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Controlling
Hydrocarbon Emissions from
Tank Vessel ·oacling
Committee on Control and Recovery
of Hydrocarbon Vapors from Ships and Barges
Marine Board
Commission on Engineering and Technical Systems
National Research Council
NATIONAL ACADEMY PRESS
Washington, D.C. 1987
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the Governing
NOTICE: The project that is the subject of this report was approved by
~ Board of the National Research Council, whose members are
drawn from the councils of the National Academy of Sciences, the Nation-
al Academy of Engineering, and the Institute of Medicine. The members
of the panel responsible for the report were chosen for their special
competences and with regard for appropriate balance.
This report has been reviewed by a group other than the authors
according to procedures approved by a Report Review Committee consisting
of members of the National Academy of Sciences, the National Academy of
Engineering, and the Institute of Medicine.
The National Academy of Sciences is a private, nonprofit, self-
perpetuating society of distinguished scholars engaged in scientific and
engineering research, dedicated to the furtherance of science and techno-
logy and to their use for the general welfare. Upon the authority of
the charter granted to it by the Congress in 1863, the Academy has a man-
date that requires it to advise the federal government on scientific and
technical matters. Dr. Frank Press is president of the National Academy
of Sciences.
'''The National Academy of Engineering was established in 1964, under
the charter of the National Academy of Sciences, as a parallel organiza-
tion of outstanding engineers. It is autonomous in its administration
and in the selection of its members, sharing with the National Academy
of Sciences the responsibility for advising the federal government. The
National Academy of Engineering also sponsors engineering programs aimed
at meeting national needs, encourages education and research, and recog-
nises the superior achievements of engineers. Dr. Robert M. White is
president of the National Academy of Engineering.
The Institute of Medicine was established in 1970 by the National
Academy of Sciences to secure the services of eminent members of appro-
priate professions in the examination of policy matters pertaining to
the health of the public. The Institute acts under the responsibility
given to the National Academy of Sciences by its congressional charter
to be an adviser to the federal government and, upon its own initiative,
to identify issues of medical care, research, and education. Dr. Samuel
O. Thier is president of the Institute of Medicine.
The National Research Council was organized by the National Academy
of Sciences in 1°16 to associate the broad community of science and tech-
nology with the Academy's purposes of furthering knowledge and advising
the federal government. Functioning in accordance with general policies
determined by the Academy, the Council has become the principal operat-
ing agency of both the National Academy of Sciences and the National
Academy of Engineering in providing services to the government, the
public, and the scientific and engineering communities. The Council i
administered jointly by both Academies and the Institute of Medicine.
Dr. Frank Press and Dr. Robert M. White are chairman and vice-chairman,
respectively, of the National Research Council.
The program described in this report is supported by Cooperative
Agreement No. 14-12-0001-30301 between the Minerals Management
of the U.S. Department of Interior and the National Academv of
s
Service
Sciences.
Limited copies are available from:
Marine Board
Commission on Engineering and Technical Systems
National Research Council
2101 Constitution Avenue
Washington, DC 20418
Printed in the United States of America
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COMMITTEE ON CONTROL AND RECOVERY
OF HYDROCARBON VAPORS FROM SHIPS AND BARGES
WILLIAM M. BENKERT, Chairman, U. S. Coast Guard (-retired), McLean,
Virginia
SARI ATALLAH, Risk and Industrial Safety Consultants,
Illinois
Inc .,
ALLEN ELI BELL, Texas Air Control Board, Austin, Texas
ROBERT M. FREEMAN, Exxon Shipping Company, Houston, Texas
ROBERT J. KLETT, Chevron Research Company, Richmond, California
HENRY S MARCUS, Massachusetts Institute of Technology, Cambridge
ARTHUR McKENZIE, Tanker Advisory Center, Inc., New York New York
CONSTANTINO J. SANTAVICCA, The Ohio River Company, Cincinnati
RICHARD C. SCHWING, General Motors Research Laboratories
Michigan
Staff
CHARLES A . BOOKMAN, Director
AURORE BLECK, Senior Secretary
DUNCAN M. BROWN, Editorial Consultant
iii
Des Plaines,
, Warren
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MARINE BOARD
WILLIAM C. WEBSTER, Chairman, University of California, Berkeley
SIDNEY WALLACE, Vice-Chairman, U. S . Coast Guard (retired), Reston,
Virginia
ROGER D. ANDERSON, Cox's Wholesale Seafood, Inc., Tampa, Florida
KENNETH A. BLENKARN, NAE, Amoco Oil Co. (retired), Tulsa, Oklahoma
DONALD F. BOESCH, Louisiana Universities Marine Consortium, Chauvin,
Louisiana
C. RUSSELL BRYAN, U.S. Navy (retired), St. Leonard, Maryland
F. PAT DUNN, Shell Oil Company, Houston, Texas
JOHN HALKYARD, Offshore Technology Corporation, Escondido, California
EUGENE H. HARLOW, Soros Associates Consulting Engineers, New York,
New York
KENNETH S. KAMLET, A.T. Kearney, Inc., Alexandria, Virginia
DON E. KASH, University of Oklahoma, Norman, Oklahoma
DANA R. KESTER, University of Rhode Island, Kingston, Rhode Island
WARREN LEBACK, Puerto Rico Marine Management, Inc., Elizabeth, New
Jersey
EUGENE K. PENTIMONTI, American President Lines, Ltd., Oakland,
California
ERNEST L. PERRY, Port of Los Angeles (retired), Sun City, Arizona
RICHARD J. SEYMOUR, Scripps Institution of Oceanography, La Jolla,
California
RICHARD T. SOPER, American Bureau of Shipping, Paramus, New Jersey
BRIAN J. WATT, Consulting Engineer, Kingston, Texas
Staff
CHARLES A. BOOKMAN, Director
DONALD W. PERKINS, Associate Director
RICHARD W. RUMKE, Senior Staff Officer (retired, 1987)
CELIA Y. CHEN, Staff Officer
C. LINCOLN CRANE, Staff Officer
DORIS C. HOLMES, Administrative Associate
JOYCE B. SOMERVILLE, Administrative Secretary
AURORE BLECK, Senior Secretary
iv
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PREFACE
Several states are considering placing controls on vapor emissions
from the loading and ballasting of tankships and barges carrying vola-
tile organic compounds, mainly hydrocarbons. The object is to attain
federal standards for ambient air concentrations of ozone under the
National Ambient Air Quality Standards administered by the U.S. Environ-
mental Protection Agency (EPA). Hydrocarbon vapors contribute to ozone
formation in the lower atmosphere, which triggers atmospheric phenomena
(smog) that exacerbate lung conditions and related health problems in
the general populace.
Controls would require loading of cargo and ballasting in such a
manner that vapors could be piped ashore, for disposal or recovery, or
retained aboard. The U.S. Coast Guard and industry have identified a
number of safety and operational concerns. Safety concerns include the
risk of fire and explosion associated with handling vapors and the
dangers and accompanying risks associated with overloading and spills.
Operational concerns include the need for perhaps costly modifications
to vessels and loading terminals; better qualification, training, and
management of personnel; and improved operational controls to ensure
safety. Another potential problem is the possibility that regulations
in different locations could require equipment and procedures that are
incompatible with one another.
The Coast Guard, responsible for the safety of waterborne commerce,
requested that the National Research Council (NRC) conduct an assessment
to provide a sound technical basis for any contemplated state, federal,
and industry action. Accordingly, the NRC's Commission on Engineering
and Technical Systems (CETS) convened the Committee on Control and
Recovery of Hydrocarbon Vapors from Ships and Barges. Committee members
were selected with regard for the expertise necessary for the assess-
ment, and to achieve a balance of experience and viewpoints. (Biographi-
cal information is presented in Appendix A.) The principle guiding the
constitution of the committee and its work, consistent with NRC policy,
was not to exclude the bias that might accompany expertise vital to the
study, but to seek balance and fair treatment. The committee operated
under the auspices of the Marine Board, a unit of GETS.
The committee was asked to assess the technical, safety, and eco-
nomic aspects of maritime hydrocarbon vapor control and recovery
systems. It agreed to review the available and prospective technology
for vapor control; to identify engineering, operational, and cost con
v
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cerns for vessels associated with control systems; to examine safety
concerns and potential safety-related technical developments; and to
develop alternative procedures for achieving adequate national standards
and practices. The committee also agreed to recommend government and
industry initiatives for ensuring safe operation of maritime hydrocarbon
vapor control and recovery systems.
Two topics were j udged to be outs ide the scope of the study: ( 1 )
emission controls on vessel engine exhausts, and (2) the justification
for, or the environmental impacts of, air quality requirements.
The committee began its study by surveying 62 state and local envi-
ronmental or air pollution agencies to assemble an inventory of current
and contemplated regulations affecting the control of hydrocarbon vapors
from loading and ballasting vessels. A summary of its findings is pre-
sented in Appendix B.
The committee estimated the extent of these emissions nationally and
their distribution by state and air quality region. Using detailed
cargo data, the committee applied emission estimating models used by the
EPA. The estimates showed that gasoline and crude oil account for the
overwhelming majority of hydrocarbon vapor emissions from cargo loading;
the committee therefore restricted its further investigations to these
two cargoes.
The committee visited several large gasoline and crude oil loading
terminals to obtain a clear picture of operating procedures and tech-
nology. The site visits included several to terminals using vapor
recovery systems designed and installed for special cargoes.
The committee developed hypothetical but realistic technical systems
suitable for vapor control in situations typifying a variety of the
affected industries' operations. To put the costs of compliance in
perspective, the committee obtained independent estimates of the capital
and operating costs of these vapor control systems. It also conducted a
case study of two actual gasoline terminals in Texas to estimate the
costs of vapor control on the basis of throughput.
Committee meetings included site visits and briefings by government
and industry representatives and others with an interest in the study
topic. The committee also reviewed working papers prepared by its
members and consultants. The conclusions and recommendations represent
the committee's consensus.
ACKNOWLEDGMENTS
The committee benefited from the interest and contributions of a
number of individuals and organizations. Frits Wybenga and Kathy
Barylski of the U. S. Coast Guard worked closely with the committee in
all areas of its study, and provided much useful information on tank
vessel operations and safety. David Markwordt of the EPA also parti-
cipated actively in committee deliberations and contributed to the
cost-effectiveness analysis.
Early discussions with the American Institute of Merchant Shipping,
American Petroleum Institute, American Waterways Operators (AWO), and
Independent Liquid Terminals Association (ILTA) assisted the committee
vi
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in understanding the issues. John Prokop and Clement Mesavage of the
ILTA helped the committee identify marine terminals that load gasoline
or crude oil and the operators of the terminals. Joseph Farrell and
Thomas Allegretti of the AWO organized a task force of their organiza-
tion to assist the committee. This task force, chaired by Joseph H.
Pyne of Hollywood Marine Company, provided supplemental analyses of the
costs and operational implications of regulatory controls. These
analyses were performed under contract to the AWO by Booz-Allen &
Hamilton; John Wing and David St. Amand of the Transportation Division
of Booz-Allen & Hamilton met with the committee to convey the results.
Austin P. Olney and Laurie Frost of LeBoeuf, Lamb, Leiby & MacRae
provided an analysis of statutory and case law (Appendix C). Cordell
Haymon and other members of the Petroleum Services Corporation met with
the committee to discuss the training and responsibilities of inland
barge tanker personnel. Robert Conn of Shell Oil Company assisted in
the understanding of closed loading operations. Philip Wolfe and David
Noble of United Technical Design estimated the costs of sample vapor
control systems at the direction of the committee.
Several companies generously showed the committee their operations
and discussed marine loading and vapor recovery operations. These
included Exxon Baytown refinery and terminal, Houston, Texas; Bay Tank
Terminal , Houston ; Chotin Marine Transportation, Baton Rouge, Louisiana;
Hall - Buck Marine Services Company, Baton Rouge; Exxon Terminal, Baton
Rouge; and Shell Terminal, Norco, Louisiana.
While committee members serve as individuals, several experts from
their organizations provided invaluable assistance. Thomas Grimmett of
the Massachusetts Institute of Technology assisted with the analysis of
tank vessel emissions. Harald Lyche of Chevron contributed to the
description of vapor control technologies and assisted in other ways.
Alex Opiela, Beverly Fowler, John Turney, and Freylon Coffey of the
Texas Air Control Board also undertook substantial assignments at the
direction of the committee. Jim Montenieri and Gary Wesiowski of
IMO-Delaval, Inc., briefed the committee on closed-tank gauging systems.
vii
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