7b
PORT OF SEATTLE
MEMORANDUM
COMMISSION AGENDA Item No. 7b
STAFF BRIEFING Date of Meeting December 3, 2013
DATE: November 19, 2013
TO: Tay Yoshitani, Chief Executive Officer
FROM: Stephanie Jones Stebbins, Director Seaport Environmental and Planning
Janice Gedlund, Seaport Air Quality Program Manager
SUBJECT: Final Northwest Ports Clean Air Strategy 2013 Update
SYNOPSIS
Port staff will provide an overview of the final 2013 update ("Update") to the Northwest Ports
Clean Air Strategy ("Strategy"), following up on a briefing to Commission on June 25, 2013,
on the draft Strategy Update. The final version of the Update has been revised based on
comments received during the public review period in June-July 2013.
The Strategy, a voluntary, collaborative effort between the Ports of Seattle, Tacoma, and Metro
Vancouver (B.C.) was originally adopted in 2008. As a result, the Port implemented several
programs which led to successful achievement of the Strategy's 2010 performance measures,
including the At-Berth Clean Fuel program to incentivize the use of cleaner fuels, The Green
Gateway Partner Awards, the Clean Truck Program, which eliminated pre-1994 engine trucks
from the dray fleet, and exhaust control retrofits to cargo-handling equipment. These projects
contributed to the significant reductions in across-the-board air emissions from Port of Seattle
sources that were noted in the 2011 Puget Sound Maritime Air Emissions Inventory, such as
decrease of 27% in emissions of diesel particulate matter from a 2005 baseline. The 2013
Update includes establishment of additional reduction goals for diesel particulate matter
(DPM) and greenhouse gases (GHG); revised 2015 performance targets; establishment of 2020
performance targets; and an increased commitment to conduct pilot and demonstration
projects.
Commission consideration to adopt the Update is requested at its December 10, 2013, meeting.
BACKGROUND
The Port of Seattle, Port of Tacoma, and Port Metro Vancouver are continuing their
collaborative efforts on the Northwest Ports Clean Air Strategy to reduce maritime and portrelated
emissions from global marine trade and port operations in the Georgia BasinPuget
Sound airshed. In developing and implementing the 2007 Strategy and this 2013 Update, the
three ports partnered with government agencies including: Environment Canada and Metro
Vancouver in Canada, and the U.S. Environmental Protection Agency, Washington State
Department of Ecology, and Puget Sound Clean Air Agency. The port partners and
governmental agencies worked together between January 2012 and May 2013 to develop the
draft Update.
COMMISSION AGENDA
Tay Yoshitani, Chief Executive Officer
November 19, 2013
Page 2 of 11
Public Outreach on the Northwest Ports Clean Air Strategy 2013 Update
The Port conducted various stakeholder outreach efforts between September 2012 and May
2013 to get input on key elements of the Update. This included meetings with industrial
stakeholders such as trucking companies, truck drivers, cruise lines, container lines, and marine
terminal operators; as well as with community groups and the Seattle City Council.
On June 11, 2013, a public review draft of the Update was released. The Ports of Seattle and
Tacoma conducted a public comment period from June 11 through July 31, 2013. Port Metro
Vancouver posted the draft Update for public comment on June 21 and accepted comments
through August 9. Comments were accepted at open houses, in person, by mail, and online.
The Port of Seattle hosted two public meetings (on June 26 and June 27). During that time,
briefings on the Update were also given at a number of community council and neighborhood
association meetings.
The three ports received comments from 45 respondents. The Port of Seattle received 26 of
those comments, 20 of which focused on trucks.
The 45 comments covered:
Truck owners' inability to afford the price and maintenance of a 2007 or newer trucks,
especially in light of the reduced volume of cargo at the port.
Appreciation for the Port of Seattle's proposed truck scrapping incentive program; but
concern that the grant-funded project to provide incentives to scrap and replace 160
trucks does not help enough truck owners, and does not provide a high enough level of
financial assistance.
Concern regarding truck parking in Seattle neighborhoods.
Concern that the reduction goals should be absolute rather than per ton of cargo.
A need for a mandatory approach to emission reduction; and appreciation for aligning
some targets, such as for ocean-going vessels, with regulations and established, thirdparty
certification programs.
A need for greater financial support to meet the various targets.
Suggestion to increase focus on alternative fuels such as natural gas and hydrogen fuel
cells.
A suggestion to expand the scope of the strategy (e.g., fugitive emissions, noise).
Overall there was positive support of the Update and goals, and the pilot studies and
demonstration projects.
COMMISSION AGENDA
Tay Yoshitani, Chief Executive Officer
November 19, 2013
Page 3 of 11
Revisions Made to the Draft Northwest Ports Clean Air Strategy 2013 Update
The changes made following internal and public review of the document are listed below:
The goal of having 100% of trucks meet the 2007 emission standards by year end 2017
was retained. The interim goal of having 80% of trucks meet the 2007 emission
standards by year end 2015 was eliminated.
Actions and targets for clean construction standards for engines used on port-led
construction projects were clarified.
The goal and target due dates referring to the end of a stated year was clarified (i.e.
2015 target means December 31, 2015).
A statement was added to acknowledge that reduction of black carbon emissions, which
contribute to climate change, is a co-benefit of reducing diesel particulate matter
(DPM). Black carbon emissions have not been quantified in the ports' emission
inventories or in this Update.
A summary of the public review process and a summary of the key points made by
reviewers were added to the document.
Content of the Northwest Ports Clean Air Strategy 2013 Update
The basic objectives of the updated strategy remain the same and advance the harmonized
approach of improving air quality and reducing maritime impacts to public health and the
environment while supporting economic growth.
The three ports and the six partner agencies have evaluated data and lessons learned from
implementation efforts, advances in emission-reduction technology, and changes in the
regulatory landscape over the past five years. This experience set the foundation of the Strategy
Update and its key elements, including:
1. Goals for reducing port-related emissions in the Georgia BasinPuget Sound airshed.
2. Pilot studies and demonstration projects to assess how new emission-reduction
technologies can help meet the emission-reduction goals.
3. Performance targets for 2015 and 2020 for reducing emissions in each covered sector.
1. Emission Reduction Goals
The proposed 2013 Strategy Update identifies voluntary actions that are intended to
complement regulations to reduce air pollution. Together with the regulations, the proposed
actions are expected to achieve the following emission reduction goals relative to the 2005
baseline emissions inventories:
Reduce diesel particulate matter (DPM) emissions per ton of cargo by 75% by 2015
and 80% by 2020.
Reduce greenhouse gas (GHG) emissions per ton of cargo by 10% by 2015 and 15% by
2020.
Because the size and characteristics of each sector vary across the three ports, the Update does
not set emission reduction goals per sector. Rather, each port can determine the appropriate
balance of actions to achieve these levels of reduction.
COMMISSION AGENDA
Tay Yoshitani, Chief Executive Officer
November 19, 2013
Page 4 of 11
Every five years, the ports will update their air emissions inventories and analyze progress
toward emission-reduction goals.
2. Pilot Projects
The Update calls for pilot studies and demonstration projects designed to advance emissionreduction
technologies for the maritime and port industry. Each port will evaluate or engage in
at least one pilot study or demonstration project per year, and share findings with stakeholders
and strategy partners. Port staff believes this is attainable. We are currently working with
Puget Sound Clean Air Agency, for example, to assess alternative technologies to meet the
strategy's truck target to move to 2007 model year engine emission standards.
3. Performance Targets by Sector
The strategy partners updated and revised the previous 2015 performance measures and set
new performance targets for 2020. The Update includes new and updated actions and
performance targets for the following sectors: ocean-going vessels, harbor vessels, cargohandling
equipment, trucks, locomotives and port administration (sources that are operated or
governed directly by the ports). Significant progress has been made with respect to fuel and
engine improvements. It is expected that the next evolution of air quality improvements will
focus on efficiency improvements to further reduce DPM as well as GHGs. Each year, the
strategy partners will continue to publish implementation reports that summarize their progress
on performance targets.
As discussed in the original document and the Update, success relies on significant
contributions from port tenants, customers, and other stakeholders who manage port activities
and equipment that produce air emissions, as well as regional transportation agencies that can
influence freight movement. With their tenants and stakeholders, the three ports seek to
manage future growth in a way that improves air quality and supports sustainable port
operations.
Ocean-Going Vessels
Reduces
Actions 2015 Targets 2020 Targets
DPM GHG
Ports track number
Early compliance with of vessels with Tier 3
2015 ECA 0.1% fuel- marine engines, shore
Vessels surpass ECA
sulfur level (or equivalent) power use, cleaner
requirements
while hoteling before Jan fuel, or other
1, 2015 emission-reduction
technologies
COMMISSION AGENDA
Tay Yoshitani, Chief Executive Officer
November 19, 2013
Page 5 of 11
Ports and vessels participate in
port-designed or third-party
certification programs that
promote continuous
All ports and 10% of All ports and 40% of
improvement (such as
Environmental Ship Index, vessel calls vessel calls
Green Marine, Clean Cargo
Working Group, or others)
No changes were made to the draft actions and targets for ocean-going vessels that were
presented in June 2013. The existing performance measure for ocean-going vessels in 2015 is
to meet International Maritime Organization (IMO) standards for sulfur content in fuel. Since
these standards now match regulatory requirements that established the North American
Emission Control Area (ECA), the strategy's revised target is for vessels to surpass ECA
requirements by burning even lower sulfur content fuel while at berth. The Port's At-Berth
Clean Fuels (ABC Fuels) program has been promoting theuse of cleaner fuels while at berth
since 2009. In addition, use of shorepower at T-91 also achieves this target. In 2015, the
second phase of the IMO and ECA targets goes into effect that will require ocean-going vessels
to burn fuel with no more than 0.1% sulfur content, or achieve an equivalent emission
reduction, within the ECA. At that point in time, the ABC Fuels program will sunset. This
regulation will dramatically reduce DPM emissions from ocean-going vessels.
The 2020 target for ocean-going vessels shifts to efficiency improvements that will increase
focus on GHG and reduce fuel use and operating costs for vessels. The target is for ports and
vessels to participate in a port-designed or third-party certification program that promotes
continuous improvement (such as Environmental Ship Index, Green Marine, Clean Cargo
Working Group, or others.)
Harbor Vessels
Reduces
Actions 2015 Targets 2020 Targets
DPM GHG
Partners conduct Partners conduct
Strategy partners conduct
outreach and 50% outreach and 90%
annual outreach to port-related
of harbor vessel of harbor vessel
harbor vessel companies and
companies report companies report
recognize best practices and
best practices and best practices and
engine upgrades
engine upgrades engine upgrades
Ports and harbor vessels
participate in port-designed or
third-party certification
programs that promote All ports and 10% All ports and 40%
continuous improvement (such as of harbor vessels of harbor vessels
Environmental Ship Index, Green
Marine, Clean Cargo Working
Group, or others)
COMMISSION AGENDA
Tay Yoshitani, Chief Executive Officer
November 19, 2013
Page 6 of 11
No changes were made to the draft actions and targets for harbor vessels that were presented in
June 2013. For purposes of the Strategy, this sector is limited to harbor vessels that have portrelated
functions. The ports have not been directly involved in harbor vessel-related projects to
date. The Update calls for both ports and harbor vessels to participate in port-designed or
third-party certification programs, such as those listed above. In Seattle, Puget Sound Clean
Air Agency will take the lead in conducting annual outreach to port-related harbor vessel
companies to promote engine upgrades and best practices.
Cargo-Handling Equipment
Reduces
Actions 2015 Targets 2020 Targets
DPM GHG
CHE meets Tier 4 interim (T4i)
50% of CHE 80% of CHE
emission standards or equivalent
Ports and terminals have fuel-
Ports and 50% of Ports and 100% of
efficiency plans in place that
terminals terminals
promote continuous improvement
No changes were made to the draft actions and targets for cargo- handling equipment that were
presented in June 2013. Prior performance measures have focused on use of cleaner fuels and
upgrading, repowering or retrofitting existing pieces of equipment wit h cleaner engines or
exhaust controls. The terminal operators have provided in-kind contributions for project
oversight, implementation and maintenance costs associated with the retrofitted equipment.
They have also purchased newer, clean equipment. Alon g with continuing to promote cleaner
engines, the Update includes a target for fuel-efficiency plans. For diesel- powered equipment,
using fuel efficiently will likely reduce DPM emissions; regardless of fuel type, fuel- efficiency
measures will likely reduce GHG emissions.
Trucks
Reduces
Actions 2015 Targets 2020 Targets
DPM GHG
Trucks meet or surpass EPA
emission standards for model year 100% of trucks by the end of 2017
2007
Ports, terminals, and trucks have Ports, terminals,
fuel-use reduction plans in place that All ports participate and 50% of
promote continuous improvement trucks participate
One change has been made to the targets for trucks since the draft Update was circulated in
June: the interim target for 80% of container trucks to meet model year 2007 emission
standards has been removed. The prior target for 100% of trucks to meet model year 2007
emission standards by the end of 2017 has been retained. In assessing comments received
COMMISSION AGENDA
Tay Yoshitani, Chief Executive Officer
November 19, 2013
Page 7 of 11
during the public review period, as well as the Port of Seattle's planned implementation of the
truck targets, the Strategy partners agreed to this revision.
At its June 25, 2013 briefing, Commissioners indicated concurrence with Port staff that the
2015 would be an interim, unenforced target at Port of Seattle terminals, and that trucks with
pre-2007 engines would not be turned away from terminal gates until January 1, 2018. This
decision was based on the following feedback from truck drivers:
The recession, and the move of the Grand Alliance to the Port of Tacoma, has reduced
the amount of work they are getting.
The reduced number of trips since mid-2012 has likely reduced the total emissions from
trucks.
In 2015, many truck owners will still be paying off loans on trucks purchased to meet
the 2010 target.
The costs and availability of replacement trucks hinders their ability to afford a newer
truck without significant financial assistance, which will be exacerbated by an earlier
due date (2015 vs. 2017).
There is difficulty in creating an equitable system for requiring only 80% of trucks to
upgrade in 2015.
There is a potential inconsistency with the Port of Tacoma's clean truck enforcement.
Truck emissions have been reduced by 53% since 2005 (partially due to the Port-led
elimination of trucks with pre-1994 engines from the dray fleet), and represent a small
percentage (7%) of the Port's total DPM emissions.
Even without this interim 2015 target, the Port will continue making progress in reducing truck
emissions. A new grant-funded truck scrap and replace project for at least 180 trucks will be
launched in 2014,accompanied by additional outreach to the trucking community; upgraded
trucks will meet 2007 emission standards and be 10 times cleaner than those with model year
1994-2006 engines. Port staff continues to monitor truck parking in the South Harbor area and
has engaged in renewed discussions with the City of Seattle to keep truck parking out of
residential areas. The successful transition from a sticker system to use of radio frequency
identification (RFID) tags earlier this year enables better tracking of fleet characteristics;
currently, about 18% of trucks calling at the Port have 2007 model year engines.
Additionally, during the 2015-2017 time period, the North American Emission Control Area
regulations will drastically reduce particulate emissions, since ocean-going vessels currently
emit 78% of the Port's DPM emissions, and will overshadow any gains made in the trucking
sector.
Locomotives
Reduces
Actions 2015 Targets 2020 Targets
DPM GHG
100% of owners achieve
Switching locomotive owners 100% of owners
performance objectives of
participate in an efficiency program institute a program
chosen program
COMMISSION AGENDA
Tay Yoshitani, Chief Executive Officer
November 19, 2013
Page 8 of 11
Switching locomotive owners 10% of
upgrade or replace unregulated unregulated 20% of unregulated
engines (engine replacements will be switching locomotive engines
Tier 2 or better) locomotives
No changes were made to the draft actions and targets for locomotives that were presented in
June 2013. The Puget Sound Clean Air Agency and the Washington State Department of
Ecology have conducted several grant-funded projects to reduce locomotive emissions. The
Port assisted Puget Sound Clean Air Agency in obtaining grant funds to upgrade switching
engines owned by Louis Dreyfus. The Update set targets for switcher locomotives to
participate in an efficiency program such as the EPA SmartWay program, to reduce fuel and
emissions, and for upgraded engines on switcher locomotives.
Port Administration
Reduces
Actions 2015 Targets 2020 Targets
DPM GHG
Ports own and operate cleaner
Ports report use of
vehicles and equipment and have Ports increase use of
cleaner vehicles and
fuel-use reduction plans in place cleaner vehicles and
equipment and other
that promote continuous equipment
relevant information
improvement
Ports apply clean construction Ports adopt clean Ports continue to
standards to engines used on port- construction practices apply clean
led construction projects (such as for port-led projects, construction practices
American Association of Port including idle- for port-led projects,
Authorities' Sustainability reduction requirements, including idle-reduction
Checklist, U.S. EPA Best Practices and enact a plan to requirements, and enact
for Clean Diesel Construction, or address Tier 2 engine a plan to address Tier 4
equivalent best management emission requirements engine emission
practices) requirements
Ports facilitate energy studies Each port conducts 3 Each port completes 3
and conservation projects at energy studies energy conservation
port-operated and/or tenant projects
facilities to identify and address
energy conservation opportunities
in building systems, processes, and
yard lighting
Minor wording changes were made to the targets for port administrations in the final version of
the Update. Based on additional internal discussion within each port, the Strategy partners
revised the wording for the clean construction practices targets to clarify that each port will
COMMISSION AGENDA
Tay Yoshitani, Chief Executive Officer
November 19, 2013
Page 9 of 11
develop and carry out a plan to address emissions from diesel-powered equipment used on
port-led construction projects.
The targets for port administration also focus on increasing use of cleaner vehicles and
equipment and conducting energy studies and energy conservation measures at port-operated
and tenant facilities. The Port of Seattle already has most of these items underway, but these
targets will encourage more rigorous programs and continuous improvement.
ATTACHMENTS TO THIS BRIEFING
PowerPoint presentation.
Northwest Ports Clean Air Strategy 2013 Update.
PREVIOUS COMMISSION ACTIONS OR BRIEFINGS
June 25, 2013 the Commission was briefed on the draft 2013 update to the Northwest
Ports Clean Air Strategy.
December 4, 2012 the Commission was briefed on the results of the 2011 Puget
Sound Maritime Air Emissions Inventory and options for accelerating the NWPCAS
truck goals.
May 1, 2012 the Commission authorized to sign agreement 20090046 Amendment 5
with the Puget Sound Clean Air Agency to transfer $1,050,000 in funds to support the
implementation of the Northwest Ports Clean Air Strategy. Amendment 5 increased the
total amount transferred from the Port to PSCAA since 2009 to $5,216,250.
February 7, 2012 the Commission was briefed on the Northwest Ports Clean Air
Strategy and on the Port's current air quality program effort, and draft
recommendations on options for accelerating Seaport Clean Air Strategy goals.
July 12, 2011 the Commission was briefed on the Northwest Ports Clean Air Strategy
2010 Implementation Report and interim report on Accelerating Clean Air Goals.
February 1, 2011 the Commission authorized to sign agreement 20090046
Amendment 4 with the Puget Sound Clean Air Agency to transfer $1,160,250 in funds
to support the implementation of the Northwest Ports Clean Air Strategy, and to extend
the end date from June 30, 2011, to June 30, 2013. Amendment 4 increased the total
amount transferred from the Port to PSCAA since 2009 to $4,166,250.
January 4, 2011 the Commission adopted the "Motion to Accelerate Seaport Clean
Air Goals to 2015."
December 7, 2010 the Commission was briefed on the Northwest Ports Clean Air
Strategy Implementation Status.
November 9, 2010 the Commission authorized to increase the amount of the At-Berth
Clean Fuels Vessel Incentive Program by $110,250, for a total 2010 annual program
budget of $951,750, to cover participation by the projected number of qualifying vessel
visits for the remainder of the year.
June 8, 2010 the Commission authorized to supplement the value of the At-Berth
Clean Fuels Vessel Incentive Program by $541,500, for a total 2010 annual program
budget of $841,500. Within the $541,500, $135,000 represents funds that were
originally approved in 2009, but were not used until 2010.
COMMISSION AGENDA
Tay Yoshitani, Chief Executive Officer
November 19, 2013
Page 10 of 11
January 12, 2010 the Commission was briefed on the Seaport's Air Quality Program.
August 25, 2009 the Commission received a Clean Air Update.
August 25, 2009 the Commission authorized a revised Customer Support Package
lease amendment with Total Terminals Inc.; and authorized the Port to purchase energy
efficient light fixtures and related equipment for T-46, for an amount not to exceed
$680,000.
June 23, 2009 the Commission received a briefing on the Northwest Ports Clean Air
Strategy 2008 Implementation Report.
April 14, 2009 the Commission authorized an agreement with Puget Sound Clean Air
Agency, to transfer $2.3 million ($1.15 million in 2009 and $1.15 million in 2010) from
the Port's operating budget to support the implementation of the Northwest Ports Clean
Air Strategy.
April 14, 2009 the Commission authorized the execution of lease agreements with
Total Terminals Inc. for Terminal 46, SSAT (Seattle) for Terminal 25/30, SSA
Terminals for Terminal 18, and Eagle Marine for Terminal 5, to incorporate the
Customer Support Package and the Ports Clean Air Program into those leases.
March 31, 2009 the Commission was briefed on the customer support package and
the Clean Air Program.
February 10, 2009 the Commission held a policy roundtable discussion of the Clean
Air Program.
December 2, 2008 the Commission authorized a transfer of $500,000 to the Puget
Sound Clean Air Agency for the At-Berth Clean Fuels Vessel Incentive Program.
November 11, 2008 the Commission was briefed on the Port's Clean Truck Program.
September 2, 2008 the Commission was briefed on the Port's Clean Truck Program
for drayage operations at West Coast Seaports.
July 8, 2008 the Commission was briefed on the Port's Clean Truck Program.
April 1, 2008 the Commission and the public were briefed on the Northwest Ports
Clean Air Strategy implementation.
January 22, 2008 the Commission adopted the Northwest Ports Clean Air Strategy.
December 6, 2007 the Commission was briefed on the revised draft of the Northwest
Ports Clean Air Strategy.
August 28, 2007 the Commission adopted Resolution No. 3585, endorsing the U.S.
Proposal to the International Maritime Organization seeking more stringent air
emissions standards for ocean going vessels.
April 10, 2007 the Commission was briefed on the Puget Sound Maritime Air
Emissions Inventory Project.
March 27, 2007 the Commission authorized the amendment of the existing contract
for the Air Emission Inventory in the amount of $25,000, and to receive and spend
supplemental funding for the Puget Sound Maritime Air Emissions Inventory Project.
February 16, 2007 the Commission passed a series of environmental motions that
required, in part, that staff present an air quality action plan for Commission approval.
April 26, 2005 the Commission authorized joint development of the Puget Sound Maritime
Air Emissions Inventory and $500,000 for support and implementation of the project.
COMMISSION AGENDA
Tay Yoshitani, Chief Executive Officer
November 19, 2013
Page 11 of 11
February 9, 2005 the Commission adopted Resolution No. 3534, expressing its
commitment to Maritime Air Quality.
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