[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