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FAA Noise Hearing II m,,yL_-_-A9-_._.sS_O/ "r_ EPA 550/9-77-203 NOISEEMISSIONSTANDARDS FORTRANSPORTATIONVEHICLES PROPOSED MOTORCYCLE NOISEEMISSIONREGULATIONS BACKGROUNDDOCUMENT Novembe1977r U.S.ENVIRONMENTALPROTECTIONAGENCY OFFICEOF NOISEABATEMENTAND CONTROL WASHINGTON,D.C. 20460 EPA 850/9.77-203 UNITED STA'I'I_S ENVIRONMENTAL PI(OTECI'ION AGENCY OFFICE OF NOISE ABATIIMENT AND CONTROL BACKGROUND DOCUMENT FOR PROPOSED MOTORCYCLE NOISE EMISSION REGULATIONS 1 I No_Jnber 1977 This document hasbeen approved for general .... awdlabillty. It does not constitute a standard, specification, or regtdation. FOREWORD Tilis baek_romld document w;is pr_q_:lredin support of the U.S. Environmental Protection Agency's Proposed Noise Emission Regulations for New Motorcycles and New Motorcycle Rellhlcenlent Exhnust Systems. These l_.egula- tJons ])_lve been proposed pttrsll_lllt 10 the nlLltld_ltnof Congress. _lsexpressed in The Noise Control Act of 1972 (86 Star, 1234). I Table of Contents Page Number Section1 INT_3DUCTION i-i Section 2 INDUSTRY DESCRIPTION 2-1 2.1 ProductDefinition 2-1 2.2 New Vehicle Manufacturers 2-3 2.2.1 Market Shares and Sales 2-8 2.2.2 Product Lines 2-13 2.2.3 MotorcyclePrices 2-13 2.2.4 Typical New Motorcycle Manufacturers 2-13 2.3 AftermarketIndustry 2-34 2.4 MotorcycleDealers 2-46 2.5 Total U.S, Motorcycle Industry Employment 2-51 2.6 Motorcycle Warranties 2-52 Section 3 SOUND LEVEL TEST PROCEDURES 3-1 3.1 Applicationand Criteria 3-1 3.2 Candidate Moving Vehicle Test Procedures 3-2 3.3 Candidate Stationary Vehicle Test Procedures 3-26 i 3.4 Measurement Distance Substitution 3-36 Section4 SOUNDL5%IELDATABASE 4-1 4.1 Content and Format of the Data Base 4-1 4.2 Test Site, Bider, and Vehicle Variables 4-14 4.3 Data Base Statistical Summaries 4-18 4.4 Aftermarket Exhaust Systems 4-20 4.5 Sound Levels at the Operator and Passengerts Ear Position 4-28 Section 5 PUBLIC HEALTH AND WELFARE ANALYSIS 5-1 5.1 Current Street Motorcycle Sound Levels 5-3 5.2 Effect of Noise Regulations on Motorcycle SoundLevels 5-8 5.3 Description of Traffic Noise Impact 5-10 5.3.1 Method for Calculating Traffic Noise Impact " 5-14 5,3.2 Reduction in Traffic Noise Impact 5-26 5.4 Motorcycles as an Individual Noise Source 5-31 Table of Contents (Continued) Page Number 5.5 Reduction of Single-Event Noise Impact 5-32 5.5.1 SpeechInterfereece 5-35 5.5.2 Sleep Disturbance 5-54 5.5.3 Other Factors in Reduction of Single-Event Noise Impact 5-58 5.5.4 Summary 5-59 5.6 Analysis of Noise Impact of Motorcycles UsedOff-Road 5-64 5.6.1 Distribution of Off-Road Motorcycle Sound Levels 5-65 5.6.2 Detectability Criterion 5-69 5.6.3 Off-Read Motorcycle Operations 5-70 5.6.4 Estimate of Current Noise Impact 5-70 5.6.5 Relative Reduction in Noise Impact 5-74 5.7 Operator and Passenger _bise Impact 5-78 References 5-83 Section 6 SOUND REDUCTION TECHNOLOGY 6-1 6.1 Diagnostic Evaluation of Sound Sources 6-1 6.2 Sound Reduction Ted_nology 6-3 6.3 Impacts of Sound Reduction Technology 6-11 6.3.1 Performance Impacts 6-11 6.3.2 Operation Impacts 6-13 6.3.3 Maintenance Impacts 6-13 6.4 Production Variations 6-14 6.5 "Best Available Technology" 6-16 6.6 LeadTimes 6-18 6.7 Deterioration of Motorcycle Sound Levels 6-19 6.8 Relationship to Air Emission Control 6-21 6.9 Technology to Achieve Sound Levels Based on Different Measurement Methodologies 6-21 Section 7 COSTS OF COMPLIANCE 7-1 7.1 UnitCost Increases 7-1 7.1.1 Manufacturer Estimates for Specific Models 7-1 7.1.2 Manufacturing Unit Cost: Generalized Estimate 7-4 7.1.3 Research and Development Costs 7-25 7.1.4 Tooling and Other Manufacturing Equipment Costs 7-30 ii Table of Contents (Continued) Page Number 7.1.5 Testing and Certification Costs 7-35 7.1.6 Total Unit Cost Increases 7-37 7.2 Purchase Price Impacts 7-41 7.3 Replacement Exhaust System Price Impacts 7-56 7.4 OperationCosts 7-59 7.5 Maintenance Costs 7-60 7.6 Costs of EPA Air Emission Requirements 7-61 Section 8 ECONOMIC IMPACT ANALYSIS 8-1 8.1 New Motorcycle Sales Forecast 8-1 8.1.1 Historical New Motorcycle Sales andTrends 8-1 8.1.2 Recent Market Developments 8-11 8.1.3 Baseline Forecast Of New MotorcycleSales 8-15 8.2 Impacts on New Motorcycle Demand 8-23 8.2.1 Price Increase Impacts 8-23 8.3 Impacts on Demand for Products and Service 8-27 8.3.1 Historical Aftermarket Sales and Trends 8-27 8.4 TotalAnnualizedCosts 8-38 8.4.1 Vehicle Annualized Costs 8-38 8.4.2 Aftermarket Exhaust Annualized Costs 8-42 8.5 Expected Impacts on Individual Manufacturers 8-44 8.5.1 Street Motorcycles 8-44 8.5.2 Off-Road Motorcycles 8-47 8.5.3 Aftermarket Exhaust Systems 8-47 8.6 Impact on U.S. Employment 8-48 8.7 RegionalImpacts 8-49 8.8 Impact on GNP and Inflation 8-50 8.9 Impact on Foreign Trade 8-50 Section9 OTHER ENVIRONMENTALEFFECTS 9-1 Section10 REGULA_DRYALTERNATIVES 10-i iii Table of Contents (Continued) Page Number Section ii ENFORCERE_9 II-I ii.i General Ii-i 11.2 Test Procedures 11-2 11.3 Original Equipment Sound Level 11-2 11.4 Universal Muffler 11-2 11.5 Preduction Verification 11-3 11.6 Selective Enforcement Auditing 11-5 11.7 Stationary Sound Level Verification 11-7 11.8 SRA: Stationary Sound Level 11-8 11.9 Labeling 11-8 ii.i0 Right of Entry and Record Keeping 11-9 ii.iiExemptions ii-i0 11.12 In-Use Compliance 11-10 11.13 Acoustical Assurance Period (AAP) Complionce Ii-ii 11.14AdministrativeOrders 11-13 Appendix A. _D_ORCYCLE NOISE EMISSION TEST PROCEDURES A-I B. TEST SITES AND INSTRL_fATION B-I C. PRODUCT IDENTIFICATION AND SOUND LEVELS C--I D. STATE AND FOREIGN LAWS D-I E. OPERA_OR AND PASSENGER EXPOSURE TESTING PROGRAM E-I F. MOIORCYCLE DEMAND FORECASTING MODEL F-I G. RELATION BETWEEN STANDARD TEST METHODOLOGIES AND REPRESENTATIVE ACCELERATION CONDITIONS G-I H. RECENTLY GATHERED MOTORCYCLE SOUND LEVEL DATA H-I I. REFINEMENT OF MOTORCYCLE TESTING PROCEDURE I-i iv SECTION I INTRODUCTION Section 1 ItCPRODUCTION Statutory Basis for Action Through the Noise Control Act of 1972 (86 Stat. 1234), Congress established a national policy "to p_omote an onviromncnt for all Americans free from noise that jeopardizes their health and welfare." In i_ursuitof that policy, Congress stated in Section 2 of the Act that "while primary responsibility for control of noise rests with State and local goverrm_ents, Federal action is essential to deal with major noise sources in commerce, the control of which requires national unifor_.nityof treatment." As part of that essential Federal action, s[Ibsection5(b)(i) rc_uires the Administrator of the Envirom,cntal Protection Agency (EPA), after consul- tation with appropriate Federal agencies, to publish a report or series of reports identifying products (or classes of products) which in his judgement are major sources of noise. Further, Section _ of the Act requires the EPA to publish proposed regulations for each product identi- fied as a major _ource of noise and for which, in his judgment, noise standards are feasible. Such products fall into various categories, of which transportation equiimle_]t(including recreational vehicles and related equipment) is one. Identification of Motorcycles as a Nn_or Noise Source Pursuant to the provisions of subsection 5 (b)(i), the Administrator on May 20, 19751published a report identifying new motorcycles as a major source of noise. As required by Section 6, EPA is required to orescribe standards for the noise emissions of new motorcycles which are requisite to protect the public health and welfare, taking into account the magnitude and conditions of use of new motorcycles, the degree of noise reduction achievable through the application of best available technology, and the cost of compliance. In accordance with the authorities granted Jn Sections 3, 6, and 10 of tlleAct, EPA may establish performance standards for specific com- ponents of those products which have been identified as major sources of noise. Peplacemont exhaust systems, which are noise sensitive components of motorcycles, have, in the judgment of the Administrator, been found to _tsrrantseparate regulatory treatment as part of EPA's noise abatement strategy for new l_otorcyeles. IFednral Rc_qistor;4UFR 23105, I.lay2_, 1975. i-i Provisions for requiring the labeling of products identified as major sources of noise are contained in Sections 6 and 13 of the Noise Control Act. Labeling of motorcycles will provide notice to buyers that the product is sold in conformity with app]iesble regulations, and will also make the buyer and user aware that the motorcycle possesses noise attenuation devices which should not be removed or tampered with. Labeling will also be of assistance to enforcement officials in determining compli- ance with applicable laws and ordinances. Preemption After the effective date of a regulation for noise emissions from a new product, Section 6 of the _4oiseControl Act reguires that no State or political subdivision thereof may adopt or enforce any law or regulation which sets a limit on noise emissions from such new products, or components of such new products, which is not identical to _he standard prescribeO by the Federal regulation. Subsection 6(e)(2), however, provides that nothing in Section 6 precludes or denies the right of any State or [9olit- ioal subdivision thereof to establish and enforce controls on environmental noise through the licensing or the regulation or restriction of the use, operation, or movement of any such product or co_.binatlonof products.
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