated to

be nonattainment for the eight-hour ozone standard. Based on preliminary air quality

monitoring data, the South Coast, San Joaquin Valley and some other urban areas are

also likely to be nonattainment for the federal PM2.5 standards. In addition, virtually all

areas of California do not meet ARB’s health-based ambient air quality standards.

Because a large proportion of the emissions contributing to California’s ozone and fine

particulate problems are from sources under State and federal authority, additional

measures to reduce the impact of cars, trucks and equipment will be critical to meeting

the new federal standards in the post-2010 timeframe. Achieving the more protective

standards will require substantial emission reductions beyond those needed to meet the

one-hour federal ozone standard. 

2. Sources Of Remaining Emissions In 2010

As a starting point for discussion of the long-term strategy, Figures IV-1 and IV-2

below illustrate where the remaining reactive organic gas (ROG) and NOx emissions

will be in the South Coast in 2010 if all of the defined State and local measures are

implemented. The figures assume that each defined control measure in this document

obtains the mid-range of estimated emission reductions. 

In the South Coast, and we anticipate the San Joaquin Valley as well, agencies

at all levels must deliver new reductions to help meet the federal one-hour ozone

standard by 2010. Mobile sources under the legal or practical control of the federal

government are an important contributor to California’s air quality problems. The

federal CAA directs U.S. EPA to continue reducing mobile source emissions that cause

or contribute to air pollution that endangers public health. The magnitude of the

additional reductions required to attain air quality standards necessitates that federal

government agencies with authority to control air pollution share responsibility for

reaching attainment targets.
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Light and Medium-Duty 

Vehicles

Marine Vessels

Aircraft

Locomotives

Other Local Sources

Industrial Processes

Industrial Fuel 

Combustion

Petroleum Marketing 

(including Vapor 

Recovery)

Pesticides

Solvent Evaporation

Consumer Products

Small Off-Road Engines

On-Road Heavy-Duty 

Vehicles

Off-Road Spark-Ignited 

Engines Off-Road Diesel Engines

Recreational Marine and 

Off-Road Rec Vehicles

Cleaning and Surface 

Coating

Figure IV-1: ROG Emissions Remaining After Near-Term Measures

South Coast 2010

575 tpd

Target: 310 tpd

On-Road Heavy-Duty 

Vehicles

Off-Road Diesel 

Engines

Aircraft

Locomotives

Other Local Sources

Industrial Processes

Industrial Fuel 

Combustion

Petroleum Marketing 

(including Vapor 

Recovery)

Light and Medium-Duty 

Vehicles

Small Off-Road Engines Off-Road Spark-Ignited 

Engines

Recreational Marine and 

Off-Road Rec Vehicles

Marine Vessels

Figure IV-2: NOx Emissions Remaining After Near-Term Measures

South Coast 2010

711 tpd

Target: 530 tpd
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CHAPTER B. CONCEPTS FOR LONG-TERM MEASURES

1. Possible State Approaches

Table IV-1 lists possible approaches as a starting point for development of the

long-term measures. ARB staff appreciates the fact that the possible measures

discussed in this Section may be highly speculative in today’s terms. Success may

depend on making significant technological advances, surmounting major

implementation barriers (including cost-effectiveness), and obtaining financial

incentives. And while some technologies may not be feasible until 2010 or later, a

continued focus on the state-of-the-art for different source categories can bring attention

and support to the need for increasingly lower-emitting activities. One of our goals is to

lay the groundwork now that will result in the development, commercialization, and use

of zero and near-zero emission technologies by 2010 and beyond. 

ARB intends to provide opportunities for the public to offer additional input on this

list – and as we develop the measures. The process will include an investigation of the

technical feasibility and timeframe for emission reduction techniques that may not be

currently available. The assessment will cover efforts to develop and commercialize

advanced and emerging technologies for new and in-use engines, as well as to

reformulate consumer products. The assessment will also determine the extent to

which emission reduction strategies such as market incentive programs, pollution

prevention, public education, and voluntary efforts can complement and enhance the

effectiveness of traditional control approaches. 

In addition to meeting the federal one-hour ozone standard, ARB staff believes

that the process we are proposing for this long-term strategy will also aid California’s

efforts to meet more health protective ozone and particulate matter standards, as well

as reduce regional haze and the State’s contribution to global climate change. 
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Table IV-1

Possible State Approaches for Long-Term Measures

In-Use

Light/MediumDuty Vehicles

■ Provide incentives for voluntary passenger vehicle

retirement

Smog Check Explore program expansion to increase benefits, including:

■ Expanded enhanced smog check

■ Opt-in to test-only program 

■ Replace rolling 30-year exemption with exemption of pre1975 vehicles

On-Road Heavy

Duty Vehicles

■ Provide incentives for cleaner trucks and buses, including

school buses 

Off-Road

Engines

■ Provide incentives for cleaner off-road vehicles and

equipment

Airports ■ Pursue approaches to reduce emissions from vehicles

traveling to and from airports

Locomotives ■ Pursue approaches to reduce emissions from in-use

locomotives

Diesel Engines ■ Set toxics standard for existing stationary diesel-fueled

engines

■ Set toxics standard for existing portable diesel engines

■ Set toxics standard for diesel-fueled refrigeration units

Fuels ■ Set sulfur/ash content limits for diesel engine lubricating oils

■ Support infrastructure for zero emission vehicles – electric,

fuel cell, hydrogen

Consumer

Products

■ Consider future consumer products regulations

Public

Education

Programs and

Outreach

■ Establish clean air labeling program

■ Continue Statewide energy conservation program

■ Consider Statewide public education campaign for air

quality

Pesticides ■ Explore approaches to further reduce volatile emissions

from pesticides based on regional need

We briefly describe each of these possible approaches in the following sections.
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Light- and Medium-Duty Vehicles

a. Incentives for Voluntary Accelerated Vehicle Retirement 

This proposal would expand the current Bureau of Automotive Repair (BAR)

vehicle retirement program for older vehicles that have failed Smog Check. The idea

would be to include vehicles that have passed their most recent Smog Check

inspection. By accepting only “passed” vehicles, this concept would avoid doublecounting emission reduction benefits from the BAR retirement and repair programs.

Emissions would be permanently retired from the air.

Smog Check Program

The benefits of the Smog Check program could be increased by expanding the

most effective elements of the program. 

b. Expanded Enhanced Smog Check

Currently, California has two types of Smog Check inspection tests, two-speed

idle and loaded-mode. The two-speed idle test measures hydrocarbon (HC) and carbon

monoxide (CO) emissions under idle conditions. The loaded-mode test uses a

treadmill-like device to measure NOx in addition to HC and CO. The loaded-mode test

better simulates real world driving conditions and is more adept at identifying failures in

new vehicles. With the implementation of loaded-mode testing and test-only stations

under the Enhanced Program in the Bay Area, more vehicles are subject to the most

stringent requirements. If loaded-mode testing were fully implemented, additional

emission reductions could be achieved. 

c. Allow Air Districts to Opt-In to Test-Only Program

Currently, for attainment areas, unclassified areas, moderate nonattainment

areas, and non-urbanized serious, severe, and extreme nonattainment areas, State law

allows air districts to request BAR to implement the Enhanced Smog Check program,

excluding the test-only requirement. Recently, several air districts chose to implement

the Enhanced Smog Check program in their areas. However, current law prohibits air

districts from opting into the test-only portion of the Enhanced Smog Check program. If

legislation authorizing air districts to also opt in to the test-only portion of the Enhanced

Smog Check program were passed, this Smog Check improvement option could

provide the air districts more in benefits than the Enhanced Smog Check program

without the test-only element.

d. Replace Rolling 30-Year Exemption With Exemption of Pre-1975

Vehicles 

Originally, the Smog Check inspection program applied to all 1966 and newer

gasoline vehicles. In 1997, the State Legislature modified the Smog Check program to
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exempt pre-1975 vehicles, and beginning in January 2003, to exempt motor vehicles

30 or more model-years old. Because older vehicles contribute a disproportionate

amount of emissions (despite their relatively low numbers and use), excluding these

older vehicles from the program reduced the effectiveness of the Smog Check program.

Replacing the 30-year rolling exemption with the exemption of pre-1975 vehicles would

achieve additional emission reductions in future years. In addition, these vehicles would

also be eligible for other BAR assistance programs such as vehicle retirement and

repair assistance. 

On-Road Heavy-Duty Vehicles 

e. Incentives for Cleaner Trucks and Buses, Including School Buses

For both on-road and off-road diesel engines, ongoing funding for incentive

programs such as the Carl Moyer Program and the Lower-Emission School Bus

Program would introduce cleaner technology and reduce in-use emissions. 

Additional reductions could be achieved with the installation of NOx retrofit

technologies such as selective catalytic reductions systems or NOx adsorbers – once

these or other NOx retrofit technologies are verified through the ARB’s Diesel Emission

Control Strategy Verification Procedure. Other long-term advanced technologies could

include the use of alternative diesel fuels, and the introduction of extremely low-emitting

alternative fuel engines and fuel cells for heavy-duty vehicles.

Off-Road Engines

f. Incentives for Cleaner Off-Road Vehicles and Equipment

The fleet of off-road combustion ignition engines is dominated by diesel engines

that are usually rebuilt two or three times over their long service lifetime. Providing

incentives to re-power older engines with cleaner, lower-emitting engines is one method

of providing near-term emission reductions from existing engines. Incentive programs

encourage equipment operators/owners to purchase equipment that meets emission

levels beyond any State, federal, or local requirements. Incentive programs also

encourage reduced emission technology and encourage introduction of new technology

into niche markets. Continual funding is critical for incentive programs to succeed. 

The concept behind this idea would be to replace, or otherwise upgrade, engines

in the existing fleet with lower-emitting engines. Specifically, the order of precedence

for the upgrade would be to bring as many pre-Tier 2 engines as possible into

compliance with the federal Tier 2 HC+NOx emission standards. For engines where

such an upgrade is demonstrated to be infeasible, compliance with Tier 1 emission

standards would instead be funded. It is estimated that approximately 85 percent of

existing Tier 1 engines and 50 percent of uncontrolled engines could be upgraded to

comply with the Tier 2 HC+NOx standards. It is also estimated that 80 percent of the

remaining uncontrolled engines could be made to meet the Tier 1 HC+NOx standards. 
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Replacement engines and/or upgrade kits would have to show compliance with

durability requirements. Options for reducing fleet emissions could include the use of

alternative fuel engines.

Incentive approaches to speed turnover to cleaner engines could be applied to

gas and diesel-powered engines used in other types of off-road vehicles and equipment

as well.

Airports

g. Pursue Approaches to Reduce Emissions from Vehicles Traveling To

and From Airports

Ground access vehicles move airport passengers, employees, and goods to,

from, and around the airport. These vehicles include private passenger vehicles, airport

shuttles, taxis, hotel shuttles, parking shuttles, cargo vehicles, and tenant and employee

vehicles.

Strategies to reduce emissions from ground access vehicles could take several

different forms because of the variety and ownership of the vehicles involved. Specific

ideas include reducing emissions from airport fleet vehicles using alternative fuels or

particulate diesel filters; providing an infrastructure for alternative fuel/electric vehicles

between airports and shuttle terminals; consolidating on-airport vehicle travel;

emissions-based airport entry fees for cabs and other shuttle vehicles; and increased

ground transportation options for both passenger-bound and employee commuting to

and from the airport.

Locomotives

h. In-Use Strategies for Locomotives

Because of the long life of locomotives, strategies to reduce emissions from the

in-use fleet are particularly important. There are a number of potentially viable control

techniques for locomotives including accelerating fleet turnover, reduced idling, retrofits,

and fuel changes. These types of strategies can be implemented through incentive

programs, regulations, voluntary actions, research projects, use of advanced

technology, fuel changes, and other methods.

Stationary and Portable Diesel Engines 

New controls to implement ARB’s Diesel Risk Reduction Plan may provide

additional ROG and/or NOx benefits if the retrofit technology reduces multiple pollutants

or a compliance strategy includes accelerated replacement with cleaner engines.

Because these measures are still being developed for stationary and portable engines

under the airborne toxic control measure provisions in State law, we did not include the

potential ancillary ROG or NOx reductions in ARB’s near-term ozone reduction strategy. 
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Several measures are scheduled for Board consideration in late 2003. Once the

measures to reduce diesel PM from these sources have been adopted and the emission

reductions are enforceable, ARB would claim any associated reductions in other

pollutants against its SIP commitments.

i. Set Toxics Standard for Existing Stationary Diesel-Fueled Engines

ARB staff will propose an airborne toxic control measure (ATCM) to address

stationary diesel-fueled engines to the Board in October 2003. The ATCM is expected

to achieve modest ROG reductions. We will take SIP credit for these reductions, as

appropriate.

j. Set Toxics Standard for Existing Portable Diesel Engines

ARB staff would assess retrofit technologies for portable diesel engines whose

application does not allow for electrification. This could include requiring these engines

to be retrofitted to meet emission standards equivalent to Tier IV standards for off-road

diesel engines.

k. Set Toxics Standard for Diesel-Fueled Refrigeration Units

Transport refrigeration units (TRU) are refrigeration systems powered by diesel

engines designed to refrigerate temperature-sensitive products that are transported by

semi-trailer vans, truck vans, shipping containers, and rail cars. In addition, shipping

containers with temperature-sensitive cargo use electrically-driven refrigeration

systems. These systems are plugged into ship power when at sea, but when these

containers are transported on land, a diesel-powered generator (TRU gen set) is

typically attached to the container to power the refrigeration system.

ARB staff is developing regulations to address emissions from existing TRUs and

TRU gen sets. In addition, U.S. EPA has proposed new engine emission standards

(which ARB will adopt) that will provide cleaner engines for new TRUs and TRU gen

sets. 

Fuels

l. Set Sulfur/Ash Content Limits for Diesel Engine Lubricating Oils

This idea would look at the effect on diesel after-treatment technology from limits

on sulfur concentration and/or ash content in diesel engine lubricating oil.

In addition to diesel fuel, engine lubricating oil is a source of sulfur and other

constituents potentially harmful to after-treatment control technologies essential to

achieving emission reductions. Diesel engines are designed to consume some

amounts of engine lubricating oils that are burned along with the fuel. Depending on the
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amount of oil consumed and the level of sulfur and other constituents, the oil consumed

can adversely affect the after-treatment controls. Also, lubricating oils can contribute to

increased engine-out emissions of sulfur. The significance of engine lubricating oils’

contribution to engine-out emissions is not known, but current research efforts are

investigating this concern.

If the current research efforts indicate that regulatory action is appropriate, then

the concentration of sulfur and/or ash content of diesel engine lubricating oils could be

limited for both on-road and off-road vehicles. This would minimize emissions increases

by curtailing deterioration rates of the control technology.

Consumer Products

m. Future Consumer Products Regulations

This idea would focus on additional zero and near-zero technologies that could

replace volatile compounds. Additional ideas could include the substitution of reactivitybased strategies for products to reduce ozone-forming emissions. 

n. Explore Approaches to Further Reduce Volatile Emissions from

Pesticides Based on Regional Need 

This concept would seek to achieve additional ROG reductions from pesticides,

beyond those identified in the existing SIP commitment, for areas with a demonstrated

regional need for such benefits. In the development of the San Joaquin Valley Ozone

SIP, the Department of Pesticide Regulation (DPR) is taking the lead in working with

interested stakeholders to determine how pesticide emissions can be further reduced by

the attainment deadline. 

Public Education Programs and Outreach

o. Establish Clean Air Labeling Program

This idea focuses on encouraging consumer purchases of clean products is

through a “clean air labeling” program. Such a program would focus and publicize

products that emit substantially below any applicable emission standards, or products

that have zero or near-zero emissions. 

p. Continue Statewide Energy Conservation Program

The focus of this concept would be to pursue ideas that would result in continued

and expanded public and private energy conservation and efficiency programs. In

2001, the State conducted an electricity conservation campaign to avoid rolling

blackouts. The campaign achieved a 6.7 percent reduction in electricity consumption

and a 10 percent decrease in the number of peak hours, compared to the summer of

2000. Several State agencies made special efforts to promote energy conservation. In
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the summer of 2001, the Public Utilities Commission programs cost $209 million and

conserved 238 megawatts (MW). The California Energy Commission spent $362

million on its peak load reduction programs and saved 454 MW. 

q. Consider Statewide Public Education Campaign for Air Quality

This concept would involve the establishment of a statewide public education

campaign to reduce air pollution. The concept could include ideas to engage the public

through (1) public education that more clearly connects voluntary clean air actions with

public health benefits, and (2) increasing awareness of available low-emitting consumer

products, paints, vehicles, lawn equipment, and recreational vehicles licensed to use

clean air “green” labels.

2. Possible Federal Approaches

Like State and local agencies, the federal government has a responsibility to

further control emissions in response to the contribution from sources under its

jurisdiction. 

U.S. EPA and ARB are continuing to coordinate on future rulemaking, including

three on-going efforts described below. First, U.S. EPA is developing more stringent

emission standards for new off-road diesel equipment based on the transfer of emission

control technology for on-road engines. These benefits will be critical in the post-2010

timeframe to both offset growth and make progress toward the new, more stringent

federal standards. Second, U.S. EPA has proposed to phase in the use of lower sulfur

diesel fuel in off-road applications nationwide. Diesel fuel with a 15 parts per million

(ppm) sulfur level would support the use of more sophisticated control technology for all

types of off-road diesel engines. Third, U.S. EPA is working in parallel with California to

develop on-board diagnostics and to strengthen manufacturers’ in-use testing to ensure

that new heavy trucks and buses maintain expected emission levels throughout their

useful lives.

We expect that U.S. EPA and other federal agencies will secure further

reductions, and that the federal government may consider a mix of regulatory programs,

incentives or other agreements to achieve reductions. 

As part of the evaluation of long-term strategies under our authority, we also

identified possible federal emission reduction approaches. Accordingly, ARB staff is

including concepts in this document that the federal government could consider. Longterm strategies for new engines in locomotives, ocean-going ships, harbor craft, and

commercial and non-tactical military aircraft are a feasible and effective means to cut

emissions and will be critical to make progress toward all of the national air quality

standards. Because of the extended life of these engines, we believe the long-term

strategy will need to rely heavily on programs to replace existing engines with cleaner

models or to add emission control equipment. Given the volume of equipment in
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operation and the public health impact of the emissions, it is important that U.S. EPA

and its federal partners take early action in this regard. 

Table IV-2 lists some possible concepts that we urge the federal government to

pursue. This list reflects ARB staff’s assessment of current technology. As technology

advances, this list could be expanded. In addition, the federal government could

provide economic incentives to accelerate clean up of diesel engines, especially those

used in school buses and farm operations. 

Table IV-2

Concepts for Federal Action

On-Board Diagnostics for New Truck/Bus Fleet and In-Use Testing for Existing 

Truck/Bus Fleet

Lower Emission Standards for New Off-Road Compression Ignition Engines 

Low-Sulfur Standards for Diesel Fuel for Off-Road Equipment, Locomotives, and 

Marine Vessels

More Stringent Emission Standards for New Harbor Craft and Ocean-Going Ships

Clean Up the Existing Ocean-Going Ship Fleet through Approaches such as Cleaner

Fuels, Incentives for Cleaner Ships, Smoke (Opacity) Limits

Reduce Emissions from Jet Aircraft through Approaches such as More Stringent Engine

Standards, Retrofit Controls, Cleaner Fuel, and Applying Standards to Non-Tactical

Military Aircraft

More Stringent Emission Standards for New and Remanufactured Locomotive Engines

Incentives to Accelerate Clean Up of Existing Diesel Engines

A short description of each concept is provided on the following pages. Many of

these concepts are described in detail under the applicable source category in

Section II.

a. On-Board Diagnostics for New Trucks and Buses

On-board diagnostic (OBD) systems ensure that the sophisticated emission

control devices needed to meet emission standards are working. The OBD systems

currently installed on heavy-duty diesel vehicles are designed primarily to detect gross

failures. ARB staff is working closely with U.S. EPA on an OBD program for heavy-duty

engines and vehicles. The comprehensive OBD system would alert the vehicle

operator of the malfunction through a dashboard light. As with light-duty vehicles, an

OBD system for heavy-duty vehicles would likely not require the addition of many new

sensors or components. Instead, the OBD system would consist primarily of software in

the existing on-board computer and will use many of the existing engine and emission

control sensors. 
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b. In-Use Testing for Existing Trucks and Buses

This concept would require manufacturers of heavy-duty diesel engines to test a

specific number of engines per engine family by procuring and testing in-use vehicles at

various mileage intervals. This is similar to the in-use testing requirements already in

place for light-duty vehicle manufacturers. The responsibility for procuring and testing

the vehicles would rest with the engine manufacturers, not with the U.S. EPA. ARB is

working closely with U.S. EPA to develop this measure.

c. Lower Emission Standards for New Off-Road Diesel Engines

Most diesel (compression-ignition) engines are currently regulated, but can meet

more stringent emission standards with the incorporation of advanced technology into

the engines. ARB is working closely with U.S. EPA to establish nationwide lower

emission standards for off-road diesel engines. U.S. EPA’s current proposal calls for

tighter PM10 standards beginning in 2011 and tighter NOx standards beginning in 2012. 

d. Low-Sulfur Diesel Fuel for Off-Road Engines

Although U.S. EPA has a rule requiring low-sulfur diesel fuel in on-road vehicles

nationwide starting in 2006, it has not yet set low-sulfur diesel fuel requirements for offroad engines. U.S. EPA has proposed to require 15 ppm sulfur diesel fuel for landbased off-road engines nationally by 2010 and sought comment on extending the

requirement to locomotives and marine vessels. Broad national standards for 15 ppm

sulfur diesel fuel should apply to every type of off-road diesel engine by 2010 or earlier.

This would cut emissions directly and enable advanced control technology on both new

and existing diesel engines in all applications. 

e. Emission Standards for New Harbor Craft and Ocean-Going Ships

The International Maritime Organization (IMO) and the U.S. EPA have adopted

exhaust emission standards for new marine diesel engines. However, the current

standards do not achieve the maximum possible emission reductions with available

emission control technology. U.S. EPA could achieve additional emission reductions by

1) pursuing more stringent IMO standards for all commercial marine vessels over

130 kilowatt (kW), 2) adopting more stringent U.S. EPA standards for harbor craft over

37 kW and 3) adopting new U.S. EPA standards for U.S. and foreign-flagged oceangoing ships. 

f. Clean Up the Existing Ocean-Going Ship Fleet

Because of the long-life of marine engines, reducing emissions from the in-use

fleet can have significant emission benefits. U.S. EPA could reduce emissions from inuse marine vessels by implementing strategies such as operational controls, requiring
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the use of cleaner fuels, implementing incentive programs to encourage cleaner

vessels, setting opacity limits, and providing for the use of electrical power for hotelling. 

g. Lower Emission Standards for New and Remanufactured

Locomotives

Requiring even more stringent locomotive emission standards would encourage

improvements in locomotive engine technology, further reducing emissions and health

risks nationwide. In its proposal for tighter land-based off-road engine standards,

U.S. EPA indicated that it is considering lower emission standards for new and

remanufactured locomotive engines in the post-2010 timeframe. 

h. Reduce Emissions from Jet Aircraft

The options for reducing emissions from jet aircraft include lower emission

standards for aircraft engines, installing engine emission retrofit kits, reformulating jet

fuel, and applying commercial aircraft engine standards to non-tactical military aircraft.

Some of these approaches would require new technology and considerable investments

in research and development funding by the National Aeronautics and Space

Administration, airframe manufacturers and jet aircraft engine manufacturers. 

i. Incentives to Accelerate Clean Up of Existing Diesel Engines

The federal government could provide economic incentives to accelerate clean

up of diesel engines, especially those used in school buses and farm operations. This

approach could reduce the risk from toxic diesel particulate emissions, as well as

emissions that contribute to ozone formation. 
PROPOSED 2003 STATE AND FEDERAL STRATEGY FOR CALIFORNIA SIP

SECTION IV – LONG-TERM STRATEGY

STATE IMPLEMENTATION PLAN COMMITMENTS

IV-15

CHAPTER C. STATE IMPLEMENTATION PLAN COMMITMENTS

1. 2003 South Coast State Implementation Plan

This chapter provides additional information about the proposed State long-term

commitment for the South Coast (contained in Section I.D.1), including further

discussion of ARB staff’s approach and expectations for development of the long-term

strategy.

The federal CAA recognizes that extreme ozone nonattainment areas, such as

the South Coast, must rely on evolving technologies to meet attainment goals.

Consistent with section 182(e)(5) of the Act, prior SIPs for South Coast have included a

long-term commitment to achieve the last increment of emission reductions, with the

remaining measures to be defined by 2007. 

The approved 1999 South Coast SIP included commitments for long-term State

and federal measures approved under section 182(e)(5). ARB adopted its defined longterm measures, including the Low Emission Vehicles II and Heavy-Duty Diesel

Off-Road standards earlier than anticipated in the SIP. ARB has already satisfied its

existing long-term commitment to reduce NOx, but not ROG. 

The new SIP shows a need for much greater emission reductions than the 1999

SIP for two reasons: (1) improved mobile estimates raise the emissions starting point in

the 1997 baseline and (2) the Plan uses a more severe modeling episode that lowers

the ROG target by 100 tpd. 

After accounting for the anticipated benefits of both adopted and new near-term

defined State and local measures, the 2003 SIP demonstrates a need for another

265 tpd ROG reductions and 181 tpd NOx reductions from long-term measures. This

represents 30 percent of the total reductions needed by 2010. We believe that this gap

can be bridged through a cooperative effort by the local, State and federal agencies

responsible for specific emission sources. This effort should focus on how to most

effectively achieve the additional reductions, considering the availability and cost of

potential controls. As the State agency charged with ensuring California’s SIP

compliance, ARB is ultimately responsible for ensuring the necessary measures are

identified by 2007 and the emission reductions achieved by 2010.

We propose that ARB lead a multi-agency (State, federal, local) effort with the

public to assess potential control concepts for every type of emission source and

develop the full scope of strategies needed to achieve these reductions. In this report,

we identify potential concepts to explore for the long-term measures. We have also

received suggestions from others. In early 2004, ARB staff plans to initiate a public

process to solicit further ideas for development of the long-term measures. 

ARB staff will work with in partnership with the South Coast Air Quality

Management District (District), U.S. EPA, the Southern California Association of
PROPOSED 2003 STATE AND FEDERAL STRATEGY FOR CALIFORNIA SIP

SECTION IV – LONG-TERM STRATEGY

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IV-16

Governments (SCAG), and the public to assess potential emission reduction concepts

to meet the long-term commitments via regulatory programs as well as innovative

approaches such as incentives, voluntary programs, episodic controls, and other

actions. Every type of emission source – mobile, stationary, and area – as well as new

and existing -- will need to be evaluated to determine the remaining emissions in the

attainment year, and the possibility for further emission reductions. 

This effort will rely heavily on input and feedback from interested stakeholders.

The public’s participation will be important both in identifying potential emission

reduction concepts and developing approaches to achieve those emission reductions in

practice. The support of stakeholders in crafting ways to overcome implementation

barriers and providing assistance to ultimately obtain the emission reductions will be a

key component to meeting the long-term commitment. 

Special attention will be given to achieving reductions from in-use on-road and

off-road mobile sources because of the extended life of these sources. For airports,

ports, and rail yards, the agencies will consider facility-based approaches to reduce

overall emissions. For these types of sources, a comprehensive approach may be the

most effective way to reduce emissions of ozone and fine particulate precursors, as well

as address community health concerns. 

We expect that U.S. EPA and other federal agencies will pursue new

requirements for national and international sources, and complement them with financial

incentives to speed turnover of the diesel fleet to cleaner engines. ARB also expects

that the District will actively participate in the technical and regulatory processes to

identify and adopt all feasible, cost-effective measures needed for attainment, including

actions beyond the District’s commitments for near-term and long-term measures.

Finally, we expect that SCAG will work with ARB and the District to identify how

transportation decisions can support further emission reductions through direct funding

of cleaner engine projects or through programs to reduce the rate of growth in vehicle

travel. 

The District assigned responsibility for long-term emission reductions by agency.

The District committed to 31 tpd ROG reductions from long-term measures and

assigned the remaining 234 tons of ROG and all 181 tons of NOx reductions to be

achieved by ARB and U.S. EPA. We view this as a placeholder between now and

2007, when the long-term measures must be defined. Until that process is complete,

the relative long-term emission reduction split among agencies can’t realistically be

defined. Nonetheless, it’s clear that ARB, U.S. EPA, the District and local government

need to obtain additional reductions and we acknowledge ARB’s responsibility to ensure

that measures to achieve those reductions are ultimately identified and implemented.

We believe that all agencies must actively seek to identify additional costeffective control strategies to achieve the maximum feasible reductions from all source

categories. Part of this evaluation will include a discussion of which agency or agencies

can most effectively obtain the emission reductions in practice. We expect that the
PROPOSED 2003 STATE AND FEDERAL STRATEGY FOR CALIFORNIA SIP

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IV-17

appropriate agency will begin development as soon as practicable. Once all of the

specific long-term measures are identified, the resulting reductions to be achieved by

each agency may be different than envisioned by the District. 

To reconcile the District’s adopted strategy with ARB staff’s recommendations,

we propose that: (1) the Board approve the local air district commitment for 31 tpd

ROG reductions and the targets for the federal government of 18 tpd ROG and 68 tpd

NOx reductions, and (2) the State assume overall responsibility to assure that measures

are identified by 2007 and implemented by 2010 to achieve the remaining 216 tpd ROG

and 113 tpd NOx reductions needed for ozone attainment in the South Coast. 

If U.S. EPA does not agree to carry out its legal responsibility for new emission

reductions, the District adopted a backstop approach to relax the region’s NOx control

target by a corresponding 68 tpd. Because stringent NOx control is essential for

addressing the health threat from fine particulate pollution, ARB staff is proposing that

the Board allow the federal reductions of 18 tpd ROG and 68 tpd NOx to be added to

the overall State long-term commitment if needed, with no modifications to the control

target at this time. As part of the process of developing the long-term measures, we

continue to use every possible means to press our federal counterparts to act where the

State and local air agencies cannot. Table IV-3 shows the resulting range of reductions

that would be addressed by the proposed State long-term strategy.

By 2007, the District and ARB will prepare a revision to the Ozone SIP that:

(1) reflects any modifications to the 2010 emission reduction target based on updated

science, and (2) identifies the additional strategies, including the implementing

agencies, needed to achieve the necessary emissions reductions by 2010. If the

specific measures developed to satisfy the long-term obligation affect on-road motor

vehicle emissions, we will work with the District and SCAG to revise the transportation

conformity budgets accordingly. This schedule would harmonize with the anticipated

requirement to submit SIPs in 2007 to attain the federal eight-hour ozone standard and

the fine particulate matter standards in the post-2010 timeframe. 

Table IV-3

Proposed State Long-Term Strategy

South Coast 2003 Ozone SIP

(tons per day)

Expected Reductions

(South Coast 2010) Strategy

(Agency) Name

Final

Action

Date

Implementation

Date ROG NOx

 LONGTERM

(ARB)

Lead Multi-Agency Effort

(State, federal, and local) and

Public Process Beginning in

2004 to Identify and Adopt

Long-Term Measures

2007-

2009 2010 216-234 113-181
PROPOSED 2003 STATE AND FEDERAL STRATEGY FOR CALIFORNIA SIP

SECTION IV – LONG-TERM STRATEGY

STATE IMPLEMENTATION PLAN COMMITMENTS

IV-18

2. Future State Implementation Plans

If other regions of California are reclassified to extreme and develop attainment

SIPs that require long-term strategies, ARB will work with each region to identify any

additional measures that are needed based on the nature of the problems in a particular

region.