Legislature(2009 - 2010)SENATE FINANCE 532
03/24/2009 01:30 PM Senate FINANCE
| Audio | Topic |
|---|---|
| Start | |
| Presentation: Epa Cruise Ship Dilution Study | |
| Adjourn |
* first hearing in first committee of referral
+ teleconferenced
= bill was previously heard/scheduled
+ teleconferenced
= bill was previously heard/scheduled
| + | TELECONFERENCED | ||
| + | TELECONFERENCED |
SENATE FINANCE COMMITTEE
March 24, 2009
1:41 p.m.
1:41:58 PM
CALL TO ORDER
Co-Chair Stedman called the Senate Finance Committee meeting
to order at 1:41 p.m.
MEMBERS PRESENT
Senator Lyman Hoffman, Co-Chair
Senator Bert Stedman, Co-Chair
Senator Charlie Huggins, Vice-Chair
Senator Johnny Ellis
Senator Donny Olson
Senator Joe Thomas
MEMBERS ABSENT
None
ALSO PRESENT
Lynn Kent, Director, Division of Water, Department of
Environmental Conservation; Denise Koch, Cruise Ship Program
Manager, Division of Water, Department of Environmental
Conservation; John Binkley, President, Alaska Cruise Ship
Association.
PRESENT VIA TELECONFERENCE
Brian Rappoli, Ocean and Coastal Protection Division, Office
of Water, Environmental Protection Agency.
SUMMARY
^Presentation: EPA Cruise Ship Dilution Study
1:42:19 PM
Co-Chair Stedman stated that on February 25, 2009, the
Environmental Protection Agency (EPA) released a report on
the cruise ship plume dilution study conducted in Skagway in
July 2008.
1:43:16 PM
BRIAN RAPPOLI, OCEAN AND COASTAL PROTECTION DIVISION, OFFICE
OF WATER, ENVIRONMENTAL PROTECTION AGENCY (testified via
teleconference), provided an overview.
Dr. Rappoli remarked on collaborative efforts between the
EPA and the Department of Environmental Conservation (DEC)
in cooperation with the owners and operators of three cruise
lines. He described the study as an investigation into how
cruise ship discharge plumes dilute in close proximity to
the vessel, also referred to as "near field dilution." The
scientists accomplished their research by using a
combination of equipment installed aboard the vessels and
equipment external to the ships located on a small boat
operated by members of a sampling team.
Dr. Rappoli described the precision metering system, which
pumps an accurately known amount of rhodamine dye into the
discharge lines aboard a ship. He commented that this action
was performed well upstream of the discharge port to ensure
complete mixing of the dye with treated water. A fluorometer
located downstream measured the dye's concentration prior to
leaving the ship and subsequently helped to determine the
solution as it moved away from the vessel.
1:47:42 PM
Dr. Rappoli explained that in order to track the plume
concentration, the small boat operated on a predetermined
set of transects. He informed the committee that the
sampling crew towed an instrument package to measure the
temperature gradient, depth and salinity of the water
column. A specially tailored portable fluorometer made up
the heart of the system and measured rhodamine concentration
using a correct set of filters and excitational lamps. The
very sensitive instrument required a minimum amount of dye
and recorded concentrations in the part per billion range.
1:49:09 PM
Dr. Rappoli noted the advantages to collecting samples and
recording data in real time.
Dr. Rappoli restated that the purpose of the study was to
give both EPA and DEC a better understanding of how cruise
ship discharges dilute in a receiving body of water. The
agencies chose Skagway as a port with relatively low
flushing. The Department of Environmental Conservation
intended to use the information collected in further
analysis.
Dr. Rappoli voiced that the sampling episode report's major
purpose was to present a very large volume of broad data.
The sponsors published early thinking the findings important
and have made the results publicly available on their
website. Dr. Rappoli observed that the report contained only
a very brief and narrative description of an extensive data
set. He clarified DEC's part in carrying out a true
technical analysis.
1:52:47 PM
Senator Huggins asked for insight into dye calculations
particularly at the higher degree transects and a brief look
into the experiment's overall conclusions. Dr. Rappoli
replied that the EPA had never intended to conduct
hydrodynamic analysis of the plumes. The highly variable
descriptions are typically done using computational models
in academic and regulatory circles. The Department of
Environmental Conservation will perform that part of the
analysis.
Senator Olson wondered at the correlation between a dye of
specific molecular weight and microorganisms. He persisted
that microbes would have a different settling component or
coefficient of spread-ation throughout the water.
Dr. Rappoli agreed that the rhodamine dye is a relatively
large molecule; however it is miscible with water.
Scientists assume the dye remains homogeneous and does not
physically associate with the water column. The dye has been
used for a number of years in everything from detecting
leaks in delivery systems to oceanographic studies. He knew
of no instances where there had been problems.
Dr. Rappoli addressed how a chemical molecule might behave
relative to a small microbe. Considering the high kinetic
energy in the proximity of the plume, he thought it unlikely
that observers would see gravitational effects due to the
small differential in the density and buoyancy of a microbe.
He conceived that larger particulates would need to be used
before showing significant effect.
1:57:49 PM
Dr. Rappoli reassured committee members of the very low
fecal coliform release rates of vessel systems.
Senator Olson wanted to know the validity of the study as
related to issues of disease. Dr. Rappoli declared that the
sampling crew was not in these early kinetic stages seeing
effects of discharge upon the receiving environment.
LYNN KENT, DIRECTOR, DIVISION OF WATER, DEPARTMENT OF
ENVIRONMENTAL CONSERVATION, provided background information.
The Legislature appropriated capital money to DEC last year
to fund a study of "the effect of providing for dilution of
effluent from cruise ships." A project partnership with the
EPA allowed use of their research vessel, "The Bold", which
served as the mother ship for studies.
Ms. Kent said that DEC continues to work with EPA to
characterize the results of the experiment. She delineated
EPA's share of the labor and its agreement to write certain
reports. She disclosed additional DEC goals, such as using
the data to validate computer modeling of plume behavior in
water. She informed that the department provided a
preliminary report to the Legislature in January.
2:00:33 PM
Ms. Kent directed attention to a handout, "An Assessment of
the Cruise Ship Plum Dilution Study Performed in Skagway,
Alaska, July 2008" (Copy on File).
DENISE KOCH, CRUISE SHIP PROGRAM MANAGER, DIVISION OF WATER,
DEPARTMENT OF ENVIRONMENTAL CONSERVATION, summarized the
findings using a PowerPoint presentation, "Cruise Ship
Stationary Dilution Study Presentation, Senate Finance
Committee, March 24, 2009" (Copy on File).
Slide 1 - "What is a dilution factor?"
Ms. Koch explained that researchers put a known
concentration of a dye into treated wastewater aboard a
participating vessel. The cruise ship discharges the mixture
into marine waters where a sampling team measures the dye's
concentration in the receiving environment.
Ms. Koch demonstrated dilution factor. For example:
"If the concentration of dye in a ship's treated
wastewater equaled 100 and the measured concentration
of dye in the receiving waters came to 5, then the
result would amount to a dilution factor of 20."
2:05:04 PM
Slide 2 - Why is a dilution factor important?
Ms. Koch said that DEC must evaluate both the pollutant
sample results and the dilution of the wastewater in the
environment to estimate whether wastewater exceeds water
quality standards (WQS) in marine waters.
Slide 3 - Dilution of Wastewater while Vessel is Moving
Ms. Koch referenced a 2001 study conducted by the EPA, which
concluded that: wastewater is subject to a tremendous amount
of instantaneous, turbulent dilution behind a moving cruise
ship, and that based upon field studies, the Science
Advisory Panel estimated a conservative dilution factor of
50,000.
Senator Huggins solicited a framework for the parenthetical
"(min speed of 6 knots and discharge at 200 cubic
meters/hour)".
Ms. Koch explained that it is the customary procedure for
cruise ships to discharge wastewater one nautical mile from
shore, while traveling at 6 knots. Researchers arrived at
the volume as a standard for a reasonable amount of
wastewater discharged from a vessel's holding tank after a
ship has been in port, drawn anchor and is underway.
2:08:58 PM
Slide 4 - Dilution of Wastewater while Vessel is Stationary:
Ms. Koch referenced DEC's partnership with EPA in the
present study to collect field data and examine dilution
factors (mixing) for a stationary cruise ship. She
elucidated the "worst case" selection of the port of Skagway
as a representative location with ample cruise ship traffic
and limited flushing.
Slide 5 - Methods Used to Collect Dilution Data for
Stationary Cruise Ships:
· This is a near field dilution study.
· Measurements were taken in the receiving water between
the hull of the vessel at intervals up to 15 meters (49
feet; 1 meter = 3.28 feet) away.
· Six cruise ships volunteered to participate.
Ms. Koch outlined the above slide highlighting usable data
from only four of the six vessels because of weather and
instrument issues.
2:11:21 PM
Ms. Koch called attention to a picture of dye being released
from a cruise ship and measurements being taken in receiving
waters (Slide 7). A small boat connected to the vessel with
a magnet used a yellow line to measure distance from the
hull. A shorter line dropped into the water from the small
boat had an instrument that recorded the concentrations of
the dye. The bottom half of the photograph showed the red
rhodamine dye. General observation of the plume revealed
that the roughly circular packet of dye water moved
cohesively away and became diluted as it moved out.
2:13:29 PM
Ms. Koch turned to results (Slide 8). She re-emphasized the
largeness and complexity of the 1400 page data set and DEC's
attempt to summarize and present it in the best way.
Ms. Koch directed members to a visual on the next slide
(Slide 9) that illustrated a 'Time Lapse' plot of plume on
the cruise ship the Norwegian Star over the course of a day
on July 16, 2008.
2:15:38 PM
Ms. Koch posed the question "How do you apply the dilution
results to cruise ship sample data to determine where Water
Quality Standards are met in the harbor?" (Slide 10)
Ms. Koch reiterated that WQS protect aquatic life and public
health. The cruise ship general permit sets the effluent
limits for wastewater at the point of discharge as the WQS;
the two are one and the same. She noted that the department
has a full data set from all cruise ships that discharged in
Alaska waters in 2008 because vessels must give the
information as part of the permit.
Ms. Koch furthered that cruise ships systems do very well
meeting the standards for fecal coliform, ph or chlorine,
but have a difficult time with the stringent requirements
for ammonia, copper, nickel and zinc at the "end of pipe."
Slide 11 - (continuation of Slide 10.)
Ms. Koch illustrated standard scientific approach to complex
data as looking first at the potential worst case scenario.
If no problem exists under worst case scenario conditions,
then the researcher can feel confident extrapolating the
results to milder cases.
Ms. Koch demonstrated the worst case scenario equation used
in the study: "Skagway + max[imum] conc[entration] of
pollutants + lowest dilution factor = worst case scenario."
2:18:30 PM
Ms. Koch reported that researchers found a range of dilution
factors from about 4 to 12 at 2.5 meters (9 feet) from the
ship. (Slide 12) Dilution factors vary based upon velocity
of the wastewater discharged, the diameter of the pipe, and
the shape of the port, etc. In a worst case scenario using
the maximum amount of pollutant concentration divided by 4
(the least dilution), ammonia, copper, nickel and zinc all
exceed WQS in the receiving water.
Slide 13 - (continuation of Slide 12.)
Ms. Koch analyzed the results at 2.5 meters using a best
case dilution factor of 12. She summarized that nickel and
zinc meet WQS in the receiving water, but ammonia and copper
do not.
Ms. Koch reviewed the dilution factor at the outermost
circular transect of 15 meters from the ship (Slide 14):
· The lowest dilution factor (i.e. the least dilution
or "worst case") was 28.
· The highest dilution factor (i.e. best case - most
dilution) was 63.
Co-Chair Stedman requested clarification as to whether the
results referred to a boat traveling at 6 knots or tied to a
dock. Ms. Koch affirmed that this most recent study took
place while the boat was stationary.
Senator Olson wondered why the study targeted the four
pollutants when ammonia is a natural byproduct of most
living organisms and the others are elements in the periodic
table.
Ms. Koch pointed out that DEC has had a cruise ship program
since 2001 part of which involved vessels taking samples of
their wastewater effluent. After 2006, when law required DEC
to establish a permit for cruise ships, the department had a
large body of sample data. The administration compared
actual data to WQS and chose the most stringent regulations.
2:23:08 PM
Ms. Koch saw a problem in that ships were exceeding
standards for ammonia, copper, nickel and zinc. Ammonia
comes from urine; copper, nickel and zinc come from potable
water bought in towns. Sometimes soft water generated by
evaporators picks up metals in the piping systems.
Senator Huggins asked if same thing happened in homes.
2:25:04 PM
Ms. Koch commented that sewage from a home would contain
lesser concentrations of ammonia because domestic systems
generally have more water. Homes do not have the water
saving mechanisms that a cruise ship employs. She explained
that even a plant delivering fresh drinking water from the
utility to an individual's home will pick up some metals
from the plumbing. She pointed out that 1,300 parts per
billion is the WQS for copper in drinking water safe for
human consumption. Fish display a high sensitivity to copper
and the WQS set to protect aquatic life registers much lower
at 3.1 parts per billion.
Senator Huggins asked where Ms. Koch went to school. Ms.
Koch said that she received her Masters degree from the
University of Washington.
Ms. Koch returned to the range of dilution factors at 15
meters.
2:27:39 PM
Ms. Koch recounted that ammonia and copper exceeded WQS at
2.5 meters, which prompted the crew to test the water
further out.
Slide 15 -Dilution Factor at 15 meters from Ship
Ms. Koch detailed that applying the maximum concentration
for a pollutant in the 2008 season and dividing by the
highest dilution will yield the best case scenario in which
all four parameters meet WQS at 15 meters. In a worst case
combination of a maximum pollutant with minimum dilution,
ammonia and copper still exceed WQS at the 15 meter
distance.
Ms. Koch approached the data as relative to the current
general permit for cruise ships. She acknowledged that DEC
knew cruise ships would have a difficult time meeting
parameter limits. The department solved the problem by
initiating two levels of standards. More lenient interim
limits apply only to the 2008 and 2009 season. In 2010, more
stringent effluent limits equaling WQS take effect. The
department wished to give the industry time to move towards
compliance.
Slide 16 - Comparison with Interim Limits in Cruise Ship
Permit
Ms. Koch used the same dilution factor equation and compared
the calculations to the interim limits set in permit. In a
worst case dilution, 2.5 meters from the hull, ammonia,
copper, nickel and zinc all exceed WQS.
Slide 17 - (continuation of Slide 16.)
Ms. Koch applied the same procedure using a worst case
dilution at 15 meters and all four parameters met WQS. Based
upon data from the four ships, a ship whose wastewater
complies with interim limits will also meet WQS at 15
meters.
2:31:30 PM
Slide 18 - Validation of Computer Models
Ms. Koch revealed an achieved goal of DEC's to use actual
field data in testing a computer model. She pleasantly
reported that in close proximity, computer models were
fairly accurate in predicting the dilution factor. Modeling
estimated a lower dilution factor than researchers observed.
If researchers relied solely on computer software, the
results would appear more protective of the environment.
Co-Chair Stedman asked for comparative evaluation of the two
reports done by EPA and DEC.
Ms. Koch said DEC wanted to validate the computer modeling.
The department also tried to add value to EPA's endeavors by
relating the dilution factors to both Alaska WQS and interim
limits in the general cruise ship permit.
2:34:10 PM
Co-Chair Hoffman asked if under a worst case scenario of
maximum concentration and minimum dilution factor of 28,
ammonia and copper would pass WQS in Washington, Oregon and
California at 15 meters from the ship.
Ms. Koch imagined the standards would be met. She mentioned
that states oftentimes look to EPA to set WQS and then adopt
the federal agency's limits. She offered to verify the
information.
Co-Chair Hoffman sought to reaffirm that researchers
conducted no studies at speeds of 6 knots and discharges at
a rate of 200 cubic meters/hour.
Ms. Koch confirmed that the earlier study carried out on
moving cruise ships did rely on field data. The stationary
ship study had similar components.
Co-Chair Hoffman asked if the 2010 minimum WQS are set for
Alaska only.
Ms. Koch replied that the general permit only applies to
Alaska. Alaska has the most stringent standards for cruise
ship wastewater discharge in the country.
2:37:42 PM
Senator Huggins asked if DEC planned on applying the
standards to the state ferry system.
Ms. Koch replied that the "Commercial Passenger Vessel
Program" has a component for looking at smaller vessels,
including ferries and small ships with an overnight capacity
of between 50 and 249 passengers. The 2006 law required DEC
to write a permit for large ships, and it does not apply to
the small ships. Instead, established standards regulate
substances such as fecal coliform, chlorine and the total
amount of suspended solids in the wastewater. Standards do
not exist for ammonia, copper, nickel and zinc.
Senator Huggins asked if tides and currents factored into
the study.
Ms. Koch responded that researchers collected data
surrounding weather conditions, temperature, wind speed and
direction, the tides, currents and speed of the tides in
addition to dye concentration. These factors become evident
in the time lapse pictures of plume distribution for all
four cruise ships found in the draft report, "An Assessment
of the Cruise Ship Plume Dilution Study." Scientists
observed that the plumes themselves do not always move in a
particular orientation, and that tides and currents
certainly affect plume direction.
2:41:30 PM
Senator Huggins pondered whether some WQS are beyond modern
engineering capabilities.
Ms. Koch referred to another issue in the Commercial
Passenger Vessel Program that looks at what technologies
could be used to meet the stringent standards. She
referenced a conference on February 18, 2009 between DEC, a
contractor and a team of experts that began by looking at
non-complying 2008 cruise ship systems. The symposium
conducted a search into other vessels with on-board
mechanisms that would meet WQS and found none. The group
scouted land-based technologies with success.
Ms. Koch reported a number of factors to consider when
adapting technologies to a marine environment. The
department asked wastewater treatment vendors how long it
would take to install adapted technologies on a cruise ship.
Vendors gave a timeframe of about 1-2 years.
Co-Chair Stedman inquired into the prevalence of land-based
technologies in compliance with WQS. He wondered if the
systems exist in a testing stage or fully implemented in
numerous locations around the country.
Ms. Koch delineated that vendors would consider the
technologies to be high-end and found in places, like
Silicon Valley, with metals in the effluent. A municipal
sewage treatment plant would not include these technologies
as a standard part of a system.
2:45:31 PM
Senator Huggins asked if the city of Juneau meets WQS.
Ms. Koch informed that Juneau has three municipal systems
that generally meet secondary treatment standards. The
plants need only to periodically report by taking a sample
of the effluent but have no limits associated with metal
concentration.
Senator Huggins asked if Juneau exceeds the pollutant
limits. Ms. Koch summarized that sometimes the Juneau-
Douglas plant exceeds WQS and sometimes it meets them.
Senator Ellis questioned whether cruise ships could achieve
WQS required by the citizen's initiative in the relatively
short period of 1-2 years.
2:47:34 PM
Ms. Koch verified that vendors thought the technologies
would take a year or two to adapt. She noted the newness of
the procedure and uncertainty in guaranteeing an outcome.
She spoke of cruise ships trying to maximize existing
technologies and conveying more confidence in meeting the
standards for ammonia than for metals.
Senator Ellis thanked DEC for holding the technology
conference, which has pushed the conversation forward.
2:49:00 PM
JOHN BINKLEY, PRESIDENT, ALASKA CRUISE SHIP ASSOCIATION
(ACA), referenced ACA's participation in the original 1999
science panel convened to do definitive work on wastewater
discharge. The panel brought about the moving cruise ship
dilution study and made recommendations to the 2001
Legislature to adopt the highest standards for wastewater
discharge in the world. The industry has spent over $200
million to install systems and achieve the best treatment
aboard any vessels in Alaska. Mr. Binkley displayed a test
tube containing cruise ship discharge. Because of the
exceedingly high level of wastewater treatment, DEC allows
ships to discharge continuously - while underway or docked.
He applauded cooperation between the industry and regulators
to find ways to do better.
Mr. Binkley emphasized the salient point mentioned in the
executive summary:
"Based upon the data from the four ships in this study,
a ship whose wastewater complies with the interim
limits will meet the WQS at 15 meters (49 feet)."
Mr. Binkley drew a parallel between the room and a swimming
pool where water discharged at one end would meet standards
at the other. He pointed out the achievement of exceedingly
high levels of treatment in the space where aquatic life is
most sensitive. He stressed the industry's current
accomplishments.
Mr. Binkley brought attention to the 50,000 to 1 dilution
that occurs "almost instantaneously" behind a moving ship.
2:53:52 PM
Mr. Binkley declared ACA's willingness to keep improving. He
mentioned the association's present work on reducing the
amount of ammonia. He added that the high concentration of
ammonia exists because cruise ships consume very little
water. Vessels deem water a precious commodity and water
systems are expensive to operate and maintain.
Co-Chair Stedman asked for comment on the saying, "Dilution
is no solution to pollution."
Mr. Binkley had a different view. He believed, "Dilution IS
the solution to pollution." He expounded that Mother Nature
deals with the contamination of air quality as well as water
bodies in this manner; he found it to be a valid
methodology.
2:57:55 PM
Senator Huggins requested a characteristic display of the
industry working in conjunction with DEC to solve the
problem.
Mr. Binkley thought the technology conference showed a good
example. He took exception with DEC's conclusions of
achievable technologies within 1-2 years. He thought this a
tremendous stretch. He described systems that cannot be used
on a ship. He urged an appropriate level of water treatment
based on science coupled with the technologies.
3:01:34 PM
ADJOURNMENT
The meeting was adjourned at 3:01 PM.
| Document Name | Date/Time | Subjects |
|---|---|---|
| EPA Cruise Ship Dilution Study.pdf |
SFIN 3/24/2009 1:30:00 PM |