1 STAFF REPORT
D
ATE: September 10, 2024
T
O: Justin Hess, City Manager
F
ROM: Patrick Prescott, Community Development Director
Marisa Garcia, Park, Recreation and Community Services Director BY: Katie Picha, Administrative Officer
S
UBJECT: Discussion on a Ban on the Use of Gas-Powered Leaf Blowers in the City of Burbank
RE
COMMENDATION
Note and file.
BA
CKGROUND
At the November 15, 2022 City Council meeting, then Vice Mayor Nick Schultz requested a first step report on banning the use of gas-powered leaf blowers in the City of Burbank (City). On October 19, 2023, Council M ember Tamala Takahashi requested a memorandum on the ban of gas -powered leaf blowers.
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n September 2020, Governor Gavin Newsom signed Executive Order N-79-20 (Order) indicating that a climate change crisis is impacting the State of California in unprecedented ways, affecting the health and safety of its residents. The Order states that zero emission technologies reduce both greenhouse gas emission s and toxic air pollutant s. Further, the Order pledged to accelerate California’s actions to mitigate and adapt to climate change, and more quickly move toward a low -carbon, sustainable, and resilient future.
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n response to the Order, Assembly Bill 1346 (AB 1346) was brought forth and later signed into law by Governor Newso m in October 2021. AB 1346 directed the California Air Resources Board (CARB) to develop cost- effective and technologically feasible regulations that would effectively stop the sale of new gas -powered, small, off-road engines (SORE1). CARB’s updated SORE regulations require new engines (Model Year 1 SOREs are spark-ignition engines with rated power at or below 19 kilowatts (25 horsepower), primarily used for leaf blowers and lawn mowers. However, the other equipment such as generators, lawn mowers, weed trimmers, chain saws, golf carts, airport ground support equipment, and specialty vehicles are also included .
COMMUNITY
DEVELOPMENT
ATTACHMENT 2 - 1
2 2024 or later) to be certified and labeled to meet emission standards and other requirements. Beginning with this year’s 2024 models, the regulations require all sales of new SOREs, including gas-powered leaf blowers, to be zero-emission. 2 While the regulations now require new SORE models sold in California to be zero-emission, they do not ban the use of existing gas -powered SOREs.
DISCUSSION
CARB’s regulatory ban applies to the sale of new gas-powered SOREs (Model Year 2024 and later) and primarily affects the manufacturers. There are no bans on the possession, use, repair, or sale of existing equipment (Model Year 2023 and earlier), provided that the equipment complies with the CARB emission requirements applicable to those earlier models. Residents and local landscapers can continue using their existing equipment under these new requirements. However, as aging equipment reaches its end of life, old equipment will be replaced by zero- emission SOREs due to CARB’s regulations .
The Park, Recreation, and Community Services Department in conjunction with the Community Development Department submitted a memorandum to the City Manager on October 3, 2022, providing information on how to transition gardeners/landscapers from gas-powered leaf blowers to electric leaf blowers (Attachment 1). The memorandum included information on the benefits of transitioning to alternative equipment and provided information for residents and landscapers on existing and upcoming incentive, rebate, and buy -back programs, such as the South Coast Air Quality Management District (SCAQMD), CARB, and Burbank Water and Power’s Commercial Landscape Battery Rebate Program.
Several local cities have implemented a ban on the use of gas -powered leaf blowers, including the Cities of Glendale in 2024, Pasadena in 2023, and South Pasadena in 2022.
The Cities of Beverly Hills (1976), Los Angeles (1998)
3, Santa Monica (1991), and West
Hollywood (1986) also banned the use of gas -powered leaf blowers.
A ban on the use of gas -powered leaf blowers should consider the balance between environmental and public health benefits and the economic and operational impacts on residents and workers. Purchase, replacement, and maintenance costs should be taken into consideration along with the disparate impact to workers and landscape business owners. It is also necessary to take into consideration that most new gas-powered SORE sales are currently banned in California, which includes lawn mowers, leaf blowers, chain saws, golf carts, and airport ground support equipment all with rated power at or below 19 kilowatts, or 25 horsepower. If the City were to ban the use of one type of gas-powered SORE (gas -powered leaf blower) on the basis of public health effects from related emissions, a similar ban for all types of gas-powered SOREs may need to be considered to more fully achieve the public health goal, and to not unfairly burden one group of SORE users (in this case, landscape workers).
2 The only exceptions are SORE generators and large pressure washers, which are required to be zero -emission by 2028. 3 City of Los Angeles banned the use of gas-powered leaf blowers within 500 feet of residences in 1998. Beginning in 2021, the ban was expanded to ban the use within 500 feet of residences, schools, and hospitals, as well as between the hours of 10:00pm and 7:00am.
ATTACHMENT 2 - 2
3 Benefits and Impacts of a Ban
Benefits of a ban on the use of gas -powered leaf blowers or all gas -powered SOREs include a potential for an enhanced quality of life by the reduction in air pollution. This can contribute to improved air quality with a potential for respiratory health improvements for residents and workers.
Another benefit is a slight reduction in noise. Noise complaints are the largest complaints the City receives regarding leaf blowers. According to the National Institutes of Health, the decibel (dB) level for commercial-grade gas leaf blowers can range from 65 to 80 dB at 50 feet; electric leaf blowers can range from 65 to 75 dB at 50 feet. For reference, normal breathing is registered at 10 dB
4. Even though there is a slight reduction in noise,
the difference in sound range for gas -powered versus electric leaf blowers is miniscule.
While there are benefits to a potential ban on the use of gas -powered leaf blowers or all gas-powered SOREs, there are also potential impacts that must be considered as well.
Economic impacts such as transition costs or job loss, battery -powered limitation s, and resistance and enforcement challenges must be assessed when considering such a ban.
Replacement Cost
Gas-powered leaf blowers range from approximately $200 (low-end, residential use) to $1,700 (high -end, commercial use), plus the cost of general maintenance and gas. The purchase price of a battery -powered leaf blower is approximately $200 (low-end, residential use) to $ 3,500 (high -end, commercial use) , plus the cost of replacement batteries, electricity for charging, and general maintenance. Replacement batteries range from approximately $200 to $400 each. Due to battery-powered limitations, it is likely the efficiency of landscaping operations may be affected. To help mitigate this, l andscapers will likely need to purchase a smart charger which would allow them to charge up to four batteries at a time without overloading an electrical circuit. The average cost of a smart charger is approximately $650. With these added costs, it is possible that some workers within the landscaping industry may face job loss or reduced income as business owners transition away from gas-powered SOREs.
The City would also need to transition all their gas- powered SORE equipment to zero emission all at once, rather than over time. The cost to transition the City’s gas-powered leaf blowers is approximately $64,170.48 plus the cost of maintenance and electricity for charging; a breakdown of estimated costs is included ( Attachment 2). Included in this estimate is the install ation of electric leaf blower chargers on Forestry and Parks & Recreation Maintenance vehicles along with approximately 96 hours of labor for the Public Works Department to make these modifications , the replacement of 23 gas - powered leaf blowers, and 46 extra batteries for the electric leaf blowers. To provide safe and efficient overnight charging for the modified City vehicles and electric equipment, the construction of a climate- controlled room is required. The costs associated with constructing a climate -controlled room a re included in the City Yard Services Building Project managed by the Public Works Department (currently in the design phase; expected completion date for construction is December 2026). Additionally, any
4 Source: https://www.audicus.com/noise -levels -of-everyday -sounds ATTACHMENT 2 - 3
4 contractors who provide landscape services to the City will also need to transition their gas-powered equipment, which could affect the contract and the contractor’s willingness to partner with the City.
Enforcement Costs an
d Challenges
The City would incur additional costs to enforce a ban on the use of gas-powered SOREs.
To assist with enforcement, additional resources may be required within the Code Compliance section of the Community Development Department. The cost for additional staff time would have an impact to the City’s General Fund . Further, it is likely that the landscaping industry may resist such a ban, which would pose challenges to enforcement, and may also reduce the number of landscapers willing to do business in the City. Additionally, the complaints the City receives about leaf blowers are most often based on noise, and electric leaf blowers still generate similar noise levels as noted above.
Alternative to the Ban on the Use of Gas -P owered SOREs Under AB 1346, when the need for a gas-powered SORE replacement arises, the only option available will be to purchase a new, zero emission model. By default, the use of gas-powered SOREs in the City will be reduced, and eventually eliminated through attrition.
Should the City still wish to proceed with a ban on the use of gas-powered leaf blowers or all gas-powered SOREs, it is recommended that the City establish a target date that provides the community ample time, perhaps up to three years, to replace their existing equipment without caus ing an immediate financial or operational impact. Should Council want to include all gas-powered SOREs in such a ban, feasibility research will need to be conducted to identify whether there are electric alternatives. Lastly, an o rdinance that prohibits the use of gas -powered leaf blowers (or all gas -powered SOREs) would need to be developed and presented to Council for a ban to become effective.
COMMUNITY OUTREACH
Should Council direct staff to move forward with implementing a ban on gas-powered leaf blowers or gas-powered SOREs, outreach will be conducted to educate the community on the benefits of transitioning to alternative equipment and to provide sufficient notice.
The results of the outreach would inform the scope of this ban, including feasibility and the transition timeframe. Information on various resources and programs to assist with the transition (Attachment 3) will also be included in this outreach.
ENVIRONMENTAL R EVIEW
This report is for informational purposes only and does not qualify as a “project” under the California Environmental Quality Act (CEQA) 14 Cal. Code Regs § 15378 as consideration of the report has no potential for resulting in a direct physical change or reasonably foreseeable indirect physical change in the environment .
ATTACHMENT 2 - 4
5 FISCAL IMPACT
There is no impact to the City’s General Fund by providing this report, but a ban on gas- powered leaf blowers or all gas-powered SOREs will result in additional costs to the City.
The estimated impact to the City to replace and/or upgrade the City’s gas-powered leaf blowers to electric is $64,170.48 plus the cost of maintenance and electricity for charging.
There would also be additional impacts to implement enforcement measures, including staffing costs.
CONCLUSION
An immediate ban on the use of gas-powered leaf blowers or gas-powered SOREs in the City is not recommended. Adverse impacts to residents, landscapers, and the City would outweigh the potential benefits. As of January 1, 2024, the sale of new gas -powered SOREs is banned statewide. Residents and those utilizing gas -powered leaf blowers, or other gas-powered SOREs, for personal use or work within the City will eventually need to replace their equipment. Through attrition, gas -powered SORE equipment, including leaf blowers, will be phased out and replaced by zero- emission equipment due to availability under AB 1346 and related CARB regulations .
Therefore, it is recommended that the City continue to allow owners and users of gas - powered leaf blowers, and all gas -powered SOREs, to utilize their equipment until a replacement need arises or Council establishes a target date for implementation of a ban.
With this additional time to plan and to obtain assistance from the available incentive programs, residents , workers, and business owners will have the resources needed to switch to zero emission leaf blowers over time while mitigating the impacts to the community.
ATTACHMENT S
Attachment 1 – How to Transition Gardeners from Gas Powered Leaf Blowers Memorandum to the City Manager Dated October 3, 2022 (City Manager Tracking List No. 2443)
Attachment 2 – Estimated Costs to Replace/Upgrade Gas-Powered Leaf Blowers Attachment 3 – List of Incentive, Rebate, and Buy -Back Programs
ATTACHMENT 2 - 5