community. Much of the PTCA area is built on car-oriented streets and more work can be done to promote safety through traffic calming and encouraging residents to use alternative forms of transportation, such as micro-mobility hubs, public transit, and cycling. As warehouses and logistics centers continue to operate in the PTCA area, traffic is prone to overflow into residential areas, exposing residents to fossil-fueled powered vehicle exhaust. Development and implementation of a truck management plan (TMP) can help reduce truck emissions and calm traffic.
Key Issues
Key Issue 1: Goods Movement
High exposure to pollution from freight trucks is a concern because goods movement is a major contributor to local emissions impacting the PTCA area. Modeled emissions estimate that truck use through and within the community contributes 37% of total average residential cancer risk and 41% of toxic DPM exposure attributable to local sources. This is a problem, not only because freeways and truck routes run through disproportionately burdened communities, but also because truck magnet sources, such as logistics centers and warehouses, are disproportionately placed in these communities.
Key Issue 2: Truck and Non-Truck Vehicle Emissions
Emissions from driving fossil-fuel powered vehicles are a concern because fuel combustion produces tailpipe pollution that negatively impacts both air quality and health. Brake and tire wear further contribute to adverse impacts. Trucks that are powered by diesel engines emit harmful pollution, including PM
2.5 and toxic DPM. Modeling estimates show that within the PTCA area trucks are responsible for 6% of the PM2.5 exposure and 41% of the DPM exposure attributable to local sources. In addition, modeling estimates show that within the PTCA area non-truck vehicles contribute 7% of the PM2.5 exposure attributable to local sources. This exposure puts air quality and the health and safety of residents, workers, and others at risk in the PTCA area.
Key Issue 3: Streets and Freeways
Vehicle traffic on freeways and car-oriented streets are a concern because driving a) increases PM exposure from re-suspended road dust, b) emits tailpipe pollution, and c) increases collision risks. In the PTCA area, modeling estimates show that road dust accounts for 30% of residential PM
2.5 exposure attributable to local sources. This exposure puts air quality and the health and safety of residents, workers, and others at risk in the PTCA area.
Strategies
Strategy 1. Truck-Attracting Businesses
This strategy will work to establish consistent local policies and ordinances for new truck- attracting businesses to require electrification in advance of state requirements.
Component Description
Strategy # Mobile 1
Strategy name Truck-Attracting Businesses
Key Issue (KI)
Addressed
KI 1: Goods Movement
DRAFT Path to Clean Air Plan
December 2023
Objective
(intended
outcome of the
strategy)
To work with local jurisdictions to establish consistent policies and ordinances in advance of state regulatory requirements for new truck- attracting businesses to install electric infrastructure to accommodate the increased use of ZEVs. Infrastructure can include electrical conduits at docks and delivery/heavy-duty truck parking spaces. Another intended outcome would be to require truck-attracting businesses to install and store sufficient solar panels to offset the electric energy needed to support new ZEV fleets.
Narrative on how
Strategy meets
Feasibility Criteria
Local jurisdictions have the authority to adopt policies and ordinances governing development within their boundaries. Implementation of this strategy is primarily legislative; therefore, funding is needed to advocate with respect to the benefits of adopting EV electrical infrastructure requirements, much like what is found in the C ontra Costa Electric Vehicle (EV) Readiness Blueprint. The physical construction of EV electrical infrastructure will be borne by developers. As more EV fleet requirements are passed and implemented by local, state, and federal governments, businesses will need infrastructure to support the rising use of EV vehicles.
Further, PG&E has prepared the 2022 Integrated Resources Plan (IRP) that outlines how the utility will shape its future energy portfolio to meet California’s clean energy goals in a reliable and cost-effective manner.46 While the electricity use associated with electric vehicles is expected to increase, PG&E predicts that its overall sales in electricity would increase only slightly (up to eight percent). The expected increases in energy efficiency and solar photovoltaic projects are expected to offset much of the growth in electric vehicles, as well as economic and population driven growth.
The potential increase in electric vehicles in the PTCA area is within the range that PG&E forecasts in the IRP for 2030 within its service area.
Overall emissions associated with providing electricity from power plants are expected to decline or remain relatively consistent. Also, the state Renewables Portfolio Standard (RPS) requires that 50% of electricity retail sales be served by renewable resources by 2026, 60% by 2030, and 100% by 2045. Therefore, strategy implementation is not expected to result in an increase in air emissions associated with electricity over those already accounted for in the IRP.
Narrative on how
Strategy meets
Vision and
Principles Criteria
Supporting local jurisdictions’ adoption of ZEV electrical infrastructure requirements will support the transition to ZEVs, which will reduce related traffic emissions within the PTCA area. For example, the Richmond Parkway (Parkway) is a regionally-significant major transportation corridor, serving both local and national goods movement and commuters and functioning as part of the San Francisco Bay Trail. The Parkway travels through much of the PTCA area connecting I-80 and I- 580, both of which are designated by the FHWA as Primary Highway
46 PG&E Integrated Resources Plan (IRP) - 2022. https://www.pge.com/en_US/for -our-business-partners/energy- supply/integrated-resource-plan/integrated-resource-plan.page DRAFT Path to Clean Air Plan
December 2023
Freight System routes. Many freight facilities are located on or near the Parkway, including a seaport, rail lines, and rail yards.
Traffic congestion, including traffic backups on westbound I-580 in the A.M. have also impacted the Parkway. Planned residential and industrial developments along the corridor may worsen traffic conditions. The local community suffers impacts from the Parkway without much corresponding benefit. During the development of the recently completed MTC-funded Richmond-Area Community-based
Transportation Plan (CBTP), residents in the designated disadvantaged neighborhoods adjoining the Parkway cited cut-through traffic (both of trucks and other vehicles) as a major concern. Adoption of ZEV electrification infrastructure will support the transition to cleaner fleets which will reduce vehicle-related emissions on the Parkway and other travel corridors within the PTCA area.
CARB has adopted regulations for on-road vehicles that will further reduce emissions; infrastructure will be needed to support the growth of new ZEVs over the coming years. California’s Advanced Clean Cars II Regulations require all new passenger vehicles sold in California to be ZEVs by 2035. ZEVs include battery electric vehicles, plug-in hybrid vehicles (PHEV), and hydrogen fuel cell vehicles.
The Advanced Clean Fleet Regulations also require zero-emission truck fleets in California by 2045. Milestones are staggered, based on truck types. For drayage fleets, starting in 2024, only zero-emission trucks may be added to service; and by 2035, all drayage trucks must be zero- emission trucks. Other trucks, such as last-mile delivery vehicles, have more aggressive implementation schedules. The affected vehicles account for 14% of PTCA area emissions the DPM emissions in the 2019 PTCA Plan inventory.
List of Actions (#
and Name)
Mobile 1.1: Model and Map Freight Activity. Model and map daily freight trip activity for commercial and industrialized businesses in the PTCA area.
Mobile 1.2: Model Policy/Ordinance for Low to Zero Emission Operations.
Develop and disseminate a model policy/ordinance for reviewing and approving truck-attracting businesses, incorporating current best practices to achieve low to zero emission operations.
Mobile 1.3: Truck-Attracting Businesses. In coordination with CARB, local, and regional agencies, review policies and assess opportunities to require and/or encourage truck-attracting businesses to incorporate zero emission operations. This would include electrifying loading docks, trucks, and TRUs and incorporating EV capable/ready infrastructure for all vehicle classes visiting the facility.
Mobile 1.4: Magnet Source Rule. Air District will study feasibility and approach for a Bay Area Indirect Source (Magnet Source) Rule
Strategy 2. Prioritize Traffic Calming
This strategy will explore using existing public health, air quality, and safety data to identify priority traffic and safety improvements with air pollution co-benefits.
DRAFT Path to Clean Air Plan
December 2023
Component Description
Strategy # Mobile 2
Strategy name Prioritize Traffic Calming and Other Safety Improvements on Local Streets and Freeways
Key Issue (KI)
Addressed
KI 1: Goods Movement
KI 3: Streets and Freeways
Objective (intended
outcome of the
strategy)
Use existing public health, air quality, and safety data to identify and prioritize transportation infrastructure improvements that will provide safety benefits and reduce emissions and exposure. Once the priorities are identified, the strategy seeks to find funding and implement the needed infrastructure improvements using the best construction management practices and the cleanest technology and equipment available.
Narrative on how
Strategy meets
Feasibility Criteria
The strategy is a tool that will take existing and available data to inform recommendations for safety improvements and air quality projects.
Though traffic calming alone does not address the issue of over-sized trucks sharing roadways with bikes and pedestrians, some preventative measures can be used to dissuade trucks from endangering cyclists and pedestrians, such as public education campaigns.
The strategy draws on existing funding sources to implement safety improvements that reduce emissions and exposure. As the strategy seeks to bring existing sources of funding into communities, in general, we anticipate support for the strategy. The strategy will require a multi- agency approach to collecting and analyzing the data and then developing criteria. Funding applications also benefit from a multi- agency approach. We recommend that stakeholders be engaged and consulted in each of the strategy’s actions.
Narrative on how
Strategy meets
Vision and
Principles Criteria
The strategy relies on available data and ground-truthing from community stakeholders to reduce emissions and exposure in communities.
List of Actions (#
and Name)
Mobile 2.1: Criteria for Safety and Air Quality Projects. Develop and propose criteria for safety improvements and air quality projects.
Mobile 2.2: Identify Areas at Intersection of Safety and Air Quality. Use data to identify areas with high air pollution exposure, unmaintained transportation infrastructure, and areas in need of increased road safety to prioritize traffic calming projects. This could include bike lanes and road diets.
Mobile 2.3: Funding. Seek public funding sources (e.g., state and federal grants) for road infrastructure improvements.
Mobile 2.4: Best Management Practices for Construction. Encourage transportation construction projects employ best management practices that reduce emissions, such as use of low to zero emission equipment and dust control measures.
DRAFT Path to Clean Air Plan
December 2023
Strategy 3. Multi-Jurisdictional Truck Management Plan
This strategy will assess feasibility and need for a Multi-Jurisdictional Truck Management Plan (TMP), and create a robust, community-informed TMP.
Component Description
Strategy # Mobile 3
Strategy name Multi-Jurisdictional Truck Management Plan (TMP) Key Issue (KI)
Addressed
KI 1: Goods Movement
KI 2: Truck and Non-Truck Vehicles
KI 3: Streets and Freeways
Objective
(intended outcome
of the strategy)
Reduce truck-related emissions exposure and congestion from neighborhood streets through the creation of a TMP that reduces traffic flow, as well as exposure to humans, through the strategic timing and regulation of regional truck traffic.
Narrative on how
Strategy meets
Feasibility Criteria
A multi-jurisdictional truck management plan (TMP) will require substantial resources and buy-in from several jurisdictions in the PTCA area. As of 2023, the cities of Richmond and San Pablo do not have TMPs of their own. Already over-stretched, there will be funding and capacity issues to support development of a TMP. Discussions have pointed to WCCTAC as a possible TMP convener, with the caveat that feasibility studies and truck traffic analyses should precede any efforts to form a working group.
Contra Costa County has land-use authority, so could play a pivotal role in supporting these efforts. We estimate a 2-year planning phase and 5- year implementation plan. See the West Oakland Truck Management Plan as an example of a TMP.
Narrative on how
Strategy meets
Vision and
Principles Criteria
A multi-jurisdictional TMP to reduce neighborhood exposures to truck emissions and to limit residential truck traffic adheres to the Plan vision.
Air District maps document the highest concentrations of mobile and stationary sources impacts, overlayed with socioeconomic data, in the PTCA area. Air District staff understand that to achieve equitable outcomes from this strategy jurisdictions require substantial resources for early studies and buy-in. Overall, if fewer trucks are going through neighborhoods, truck emissions will be reduced.
An existing-conditions report documenting baseline truck counts and parking demand followed by future traffic and parking projections based on planned and approved magnet facilities. The TMP needs to include an analysis of equitable outcomes, much like the 2021 LA
County Goods Movement Strategic plan and the Portland 2040 Freight Plan.
List of Actions (#
and name)
Mobile 3.1: Initial Truck Management Plan Assessment. Prepare an initial feasibility assessment and needs analysis for the TMP. This will include input from communities impacted by truck parking, truck movement and safety, truck signs and communication, current truck routes and truck route enforcement.
Mobile 3.2: Create a TMP. After completion of the initial assessment, create a robust, community-informed TMP, alongside WCCTAC, that DRAFT Path to Clean Air Plan
December 2023
considers establishing new truck-prohibited streets and new truck routes across jurisdictions; assesses an off-hours deliveries program to reduce overall truck congestion; designates urban freight parking and time zones, and establishes clean last-mile delivery options; enhances citywide truck signage for wayfinding; and educates business owners and residents about the air quality and health benefits of routing and parking laws.
Strategy 4. Equitable Street Sweeping
This strategy will study, implement and evaluate an Enhanced Street Sweeping Program to decrease community members’ exposure to the road dust.
Component Description
Strategy # Mobile 4
Strategy name Equitable Street Sweeping
Key Issue (KI)
Addressed
KI 1: Goods Movement
KI 2: Truck and Non-Truck Vehicles
KI 3: Streets and Freeways
Objective
(intended outcome
of the strategy)
The strategy seeks to provide PTCA communities with the amount of street sweeping needed to decrease community members’ exposure to road dust caused by traffic and goods movement. As stated in KI 1, 2, and 3, freeways, street truck routes, and truck magnet sources are features of disproportionately burdened communities (KI #1); brake and tire wear contribute to adverse health impacts (KI #2); and road dust accounts for 30% of residential PM2.5 exposure attributable to local sources (KI #3). For these reasons, Mobile Strategy 4 seeks to ensure that disproportionately burdened communities within the PTCA area receive a fair share of street sweeping services, commensurate with the amount of goods movement, traffic, and dust pollution these communities face.
The Plan technical assessment provides further information about estimated emissions and exposure reduction that can be achieved through Mobile Strategy 4. For context, note that the WOCAP includes a strategy that calls on the City of Oakland to implement an equitable street sweeping program in West Oakland. The WOCAP technical assessment estimates a 10% reduction in road dust can be achieved through enhanced street sweeping.
Narrative on how
Strategy meets
Feasibility Criteria
We believe that Mobile Strategy 4 is potentially feasible. Mobile Strategy 4 does not require new technology and does not require capital investment. However, implementation will require political and community support and funding commitments. While a similar strategy is included in the WOCAP, this Plan covers multiple local jurisdictions (the cities of San Pablo, Richmond, and Contra Costa County) and therefore additional coordination. There is also the potential for negative impacts on communities, such as if more frequent street sweeping results in additional parking ticket fines for community members due to increased conflicts between street parking and the DRAFT Path to Clean Air Plan
December 2023
street sweeping schedule. A community engagement outreach program will be needed to ensure that an equitable street sweeping program is desired by community members and possible adverse outcomes are mitigated.
Narrative on how
Strategy meets
Vision and
Principles Criteria
Analysis and engagement are needed to ensure the strategy aligns with the priorities of the Plan communities, and the ability of local jurisdictions to fund and implement new programs to increase street sweeping in impacted communities.
PM2.5 and road dust has been identified as some of the largest forms of mobile pollution in the PTCA area and addressing these pollutants is consistent with the Plan’s Vision and Principles. The study described in Action 4.1 will identify the neighborhoods that are most in need of more frequent street sweeping services.
List of Actions (#
and Name)
Mobile 4.1: Street Sweeping Study. Work with local jurisdictions and Air District staff on a study to identify which PTCA areas would benefit most from street sweeping initiatives, while ensuring equitable outcomes for communities that have historically suffered from divestment.
Mobile 4.2: Implement Enhanced Street Sweeping Program. With support from the CSC and Air District, local governments implement enhanced street sweeping programs in Plan neighborhoods that will benefit most.
Mobile 4.3: Street Sweeping Program Feedback. After implementing equitable street sweeping, convene a working group to evaluate successes, challenges, and opportunities.
Strategy 5. Supporting Transition to Clean Fleets
The strategy will support residents, businesses, and governments in a transition to ZEV clean fleets.
Component Description
Strategy # Mobile 5
Strategy name Support Transitions to Clean Fleets
Key Issue (KI)
Addressed
KI 1: Goods Movement
KI 2: Truck and Non-Truck Vehicle Emissions
KI 3: Streets and Freeways
Objective (intended
outcome of the
strategy)
The strategy seeks to support residents, businesses, and governments in a transition to ZEV clean fleets through better coordination with CARB on enforcement, outreach, education, and incentive distribution. The strategy outcome is that residents, businesses, and governments are better served by CARB initiatives, acquire cleaner fleets especially for goods movement, and deploy ZEV light- and heavy-duty vehicles in advance of state requirements.
Narrative on how
Strategy meets
Feasibility Criteria
The strategy draws on existing enforcement and funding sources to bring ZEVs to the PTCA area. We anticipate support for the strategy.
The strategy will require a multi-agency approach to developing successful coordination between agencies conducting enforcement, and outreach and education about available incentives. We DRAFT Path to Clean Air Plan
December 2023
recommend that stakeholders be engaged and consulted in each of the strategy’s actions.
Narrative on how
Strategy meets
Vision and Principles
Criteria
The strategy relies on available programs to benefit stakeholders in the community by making incentive dollars and ZEVs more available to community members, businesses, and local governments. The strategy seeks to remove barriers to receiving a less-than-equitable share of enforcement resources and incentive funding.
List of Actions (# and
name)
Mobile 5.1: Clean Fleet Enforcement. Investigate how municipal governments can coordinate with CARB on clean fleet enforcement.
Mobile 5.2: Heavy-Duty Vehicle Support. Support heavy-duty vehicle transition to cleaner fleets through incentives, education, and outreach. Includes school buses.
Mobile 5.3: Light-Duty Vehicle Support. Support light-duty vehicle transition to cleaner fleets through incentives, education, and outreach.
Strategy 6. Public Transit, Bike, and Pedestrian Infrastructure This strategy will improve access to safe, affordable, and reliable alternatives to driving, including bus, rail, microtransit, and active transportation options.
Component Description
Strategy # Mobile 6
Strategy name Public Transit and Active Transportation Key Issue (KI)
Addressed
KI 2: Truck and Non-Truck Vehicle Emissions
Objective
(intended
outcome of the
strategy)
Beginning in 2030, all community members who live or work in the Plan area have access to safe, affordable, and reliable alternatives to driving that allow community members to reach all their main destinations.
These modes of travel include bus, rail, microtransit, and active transportation options that serve people of all abilities.
Narrative on how
Strategy meets
Feasibility Criteria
As California continues to codify its efforts to meet transportation climate goals, it is expected that more funding will become available.
Through the implementation of the Climate Action Plan for Transportation Investment (CAPTI), it is possible that more funding will shift from road and highway infrastructure toward alternatives to driving.
Identifying the correct authority or agency within the PTCA area may prove to be a challenge, so it is imperative to work with individual decision makers who can champion this strategy. Fortunately, staff and elected officials at the city, county, regional, and state levels have similar ambitions and have taken steps to bolster active and public transportation funding. Additionally, it is encouraging to see state funding flow directly into the Plan through the recent
Transformative
Climate Communities47 grant awarded to the City of Richmond, which
47 Transformative Climate Communities Grant: https://www.grants.ca.gov/grants/transformative -climate-communities- planning-grant/
DRAFT Path to Clean Air Plan
December 2023
will provide community organizations with resources to build upon their work toward this goal.
Narrative on how
Strategy meets
Vision and
Principles Criteria
Transportation is the largest source of GHGs and harmful pollutants that lead to poor health outcomes, with personal vehicle travel making up a significant part of these emissions. Due to decades of disinvestment in public and active transportation throughout the PTCA area, many residents do not have viable alternatives to owning and driving a personal car. Expanding access to shared modes of travel decreases emissions from vehicles and improves public health.
Many decisions about transportation infrastructure were motivated by racial biases and discrimination, such as the construction of highways and roads that disenfranchised neighborhoods and impacted communities at the household and community levels. This strategy aims to undo many of those racially motivated systemic changes and benefit the people who have been historically burdened. Many of these actions will succeed through having robust community input, where their transportation and mobility needs will be placed at the center.
List of Actions (#
and Name)
Mobile 6.1: Zero Emission Bus Fleets by 2040. Complete transition to all- electric hybrid and/or hydrogen bus fleet on all routes within the PTCA area by 2040.
Mobile 6.2: Bike and Scooter Share Stations. Advocate for affordable bike and scooter-share stations in the most impacted communities within the PTCA area.
Mobile 6.3: Expanding Micro-Transit. Expand micro-transit and advocate for a permanent program building on the existing
Richmond Moves
initiative.
Mobile 6.4: Funding Transit Operations. Advocate for additional public funding towards transit operations.
Cross-Cutting Issues
Compliance & Enforcement
Introduction
Compliance and Enforcement is a cross-cutting issue because across all source types in the PTCA area - both fuel refining and non-fuel refining - the community has concerns about businesses and industries with compliance issues. This is especially critical with respect to compliance issues that can affect the health, safety, and quality of life for those who live, work, and play in the PTCA area. Concerns and violations need to be addressed through the Air District’s complaint system and through inspections and investigations that are responsive to the lived experience of the community and their concerns.
Compliance & Enforcement Strategy
Component Description
Strategy # Compliance & Enforcement (C&E) 1
DRAFT Path to Clean Air Plan
December 2023
Strategy name Compliance and Enforcement
Key Issue (KI) Addressed FR KI 1: Fuel refining sector in Richmond is the Largest Source of Emissions in PTCA Area
FR KI 2: Lack of accountability with Air District Regulations C&I KI 3: Cumulative Impacts from Local Facilities: Diverse Sources
C&I KI 4: Cumulative Impacts from Local Facilities: Large Industrial Facilities
Objective (intended
outcome of the strategy)
Prioritize fielding complaints and conducting inspections and investigations to address facilities of community concern, such as those with issues that impact health, safety, and quality of life.
Develop tailored strategies to address facilities that are an ongoing concern for the community.
Meet with the community regularly through implementation to track new facilities of concern that emerge to protect the health, safety, and quality of life of people who live in close proximity to polluting sources.
Narrative on how Strategy
meets Feasibility Criteria
This strategy is feasible in that it intends to build on existing practices to ensure alignment between Compliance &
Enforcement staff and the community's concerns, as well as to develop communication and transparency as the Air District proactively works to resolve ongoing issues.
Outreach efforts to promote the complaint system are feasible.
Some elements to keep in mind however are resources and successful education efforts around how best to use the system.
Incomplete complaints that don’t list specifics, addresses, or provide contact information can make it difficult to respond in a timely manner. Therefore, it is also critical to make sure complainants have access to effective resources so they can file complete, detailed complaints.
It will also be important to set appropriate expectations around how the complaint process works as a tool. This is due to Air District staff not being first responders. Furthermore, it is important to set expectations around the depth of information that can be shared after each incident since they evolve in real time, and it is important to gather all information necessary before releasing findings and determining appropriate action.
With respect to facilities of community concern, this is feasible because the Air District Compliance and Enforcement team already prioritizes certain facilities or facility types when there are ongoing issues of non-compliance, or when there is a greater risk to the public from non-compliance.
As mentioned before, the biggest impediment to successful implementation of this strategy will be limited staff capacity.
There are six full- time C&E field staff in the PTCA area, and three are solely dedicated to the Chevron refinery. Increased attention to facilities of concern to the community could reduce the availability of staff to respond to complaints and conduct DRAFT Path to Clean Air Plan
December 2023
required inspections for the permitted facilities in West Contra Costa County. It is important to note that at times assignments may need to be changed and adjusted due to C&E staffing needs. Aligning with the Resource PTCA Plan Implementation Strategy is thus an important component of feasibility for this strategy.
Narrative on how Strategy
meets Vision and
Principles Criteria
The complaint system and targeted compliance and
enforcement activities are especially important in historically overburdened communities that often are located near sources of pollution from businesses and industry. These communities may be the closest to air quality problems, accidents, and/or major incidents, meaning their health, safety, and quality of life can be under threat from proximity to air quality issues.
This strategy will help with greater transparency and partnership with communities in the PTCA area by promoting the complaint system, prioritizing addressing facilities and operations identified by community as concerns, and by reporting results to the community as progress is made during response implementation.
It meets Vision and Principles criteria in that it relies on the important voice of the community and the CSC. Actions that center around meaningful involvement of community leaders from the CSC and community members in the PTCA highlight the valuable lived experience of those who live in neighborhoods overburdened by pollution.
List of Actions (# and
name)
C&E 1.1: Develop an outreach campaign to promote the Air District Air Quality Complaint Program and pilot an enforcement tip hotline for industry workers.
C&E 1.2: Conduct targeted investigations of facilities of community concern (i.e., facilities identified and prioritized using community concern and AB617 data).
C&E 1.3: Update CSC regularly with respect to compliance status of facilities identified as a result of community concerns or those with issues that impact health, safety, and quality of life.
Land Use
Introduction
This strategy seeks changes in land use as protective measures to separate communities from pollution sources and locations of exposure. Land use strategies that protect people from air pollution are crucial to reducing health impacts and are especially important for sensitive receptors and residential populations. Zoning regulations can establish buffers to protect people from freeway pollution, require best practices for building and design, such as indoor filtration, and prevent the siting of new polluting businesses near sensitive uses. Additionally, land use tools such as amortization can phase out the most egregious existing polluting businesses near sensitive uses. By considering air quality impacts in land use decisions and employing techniques to redress environmental injustices and prevent further harm, as described in the actions below, policymakers can help reduce exposure to air pollution and improve public health.
DRAFT Path to Clean Air Plan
December 2023
Land Use Strategy
Component Description
Strategy # Land Use 1
Strategy name Land Use
Key Issue (KI)
Addressed
C&I KI 1: Fine Particulate Matter
C&I KI 2: Fugitive Dust
C&I KI 3: Diverse Sources
C&I KI 4: Large Industrial Facilities
C&I KI 5: Commercial and Smaller Industrial Facilities
M&R KI 3: Marine and Rail Hubs
H KI 2: Reducing Community Exposure to Air Pollution
Mobile KI 1: Goods Movement
Mobile KI 3: Streets and Freeways
Objective (intended
outcome of the
strategy)
The goal of this strategy is to focus on land use regulations, conditions of approval, and protective zones to reduce the cumulative impact and concentration of polluting sources within the PTCA area. Recommended strategies will separate, buffer, and otherwise protect sensitive receptors and residential areas from existing and potential future pollution sources and exposure, with an intended outcome of improving community health for all, including disproportionately impacted communities.
Narrative on how
Strategy meets
Feasibility Criteria
This strategy will benefit from strong champions both within and outside of local governments because it may experience opposition from industry representatives and be difficult politically to implement. Though some aspects of this strategy would likely be implemented over a longer timeframe, others can be implemented as part of local municipal ordinance updates in a shorter timeframe. Overall, the regulatory updates could help to reverse discriminatory zoning and housing policy impacts that are still present today and create lasting health improvements for the most pollution-burdened communities.
Narrative on how
Strategy meets
Vision and Principles
Criteria
Land use regulations such as zoning and other policies that limit pollution exposure can be effective instruments for promoting racial and social equity because they shape the built environment. Land use regulations can also ease the PTCA community’s disproportionate environmental burden, preventing the concentration of polluting industries near these communities and increasing restrictions on these industries. This strategy aligns with the CSC’s Vision and Principles in that, when implemented, it will help reverse the air pollution impacts from historic and systemic discriminatory land use decisions, which resulted in the co-location of BIPOC and low-income communities near polluting industries.
List of Actions (#
and name)
LU 1.1: Support Envision CCC 2040, and Other General Plan and Zoning Updates
LU 1.2: Community-Informed Amortization
LU 1.3: Buffer Zones and/or Overlay Zones
LU 1.4: Site Development Standards and Conditions of Approval LU 1.5: Zoning Regulations and Business Permitting
Strategy Metric(s) Were the policies, plans, ordinances, or research mentioned in the actions below implemented? Which ones and by which jurisdictions? DRAFT Path to Clean Air Plan
December 2023
To what effect? Describe the impact (did it help community members)?
Resource PTCA Plan Implementation
Introduction
Properly resourcing the PTCA Plan is a cross-cutting strategy due to multiple factors. Many of the strategies that will reduce pollution and protect public health are constrained by a limitation in existing Air District staff resources. Current resource limitations and staffing needs must be addressed to guarantee the PTCA Plan ambitions can be fully achieved.
Resource PTCA Plan Implementation Strategy
Component Description
Strategy # R1
Strategy name Properly resource the PTCA Plan to ensure community-identified priority strategies and actions are fully implemented.
Key Issue (KI)
Addressed
-
Objective
(intended outcome
of the strategy)
This strategy is focused on ensuring the Air District is effectively resourced to deliver on commitments identified in the PTCA Plan strategies and actions, as prioritized by the CSC and the PTCA community. The CSC strongly recommends the Air District prioritize staff resources to focus on PTCA Plan strategy implementation and other high priority efforts within the PTCA that may emerge during implementation. Current resource limitations and staffing needs must be addressed to guarantee the PTCA Plan ambitions can be fully achieved. Additionally, throughout implementation, resources will need to be re-evaluated to ensure appropriate staff and funding levels are dedicated to PTCA Plan implementation as well as address other emerging needs. Resources will need to be flexible to be responsive to new information, updated community perspectives, and emerging opportunities.
This strategy also considers the role of the CSC in helping inform the Air District annual budget processes, as well as any mid-year budget adjustments, with respect to the resources needed to ensure PTCA Plan commitments are met. It also considers CSC participation in the development and implementation of the Air District’s Strategic Plan, which is an opportunity to share the CSC and PTCA community priorities and views with the Air District Board of Directors.
For additional information about implementation including a discussion of early priorities and processes to develop the annual implementation plan and report on progress, successes, and challenges, see PTCA Plan Chapter 9, Implementation and Reporting.
Narrative on how
Strategy meets
Feasibility Criteria
This strategy is feasible, but success relies on political support from Air District leadership and the Board, as well as having CSC champions engage on a regular and ongoing basis in implementation, budget, and strategic planning efforts.
Narrative on how
Strategy meets
This strategy focuses on ensuring the Air District is effectively resourced to deliver on commitments identified in the PTCA Plan strategies and actions, DRAFT Path to Clean Air Plan
December 2023
Vision and
Principles Criteria
as prioritized by the CSC and the PTCA community. As such, the intent of this strategy is for resource allocations to reflect the needs of the people who have been disproportionately harmed by environmental injustice and to center the priorities of stakeholders burdened by air pollution who would most benefit from action.
List of Actions (#
and name)
R 1.1 Allocate Dedicated Staff Resources to CSC Early Priorities R 1.2: Co-develop and implement an annual Implementation Plan R 1.3: Engage with the Air District on Annual Budget Planning R 1.4: Engage with Air District on Strategic Planning
Urban Greening
Introduction
Implementation of the Urban Greening cross-cutting strategy will provide a myriad of ecosystem services in the PTCA area, including increasing green spaces throughout the PTCA area, providing vegetative buffers from polluting sources, mitigating urban heat island effects, and providing walkable trails throughout the community. Urban green space also offers health benefits by improving allergic respiratory conditions, cardiovascular conditions, and psychological well-being.
48 Though planting trees and vegetation alone are not enough to reduce emissions of all pollutants in the PTCA area, urban greening can provide buffers between pollution sources and people in the community. At a neighborhood level, work is already coinciding with this strategy, such as the Richmond Rising Grant recently awarded to the City of Richmond. The City of San Pablo, too, has projects such as Rumrill Boulevard Complete Streets Project and Sutter Ave Green Street Project that helps improve multimodal safety and stormwater facilities, respectively. Combined with opportunities to educate and engage the community through the addition of green infrastructure, Urban Greening seeks to shift the heavy emphasis on grey infrastructure to green.
Urban Greening Strategy
Component Description
Strategy # Urban Greening (UG) 1
Strategy name Urban Greening
Key Issue (KI)
Addressed
Mobile KI 2: Goods Movement
Mobile KI 3: Streets and Freeways
Objective
(intended outcome
of the strategy)
Increase tree planting within the Plan area in low-income census groups and around sensitive receptors.
Narrative on how
Strategy meets
Feasibility Criteria
This strategy meets the feasibility criteria because of renewed funding commitments to the City of Richmond. For a long time, limited long-term funding and local government staff capacity have been issues for implementing jurisdictions. The City of Richmond, for example, has no dedicated urban forestry staff and will often contract work out to
48 Nguyen PY, Astell-Burt T, Rahimi-Ardabili H, Feng X. Green Space Quality and Health: A Systematic Review. Int J Environ Res Public Health. 2021 Oct 20;18(21):11028. doi: 10.3390/ijerph182111028. PMID: 34769549; PMCID: PMC8582763. https://www.ncbi.nlm.nih.gov/pmc/articles/PMC8582763/
DRAFT Path to Clean Air Plan
December 2023
Groundwork Richmond, a local community organization, to complete maintenance.
In 2023 the City of Richmond, along with a coalition of partners, received a Transformative Climate Communities (TCC) Grant from the California Strategic Growth Council, worth $35 million, to implement several neighborhood-level urban greening projects in the Santa Fe, Coronado, and Iron Triangle neighborhoods over the next 5 years. The TCC Grant will align with the guidance outlined in the City of Richmond Urban Greening Master Plan (2017). Unfortunately, the TCC grant does not extend to the City of San Pablo and will only last for 5 years. Success of this initial investment fund may unlock other sources of state and federal funding such as CARB’s Community Air Protection Incentives.
Further, the City of Richmond has prepared a mapping file of street tree canopy throughout the city. Since the City of San Pablo does not have the capacity to do the same, it will have to prioritize a street tree canopy mapping process in order to understand where to focus plantings in the City of San Pablo (though San Pablo, in general, has a larger tree canopy than Richmond).
Though political support is not entirely present, the hope is that this strategy continues to educate local government leaders and advocate for increased, permanent funding to implement green infrastructure throughout the PTCA area.
Narrative on how
Strategy meets
Vision and
Principles Criteria
According to the AB 617 Richmond San Pablo Social Pinpoint data, urban heat island effects are a serious concern in the PTCA area. In addition, low- income communities of color are most susceptible to the impacts of climate change. We know that planting trees will not solve the PTCA area’s emissions problems, but by prioritizing street tree plantings and vegetation in neighborhoods with limited tree canopies and high concentrations of PM
2.5,
this strategy will help to decrease exposure to air pollution for future generations.
Further, by incorporating workforce training already included in Groundwork Richmond’s programming, a partner of the City of Richmond’s urban forestry plan, this strategy equips people from the most burdened communities to learn marketable skills in a green economy, well in alignment with the City of Richmond’s Green-Blue New Deal .
In Richmond, lower income census tracts have fewer trees. A 2021 meta- analysis concluded that lower-income “[...]people show more beneficial effects than affluent people, particularly when concerning public green spaces/parks[...]”49 Urban greenery is a tool to further health and social equity.
In addition, as recipients of the $35 million Transformative Climate Communities (TCC) Richmond Rising Grant, the City of Richmond is poised in the next 5 years to accomplish, with the help of the State, several urban
49 Rigolon A, Browning MHEM, McAnirlin O, Yoon HV. Green Space and Health Equity: A Systematic Review on the Potential of Green Space to Reduce Health Disparities. Int J Environ Res Public Health. 2021 Mar 4;18(5):2563. doi:
10.3390/ijerph18052563. PMID: 33806546; PMCID: PMC7967323. https://www.ncbi.nlm.nih.gov/pmc/articles/PMC7967323/
DRAFT Path to Clean Air Plan
December 2023
greening projects, including tree plantings, trails, urban agriculture, fruit tree giveaways, and veggie RX pilot programs.
Urban greening provides many benefits for the community, including:
improved air quality, access to green space through physical activity, mental health improvement, not to mention environmental benefits for the environment. In addition, workforce development opportunities can be created through urban greening strategies that can further train a green workforce and spur economic development for a labor force that is knowledgeable about environmental issues.
List of Actions (#
and name)
UG 1.1: Plant Street Trees and Vegetation in Priority Neighborhoods UG 1.2: Education and Funding Opportunities
UG 1.3: Require New Development to Include Vegetative Buffers UG 1.4: Green Workforce Development
DRAFT Path to Clean Air Plan
December 2023
Chapter 8: CARB Statewide Strategies
Overview of California Air Resources Board's Statewide Actions Community-scale air pollution exposure is caused by many factors, including the cumulative impacts of multiple pollution sources. Effective solutions require multiple strategies at both the statewide and local levels to deliver new emissions reductions directly within these communities.
The California Air Resources Board (CARB) has adopted a number of comprehensive air quality and climate plans over the last several years that lay out new emissions reduction strategies.
These plans include the recent State Strategy for the State Implementation Plan, 50 California's
2022 Climate Change Scoping Plan,51 the California Sustainable Freight Action Plan,52 the Short- Lived Climate Pollutants Reduction Strategy,53 and the 2020 Mobile Source Strategy,54 along with a suite of incentive programs. CARB is continuing to develop air quality and climate plans that will further reduce emissions. The Community Air Protection Blueprint 55 further identified
additional actions to reduce the air pollution burden in heavily impacted communities throughout the State. Together, these plans provide a foundation for the new actions identified as part of this community emissions reduction program.
This chapter illustrates CARB's role in the community emissions reduction program by broadly describing the regulatory and incentive-based statewide actions CARB has taken to reduce emissions statewide. It also highlights specific actions that address areas of concern identified by the PTCA community. CARB's potential enforcement strategies are described in Chapter 6 of the PTCA Plan.
Incentive Programs
CARB operates incentive programs that reduce the costs of developing, purchasing, or operating cleaner technologies. The programs help ensure cleaner cars, trucks, equipment, and facilities are operating in our neighborhoods by driving the development of new, cleaner technologies and by accelerating their sale and adoption. Specifically, they accelerate the introduction of advanced technology vehicles and equipment, accelerate the turnover of older and higher-emitting vehicles and equipment, and increase access to clean vehicles and transportation in disadvantaged communities and lower-income households.
While CARB is responsible for program oversight, some programs are implemented in partnership with local air districts. Examples of CARB incentive programs include:
50 California Air Resources Board, 2022 State Strategy for the State Implementation Plan, September 12, 2022, available at: https://ww2.arb.ca.gov/resources/documents/2022 -state-strategy-state-implementation-plan-2022-state-sip-strategy 51 California Air Resources Board, California’s 2017 Climate Change Scoping Plan, September 2022, available at:
https://ww2.arb.ca.gov/our-work/programs/ab-32-climate-change-scoping-plan/2022-scoping-plan-documents 52 California Department of Transportation, California Sustainable Freight Action Plan, July 2016, available at:
https://dot.ca.gov/programs/transportation -planning/freight-planning/california-sustainable-freight-action-plan 53 California Air Resources Board, Short -Lived Climate Pollutant Reduction Strategy, March 2017, available at:
https://ww2.arb.ca.gov/resources/documents/slcp -strategy-final 54 California Air Resources Board, 2020 Mobile Source Strategy, October 2021, available at:
https://ww2.arb.ca.gov/resources/documents/2020 -mobile-source-strategy 55 California Air Resources Board, Final Community Air Protection Blueprint for Selecting Communities, Preparing Community Emissions Reduction Programs, Identifying Statewide Strategies, and Conducting Community Air Monitoring, October, 2018, available at: https://ww2.arb.ca.gov/capp -blueprint DRAFT Path to Clean Air Plan
December 2023
• Carl Moyer Memorial Air Quality Standards Attainment Program56 o The Community Air Protection Incentives57 are implemented by the air district through this program,
• Proposition 1B: Goods Movement Emission Reduction Program,58 • Funding Agricultural Replacement Measures for Emission Reductions Program,59 and • Low Carbon Transportation Investments and Air Quality Improvement Program (which includes the Hybrid and Zero-Emission Truck and Bus Voucher Incentive Project).60 Community Air Protection Incentives
Since 2017, the California Legislature has appropriated money annually from the Greenhouse Gas Reduction Fund (GGRF) for incentives to support AB 617. In advance of initial community selection in 2018, the Legislature directed that CAP incentives appropriated in Fiscal Year (FY) 2017-18 be focused on disadvantaged and low-income communities through the Carl Moyer Memorial Air Quality Standards Attainment Program (Carl Moyer Program) and the Proposition 1B Goods Movement Emission Reduction Program (Proposition 1B Program) to provide immediate air quality benefits in heavily impacted communities.
Between FYs 2017-18 and 2022-23, the Legislature appropriated $1,162 million in CAP incentives (Table 1 in Appendix A).
61 The Legislature initially appropriated incentives to generate immediate air quality benefits in communities most likely to participate in AB 617 – primarily disadvantaged communities – as the Program began to develop. Additionally, the Board set specific priority population investment targets for the funds: 70 percent in and benefiting disadvantaged communities and 80 percent in and benefiting disadvantaged or low-income communities. Through May of 2023, air districts have expended over $465 million dollars with $184 million in AB617 communities. The majority of the remaining $281 million in CAP incentives expended (94%) have been in other disadvantaged and low-income communities across the State.
62 To expand on initial funding options in the CAP Guidelines, CARB developed a process for the air districts to fund new projects responsive to community priorities and to expand stationary source incentives. CARB staff worked with the air districts and California Air Pollution Control Officers Association (CAPCOA) through late 2019 and early 2020 to ensure the process maximized flexibility to support projects requested by community members while simultaneously meeting the need to assess emissions reductions and other benefits. Agency staff shared draft language
56 For more information on the Carl Moyer Memorial Air Quality Standards Attainment Program, visit:
https://ww2.arb.ca.gov/our-work/programs/carl-moyer-memorial-air-quality-standards-attainment-program. 57 For more information on the Community Air Protection Incentives, visit:
https://ww3.arb.ca.gov/msprog/cap/capfunds.htm
58 For more information on the Proposition 1B: Goods Movement Emission Reduction Program, visit:
https://ww2.arb.ca.gov/our-work/programs/proposition -1b-goods-movement-emission-reduction-program. 59 For more information on the Funding Agricultural Replacement Measures for Emission Reductions Program, visit:
https://ww2.arb.ca.gov/our-work/programs/farmer-program. 60 For more information on the Low Carbon Transportation Investments and Air Quality Improvement Program , visit:
https://ww2.arb.ca.gov/our-work/programs/low-carbon-transportation-investments-and-air-quality-improvement- program.
61 California Air Resources Board, AB 617 Budget Frequently Asked Questions – Summary of AB 617 Funding, available at:
https://ww2.arb.ca.gov/sites/default/files/2023 -05/AB617%20Funding%20Questions_update%20Final_5.23.23.pdf 62 Disadvantaged and low-income communities as defined by Assembly Bill 1550 (Gomez, Chapter 369, Statutes of 2016), read more here: https://calepa.ca.gov/envjustice/ghginvest/
DRAFT Path to Clean Air Plan
December 2023
with the public in May 2020 and incorporated their guidance as well as feedback from the air districts into the final version in October 2020.
The revised guidelines allow air districts to expeditiously develop and fund projects to reduce emissions from stationary sources and to address those concerns identified and prioritized in AB 617 community emissions reduction programs. As a criterion for CARB's approval of a Community Emissions Reduction Program (CERP), air districts must describe the level of support for the CERP and its strategies to the Community Steering Committee. Subsequent proposed project plans to implement incentive-based strategies must also document strong, widespread, and clear community support and include descriptions of community benefits, both those benefits that are quantifiable and those more qualitative in nature. The graphic below illustrates the process by which a CERP is developed and approved. This iterative process allows districts and CARB to account for complicated, unique, or unusual projects and ensure that they will be responsive to community needs.
Several innovative incentive projects were initiated in 2022 and funded by Community Air Protection Program Incentives. San Joaquin Valley Air Pollution Control District (SJVAPCD) has numerous Community Identified Projects totaling over $3 million, including wood stove replacements, EV charging infrastructure, dust harvesters, lawn and garden, and alternatives to agricultural burning. With support from Portside Environmental Justice Neighborhoods' CSC, SDAPCD proposed, and CARB approved, an electric truck pilot project for Portside to incentivize e-truck purchases without requiring scrapping old trucks as a Community Air Protection Incentives – Community Identified Project. On behalf of their AB 617 communities, South Coast Air Quality Management District (SCAQMD) has submitted a Draft AB 617 Truck Incentives Workplan to CARB for review that will provide opportunities for fleet owners to assess the suitability of zero-emission or near-zero-emission medium- or heavy-duty trucks and supporting infrastructure by allowing them to test drive the cleaner trucks for some time.
Staff recognizes that other communities, particularly those that have been consistently nominated but not yet selected for participation in AB 617, could likewise benefit from their air districts implementing these kinds of innovative new projects. Staff is currently working with the air districts to revise the CAP Guidelines to incorporate many of these approved community- identified projects as new chapters eligible for any air district to implement in their most heavily
DRAFT Path to Clean Air Plan
December 2023
impacted communities. New chapters will include incentives for agency partnerships, vegetative barriers and urban greening, emergency diesel generator replacement, paving, sidewalk, and bike path projects, dial-a-ride vehicle replacement, alternatives to agricultural burning, and low-dust nut harvesters. Staff will continue to work with the air districts to develop these revisions, and plan to publish these revised Guidelines in Spring 2024.
Regulatory Programs
Federal, State, and local air quality agencies all work together to reduce emissions. At the federal level, the U.S. Environmental Protection Agency (U.S. EPA) has primary authority to control emissions from certain mobile sources, including sources that are all or partly under federal jurisdiction (e.g., some farm and construction equipment, aircraft, marine vessels, locomotives), which it shares in some cases with air districts and CARB. The U.S. EPA also establishes ambient air quality standards for some air pollutants. At the State level, CARB is responsible for controlling emissions from mobile sources and consumer products (except where federal law preempts CARB's authority), controlling toxic emissions from mobile and stationary sources, controlling greenhouse gases from mobile and stationary sources, developing fuel specifications, and coordinating State-level air quality planning strategies with other agencies.
Regionally, air districts are primarily responsible for controlling emissions from stationary and indirect sources (with the exception of consumer products in most cases) through rules and permitting programs within their regions.
CARB regulatory programs are designed to reduce emissions to protect public health, achieve air quality standards, reduce greenhouse gas emissions, and reduce exposure to toxic air contaminants. CARB establishes regulatory requirements for cleaner technologies (both zero and near-zero emissions) and their deployment into the fleet for cleaner fuels and to ensure in- use performance. CARB's regulatory programs are broad – impacting stationary sources, mobile sources, and multiple points within product supply chains from manufacturers to distributors, retailers, and end-users. CARB's regulations affect cars, trucks, ships, off-road equipment, consumer products, fuels, and stationary sources.
One important and relevant regulatory authority of CARB is to adopt measures to reduce emissions of toxic air contaminants from mobile and non-mobile sources, known as Airborne Toxic Control Measures (ATCM).
63 These regulatory measures include process requirements, emissions limits, or technology requirements. Additionally, CARB implements the Statewide Air Toxics "Hot Spots" Program64 to address the health risk from toxic air contaminants at individual facilities across the State. The Air Toxics "Hot Spots" Program includes several components to collect emissions data, identify facilities having localized impacts, ascertain health risks, notify nearby residents of significant risks, and reduce those significant risks to acceptable levels.
Under the Air Toxics "Hot Spots" Program, air districts are required to set a threshold for facilities that pose a significant health risk and prioritize facilities for health risk assessments. Air districts also establish a risk value above which facilities must conduct a risk reduction audit and emissions reduction plan. Facilities must develop these health risk assessments, risk reduction audits, and
63 California Health and Safety Code § 39650 et seq.
64 Assembly Bill 2588, Air Toxics "Hot Spots" Information and Assessment Act, Connelly, Statutes of 1987, California Health and Safety Code § 44300 et seq.
DRAFT Path to Clean Air Plan
December 2023
emission reduction plans. CARB provides technical guidance to support smaller businesses in conducting health risk assessments and developing emissions reduction plans.
Additionally, CARB has pursued enforceable agreements with industry that result in voluntary but enforceable adoption of the cleanest technologies or practices and provide assurance that emissions reductions will be realized. CARB's agreement with the Union Pacific Railroad Company and BNSF Railway Company to accelerate the introduction of cleaner locomotives in the South Coast Air Basin is an example of an enforceable agreement.
CARB Actions Related to the PTCA Community
This section highlights CARB actions that specifically relate to the PTCA community. This list should not be interpreted as exhaustive but rather illustrative of some of the major statewide strategies driving emissions reductions in conjunction with those local-level strategies identified in this community emissions reduction program. Additional CARB foundational strategies can be found in Appendix D and Appendix F of the Community Air Protection Blueprint. 65 The list of CARB
actions and their anticipated benefits in current AB 617 communities is also available on the Program CommunityHub.
66 Recently Adopted CARB Regulations
In August 2022, CARB approved the Advanced Clean Fleets regulation.67 The Advanced Clean Fleets regulation is part of a comprehensive strategy that would, consistent with public health needs, accelerate the widespread adoption of zero-emission vehicles (ZEV) in the medium- and heavy-duty truck sector and in light-duty package delivery vehicles. The ACF regulation would require certain fleets to deploy ZEVs starting in 2024 and would establish a clear end date for new medium- and heavy-duty internal combustion engine (ICE) vehicle sales in 2040. See Mobile strategies in Chapter 7.
In November 2022, CARB approved the Advanced Clean Cars II regulations. 68 The Advanced
Clean Cars II regulations will rapidly scale down light-duty passenger car, pickup truck, and SUV emissions starting with the 2026 model year through 2035. The regulations are two-pronged. First, it amends the Zero-emission Vehicle Regulation to require an increasing number of zero-emission vehicles and relies on currently available advanced vehicle technologies, including battery- electric, hydrogen fuel cell electric, and plug-in hybrid electric vehicles, to meet air quality and climate change emissions standards. These amendments support Governor Newsom's 2020 Executive Order N-79-20
, which requires all new passenger vehicles sold in California to be zero emissions by 2035. Second, the Low-emission Vehicle Regulations were amended to include increasingly stringent standards for gasoline cars and heavier passenger trucks to continue to reduce smog-forming emissions. The regulations will substantially reduce air pollutants that threaten public health and cause climate change. While further developing the zero-emission vehicle market, the regulations also take additional steps to clean up internal combustion engines and will provide public health benefits of at least $12 billion over the life of the
65 California Air Resources Board, Final Community Air Protection Blueprint for Selecting Communities, Preparing Community Emissions Reduction Programs, Identifying Statewide Strategies, and Conducting Community Air Monitoring, October 2018, available at: https://ww2.arb.ca.gov/capp -blueprint. 66 Community Air Protection Program Communities: https://ww2.arb.ca.gov/capp-communities 67 For more information on the Advanced Clean Fleets regulation, visit: https://ww2.arb.ca.gov/our- work/programs/advanced-clean-fleets
68 For more information on the Advanced Clean Cars II regulations, visit: https://ww2.arb.ca.gov/our- work/programs/advanced-clean-cars-program/advanced-clean-cars-ii DRAFT Path to Clean Air Plan
December 2023
regulations by reducing premature deaths, hospitalizations, and lost workdays associated with exposure to air pollution. See Mobile strategies in Chapter 7.
In December 2022, CARB approved amendments to the Commercial Harbor Craft (CHC) regulation.69 CARB has regulated commercial harbor craft since 2009. By the end of 2022, the Current Regulation will require Tier 2 or 3 engines on a subset of harbor craft (excursion vessels, ferries, tugboats, crew & supply vessels, barges, and dredges). The 2022 Amended CHC Regulation adds or expands requirements for vessels regarding emissions, reporting, fuel use, idling, and facility power, among others. Some of these new requirements go into effect as early as January 1, 2023. Harbor craft are in the top three emitting categories at seaports, contributing more diesel particulate matter emissions than trucks in 2023 at the San Pedro Bay Ports. The amendments are expected to reduce diesel PM from covered vessels by 89 percent and NOx by 54 percent at full implementation. This is expected to avoid 531 premature deaths, 161 hospital admissions, and 236 emergency room visits, providing $5.25 billion in benefits versus $1.98 billion in costs statewide. See Marine and Rail strategies in Chapter 7.
In April 2023, CARB approved the In-Use Locomotive regulation
70. The In-Use Locomotive
Regulation (Regulation) will achieve emission reductions from diesel-powered locomotives and increase the use of zero-emission (ZE) technology. The Regulation will help meet California's public health, air quality, and climate goals by reducing criteria pollutants, toxic air contaminants, and greenhouse gas emissions for locomotives in use. See Marine and Rail strategies in Chapter 7.
In May 2023, CARB adopted the Hexavalent Chromium Airborne Toxic Control Measure (ATCM).
71 The ATCM results in the most stringent regulation of hexavalent chromium emissions from the chrome plating industry (compared to federal standards and District rules), with the goal of eliminating toxic hexavalent chromium emissions from the chrome plating industry in California over time.
Upcoming CARB Regulations
Cargo Handling Equipment Regulation Amendments – Mobile cargo handling equipment is any motorized vehicle used to handle cargo or perform routine maintenance activities at California's ports and intermodal rail yards. The type of equipment includes yard trucks (hostlers), rubber- tired gantry cranes, container handlers, forklifts, etc. The prior Mobile Cargo Handling Equipment (CHE) Regulation was adopted in 2005 to reduce toxic and criteria emissions to protect public health and was fully implemented by the end of 2017. CARB staff is currently assessing the availability and performance of zero-emission technology to further reduce emissions. For more information, visit: https://ww2.arb.ca.gov/our-work/programs/cargo-handling-equipment .
Catalytic Converter Theft Reduction - This strategy consists of innovative assistance to deter thefts of vehicle catalytic convertors in communities selected for the Community Air Protection Program. For more information, visit: https://ww2.arb.ca.gov/sites/default/files/2018- 10/final_community_air_protection_blueprint_october_2018_appendix_f.pdf
69 For more information on the Commercial Harbor Craft Amendments, visit: https://ww2.arb.ca.gov/our- work/programs/commercial-harbor-craft
70 For more information on the In-Use Locomotive Regulation, visit: https://ww2.arb.ca.gov/our-work/programs/reducing- rail-emissions-california/locomotive-fact-sheets
71 For more information on the Hexavalent Chromium Airborne Toxic Control Measure, visit: https://ww2.arb.ca.gov/our- work/programs/chrome-plating-atcm
DRAFT Path to Clean Air Plan
December 2023
Commercial Cooking Suggested Control Measure - This strategy consists of a two-phase process to evaluate California's current emission reduction requirements for commercial cooking operations that prepare food for human consumption and, if necessary, make improvements to achieve additional reductions in particulate matter 10 microns or less in diameter (PM10),
particulate matter 2.5 microns or less in diameter (PM2.5) and volatile organic compound emissions that contribute to ozone formation. For more information, visit:
https://ww2.arb.ca.gov/sites/default/files/2018-
10/final_community_air_protection_blueprint_october_2018_appendix_f.pdf S ee Commercial and Industrial Sources Near Community Chapter 7.
Composite Wood Products Control Measure Amendments - This strategy will amend the CARB Composite Wood Products Airborne Toxic Control Measure (ATCM), approved in 2007. The Composite Wood Products ATCM established formaldehyde emission standards for three types of composite wood products (hardwood plywood, particleboard, and medium-density fiberboard) and requires that all consumer goods that contain such materials (e.g., flooring, cabinets, furniture) destined for sale in California must comply with the Composite Wood Products ATCM. For more information, visit:
https://ww2.arb.ca.gov/our-
work/programs/composite-wood-products-program
Consumer Products Standards - The primary goal of this measure is to help attain federal ozone standards in the South Coast by addressing projected growth in consumer product emissions.
While this measure focuses on attaining federal air quality standards in the South Coast, where nearly 15 million residents face the most extreme and persistently high ambient ozone levels in the nation, it will also facilitate the attainment of State and federal air quality standards in other California regions. For more information, visit:
https://ww2.arb.ca.gov/sites/default/files/2022-
08/2022_State_SIP_Strategy.pdf
Future Measures for Aviation Emissions Reductions - The primary goal of future measures for aviation is to reduce emissions from airport and aircraft-related activities. The identified emission sources for the aviation sector are main aircraft engines, auxiliary power units (APU), and airport ground transportation. For more information, visit:
https://ww2.arb.ca.gov/sites/default/files/2022-08/2022_State_SIP_Strategy.pdf Future Measures for Ocean-Going Vessel Emissions Reductions - The primary goal of future measures for OGVs is to further reduce emissions from OGVs that are transiting, maneuvering, or anchoring in Regulated California Waters (RCW) and while docking at berth in California seaports. For more information, visit:
https://ww2.arb.ca.gov/sites/default/files/2022-
08/2022_State_SIP_Strategy.pdf S ee Marine and Rail strategies in Chapter 7.
Ocean Going Vessels In-Transit - The 2020 At-Berth Regulation was adopted by CARB's Board in August 2020. The At-Berth Regulation expands existing regulations by adding more types of visits and two new vessel categories: auto carriers and tankers and the new ports and terminals that receive these vessel types. The At-Berth Regulation Interim Evaluation Report (published on December 1, 2022) and provides CARB's Board and the public with an implementation status update for the At-Berth Regulation. One of the key recommendations from the Report is to pursue future reductions from ocean-going vessels while they are transiting, maneuvering, and anchoring, as most emissions from
ocean-going vessels occur while they are transiting. CARB will be performing an ocean-going vessel technology assessment during the next 18 months that will explore the best strategies for further reducing emissions from ocean-going vessels (including in transit). See Marine and Rail strategies in Chapter 7.
DRAFT Path to Clean Air Plan
December 2023
Off-Road Zero-Emission Targeted Manufacturer Rule - The goal of the Off-Road Zero-Emission Targeted Manufacturer Rule is to achieve criteria pollutant and GHG emissions reductions by accelerating the development and production of zero-emission off-road equipment and powertrains. For more information, visit: https://ww2.arb.ca.gov/sites/default/files/2022- 08/2022_State_SIP_Strategy.pdf S ee “Mobile” Chapter 7.
Spark-Ignition Marine Engine Standards - The goal of this measure is to reduce emissions from new spark-ignition (SI) marine engines by adopting more stringent exhaust standards for outboard and personal watercraft, which currently do not use catalyst control technologies. For more information, visit:
https://ww2.arb.ca.gov/sites/default/files/2022-
08/2022_State_SIP_Strategy.pdf S ee Marine and Rail strategies in Chapter 7.
Tier 5 Off-Road Vehicles and Equipment - This measure is to establish more stringent standards and test procedures for new, off-road compression-ignition (CI) engines to reduce NOx, PM, and carbon (CO2) emissions (referred to as Tier 5) for all off-road engine power categories, including those that do not currently utilize exhaust after-treatment such as diesel particulate filters (DPF) and selective catalytic reduction (SCR). For more information, visit:
https://ww2.arb.ca.gov/sites/default/files/2022-08/2022_State_SIP_Strategy.pdf See “Mobile”
Chapter 7.
Transport Refrigeration Unit Regulations, Part 2 – Transport refrigeration units congregate at distribution centers, railyards, and other facilities, resulting in the potential for health risks to those that live and work nearby. In February 2022, CARB adopted amendments to the Transportation Refrigeration Unit Airborne Toxic Control Measures (TRU ATCM). The amendments include requirements for the transition of diesel-powered truck TRUs to zero-emission, a particulate matter emission standard for newly manufactured non-truck TRUs, lower global warming potential refrigerant, facility registration, and reporting expanded TRU reporting and labeling, and fees.
Staff are assessing zero emission options for non-truck TRUs and plan to take a second rulemaking (Part 2) to the Board for consideration in 2025. For more information, visit . See Commercial and Industrial Sources Near Community strategies in Chapter 7.
Zero-Emission Appliance Standards – Zero-emission standards for new appliances are in alignment with the 2022 Scoping Plan for Achieving Carbon Neutrality (2022 Scoping Plan) as they would reduce building-related greenhouse gas (GHG) emissions. These standards would also assist California with meeting State and federal air quality standards and achieving public health benefits because they would also provide important smog-forming NOx emission reductions. CARB committed to exploring developing and proposing zero-emission GHG standards for new space and water heaters sold in California as part of the 2022 State Strategy for the State Implementation Plan (2022 State SIP Strategy) adopted in September 2022. For more information, visit
https://ww2.arb.ca.gov/our-work/programs/zero-emission-appliance- standards S ee Public Health and Reducing Exposure strategies in Chapter 7.
Zero-Emissions Truck Measure - This measure would seek to accelerate the number of zero- emissions (ZE) trucks beyond existing measures (including the proposed Advanced Clean Fleets regulation). This strategy is a modification of the publicly suggested On-Road Heavy-Duty Vehicle Useful Life Regulation. The already adopted ACT regulation will result in almost 420,000 ZE trucks on the road by 2037, and the proposed Advanced Clean Fleets (ACF) regulation would increase the number of ZE trucks by another 220,000 to a total of 640,000. However, in 2037, even after the implementation of the ACT and ACF regulations, about 480,000 heavy-duty combustion-powered trucks will still be on the road. In this modified approach, staff would seek DRAFT Path to Clean Air Plan
December 2023
to upgrade these remaining heavy-duty combustion trucks to new or used ZE trucks rather than to trucks with cleaner combustion engines. For more information, visit:
https://ww2.arb.ca.gov/sites/default/files/2022-08/2022_State_SIP_Strategy.pdf See Mobile strategies in Chapter 7.
Estimated Emission Reductions from CARB Measures
It is important to note that the Statewide regulations provided in this CERP are in the early phases of development, and their adoption and implementation timelines are not well established. As a result, a draft emissions inventory, and estimated benefits are not yet available for many regulations still in development. As these emissions inventories are developed overtime, CARB staff will provide estimated benefits in future updates.
DRAFT Path to Clean Air Plan
December 2023
Chapter 9 Implementation and Reporting
Achieving the ambitions of the PTCA Plan will require a dedicated commitment to active implementation and ongoing reporting of both successes and challenges. This chapter describes the approach to Plan implementation and annual reporting.
The Plan has a five-year horizon to initiate and complete strategies and actions, and a 10-year horizon for continued tracking to prevent backsliding and to ensure continued progress towards Plan Goals. Plan implementation will require commitments from a variety of agencies, organizations, and stakeholders. The Air District is a key implementation partner and lead, alongside CARB and the local jurisdictions within the PTCA area. The Air District holds the unique role of convening agencies responsible for implementation. The Air District has committed to ensuring adequate resources are provided during Plan implementation (see the Resource PTCA Plan Implementation strategy), for example, make regulations more stringent, enhance enforcement, and incentivize equipment replacements. Local jurisdictions such as the cities of Richmond and San Pablo and Contra Costa County will play a critical role in Plan implementation, for example by updating codes to create health-protective zoning regulations where industrial and residential land uses intersect and considering new multi-jurisdictional planning to better manage truck routes and impacts. The CSC will continue the vital role of pushing for accountability and transparency and will help prioritize and drive Plan implementation. Many other stakeholders will be involved in implementing strategies centered around the needs of people who have been disproportionately harmed by environmental injustice.
In alignment with the PTCA Vision and Principles, the Plan Goals will be achieved by implementing the strategies and actions detailed in Chapter 7.
Key Agencies with Roles in Plan Implementation
Air District
The Air District is the regional agency responsible for assuring clean air in the nine counties that surround the San Francisco Bay (except northeastern Solano and northern Sonoma counties).
The Air District writes and implements air quality plans, adopts and enforces regulations to control air pollution from stationary sources, offers incentives to government agencies, businesses, and individuals to voluntarily reduce air pollution, engages with communities and provides technical and policy guidance regarding air quality, and manages the Spare the Air program. The Air District builds and maintains relationships with the CSC and agency stakeholders and sustains partnerships with communities across the region.
Cities of Richmond and San Pablo
The City of Richmond and City of San Pablo have authority for their respective land-use and transportation decisions. Their City Councils make land-use decisions by adopting general and specific plans, zoning regulations, and certifying environmental reports for land-use projects, such as housing, commercial, and industrial developments.
County of Contra Costa
Contra Costa County has authority for growth, conservation, and community life in the unincorporated areas within the County. The County makes decisions about zoning and development, including certifying environmental reports for land-use projects such as housing, DRAFT Path to Clean Air Plan
December 2023
commercial and industrial developments, and decisions about sustainability and environmental justice.
Contra Costa Health Services
Contra Costa Health Services provides health care services to all people in Contra Costa County with special attention to those who are most vulnerable to health problems. Several departments are within the Health Services Division including Environmental Health and Public Health, focusing on communities and populations most at risk for poor health outcomes and those most affected by environmental inequities.
CARB
CARB is the state agency charged with protecting the public from the harmful effects of air pollution and developing programs and actions to fight climate change. CARB identifies pollutants that pose the greatest health risks, such as DPM, benzene in gasoline and formaldehyde in consumer products. CARB is also responsible for establishing the state’s air quality standards to protect those at greatest risk – children, older adults and people with lung and heart disease.
As implementation begins and actions are worked on and refined, additional partners will surface and be engaged.
Implementation Mechanisms
The Plan calls on multiple agencies to commit resources to implement the strategies and actions. The following describes the types of mechanisms that can help achieve the ambitions of the Plan.
Incentives. Securing funding for diesel engine and equipment replacements, electric charging and hydrogen fuel station infrastructure can accelerate the turnover of older equipment and facilitate the transition to cleaner equipment and vehicles.
Rule Development. California law sets forth the rulemaking process by which CARB and the Air District are responsible for developing and adopting the specific rules and regulations needed to achieve healthy air quality.
Enforcement. Stricter enforcement is widely recognized as a component of environmental justice. Several agencies have enforcement authority in the PTCA area. CARB enforces “mobile” sources such as heavy-duty truck engine types, ensuring that transport trucks adhere to the latest, cleanest engine requirements. The Air District enforces stationary sources (permitted industrial facilities and wood burning, for example). Cities and counties have local code enforcement authority to make sure businesses comply with zoning regulations and traffic control authority to ensure transport trucks stay on designated truck routes. Additional agencies also are involved in enforcement such as the U.S. EPA.
Permitting and Land Use. Stationary sources, such as factories, are issued permits that define how much air pollution they can emit. In California, local air districts have the authority to grant permits to stationary sources.72 Local planning departments issue land use and building permits.
The county health department issues hazardous materials permits. Various state agencies also regulate industrial activities involving hazardous materials such as DTSC and Cal EPA.
72 https://ww2.arb.ca.gov/permitting
DRAFT Path to Clean Air Plan
December 2023
Advocacy. After the Plan is adopted, the CSC will continue to advocate for Plan implementation, will meet regularly to review progress, evaluate programs and budgets, and make recommendations. In addition, CSC members, community members, business owners, and other stakeholders likely will need to advocate and communicate with collaborating agencies to ensure their continued support for Plan strategies and the resources needed for implementation. The Air District and CSC will work collaboratively to build alliances among allies to help ensure Plan implementation success.
Education. Community education about technical aspects of Plan implementation and agency education about the on-the-ground conditions in the PTCA area will continue during implemented.
Research and Further Study. Several topics will need to be better understood through research, additional study or data analysis to help determine the most strategic course of action.
The table below presents example mechanisms to reduce pollution from four key sectors analyzed in the Plan emissions inventory.
Example Mechanisms
Enforcement: Enhance
enforcement, legal
approaches and
penalties.
Example Mechanisms
Incentives: Offer
incentives to replace
wood-burning devices
or other older home
appliances
Example Mechanism
Agency operations:
City of Richmond,
City of San Pablo and
Contra Costa County
conduct more
frequent street
sweeping to control
road dust
Example Mechanism
Regulation: CARB
adopts and
implements the In-Use
Locomotive Regulation
that will ensure existing
rail cars are as clean as
possible and
locomotive fleet
turnover to newer,
cleaner technology is
accelerated
CSC, Standing and Ad Hoc Committees Implementation Roles Once the Plan has been adopted the CSC will begin Plan implementation. The CSC will support and direct activities to achieve Plan Goals in alignment with the PTCA Vision and Principles. The CSC will form, disband, or maintain Standing and Ad Hoc committees with specific and defined roles and responsibilities as well as expected outcomes, as needed. The Air District will participate in up to two standing committees.
● Current Committees
o CSC
▪ The CSC will be an important body during Plan implementation. The CSC will be asked to review work progress and provide input on the pollution reduction strategies and Plan actions. This will require strong communication
DRAFT Path to Clean Air Plan
December 2023
between the CSC and Air District staff to ensure there are clear priorities established early on, and actions selected for implementation align with the communities’ air quality priorities. It is anticipated that the CSC will meet quarterly.
o Community Engagement Standing Committee
▪ The Community Engagement Standing Committee will continue to use its member’s networks to seek input on Plan actions during implementation. The Committee will determine how best to engage the public in the PTCA area, as well as consider unique outreach tactics for the different types of Plan strategies and actions. The Committee will be encouraged to continue building and strengthening connections with the community to make the most positive impact. The Committee will build coalitions with other community leaders in the Plan area and environmental justice organizations across the Bay Area.
o Governance Ad Hoc Committee
▪ The Governance Ad Hoc will assist with decision making, provide feedback on budgetary matters and respond to speaking requests (at Air District Board of Directors meetings, for example) and mentor other CSC members. ● Proposed Committees (potential committees that may convene as needed and as resources allow)
o Implementation Ad Hoc
▪ An Implementation Ad Hoc would assist the Air District with the preparation of the annual implementation plan (described below), and help call for, and lead, smaller implementation working teams as necessary. o Legislative Ad Hoc
▪ A Legislative Ad Hoc would organize support for legislative proposals that protect public health and reduce air pollution. This includes working with the Air District to identify the CSC’s legislative priorities if any emerge. The Ad Hoc would develop fact sheets and action alerts to support the CSC in determining legislative priorities and organize support among local leaders and other stakeholders within the PTCA area.
o Communications Subcommittee
▪ A Communications Subcommittee would help design, implement and monitor improved and expanded communications about flaring events for the fuel refining sector in the PTCA area and also for major incidents at both fuel-refining and non-fuel-refining sources. Communications mechanisms would be developed in collaboration with the CSC and include (A) a new webpage and (B) standardized internal and external communication protocols (see Fuel Refining Action 2.2).
o Just Transition Subcommittee
▪ A Just Transition Subcommittee (JTS) would provide a platform for advancing Just Transition and facilitate conversations and potential partnerships with both governmental and non-governmental organizations. The JTS would create an online shareable folder of Just Transition educational materials to help support education and aid communications with key stakeholders and will elevate Just Transition Principles through the PTCA Plan and policy making. (see Fuel Refining Action 1.1 and 1.2).
o Community Benefits Policy Subcommittee
DRAFT Path to Clean Air Plan
December 2023
▪ A Community Benefits Policy Subcommittee would work with the Air District to gather public input and develop first a Fuel Refining, and then a PTCA wide, Community Benefits Policy. The committee would work to ensure the policy includes criteria for investment, is tied to air quality and climate protection, incorporates Just Transition principles, and has community driven mechanisms to include community voice. (see Fuel Refining Action 3.9).
Annual Implementation Plan
Air District staff and the CSC will co-develop an annual Implementation Plan that will prioritize strategies and actions for implementation in consultation with responsible Air District Divisions and partner agencies. This will be a yearly work plan rather than a full re-planning effort, and it is not expected that developing this work plan will redirect significant resources away from ongoing Plan implementation. The CSC and the Community Engagement Standing Committee may, as needed, identify community-level implementation opportunities such as advocacy, education, securing resources and community engagement activities to include in the Implementation Plan. The Implementation Plan will identify ongoing administrative needs, such as appropriate Air District staff resource needs, and will inform annual Air District budget planning. Ongoing logistical and communications activities such as maintaining the Air District PTCA web pages will also be addressed. After the first year of Plan implementation, development of the annual Implementation Plan will begin with an evaluation of the previous year’s implementation activities to identify and address challenges that may blocking progress towards the Plan Goals.
Tracking Plan and Strategy Implementation Progress
The PTCA Plan is a living document. In addition to documenting progress on Plan implementation, the Annual Report will provide an opportunity to refine strategies and actions, consider whether additional actions are necessary, and communicate success stories and lessons learned, in accordance with CARB’s guidance (Blueprint 2.0).
At the minimum, the Annual Report will contain the following:
● report on strategy and action implementation progress from all agencies and stakeholders identified as “lead action implementers”
● description of implementation successes and challenges including describing if the level of allocated staff resources was sufficient or if there were shortfalls ● identification of other barriers to Plan implementation ● identification of new opportunities to advance Plan Goals
The Annual Report will be developed with input from the CSC or a delegated Standing or Ad Hoc committee and will be presented to the full CSC. Development of the Annual Report will offer an opportunity to identify alignment or misalignment with the annual Implementation Plan and make necessary adjustments. In accordance with CARB, the Annual Report will be made available to the public by October 1st every year and will be presented to the Air District Board of Directors and transmitted to CARB. In addition to the content outlined above, the Annual Report will include an emissions management report (described below).
Emissions Inventory Improvement and Reporting
An Emissions Management Report will accompany the Annual Report and is intended to improve the accuracy and transparency of Plan emissions data so that progress toward emissions reductions can be demonstrated over time. The Emissions Management Report will focus on permitted sources and include emissions data for a minimum of five CAPs and a DRAFT Path to Clean Air Plan
December 2023
minimum of 20 high-priority TACs. It will include analysis and commentary on changes in emissions levels (noting whether changes were due to changes in the way emissions are calculated, or industry operational changes, etc.). The Emissions Management Report and a simplified summary of the report will be made available to the CSC, partner agencies and local government officials along with the Annual Report.
For key implementation milestone years 5 and year 10, an emissions inventory update will be completed including all sources (stationary, mobile, etc.). Additionally, the Air District will prepare a tool for converting emissions changes into cancer risks and use the tool to update exposure and health risk data for the 5- and 10-year milestone reports and make information public (to CSC and other stakeholders). The Air District will continue to explore other options for comparing emissions inventory and exposure data, such as calculating “impact per ton” for sources of concern.
DRAFT Path to Clean Air Plan
December 2023
PTCA Plan Glossary
Acronyms
Acronym Phrase/Term
AB 617 Assembly Bill 617
AIM Assessment Inventory & Modeling Division of the Air District Air District Bay Area Air Quality Management District
BAAQMD Bay Area Air Quality Management District or Air District BMP Best management practices
BRT Bus rapid transit
BUGs Backup generators
Cal EPA California Environmental Protection Agency
C&E Compliance & Enforcement Division of the Air District CAMP Community Air Monitoring Plan
CAP Criteria air pollutant
CAPP CARB’s Community Air Protection Program
CARB California Air Resources Board
CBO Community-based organization
CCCTA Contra Costa County Transportation Authority
CEQA California Environmental Quality Act
CHC Commercial harbor craft
CHE Cargo handling equipment
DPM Diesel particulate matter
DTSC State of California Department of Toxic Substances Control EBMUD East Bay Municipal Utility District
EDF Environmental Defense Fund
FCCU Fluidized catalytic cracking units
FHWA Federal Highway Administration
FTG Freight trip generation
GHG Greenhouse gases
HEPA High efficiency particulate air filter
HRA Health risk assessment
M&M Meteorology & Measurements Division of the Air District NAAQS National Ambient Air Quality Standards
NAICS North American Industry Classification System
NOV Notice of violation
OEHHA California Office of Environmental Health and Hazard Assessment OGV Ocean Going Vessel
DRAFT Path to Clean Air Plan
December 2023
PTCA Path to Clean Air
PM Particulate matter
PM2.5 Fine particulate matter
PPB Parts per billion
PPM Parts per million
PZEV Partial zero emission vehicle
RELs Reference exposure levels, can be acute or chronic RRP Risk reduction plan
SCAQMD South Coast Air Quality Management District
TAC Toxic air contaminant
TMP Truck management plan
TWE Toxicity-weighted emissions, can be acute or chronic TRU Transportation refrigeration unit
U.S. EPA United States Environmental Protection Agency
VMT Vehicle miles traveled
ZEV Zero emission vehicle
Criteria Air Pollutants and Toxic Air Contaminants
Criteria Air Pollutants
The Clean Air Act requires the U.S. EPA to set National Ambient Air Quality Standards (NAAQS) for six common CAPs. These pollutants are found all over the U.S. They can harm your health and the environment, and cause property damage. Read more about each of these criteria pollutants summarized on the US EPA website.
Carbon Monoxide: CO is a colorless, odorless gas that can be harmful when inhaled in large amounts. CO is released when something is burned.
Ground-level Ozone: Ozone is a gas composed of three atoms of oxygen. Ozone occurs both in the Earth's upper atmosphere and at ground level. Ozone can be good or bad, depending on where it is found. Ozone at ground level is a harmful air pollutant, because of its effects on people and the environment, and it is the main ingredient in “smog." Lead: Lead is a naturally occurring element found in small amounts in the earth’s crust. While it has some beneficial uses, it can be toxic to humans and animals, causing health effects.
Nitrogen Dioxide (NOX): Nitrogen Dioxide (NO
2) is one of a group of highly reactive gases known
as oxides of nitrogen or nitrogen oxides (NOx). Other nitrogen oxides include nitrous acid and nitric acid. NO2 is used as the indicator for the larger group of nitrogen oxides.
Particulate Matter (PM): A mixture of solid particles and liquid droplets found in the air. Some particles, such as dust, dirt, soot, or smoke, are large or dark enough to be seen with the naked eye.
DRAFT Path to Clean Air Plan
December 2023
Sulfur Dioxide (SO2): U.S. EPA’s national ambient air quality standards for SO2 are designed to protect against exposure to the entire group of sulfur oxides (SOx). SO2 is the component of greatest concern and is used as the indicator for the larger group of gaseous sulfur oxides (SOx).
Toxic Air Contaminants
According to section 39655 of the California Health and Safety Code, a TAC is "an air pollutant which may cause or contribute to an increase in mortality or an increase in serious illness, or which may pose a present or potential hazard to human health." Below are the top 20 toxic air contaminants in the PTCA emissions inventory. These compounds were identified by weighting emissions of individual TACs by health values compiled by OEHHA: cancer potency factors and chronic and acute reference exposure levels (RELs). These 20 TACs account for at least 96% of the cancer, chronic, and acute toxicity-weighted emissions (TWE) in the PTCA emissions inventory.
1,3-butadiene: Produced through the processing of petroleum and is mainly used in the production of synthetic rubber but is also found in smaller amounts in plastics and fuel.
Acrolein: Primarily used as an intermediate in the synthesis of acrylic acid and as a biocide. It may be formed from the breakdown of certain pollutants in outdoor air or from the burning of organic matter including tobacco, or fuels such as gasoline or oil. It is toxic to humans following inhalation, oral or dermal exposures.
Acrylonitrile (CH
2=CHCN): A toxic, colorless to pale-yellow liquid, harmful to the eyes, skin, lungs, and nervous system. It may cause cancer. Workers may be harmed from exposure to acrylonitrile. The level of exposure depends upon the dose, duration, and work being done.
Ammonia (NH3) is a common toxicant derived from wastes, fertilizers and natural processes.
Ammonia nitrogen includes both the ionized form (ammonium, NH4+) and the unionized form (ammonia, NH3). Ammonia occurs naturally in air, soil, and water. Ammonia is used as an agricultural fertilizer and in many cleaning products.
Arsenic: A naturally occurring element widely distributed in the earth’s crust. In the environment, arsenic is combined with oxygen, chlorine, and sulfur to form inorganic arsenic compounds.
Arsenic in animals and plants combines with carbon and hydrogen to form organic arsenic compounds.
Benzene: Also known as benzol, a colorless liquid with a sweet odor. Benzene is used as a constituent in motor fuels; as a solvent for fats, waxes, resins, oils, inks, paints, plastics, and rubber; in the extraction of oils from seeds and nuts; and in photogravure printing. It is also used as a chemical intermediate. Benzene is also used in the manufacturing of detergents, explosives, pharmaceuticals, and dyestuffs.
Chromium (hexavalent): A naturally occurring element in rocks, animals, plants, soil, and volcanic dust and gases. Chromium compounds, in either the chromium (III) or chromium (VI) forms, are used for chrome plating, the manufacture of dyes and pigments, leather and wood preservation, and treatment of cooling tower water.
Cobalt: Cobalt (chemical symbol Co) is a hard, gray-blue metal that is solid under normal conditions. Cobalt is like iron and nickel in its properties and can be magnetized like iron. The most common radioactive isotope of cobalt is cobalt-60 (Co-60). Cobalt-60 is a byproduct of DRAFT Path to Clean Air Plan
December 2023
nuclear reactor operations. It is formed when metal structures, such as steel rods, are exposed to neutron radiation.
Diesel Particulate Matter (DPM): A component of diesel exhaust that includes soot particles made up primarily of carbon, ash, metallic abrasion particles, sulfates, and silicates. Diesel soot particles have a solid core consisting of elemental carbon, with other substances attached to the surface, including organic carbon compounds known as aromatic hydrocarbons.
Ethylene Dichloride: A colorless, toxic, volatile liquid having an odor resembling that of chloroform. It is denser than water, and it is practically insoluble in water.
Formaldehyde: A colorless flammable gas with a pungent odor that is highly reactive with many substances.
Hydrochloric Acid: Used in the production of chlorides, for refining ore in the production of various manufacturing operations.
Hydrogen Cyanide: The primary source of cyanide in the air is from car exhaust. Other airborne sources include emissions from chemical processing, other industries, and municipal waste incinerators.
Hydrogen Sulfide (H2S): A flammable, colorless gas that smells like rotten eggs. People usually can smell hydrogen sulfide at low concentrations in air ranging from 0.0005 to 0.3 parts per million (ppm).
Maleic Anhydride: Lube oil adhesives synthesized from maleic anhydride that are used to prolong oil-change intervals and improve engine efficiency.
Manganese: Metallic manganese is used primarily in steel production to improve hardness, stiffness, and strength. It is also used in carbon steel, stainless steel, and high-temperature steel, along with cast iron and superalloys.
Nickel Carbonyl: Occurs naturally in the environment at low levels. Nickel is an essential element in some animal species, and it has been suggested it may be essential for human nutrition.
Sulfuric Acid: A colorless oily liquid. It is soluble in water with release of heat. It is corrosive to metals and tissue. It will char wood and most other organic matter on contact but is unlikely to cause a fire.
Vinyl Chloride: Most vinyl chloride is used to make polyvinyl chloride (PVC) plastic and vinyl products.
Definition of terms
AB 617 – Assembly Bill (AB) 617 (C. Garcia, Chapter 136, Statutes of 2017) directs the state, in consultation with local air districts, to select communities in California that are exposed to high levels of air pollution. Selected communities will work with local air districts on action plans to reduce people’s exposure to particulate matter and toxic air contaminants, and/or to develop community air monitoring plans.
DRAFT Path to Clean Air Plan
December 2023
AB 2449 – AB 2449 allows the legislative body of a local agency to use teleconferencing without complying with the traditional Brown Act teleconferencing rules or the modified AB 361 rules in certain circumstances.
Abatement
Device – Devices designed to capture, remove and/or reduce pollutants that would otherwise be emitted into the air. Examples are baghouses, scrubbers, dust collectors, direct flame afterburners, vapor recovery units, and water sprayers.
Air District or BAAQMD – The regional air pollution control agency with jurisdiction over the counties of Alameda, Contra Costa, Marin, Napa, San Francisco, Santa Clara, San Mateo, and the southern portions of Solano and Sonoma counties. The Air District oversees policies and adopts regulations for the control of air pollution from stationary sources, adopts clean air plans, offers incentives for emission reductions from mobile sources, enforces air quality rules, and collects, monitors, and models air quality data.
Best Practices to Reduce Emissions – Measures that reduce emissions, and therefore reduce health risks from air pollution. Examples include retrofitting diesel generators to low or zero emitting technology, electrifying loading docks, limiting truck idling times, requiring low or zero emitting truck engines, and adding abatement devices to stationary sources.
Best Practices to Reduce Exposure – Measures that may not reduce actual emissions but reduce people’s exposure to pollutants and reduce health risks. Examples include HVAC (heating ventilation, air conditioning) air filters, planting vegetation between a source of pollution and residential units and prohibiting trucks on residential streets.
Back-up Diesel Generator (BUG) – BUGs include stationary generators and portable generators.
Stationary generators are often sources of emergency power for commercial, industrial, and residential buildings. Portable generators are used as temporary power when and where an electrical grid is not available, at construction sites, outdoor gatherings such as concerts and festivals, and disaster recovery sites. See also diesel engine.
Black Carbon – Black carbon is the sooty black material emitted from gasoline and diesel engines, coal-fired power plants, and other sources that burn fossil fuel. It comprises a significant portion of particulate matter. Inhalation of black carbon is associated with health problems including respiratory and cardiovascular disease, cancer, and birth defects.
Bus Rapid Transit (BRT) – Bus rapid transit (Also called a busway or transitway) is a public transport system designed to improve capacity and reliability relative to a conventional bus system, by prioritizing intersection signals for transit, creating bus-only lanes and bus loading platforms, collecting fares on the platform before entering the bus, and serving limited stops.
California Air Resources Board (CARB) – The state agency that oversees policies and adopts regulations for the control of air pollution from mobile sources and some stationary sources.
CARB’s mission is to promote and protect public health, welfare, and ecological resources through the reduction of air pollutants.
California Environmental Quality Act (CEQA) – State environmental legislation designed to protect the environment and to inform and engage the public about projects considered by California public agencies. Applies to many projects proposed to be conducted or approved by a California public agency, including private projects requiring government approval. The DRAFT Path to Clean Air Plan
December 2023
public is engaged through scoping meetings, public notice, public review, hearings, and the judicial process. Documents to inform the public include an initial study (IS), to determine if a negative declaration or environmental impact report is needed; a negative declaration (ND), if no environmental impacts are identified in the initial study; and an environmental impact report (EIR), if the initial study does identify environmental impacts that need to be mitigated. On whole, CEQA and these documents help prevent or minimize environmental impacts through development of project alternatives, mitigation measures, and mitigation monitoring.
Cargo Handling Equipment (CHE) – Includes a variety of equipment at ports, warehouses, and rail yards including yard tractors, cranes, forklifts, and container handlers such as top picks and side picks, and bulk handling equipment, such as tractors, loaders, dozers, excavators, and backhoes.
Chrome Plating – Often referred to simply as “chrome” a technique of electroplating a thin layer of chromium onto a metal object. The chromed layer can be decorative, provide corrosion resistance, ease cleaning procedures, or increase surface hardness. The process of chrome plating causes hexavalent chromium, a toxic air contaminant, to be emitted as an aerosol that can be inhaled and entrained inside the lungs.
Complete Streets – A transportation policy to design and operate streets to enable safe access for all users, including pedestrians, bicyclists, motorists, and transit riders of all ages and abilities. A complete street may include sidewalks, bike lanes (or wide paved shoulders), dedicated bus lanes, comfortable and accessible public transportation stops, frequent and safe crossing opportunities, median islands, accessible pedestrian signals, curb extensions, narrower travel lanes, roundabouts, and other features. See also transit-oriented development and mixed-use land use.
Cooling Towers – A cooling tower is a heat rejection device that transfers the waste heat from a water stream to the atmosphere through the cooling of the water stream to a lower temperature. Common applications for cooling towers include cooling the circulating water used in oil refineries, petrochemical and other chemical plants, thermal power stations and HVAC systems for cooling buildings.
Commercial Land Use – Commercial land use is a land use designated by the local governing body for retail, service, or office use, such as shopping malls, restaurants, office buildings, grocery stores, pharmacies, banks, hotels, or movie theatres.
Community-scale Modeling – Community scale modeling is air quality modeling at the local level, to determine air pollution concentrations within a community. See also regional-scale modeling.
Criteria Air Pollutants (CAP) – Criteria air pollutants are defined by the U.S. EPA and include six air pollutants that the Clean Air Act directs the U.S. EPA to set standards for: particulate matter, photochemical oxidants (including ozone), carbon monoxide, sulfur oxides, nitrogen oxides and lead. These pollutants are found all over the U.S. They can harm human health and the environment, and cause property damage. See also National Ambient Air Quality Standards (NAAQS).
Cumulative Air Quality Impact – A cumulative air quality impact is an environmental impact which results from the incremental impacts of an action or project when added to other past, present, and reasonably foreseeable future actions. For example, a manufacturing facility, a high-traffic freeway, and a construction site may each have an air quality impact that is not DRAFT Path to Clean Air Plan
December 2023
substantial when considered by itself but may have a substantial cumulative air quality impact when all three are considered together.
Diesel Engine – A diesel engine is an internal combustion engine powered by diesel fuel that creates incomplete combustion that results in the release of particulate matter emissions. Also called a compression-ignition engine. Diesel engines can power mobile, portable, and stationary equipment.
Diesel particulate matter (DPM) – Diesel particulate matter is the solid material in diesel exhaust.
Diesel particulate matter is typically composed of carbon particles (“soot”, also called black carbon) and numerous organic compounds, including over 40 known cancer-causing organic substances. DPM is a toxic air contaminant.
Environmental Protection Agency (U.S. EPA) – The environmental protection agency is the federal agency responsible for control of air and water pollution, toxic substances, solid waste, and cleanup of contaminated sites. The U.S. EPA sets national ambient air quality standards for criteria air pollutants, such as ozone, particulate matter, and lead.
Excavators – Excavators are used for digging, material handling, construction, demolition, and other tasks. Excavators consist of a boom, dipper, bucket, and cab on a rotating platform.
Fine Particulate Matter (PM
2.5) – See particulate matter.
Gasoline Dispensing Facilities (GDF) – Gasoline dispensing facilities are gas stations.
Green Workforce: A broad group of careers that contribute directly to moving society and the built environment towards sustainability.
Greenhouse Gases (GHG) – Greenhouse gases are gases in the atmosphere that have a warming effect on the climate, including but not limited to: carbon dioxide, methane, nitrous oxide, sulfur hexafluoride, perfluorocarbons and hydrofluorocarbons.
Health Risk Assessment (HRA) – A health risk assessment is the calculation of probable health impacts based on exposure to pollution. See also toxic air contaminants.
High Efficiency Particulate Air Filters (HEPA filters) – High efficiency particulate air filters are a type of mechanical air filter that work by forcing air through a fine mesh filter that traps small harmful particles such as pollen, pet dander, dust mites, and tobacco smoke. HEPA filters can also remove between 50% and 98% of particles in air, depending on the particle size and the filter minimum efficiency reporting value (MERV) rating. See also minimum efficiency reporting value.
Hot Spot – A hot spot is an area where air toxic contaminant concentration levels are higher than in the overall region. See also toxic air contaminants.
Indirect Sources – Indirect sources are land uses and facilities that attract or generate motor vehicle trips and thus result in air pollutant emissions, for example, shopping centers, office buildings, warehouses, and airports.
Industrial Land Use – Industrial land use is land designated by the local governing body for manufacturing, assembly, and distribution of goods; may include land uses such as ports, factories, warehouses, and repair and equipment maintenance shops.
DRAFT Path to Clean Air Plan
December 2023
Minimum Efficiency Reporting Value (MERV) – Minimum efficiency reporting values are values that rate the effectiveness of air filters on a scale of 1 to 16. Higher MERV ratings correspond to a greater percentage of particles captured. See also high efficiency particulate air filters.
Mixed-use Land Use – Mixed-used land use is land designated by the local governing body for two or more land uses, such as residential, commercial, cultural, institutional, and/or industrial uses. For example, mixing housing with office and retail uses (both considered commercial land use). Often designed to be a pedestrian-friendly development. See also transit-oriented development and complete streets.
Mobile Sources of Air Pollution – Mobile sources of air pollution are sources of air pollution such as automobiles, motorcycles, trucks, off-road vehicles, boats, trains, and airplanes.
National Ambient Air Quality Standards (NAAQS) – National Ambient Air Quality Standards are standards for the allowable ambient air concentrations of harmful pollutants, established by the U.S. EPA under authority of the Clean Air Act. See also criteria air pollutants. See also ppm and ppb.
Off-road Vehicles – Off-road vehicles are vehicles designed for use on steep or uneven ground or roads, for example, in construction, freight, and agricultural uses. Types include scrapers, backhoes, loaders, and forklifts. Quad bikes and ATVs (all-terrain vehicles) are also off-road vehicles.
On-road Vehicles – On-road vehicles are vehicles designed for use on paved roads, for example passenger cars, buses, motor homes, vans, motorcycles, and various sizes of trucks.
Particulate Matter (PM) – Particulate matter includes a wide range of disparate particles that vary greatly in terms of their size and mass, physical state (solid or liquid), chemical composition, toxicity, and how they behave and transform in the atmosphere. PM is commonly characterized based on particle size. Ultrafine PM includes the very smallest particles less than 0.1 micron in diameter (one micron equals one-millionth of a meter). Fine PM or PM
2.5 consists of particles 2.5
microns or less in diameter (includes ultrafine PM). Coarse PM refers to particles between 2.5 microns and 10 microns in diameter. The term “coarse” particles may be misleading; it should be emphasized that even “coarse” particles are still very tiny, many times smaller than the diameter of a human hair. PM10 consists of particles 10 microns or less in diameter (includes ultrafine, fine and coarse PM).
Parts Per Billion (ppb) – Parts per billion is a unit of measurement used to specify the concentration of a pollutant, such as in ambient air quality standards. For reference, ppb is the equivalent of one drop in one billion drops of water or about one drop of water in a swimming pool. The NAAQS standard for sulfur dioxide (SO
2) is measured in ppb. See also ppm and
NAAQS.
Parts Per Million (ppm) – Parts per million is a unit of measurement used to specify the concentration of a pollutant, such as in ambient air quality standards. For reference, one ppm is the equivalent of about one cup of water in a swimming pool, and one ppm is equivalent to 1,000 ppb. The NAAQS standards for carbon monoxide (CO), nitrogen dioxide (NO2) and Ozone (O3) are measured in ppm. See also ppb and NAAQS.
Partial Zero Emission Vehicle (PZEV) – A partial zero emission vehicle is an automobile that has zero evaporative emissions from its fuel system and meets Super Ultra Low Emissions Vehicle DRAFT Path to Clean Air Plan
December 2023
(SULEV) tailpipe-emission standards. Evaporative emissions are the gasoline fumes that escape during refueling or from the fuel tank and supply lines. See also ZEV.
Regional-scale Modeling – Regional-scale modeling is air quality modeling at a regional level, to determine air pollution concentrations within the region. See also community-scale modeling.
Residential Land Use – Residential land use is land designated by the local governing body for dwelling units. Can include single-family and/or multi-family housing, often specifies the number of dwelling units allowed per lot or acre; for example, R-1 means the parcel is zoned for a single- family residence.
Rule Development - Rule Development is the process the Air District uses to write regulations that govern stationary sources of air pollution in the Bay Area, including technical research, engagement with affected stakeholders, public meetings to allow input by affected parties such as industries and communities, and the preparation of CEQA and socio economic analyses (for a list of current rules and regulations see: https://www.baaqmd.gov/rules-and- compliance/current-rules.
Safe Routes to School (SRTS) – Safe Routes to School is an international movement and a federal program to make it safe, convenient, and fun for children, including those with disabilities, to bicycle and walk to school.
Sensitive Land Uses – Sensitive land uses are places where sensitive populations are most likely to spend their time, such as schools, playgrounds, daycare centers, nursing homes, medical facilities, and residential communities. See also sensitive populations or sensitive receptors.
Sensitive Populations or Sensitive Receptors – Sensitive populations or sensitive receptors are people, including infants, children, the elderly, those with pre-existing conditions (such as asthma), pregnant women, and athletes (due to higher breathing rates) that are at greater risk than the general population to the adverse health effects of air pollutants. See also sensitive land uses.
Stationary Sources of Air Pollution – Stationary sources of air pollution are non-mobile sources of air pollution such as boilers, gas turbines, petroleum refining and processing units, and manufacturing equipment that emit air pollutants. A facility, such as a power plant or refinery, houses multiple sources within its property.
Solvent Cleaning Operations A process using solvents or solvent vapor to remove water insoluble contaminants such as grease, oils, waxes, carbon deposits, fluxes, and tars from metal, plastic, glass, and other surfaces.
Transloading – The operation of transferring cargo from one transportation mode to another.
May also refer to the operation of transferring cargo from one container to another for any of several reasons, such as for consolidation, weight restrictions, palletizing, leasing contract requirements, or supply chain management (e.g., to synchronize delivery of goods to meet real time demands).
Transit-oriented Development (TOD) – A type of land use that includes a mixture of housing, office, retail and/or other amenities integrated into a walkable neighborhood and located within a half-mile of quality public transportation. See also mixed-use land use and complete streets.
DRAFT Path to Clean Air Plan
December 2023
Toxic Air Contaminants (TACs) – Toxic air contaminants (also toxic air pollutants or air toxics) are those pollutants that cause, or may cause, cancer or other serious health effects, such as reproductive effects or birth defects, or adverse environmental and ecological effects. Includes formaldehyde, methanol, ammonia, diesel particulate matter, and many others. See also diesel particulate matter.
Transportation Refrigeration Unit (TRU) – Transportation refrigeration units are refrigeration systems commonly powered by diesel internal combustion engines designed to refrigerate or heat perishable products that are transported in various containers, including semi-trailers, truck vans, shipping containers, and rail cars.
Vehicle Miles Traveled (VMT) – Vehicle miles traveled is the number of miles a vehicle is driven and can be used to measure the number of miles traveled for all vehicles in a geographic region over a given time period. Annual VMT denotes the miles driven over a one-year period.
Zero-emission Vehicle (ZEV) – A zero-emission vehicle is a battery electric, hydrogen fuel cell electric, or other alternatively fueled vehicle that has no direct emissions (evaporative or tailpipe) of pollution. See also PZEV.