[Federal Register Volume 59, Number 191 (Tuesday, October 4, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-24506]
[[Page Unknown]]
[Federal Register: October 4, 1994]
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ENVIRONMENTAL PROTECTION AGENCY
[IL-64-2-5807; FRL-5084-9]
Availability of Model State Training and Certification Programs
for High Capacity Fossil Fuel-Fired Plant Operators
AGENCY: Environmental Protection Agency (EPA).
ACTION: Notice of availability of the model State programs for the
training and certification of operators of high capacity fossil fuel-
fired plants as required under section 129 of the Clean Air Act (Act).
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SUMMARY: This action announces the availability of training materials
which constitute the model State training program for operators of high
capacity fossil fuel-fired plants, and the model State certification
program for these operators, as required under section 129 of the Act.
ADDRESSES: The final student handbook (specify ``High Capacity Fossil
Fuel-Fired Plant Operator Training Program--Student Handbook,'' EPA-
453/B-94-056) may be obtained from the U.S. EPA Air Pollution Training
Institute (MD-17), Research Triangle Park, North Carolina 27711,
telephone number (919) 541-2498, FAX number (919) 541-5598.
For qualified instructors interested in conducting the training
course, single copies of the instructor's guide (specify ``High
Capacity Fossil Fuel-Fired Plant Operator Training Program--
Instructor's Guide,'' EPA-453/B-94-057) can be requested by contacting
the U.S. EPA Air Pollution Training Institute (MD-17), Research
Triangle Park, North Carolina 27711, telephone number (919) 541-2498,
FAX number (919) 541-5598 at the above address.
FOR FURTHER INFORMATION CONTACT: For information concerning specific
aspects of this notice, contact Mr. James Eddinger, Industrial Studies
Branch, Emission Standards Division (MD-13), U.S. Environmental
Protection Agency, Research Triangle Park, North Carolina 27711,
telephone number (919) 541-5426.
SUPPLEMENTARY INFORMATION: The following outline is provided to aid in
locating information in this notice.
I. Background
II. Comments and Responses
III. Model State Training Program
IV. Model State Certification Program
V. Authority
I. Background
Section 129(d) of the Act requires the EPA to develop and promote a
model State program for the training and certification of solid waste
incineration unit operators and high-capacity fossil fuel-fired plant
operators. In August 1993, the EPA submitted to all State air pollution
control agencies the model State training programs that the EPA
developed for operators of municipal waste combustors (MWC's) and
medical waste incinerators (MWI's) pursuant to this requirement. To
ensure the availability of at least one appropriate national
certification program for these solid waste incineration units, the EPA
requested the American Society of Mechanical Engineers (ASME) to
develop and manage a nationwide certification program for MWC and MWI
operators. As a result, the ASME developed an ASME certification
program for each of these solid waste incineration industry categories.
The model State training programs for MWC's and MWI's were
developed by the EPA to provide a level of understanding that is
adequate to successfully complete the requirements of the ASME program
or an equivalent State-approved program for certification of operators
of such facilities. The emission standards (40 CFR 60.50a) promulgated
under section 129 for MWC's require certification of the operator by
the ASME or an equivalent State-approved certification program.
In October 1992, the EPA initiated development of a training
program for operators of high capacity fossil fuel-fired plants. The
EPA considers the term high-capacity fossil fuel-fired plants to mean
boilers (i.e., devices that combust fossil fuel to produce steam or hot
water) greater than 10 million BTU's per hour heat input. The group of
high capacity fossil fuel-fired plants (boilers) covered in this
training course includes the size range from small industrial,
commercial, and institutional steam generating units (greater than 10
million BTU's per hour heat input) to large utility boilers.
On October 6, 1993 (58 FR 52106), EPA announced the availability of
a draft student handbook, prepared as part of a training course for
operators of high capacity fossil fuel-fired plants, and EPA's
intention to develop a model State certification program for these
operators; and invited public comments on both the contents of the
student handbook and the EPA's intention to develop the model State
certification program.
II. Comments and Responses
Thirty-eight comment letters were received in response to the
notice of availability of the draft student handbook and EPA's
intention to develop model State training and certification programs:
twenty-three from utility companies, seven from industrial boiler
facilities, six from trade or technical associations, and two from
government agencies. The comments pertained to either specific items or
statements in the draft student handbook, the need for the model State
training and certification programs, or the coverage of these programs.
The comments specific to the draft student handbook have been
incorporated into the revised student handbook. The more significant
issues raised by commenters relating to the overall model training and
certification programs along with clarification of the EPA's intention
for these model State programs are discussed below:
1. Draft Student Handbook
A general comment on the draft student handbook was that it covers
a wide range of facilities (i.e., fuel types, sizes and applications)
and that even though the handbook is a relatively comprehensive
treatment of basic combustion theory, technology and emission control,
the level of understanding of each of these areas required by a plant
operator will vary with the size, type and fuel requirements of a
facility. The commenters suggested that a modular handbook be developed
so training programs could reflect the specific equipment and fuel used
at a facility. They further commented that emphasis on the specific
areas of training to reflect the organizational structure of the
facility should be allowed.
In response, the training course developed by the EPA is modular in
design. It is divided into 30 learning sessions. Each session covers a
specific area of knowledge, such as, pulverized coal-fired boilers,
NOX control technology, continuous emissions monitoring, etc * *
*. The training course was designed in this manner so that it may
fulfill requirements leading to boiler operator certification. The
information presented in the training materials covers areas which may
be addressed in a potential certification examination. Depending on the
different classes/levels of certification available, the appropriate
training sessions for that particular level of certification could be
selected from the training materials to address the topics covered in
that particular certification examination.
2. Requirement for Operator Training and Certification
Based on the comments received, there appears to be a general
misunderstanding that, in the October 6, 1993 Federal Register notice,
the EPA was proposing to require the training and certification of
operators of high capacity fossil fuel-fired plants. Some commenters
stated that the October 6 Federal Register notice failed to clearly
state that the draft training program being presented in the form of
the draft student handbook was not being required for boiler operators
under EPA regulations.
For clarification purposes, section 129 (d) of the Act requires
that the EPA develop a model State training and certification program
for both operators of solid waste incineration units and high capacity
fossil fuel-fired plant operators but mandates training only for
operators of solid waste incineration units. This notice announces the
availability of the model State programs for the training and
certification of operators, as required by section 129 of the Act. This
notice is not a rulemaking action to require anyone to implement any
training program. The individual States may make determinations whether
or not to require operator training and certification and may also
decide whether the EPA's model training program or another training
program is appropriate.
3. Need for Training and Certification Programs
Both utility and industrial facility commenters questioned the need
for training and certification requirements since their operators
already undergo extensive site specific training programs that cover
all of the topics listed as chapters in the draft student handbook. The
utility industry commented that because of the high skill levels
required for safe, efficient and reliable operation, extensive and
comprehensive internal training programs have been implemented. Both
groups commented that their training programs should be allowed to
satisfy the obligation for training and that the EPA should allow any
company to conduct a training course/program in lieu of the EPA or
equivalent State program, provided it meets the fundamental EPA
requirements. Also, the utility industry commented that utility
facilities are subject to the Title V Operating Permit program under 40
CFR Part 70 and the Continuous Emission Monitoring rules under 40 CFR
Part 75 and therefore the utility industry believes that compliance
with these regulations encompasses all the objectives outlined by the
EPA for training and certifying operators of high capacity fossil fuel-
fired plants. They recommended that EPA include in its final model
State program a provision for allowing compliance with the above
regulations to be considered equivalent to meeting the requirements of
an operator training and certification program and allowing the
substitution of existing utility or industrial boiler training programs
for the EPA model training program to avoid unnecessary duplication of
effort.
In response and as stated above, under section 129 of the Act, the
EPA is mandated only to develop model State training and certification
programs for operators of high capacity fossil fuel-fired plants. These
model programs will be made available to the States for their use. The
EPA agrees that a mechanism should be included in any State rules
regarding training and certification to allow facilities to
satisfactorily demonstrate the equivalency of their program. With
regard to certification, this is similar to the provision included in
the EPA regulations for MWC units where EPA allows certification by
ASME or an equivalent State-approved certification program.
4. Applicability
Many comments dealt with the coverage of the training and
certification programs. These comments included:
a. They questioned the EPA's interpretation of high capacity fossil
fuel-fired plants as inclusive of boilers with relatively small
capacity (i.e., as low as 10 million Btu per hour heat input). These
commenters suggested that the EPA target training for operators of
boilers with 100 million Btu per hour heat input or greater. They
commented that many of the boilers in the 10 to 100 million Btu per
hour range operate automatically with little attention, without air
pollution control equipment and do not incorporate operator adjustment
features that could adversely affect air pollution, and are mostly
fueled by gas or light oil. Adjustments to these boilers are made on an
annual or twice per year basis by qualified outside contractors that
specialize in boiler controls and adjustments. The commenters further
indicated that the narrow range of adjustments that an operator could
make on a gas-fired boiler less than 100 million Btu per hour has a
minor influence on emissions and that NOX emissions are determined
primarily by design factors such as configuration of the combustion
chamber and the burner design. Neither of these are under control of
the operator.
b. A provision should be included in the final model State program
to allow for acceptance of alternative training and certification
programs for facilities with low capacity factors. The EPA should
include an exemption for training for those units with annual capacity
factors less than 15%. The required definition of high capacity fossil
fuel-fired plants would not be altered if such an exemption were
provided for these units.
c. Many commenters believe that the training and certification
requirement was intended to apply only to units subject to Subparts Da,
Db, and Dc.
* * * * *
In response to the above, the range of boiler sizes selected by the
EPA for inclusion in the model State training program was based on the
range of boiler sizes covered by the various existing EPA emission
regulations for steam generating units. These emission regulations
cover the size range from 10 million Btu per hour heat input and
greater.
Potential air pollution problems can result from poor operation and
maintenance of a boiler and associated air pollution control system
when operators do not understand the combustion and air pollution
control processes and are inadequately trained. The EPA feels that the
training of boiler operators, regardless of the size or capacity
factor, would result in improved operation, be relatively inexpensive
and would reduce emissions.
The reference made to Subparts Da, Db, and Dc in the October 6,
1993 Federal Register notice was intended only to give the reader an
indication of the types and sizes of the boilers that were selected for
discussion in the training course. Subparts Da, Db, and Dc list
definitions for various aspects covered in the training materials, such
as, fossil fuel, electric utility steam generating unit, heat input,
fluidized bed combustion, etc. The reference to Subparts Da, Db, and Dc
was not to suggest that the training course was only intended for
operators of boilers subject to these subparts. The training course was
designed to be appropriate for operators of any boiler with a capacity
above 10 million Btu per hour heat input.
III. Model State Training Program
The training program developed for boiler operators is intended to
provide the operator with a basic understanding of the principles of
fuel combustion and air pollution control and to identify good
operating practices. The program is intended to supplement rather than
substitute for site-specific ``hands-on'' training of the operator. The
objectives of the training program are: to instruct operators in the
basic principles of proper operation and maintenance of boilers and air
pollution control systems; to help assure that the boiler is
continuously operated in a manner which complies with State and Federal
regulations; to enhance the operators appreciation for their role in
minimizing air pollution; and to increase the operators awareness of
regulatory requirements.
The training materials consist of a student handbook which is not
only intended for use during the course but also may be used as a
reference by the operators after completion of the course, and an
instructor guide which provides the basic materials for use by the
instructor of the training course. The instructor's guide includes the
course description and agenda, course goals, lesson plans, copies of an
initial test and a final course examination, and audio-visual aids.
Activities for developing this training course performed since
mailout of the draft student handbook include revision of the student
handbook based on comments received from the mailout, development of
the instructor's guide, a trial run of the course, revision of the
training materials based on comments received from the trial run, and
publication of the final student handbook.
The trial run of the training materials was conducted in April
1994. The trial run presented the course materials and obtained
comments from participants concerning areas that could be changed to
improve the course materials. Among the twenty-eight attendees were
operators, training specialists, and supervisors of utility and
industrial facilities. Also in attendance were representatives from
boiler insurance, inspection, and licensing organizations. Comments
received from the trial course were incorporated into the final student
handbook, as appropriate. The chapters which required the most
significant revisions were those pertaining to the water and steam
circuits, package boilers, and safety. Also, the materials presented in
the chapters on combustion principles and air pollution fundamentals
were simplified without compromising the material content. The
instructor's guide was then modified to reflect changes to the student
handbook.
The operator training materials include testing materials that
indicate a student's satisfactory completion of the training course.
The EPA will provide the final student and instructor manuals to the
States so they can use them to implement an operator training program
for high capacity fossil fuel-fired plant operators.
IV. Model State Certification Program
In the development of any operator certification program, several
key factors must be addressed. Among these factors is which personnel
should be required to be certified. The EPA believes certification
should not be limited to only the operator with hands-on control of the
boiler. These operators may lack the authority to request the
assistance of a repairman when equipment needs maintenance or service.
Also these operators may not be authorized to take corrective action in
the event of equipment malfunction. Such authority may rest with the
operator's supervisor. This may be a shift supervisor, chief engineer,
plant manager, etc. It is the operator's supervisor who is usually
responsible for making critical decisions regarding operation and
maintenance of the equipment. Because decisions made by the operator's
supervisor are key to proper operation of the boiler, the operator's
supervisor must have a broader level of understanding than the
operator. Thus, there is a need for separate levels of certification
for operators and operator supervisors.
In addition, the level of knowledge needed by an operator or
operator supervisor is dictated by the complexity of the equipment
operated. For example, the knowledge required to operate a coal-fired
boiler with an air pollution control system is greater than that
required to operate a gas-fired boiler without an air pollution control
system. It may not be reasonable to require an operator of a boiler
without an air pollution control system to demonstrate knowledge of
such equipment. Therefore, several classes of boiler operator
certification should probably be developed for each operator
certification level.
Furthermore, since, as the commenters have indicated, many boilers
may operate with little or no operator attention, any certification
program should consider including those individuals who perform the
boiler tuning and maintenance.
Another key area concerns the qualifications that an applicant
should possess for certification. An acceptable level of skill and
operating ability should be demonstrated on a boiler system which is
equivalent to (or higher than) the class of boiler for which
certification is being sought. This ``hands-on'' ability could be
demonstrated by an on-site examination by a qualified/certified
examiner or demonstration of ability before other certified operators
who verify the applicant's ability. Also a consideration is the prior
experience needed before applying for certification. The certification
program should require some prior experience under the direct
supervision of a certified operator/operator supervisor who verifies
the proficiency of the applicant. Finally, an applicant should be
required to successfully pass a written examination covering the areas
of knowledge deemed necessary for the particular class/level of
certification being sought. The written examination could be
administered by the State or some authorized certification
organization.
The EPA's intention, announced in the October 6, 1993 Federal
Register notice, for developing a model State certification program for
high capacity fossil fuel-fired plants is to outline the scope and
components that a State agency should include in a certification
program. Components that should be considered for inclusion in any
State developed or approved certification program are:
1. Coverage of the Certification Program.
Determination of the type and size of boilers for which operator
certification is appropriate. Boilers for which environmental
regulations apply are candidates for inclusion in any certification
program.
2. Level of Operators To Be Certified
The duties and responsibilities of the positions of the operator
and operator supervisor should be established for the purpose of
identifying facility personnel to whom certification applies at fossil
fuel-fired plants. Certification for all persons who have control over
the process and can affect process emissions should be included. This
may include operators, supervisors, maintenance personnel, and outside
contractor personnel.
An operator is generally in direct control of the operation of a
boiler system and is responsible for the startup, operation, and
shutdown of equipment. Typical responsibilities may include the
following:
a. Operating equipment in accordance with established practices and
procedures;
b. Operating equipment consistent with applicable federal, state,
and local government requirements;
c. Identifying and initiating responses to upsets and emergency
conditions;
d. Identifying and communicating the need for equipment repairs and
maintenance;
e. Communicating with management when system operation is in
noncompliance with applicable regulations;
f. Operating in a safe manner;
g. Recording operational data as required.
An operator supervisor generally has direct responsibility for the
operation of a boiler system and is responsible for overall on-site
supervision, technical direction, management, and performance of the
facility. Typical responsibilities may include the following:
a. Supervising, training, monitoring, and evaluating operators;
b. Assuring operation in accordance with established practices and
procedures;
c. Assuring equipment is operated in accordance with applicable
federal, state, and local government requirements;
d. Directing action to correct equipment upsets or emergency
conditions;
e. Assuring operating and maintenance records are maintained and
reports are prepared as required;
f. Assuring noncompliance incidents and corrective action items are
reported to management or regulatory agencies;
g. Assuring a safe workplace.
The operator supervisor may also directly perform the duties and
responsibilities of the operator.
3. Classes of Certification
This includes establishment of various classes for which operator
certification is appropriate. The level of knowledge needed to properly
operate and minimize emissions varies considerably depending on the
type of facilities. Therefore, the level of knowledge will vary
depending on job duties and responsibilities. Different classes of
certification within each level developed under (2) should be
considered.
A boiler system may have any combination of fuel type, boiler type
and air pollution control system, and an operator should be certified
in the class designation equivalent to or more comprehensive than the
type of equipment operated.
Example operator class designations are:
Class A - certified to operate a coal-fired boiler with air pollution
control systems
Class B - certified to operate a coal-fired boiler without air
pollution control systems
Class C - certified to operate a gas or oil-fired boiler with air
pollution control systems
Class D - certified to operate a gas or oil-fired boiler without air
pollution control systems
4. Qualifications
The following are the recommended qualifications that should be met
by an operator/operator supervisor to complete certification:
a. Minimum age requirement;
b. Training;
c. Minimum level of experience under the direct supervision of a
certified operator or operator supervisor who must verify the
proficiency of the applicant in all aspects of the job;
d. Pass a written examination, as discussed in item 5 below,
administrated by the State or a State-approved certification
organization.
The acceptable demonstration of skills and ability should be
performed on a boiler system equivalent to, or higher than, the class
of boiler equipment for which certification is being sought.
During the initial implementation of a certification program when
there are not certified operators or operator supervisors available to
certify the applicant's proficiency, the applicant's employer could be
allowed to verify that the applicant has been continuously employed as
either an operator or operator supervisor for a minimum period of time
and that the applicant's job performance has been satisfactory.
Further, the employer should verify that the hands-on experience was as
an operator or operator supervisor for a boiler system equivalent to,
or higher than, the class of boiler equipment for which certification
is being sought.
5. Training Requirements
The training requirements should be established for boiler
operators to provide the operator with a basic understanding of the
principles of fuel combustion and air pollution control and to identify
good operating practices. The training requirements should included
both classroom and site-specific ``hands-on'' training of the operator.
The objectives of the training program are: to instruct operators in
the basic principles of proper operation and maintenance of boilers and
air pollution control systems; to help assure that the boiler is
continuously operated in a manner which complies with State and Federal
regulations; to enhance the operators appreciation for their role in
minimizing air pollution; and to increase the operators awareness of
regulatory requirements.
6. Pass Written Examination
The final key element should be a requirement that the applicant
demonstrate sufficient knowledge in specified areas by passing a
written examination administered by the State or an approved
certification organization. This element should also require a
provision for a ``bank'' of questions to implement the written
examination to assure that tests given at different times are not
identical.
The examination should be structured as a closed book, multiple
choice, and written examination. The examinations for operators should
differ from those for operator supervisor consistent with the
differences in duties. The examination could be modular in design and
given in parts. Candidates successfully passing the appropriate parts
can be deemed to have completed the written testing requirements for a
particular certification class.
To successfully pass a test part, a candidate should correctly
answer a minimum of 70 percent of the questions in that part.
Questions should be related to:
a. Water and Steam Circuit
b. Fuel, Air and Gas Circuit
c. Basic Combustion Principles
d. Air Pollution Fundamentals
e. Boiler equipment characteristics
f. Normal Boiler Operation
g. Automatic Control Systems
h. Instrumentation
i. Preventative Maintenance
j. Safety
k. Air Pollutants of Concern
l. Environmental Regulations
m. Continuous Emissions Monitoring
n. Particulate Control
o. NOX Control
p. SOX Control
q. Water Pollution and Control
r. Solids Waste and Control
7. Issuance of Certification
Each candidate who passes the written examination and whose
proficiency has been verified should be issued a certificate valid for
a specific time period (e.g., five years). Each certificate should
contain the following minimum information:
a. Type of certification;
b. Certified individual's full name;
c. Photograph of certified individual;
d. Effective date and expiration date.
e. Signature of a duly authorized designee.
8. Provision for Recertification
Certification should be granted for a limited period of time. The
procedure for recertification could be simply verification of
satisfactory employment with the appropriate type of equipment for that
certification level/classes since the time the previous certification
was granted or it could entail additional refresher courses, ``hands-
on'' demonstration, or passing of a written examination.
9. Revocation of Certification
There should be a procedure included in the certification program
to revoke a certification for falsifying or providing inaccurate
information in the certification process.
The components listed above as the model State certification
program are modelled after the certification standards developed by the
ASME for MWC and MWI operators. These ASME certification standards were
developed by a committee balanced by interest classification (e.g.,
regulatory, operators, manufacturers, etc.) and underwent public review
and comment. The EPA was a member of the ASME committee for the
development of the MWI certification standard.
In August 1992, to ensure the availability of at least one
appropriate national certification program, the EPA requested the ASME
to develop and manage a nationwide certification program for boiler
operators. As a result, the ASME Board of Safety Codes & Standards and
the Council on Codes & Standards approved the formation of a committee
in June 1994 to develop such a program. The ASME certification program
is anticipated to be completed in late 1996.
As discussed above, the EPA will provide the final student handbook
and instructor guide, developed by the EPA, to the States so they may
implement operator training or certification programs prior to
finalization of the ASME certification program. In addition, some
States may already require that boiler operators obtain state boiler
operator engineer licenses. If these licensing agencies demonstrate
equivalency, a State air pollution control agency could accept this
licensing as certification under this program. Licensing organizations,
such as the National Institute for the Uniform Licensing of Power
Engineers Incorporated, have commented that there are other licensing
organizations that may be able to provide certification programs in a
shorter timeframe than the ASME since they already have a licensing
program developed for boiler operators along with a possible database
of appropriate questions. They also indicated a willingness to modify
their programs to meet whatever criteria a State sets for a
certification program.
As stated in the October 6, 1993 Federal Register, the training
materials developed by the EPA will be revised as necessary when the
ASME certification program is sufficiently developed to ensure that the
training course is coordinated with the certification requirements.
The ASME has previously developed certification programs for
operators of MWC's and MWI's. In terms of the boiler operator
certification, the EPA's intention is to continue to work with the ASME
by serving on the various development committees and by providing
technical assistance to develop a certification program. The ASME
certification program is anticipated to be completed no earlier than
late 1996.
V. Authority
This notice of availability of model State programs for the
training and certification of operators of high capacity fossil fuel-
fired plants is issued under the authority of section 129 of the Clean
Air Act, as amended.
Dated: September 27, 1994.
Richard D. Wilson,
Acting Assistant Administrator for Air and Radiation.
[FR Doc. 94-24506 Filed 10-3-94; 8:45 am]
BILLING CODE 6560-50-P
