Availability of Model State Training and Certification Programs for High Capacity Fossil Fuel-Fired Plant Operators

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]

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