### Donaldson , Rober t (DEP ) Sent : To : Cc : Subject : From : Nanc y Wasserma n [nwass@ADELPHIA.NET ] Wednesday , Jun e 30 , 200 4 1:0 0 P M Donaldson , Robert (DEP ) Ti m Maker ; To m Miles ; Fre d Heye s Comment s o n Engin e Reg s

BER C comments - Mass . engin e r.. . Bob , Her e ar e th e comment s fro mBERC . Thank s fo r you r assistanc e an d th e opportunit yt o sen d comments ! Nanc y *************** * Nanc yWasserman , Consultan t Biomas s Energ yResourc e Cente r (BERC ) P O Bo x 161 1 Montpelier , V

T 0560 1 Direc t lin e - 80 2 229-809 6 Fa x - 80 2 223-777 2 BER C - 80 2 223-777 0 nwassOadelphia.ne t

1BIOMAS S ENERG Y RESOURC E CENTE R

Jun e 30,200 4

SEN T vi aFA X & e-mai l Mr . Rober

t T . Donaldson , Associat

e Directo r Busines s Complianc e Divisio n Burea u o f Wast e Preventio n Departmen

t o f Environmental Protectio n On e Winter St . 8 t hfloo r Boston , M A 0210 8 RE : Propose

d Regulation s o n Engine s an d Combustio n Turbine s Dea r Bob : Than k yo u fo r the opportunit

y to commen

t o n th e proposed Regulation s pertainin g to Engine s an d Combustio n Turbines . Th e Biomas s Energy Resource Center s comment

s ar e attached . I f yo u nee d clarificatio n o n an

y o f ou r comments , w e woul dbe happ y t o assist . Sincerely ,

Nanc y Wasserma

n Consultan

t

Enc .

P.O . BO X 1611 , MONTPELIER , VERMON T 05601 ; phone : 8C2-223-7770 , fax : 802-223-7772

, wWW.BIOMASSCENTER.OR G

# I

PUBLI C COMMENT S

o n Commonwealt

h o f Massachusett

s Propose d Regulations o

n Engine s and Combustion Turbine s Ma y 200 4 Background Th e Biomas s Energy Resource Cente r (BERC ) i s anonprofi t

organizatio n wit h amissio n o f developin g energ

y project s tha

t us e sustainabl

e biomas s resource s fo r

environmenta

l benefi t an d local economi

c development . BERC ha s championed numerou s small-scale woo d heating installations , th

e developmen

t o f methan e digesters an

d i s currentl y workin g o n developin g wood-heating installation s i n school s aroun d th e country , biomass-fuele d distric t heatin g system

s an d smaller-scale (5 0 kW e t o 1 MW ) biomas s combine d hea t an d powe r projects , primaril y i n Ne w England . W

e ar e currentl y involve d wit h anumbe r o f project s designe

d t o demonstrat

e th e viabilit y o f

small-scale woo d gasifier s fo r combine d hea

t and powe

r generation . Initially , th

e biogas produced wil l b e use d i n adual-fue l generato

r se t fo r powe r production . A s th

e technolog y become s commerciall y available , BERC expect s biogas to be use

d i n generato

r set s certifie d fo r

bioga s and/o

r microturbines . Balancin g Publi c Benefit s an d Cost s BER C i s firmly i n suppor

t o f th e state d purpose s o f

th e RA P Mode l Rul e - specificall y t o regulat e th e emission s o f

certai n ai r

pollutant s fromdistribute d generation facilitie s an d to streamline th

e regulator

y an d administrativ e requirement s fo r sitin g these units . I n additio n to these publi c healt

h an d administrativ e efficienc y benefits , BERC an d th e biomas s energ

y project s i t

champion s suppor

t ahos t o f othe r publi c polic y goals . These benefit s include : • energ y securit y throug h the us

e o f locally-produce d fuels ; • increase

d use o f clean , efficien t

an d economica

l distribute d generation system s thereby reducin g th

e nee d fo r new powe

r plan t construction ; • developmen

t o f renewable generatin

g an d heatin g capacity ; • enhance

d fores t healt h throug h th

e provisio n o f

amarke t fo r low-grad e wood ; • wast e reductio n throug h th

e us e o f woo d industr

y byproducts ; • improve d energy efficienc y an d reduce d emission s resultin g fromus e o f biomas s i n combined hea

t an d powe r (CHP ) applications ; • reduce

d transportatio n fue l consumptio n du e t o lowe r

distance s require d fo r

transpor t o f woo d chips ; • communit

y economic developmen

t throug h the retentio n o f

energ y dollars , ne

w jo b creatio n an

d increased ta

x revenues ;

BIOMAS S ENERG Y RESOURC E CENTE R

P.O . BO X 1611 , MONTPELIER, VERMON T 05601 ; phone : 802-223-7770 , fax : 802-223-7772

, wW3IOMASSCENTER.OR GBERC Comment s o n Propose

d Massachusett

s Engin e Regulation s Pag e 3 o f 6

• reductio n o f

greenhouse ga

s productio n du

e to th e us e o f carbon-neutra

l fuel s Applyin g th

e stric t emission s requirement s propose d b y th e RA P Mode l Rul e an

d repeate d i n these draf

t regulation s withou t

consideratio n o f

an y othe r publi c benefits , effectivel y dictate s polic y base

d o n apubli c healt

h standard . Thi s requiremen t trump s al l othe

r potentia l publi c benefit s an

d an y consideratio n o f

th e costs , bot

h economic an

d social , o f

th e propose d solution . Whil e we recognize th

e importanc e o f

publi c health , w e questio n th e validit y o f

regulation s tha

t dictat e condition s whic h superced e al l othe r potential publi c benefit s includin g goal s extolle d b y othe r publi c entities . W

e believ e tha

t th e balancin g o f

thes e publi c benefit s an

d cost s nee d t o b e resolve d through Legislativ e actio n no t throug h th

e regulator

y proces s o f

asingle agency . Emissio n Target

s Th e emission s targets fo r

CO , NO x an

d C0 2 i n th

e draf t regulatio n ar

e base d on optimu m condition s wit h th

e cleanest o f fossi l fuels . Th

e NO x targets ar

e substantially belo w existin g emission s factor s fo r

uncontrolle d diesel industrial engine s a s publishe d i n th

e AP-42. 1 Whil e w e recognize tha

t user s o f bioga s ma

y file aComprehensive Pla n Application , w

e ar e concerne d tha t th e targets wil l preclud

e an y us e o f biogas i n a

n engine . Currently , ther e i s littl e existin g emission s dat

ao n th e use o f biogas . I n Europe , wher e muc h o f the biogas developmen

t ha s take n place , ther

e ar e no established regulation s fo r th e use o f bioga s i n stationar

y engines . Furthermore , ther

e i s no bod

y o f referenc e emission s dat

abecause o f

th e differen t

kind s an d size s o f technologie s tha

t ar e bein g tested . Demonstration s i n Europ e an d Indi ahav

e show n u s tha t C O emission s ar

e highe r when firing produce r ga s fromwoo d tha

n wit h othe

r gaseou s fuels . Thi s i s becaus

e engin e emission s ar

e mostl y frominefficiencie s i n combustion : produce r ga s ha s ahig h proportio n o f

CO , an d engine s designe d fo r diese l or ga s have no t

bee n optimize d fo r

produce r ga s o r dua l fuel . Th e ter mdua l fue l fo r produce r ga s usuall y refer s t o th

e combined firing o f

diesel wit h produce

r gas . Ou r colleague s workin g t o develo p biomas s gasificatio n system s hav e compile d som

e preliminar

y dat ao n engin

e emissions . Initia l result s sugges t tha t th e us e o f biogas i n a

n engin e compare s positivel y i n term s o f NO x emission s wit h th

e us e o f natura l ga s o r diesel . Nonetheless , th

e emission s stil l fall s far

shor t o f th e proposed targets fo r

al l type s o f

emissions . I n fact , conventiona

l technolog y does no t

currentl y exis t

tha t ca n mee t th e propose d emission targets (eve

n usin g currentl y availabl e advance d microturbines) . Impedin g th

e Developmen

t o f Alternativ e Fuel s A variet y o f comment s o n the RA P Mode l Rule , th e proposed regulation s an d simila r regulation s i n othe r states hav

e indicate d th

e difficult y o f

meetin g th

e emission targets withi n th e propose d timeframe . Whil e th

e Mode l Rul e professe s to b e fue l neutral , the onl y wa y to currentl y mee

t th e proposed emission s standards i s b y usin g natura l ga s i n ne w engine s and/o

r installin g after

1 AP-42 , Fift h Edition , Volume I Chapte r 3 : Stationar

y Internal Combustio n Sources p . 3.3- 6 availabl e a t http://www.epa . gov/ttn/chiefyap42/chQ3/final/c0 3 s0 3 .pdf .BERC Comment s o n Propose

d Massachusett

s Engin e Regulation s Pag e 4 o f 6 marke t treatmen t devices . Th

e emission limitation s proposed fo r 200 8 an d beyond excee

d currentl y demonstrate

d technology . BER

C i s particularl y concerne d abou t th e unintended consequences these standards coul d hav e o n th e developmen

t an d deploymen

t o f ne w fuel s an

d cleane r technologies . Engine manufacturer s ar

e alread y reluctan

t to certif y performanc e o n an

y non-standar

d fuel . Mos t wil l no t include alternativ e fuel s i n thei r recommende

d operating an

d maintenance procedures . Furthermore , man y manufacture

r specificall y voi dtheir

warrantie s i f

a n operato r use s anon-standar

d fuel . Operator

s ar e therefor e reluctan t to use alternativ e fuel s i n engine s stil l covered b y warranty . Give n th e investmen

t associate d wit h these assets , man

y user s o f alternativ e fuel s star

t performanc e an

d othe r testin g i n ause

d engine . Thi s include s fuelin g wit h biodiesel , landfil l gas , digeste r gas , woo d gas , bio-oil , o r an y numbe r o f conventional/alternativ e blends . Onc

e th e operato r ha s confidenc e i n th

e fue l an d it s performance , they thin k abou t upgradin g th

e engine . Th

e mos t likel y innovator s willin g to tes t these fuel s ar

e industrie s operatin g engine s rate d a t 5 0 k W t o 30

0 kW . Whil e the proposed regulation s allo w user s o f variou s biofuel s to submit atraditional applicatio n fo r review , BER

C believe s tha

t th e adde d administrativ e burde

n combine d wit h th

e requiremen

t fo r Best Availabl e Contro l Technology an d publishe d emissio n standard s wil l inhibi t

potential user

s o f alternativ e fuels . BERC encourage s th

e developmen

t o f aprovisio n tha

t provide s fo r

tria l period s fo r

th e us e o f renewable fuel s an

d avarianc e proces s tha

t allow s fo r

flexibility . Us e o f Biofuel s The proposed regulation s (31 0 CM R7.26(43)(a)2 ) permi t user s o f unit s burnin g landfill , digeste r o r othe r biogas t o file aComprehensiv e Pla n Applicatio n (CPA) . Whil e acknowledgin g th e administrativ e requirement s o f thi s provision , BER

C doe s appreciat

e th e inclusio n o f

thi s alternativ e proces s fo r

user s o f bioga s o n it s ow n or

i n combinatio n wit h fossi l fuels . BER C ha s foun d tha t commerciall y acceptabl

e performanc e i n som

e application s wil l requir

e bioga s to be combine d wit h fossi l fuels . Th e CP A proces s provide s amechanismt o insur e appropriat

e oversigh t o f these users . W

e woul drecommen

d tha t thi s provisio n b e extende d t o user s o f an y typ e o f biofuel . Biodiese l an

d Diese l Blend s The proposed regulatio n shoul d no t preclud e the use o f

biodiesel , biodiese l blend s or othe r biofuel s tha

t ca n b e use d i n diesel engine s a

s lon g a s the y mee

t th e EP A sulfu r limits . I t appear s tha t th e language o f

th e background documen

t suggest s tha t onl y ultra-lo w sulfu r

diese l (ULSD ) ca n satisf y th e diesel fue l requiremen

t whil e th e actua l language o f

th e proposed regulatio n appear s t o allo w fo r

mor e flexibility. An y informatio n produce d t o explai n these changes shoul d mak e i t clea r tha t biodiese l or

othe r biofuel s tha

t mee t the EP A standards ar

e acceptable . Inhibi t Upgrade s Th e regulation s requir

e conformanc e "prio r

to constructing , substantially reconstructing , alterin g or subsequentl

y operating " an

y emission uni t

includin g an

y internal combustio n engin e o f th eBERC Comment s o n Propose

d Massachusett

s Engine Regulation s Pag e 5 of 6 threshol d size . Operators ma y choose t o kee

p heavily-pollutin g engine s i n operatio n rathe r tha n trigger a n applicatio n a

s suggeste

d b y thes e regulation s throug h a n engin e overhaul , rebuilding , replacemen

t o r upgrade . A s a

n incentiv e t o encourag

e upgrades , BER

C recommends addin

g language tha

t 1 ) clarifie s you

r intent i n regard s to regula

r engin e overhauls ; an

d 2 ) reduce s o

r alleviate s th

e administrativ e proces s fo r an y applican

t wh o ca n demonstrat

e tha t th e improvemen

t wil l result

i n lowe r emission s a

t a n existin g installation . Furthermore , BER C recommends th

e additio n o f

language clarifyin g you

r inten t i n regards t o regula

r engin e overhauls . Carbon Dioxid e Emission s Th e regulatio n create s emission s limit s fo r CO2 . W e assum e tha t thi s i s du e t o concern s abou

t globa l warmin g du

e t o increase

d greenhous e gases , concern s whic h BER C shares . Woo d combustio n an

d th e use o f woo d ga s i n engine s result s i n ahighe r productio n o f

CO 2 pe r uni t o f hea t inpu t tha t fossi l fuels . However , biomas s i s recognize d b y most climat e actio n organization s a

s CO 2 neutra l i n regards t o greenhouse ga s emissions . Th

e carbo n cycl e i s a naturall y occurrin g system , wher e carbo n i s transported , i n variou s forms , throughout th e Earth' s natura l systems . Significan t

quantitie s o f

CO 2 ar e absorbe d b y plants throug h photosynthesi s an d release d throug h plant

respiratio n an

d decay. 2 Th

e threa t o f climat e chang e i s th e majo r reaso n wh y th e Worl dWildlife Fund an d th e Europea n Biomas s Industr

y (AEBIOM ) hav

e initiate d a blueprin t fo r achievin g 15 % o f

electricity productio n fro mbiomas s b y 2020 . A s th e Blueprin t states , "Biomas s i s acarbon-neutra l powe r source i n tha

t CO 2 absorbe d b y the ra

w materia l whil e growin g offset s tha t generate d durin g combustion." 3 BERC woul drecommend tha t an y engin e operatin g o n a

t leas t 20 % bioga s o

r othe r biofuels , a

s measure d annually base

d on output , b e exemp

t frommeeting th

e proposed CO

2 emission rates . Combine d Hea

t an d Powe r System s tha t provid e bot

h hea t an d powe r ar e significantl y mor

e efficien t

tha n thos e tha

t generat e onl y electrical power . For th e sam e fue l inpu t

an d th e sam e emissions , th

e amoun t o f useabl e energ y i s increased , thereby lowerin g th e pe r uni t emission s rat

e an d increasin g overal l efficiency . CH

P provide s on

e o f th e mos t easily achieve

d methods fo r

increasin g energ

y efficienc y fo r

al l fuel s an

d mos t technologies . Th

e mode l rul e recognized these environmenta l benefit s an

d provide d awell-thought ou t credi t fo r CH P facilities . Massachusett s shoul d d o likewise .

2Hadle y Centr e fo r Climat e Predictio n an

d Research : "Th

e carbon cycle : asimple explanation " http://www.met

office.gov.uk/research/hadleycentre/models/carbon_cvcle/intr o global.htm

l 3 Biopowe

r Switch , A Biomas s Blueprint t o Meet 15 % o f OECD Electricity Deman d b y 2020 , publishe d b y Worl d Wildlif e Fun d an d AEBIOM , p . 6 o f

8 , availabl e a

t http://www.panda.org/downloads/europe/biornassleaflet.pd f

1BER

C Comment

s o n Propose

d Massachusett

s Engin e Regulation s Applicabilit y an

d Economi c an

d Agricultura l Impact s Pag e 6 of 6

Th e regulation s reduc e th

e threshol d rat

e fo r regulatio n applicabilit

y fromapproximately 30

0 kW to emergenc

y installation s o f

3 7 kW an

d non-emergenc

y generator

s rate d a t 5 0 kW . Thi s standar d i s base d o n powe

r produced not

potential to emit

nor hour s o f operation . Th e Mode l Rul e was designe d to apply t o generator

s o f electri c power . Th

e proposed regulatio n applie s t o al l engines . I n additio n to peaking powe r productio n units , load shaving units , an d emergenc y generators , thi s include s unit s tha t produc e mechanica

l powe r to ru n pump s o

r operat e compressors . Whil e th e regulatio n does allo w man y o f these operators to fil e a Comprehensiv

e Pla n Applicatio n i n lie u o f

compliance , bot

h complianc e an

d th e alternativ e applicatio n proces s wil l creat e asignifican t

economic impact

o n al l operators wh o wer e previousl y exemp

t fromth e regulations . Thi s include s agricultural , forestr y an d industrial concern s operating pumps , compressor s or othe r stationar y mechanica

l engine s a

s wel l a s al l user s o f biogas fuels . Variance s Th e proposed regulation s shoul d hav e aprovisio n tha

t allow s fo r

variances , whe

n warranted , du

e to th e provisio n o f

significan t

othe r publi c benefits . Typ o Th e proposed amendmen

t to 31 0 CM R7.02(5)(a) 3 should referenc e 4 2 U.S.C . § 754 7 no t §7457 .