BILL ANALYSIS Ó
SB 11
Page 1
Date of Hearing: July 1, 2013
ASSEMBLY COMMITTEE ON TRANSPORTATION
Bonnie Lowenthal, Chair
SB 11 (Pavley) - As Amended: May 28, 2013
SENATE VOTE : 32-5
SUBJECT : Alternative fuel and vehicle technologies: funding
programs.
SUMMARY : Extends, until January 1, 2024, various fees and
surcharges related to the clean air, fuel, tire recycling, and
clean vehicle and replacement programs of the California Air
Resources Board (ARB), the California Energy Commission (CEC),
local air pollution control districts, and the State Bureau of
Automotive Repair (BAR). Directs funding from the programs for
the construction of hydrogen fueling stations. Specifically,
this bill :
1)Extends, from January 1, 2014 or January 1, 2015, to January
1, 2024, the sunset dates of various clean air and alternative
fuels and vehicle programs, and the related fees and
surcharges, under ARB, CEC, local air pollution control
districts, and BAR, as follows:
a) $8 increase, from $12 to $20, in the smog abatement fee,
paid to register vehicles that are less than six model
years old and therefore exempt from smog check. The
revenues are directed equally to the Alternative and
Renewable Fuel and Vehicle Technology Program (ARFVTP) and
the Air Quality Improvement Program (AQIP).
b) $0.75 fee increase on tire sales to the Air Pollution
Control Fund for the Carl Moyer Memorial Air Quality
Standards Attainment (Carl Moyer) Program and other air
emission reduction efforts.
c) $3 additional fee on the annual vehicle registration fee
($2 for the ARFVTP and $1 for the Enhanced Fleet
Modernization Subaccount).
d) $2 surcharge for local air districts on vehicle
registrations to fund emission reduction programs,
including the Carl Moyer Program.
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e) $5 increase of the fee for special identification plates
for construction equipment, farm trailers, cotton trailers,
logging vehicles, and cemetery equipment. The revenues are
directed equally to the ARFVTP and the AQIP.
f) $10 or $20 (depending upon the even or odd year of
registration) increase for vessel registration. The
revenues are directed equally to the ARFVTP and the AQIP.
g) $1.00 tire fee that is reduced to $0.75 after January 1,
2015, to fund the Carl Moyer Program and air quality
improvement programs through local air districts.
2)Defines "publicly available hydrogen fueling station" to mean
the equipment used to store and dispense hydrogen fuel to
vehicles according to industry codes and standards that is
open to the public.
3)Repeals the authority of ARB, until January 1, 2024, from
enforcing regulations related to the Clean Fuels Outlet
regulation and the deployment of hydrogen fueling stations.
4)Requires ARB, on or before June 30, 2014, and every year
thereafter, to aggregate and make available all of the
following:
a) The number of hydrogen-fueled vehicles that motor
vehicle manufacturers project to be sold or leased over the
next three years as reported to ARB pursuant to the Low
Emission Vehicle regulations.
b) The total number of hydrogen-fueled vehicles registered
with the Department of Motor Vehicles (DMV) through April
30.
1)Requires ARB, on or before June 30, 2014, and every year
thereafter, based on the information made available, to do
both of the following:
a) Evaluate the need for additional publicly available
hydrogen fueling stations for the subsequent three years.
b) Report findings to the CEC on the need for additional
public hydrogen fueling stations.
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1)Requires CEC to allocate $20,000,000 annually to fund the
number of stations identified, not to exceed 20% of the monies
appropriated by the Legislature from the ARFVTP Fund, until
there are at least 100 publicly available hydrogen fueling
stations in operation in California.
2)Allows CEC, in consultation with ARB, upon determination that
the full amount is not needed to fund the number of hydrogen
stations, to allocate any remaining monies to other ARFVTP
projects.
3)Requires CEC, in consultation with the ARB, to award funds
based on best available data, in accordance with a strategy
that supports the deployment of an effective and efficient
hydrogen fueling station network.
4)Authorizes CEC, in consultation with ARB, to cease ARFTVP
funding for hydrogen fueling stations upon a determination
that the private sector is providing them.
5)Requires CEC and ARB, on or before December 31, 2015, and
annually thereafter, to jointly review and report on progress
toward establishing a hydrogen fueling network that provides
coverage and capacity to fuel hydrogen-fueled vehicles in the
state.
6)Authorizes CEC to design grants, loan incentive programs and
other forms of financial assistance to assist in deployment of
hydrogen fueling infrastructure as rapidly as possible.
Authorizes CEC to enter into agreements with the State
Treasurer's Office for financial assistance.
7)Specifies that the funds appropriated for hydrogen
infrastructure shall be available for encumbrance by CEC for
up to four years from the date of appropriation and available
for liquidation up to four years after the encumbrance
expiration.
8)Requires ARB, in consultation with air districts, to convene
working groups to evaluate the policies and goals of the Carl
Moyer Program, no later than July 1, 2013.
9)Defines "project" to mean a category of investments identified
for potential AQIP funding by ARB, including, but not limited
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to, competitive grants, revolving loans, loan guarantees,
loans, vouchers, rebates, and other appropriate funding
measures for specific vehicles, equipment, technologies, or
initiatives.
10)Requires that the ARFVTP and the AQIP incorporate a
benefit-cost score preference that reflects the expected
greenhouse gas or criteria pollutant emission reduction per
dollar awarded expected, when selecting projects on a
competitive basis.
11)Requires CEC and ARB to ensure that revenues from specified
fees imposed on vehicles that are used for purposes of the
ARFVTP and AQIP are expended in compliance with Section 3 of
Article XIX of the California Constitution.
12)Specifies that consumer incentives for light-duty vehicles
shall not be greater than compensations given to consumers
under the Enhanced Fleet Modernization Program (EFMP).
13)Adds intelligent transportation systems as a category of
projects eligible for funding under the ARFVTP.
14)Extends the authorization to fund projects reducing oxides of
nitrogen, particulate matter, and reactive organic gasses
under the Carl Moyer Program, until January 1, 2024.
15)Declares the bill as an urgency measure.
EXISTING LAW :
1)Pursuant to AB 118 (Nunez), Chapter 750, Statutes of 2007,
establishes various programs to help implement the state's AB
32 greenhouse gas emission reduction goals:
a) The EFMP, under which ARB, in consultation with the BAR,
permanently removes cars and small trucks from operation
due to the voluntary retirement of the vehicle by their
owners. The program is funded through a $1 increase in the
annual vehicle registration fee that is set to expire
January 1, 2015.
b) The ARFVTP, administered by CEC to provide incentives to
accelerate the development and deployment of clean,
efficient, low carbon alternative fuels and technologies.
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The program is funded through increases in vehicle
registration fees, smog abatement fees, boat registration
fees, and special identification plate fees, plus $10
million annually in perpetuity from the Public Interest
Research, Development, and Demonstration Fund, which is
derived from a portion of electric utility rates. With the
exception of the funds from the electric utilities, the
authority to collect the fees expires on January 1, 2015.
c) The AQIP, administered by ARB in consultation with local
air districts, funds projects that reduce criteria air
pollutants, improve air quality, and provide research for
alternative fuels and vehicles, vessels, and equipment
technologies. The program is funded by increases in smog
abatement fees, boat registration fees, and special
identification plate fees scheduled to expire January 1,
2015.
2)Expands the Carl Moyer Program, pursuant to AB 923 (Firebaugh)
Chapter 707, Statutes of 2004, to cover additional pollutants
and engines, imposes a $1.00 fee on tire sales to fund the
Carl Moyer Program and the California Department of Resources
Recycling and Recovery (CalRecycle), and establishes air
quality improvement programs through local air districts. All
of its provisions sunset on January 1, 2015.
3)Establishes the Carl Moyer Program as administered by ARB that
funds the incremental cost of cleaner-than-required vehicles,
engines, and equipment. The primary objective of the program
is to achieve air quality emission reductions that would not
otherwise occur through regulations or other legal mandates.
SB 1107 (Budget and Fiscal Review Committee) Chapter 230,
Statutes of 2004, adjusted the smog abatement fee from $6 to
$12. The additional fee is directed to fund the Carl Moyer
Program, securing up to $60 million in annual funding for the
program. This legislation and the funding source provided by
it does not have a sunset date.
4)Requires ARB to adopt regulations that achieve the maximum
feasible and cost-effective reduction of greenhouse gas
emissions from motor vehicles, pursuant to AB 1493 (Pavley),
Chapter 200, Statutes of 2002.
5)Requires CEC and ARB to adopt a state plan to increase the use
of alternative transportation fuels, including setting
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alternative fuel goals for 2012, 2017 and 2022, pursuant to AB
1007, (Pavley), Chapter 371, Statutes of 2005. The "AB 1007
State Alternative Fuels Plan, December 2007" recommended goals
for alternative fuel use of 9% by 2012, 11% by 2017, and 26%
by 2022.
6)Requires that all hydrogen used for transportation fuel in the
state must be at least 33.3% from renewable sources, pursuant
to SB 1505 (A. Lowenthal) Chapter 877, Statutes of 2006.
7)Requires ARB to adopt a statewide greenhouse gas emissions
limit equivalent to 1990 levels by 2020 pursuant to AB 32. In
2009, ARB adopted a low carbon fuel standard (LCFS) regulation
pursuant to AB 32. The LCFS requires a reduction in the
carbon intensity of California's transportation fuels by at
least 10% by 2020.
8)Pursuant to ARB 's Clean Fuels Outlet regulations, requires
certain owners and lessors of retail gasoline stations to
equip an appropriate number of their stations with clean
alternative fuels. ARB's recent amendments to the regulations
focused primarily on providing outlets for hydrogen fuels.
9)Restricts, pursuant to Section 3 of Article XIX of the
California Constitution, the expenditure of revenues from fees
and taxes imposed by the state on vehicles to specified
purposes, subject to certain exceptions.
FISCAL EFFECT : According to the Senate Appropriations
Committee, annual revenues of $180 million for various AB 118
programs until 2024, of which $20 million be directed for the
construction and operation of a hydrogen fueling network for
three years in FY 13-14, FY 14-15, and FY 15-16 and up to $20
million in the remaining years. Annual tire fee additional
revenue of approximately $26 million for the Carl Moyer Program.
Annual costs in the hundreds of thousands of dollars to the
ARB, CEC, and BAR to continue to administer various air quality
and alternative fuel programs and associated reporting
requirements which will be fully covered by the surcharge
extensions. Annual costs of approximately $225,000 to the Air
Pollution Control Fund beginning in 2013 for the evaluation,
analysis, review, and reporting aimed to encourage
implementation of the state alternative transportation fuels
goal.
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COMMENTS : California faces significant challenges with air
quality. According to the author, "AB 118 and the Carl Moyer
Program are set to sunset on January 1, 2016, and January 1,
2015, respectively, just as investments are needed most to meet
critical near- and long-term ambient air quality and greenhouse
gas reduction requirements." She contends that these fees are
necessary to fund incentive programs that ensure the private
sector has a minimum assurance of public funding to
commercialize the changes need to transform the state's motor
vehicle fleet and fuels mix to meet California's rigorous,
unprecedented clean air and climate change goals.
Fee and surcharge extensions : This bill would extend the sunset
dates and the related fees and surcharges of various clean air
and alternative fuels and vehicle programs as administered under
ARB, CEC, local air districts, and BAR, until January1, 2024.
Without the extensions, the temporary fee increases would
terminate either January 1, 2015, or January 1, 2016, depending
on the authorizing statute. The author has joined together in a
single bill the extension of the various programs originally
authorized pursuant to AB 118 and AB 923 and the fees that
support them.
Background on AB 118, Carl Moyer Program, and related programs :
In 2007, AB 118 established three new programs intended to
promote vehicle and fuel technology that reduces air pollution
and greenhouse gas emissions statewide. These programs are the
ARFVTP, AQIP, and EFMP (BAR's voluntary vehicle retirement or
scrappage program). For additional information, see the
preceding "Existing Law" section.
Monies appropriated to the ARFVTP come from temporary increases
in smog abatement fees, vehicle registration fees, vessel
registration fees and certain other vehicle fees. According to
CEC, $360 million of ARFVTP funds have been awarded to projects
such as the construction of electric vehicle charging stations,
the deployment of natural gas-powered vehicles and the
production of biofuels.
AQIP, administered by ARB, provides financial incentives for
public and private groups and individuals to adopt smog and
diesel particulate pollution reducing technology that
concurrently reduces GHG emissions. Two of AQIP's flagship
projects, the Clean Vehicle Rebate Project (CVRP) and the Hybrid
and Zero Emissions Truck and Bus Voucher Incentive Program,
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represent the program's largest funding commitments. AQIP also
provides incentives for biofuels research, hybrid truck testing,
lawn and garden equipment replacement, zero-emission all-terrain
agricultural work vehicle rebates, advanced technology
demonstration and hybrid off-road equipment pilot projects. The
Legislature appropriates about $30-40 million annually to AQIP.
These funds are derived from fees on smog abatement, vehicle
registration, vessel registration and specialty identification
plates. Since 2009, ARB has spent approximately $126 million on
AQIP programs, with $49.7 million going to CVRP and $64.4
million to hybrid and zero emission truck and bus vouchers.
The EFMP supplements BAR's vehicle retirement program known as
the Consumer Assistance Program. Through joint administration
by local air districts and BAR, eligible consumers may receive
financial assistance to voluntarily retire their vehicles and/or
replace them with vehicles meeting certain emission and
model-year requirements. During fiscal year 2011-2012,
approximately $34 million of EFMP funds were expended for the
retirement of 25,741 vehicles.
The Carl Moyer Program, established pursuant to AB 1571
(Villaraigosa), Chapter 923, Statutes of 1999, is administered
by ARB and local air districts. It funds the incremental cost
of cleaner-than-required vehicles, engines, and equipment. The
primary objective of the program is to achieve air quality
emission reductions that would not otherwise occur through
regulations or other legal mandates. SB 1107 (Senate Budget and
Fiscal Review Committee) Chapter230, Statutes of 2004, adjusted
the smog abatement fee from $6 to $12 while extending the
newer-vehicle smog check exemption. This additional fee is
directed to fund the Carl Moyer Program, securing up to $60
million in annual funding for the program. This legislation
(and concomitant fee increase) does not have a sunset date.
In 2004, AB 923 expanded the Carl Moyer Program's covered
emissions to include reductions in particulate matter and
reactive organic gasses. AB 923 also increased the new tire fee
to fund the expansion.
ARB's Lower-Emission School Bus Program (LESBP), adopted
pursuant to ARB's administrative authority, funds the
replacement or retrofitting of old school buses to reduce
schoolchildren's exposure to toxic air pollutants. From the
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program's inception in 2000 until 2007, the Legislature
appropriated over $100 million to the LESBP for the replacement
of 600 school buses and the retrofitting of about 3,800 diesel
school bus engines. After voters passed Proposition 1B in 2006,
the LESBP received bond money of approximately $196 million for
expenditure until June 30, 2014. Under the new funding scheme,
the program has funded 578 school bus replacements and 2,287
retrofits to date.
AB 118 and AB 923, however, contained provisions that would
sunset the funding sources for the aforementioned programs.
Under terms of AB 923, all changes to the LESBP and Carl Moyer
Program, from the expansion of covered emissions to the tire fee
and registration surcharge increases, will be repealed on
January 1, 2015. Meanwhile under AB 118, the fee increases that
fund ARFVTP, AQIP, and EFMP are set to expire on January 1,
2016.
Amendments to the Clean Fuels Outlet Regulation : On January 26,
2012, ARB considered amendments to the Clean Fuels Outlet
regulation as part of its Advanced Clean Cars package. In order
for the amendments to be officially adopted, they were required
to be submitted to the Office of Administrative Law within one
year of the initial rulemaking notice. The amendments were
intended to ensure that there was sufficient hydrogen fueling
infrastructure necessary to meet forecasted fuel cell vehicle
deployment. Under the amendments, this infrastructure would
have helped to ensure sufficient availability of hydrogen after
fuel cell vehicles had become commercially available (i.e.,
large volumes). In order to meet the infrastructure needs, the
amendments would have required that oil refiners assure that
hydrogen fueling stations were available to the public once
certain triggers were met (10,000 fuel cell vehicles in a
regional air basin or 20,000 fuel cell vehicles statewide). The
ARB did not file the amendments with the Office of
Administrative Law because, in its view, a better way to achieve
the goals of the regulation was developed through legislation,
which, they believe, is embodied in this bill.
According to ARB, "SB 11 would direct $20 million from the AB
118 program for each of the first three years to develop the
hydrogen infrastructure. SB 11 would also authorize additional
funding until at least 100 public hydrogen fueling stations are
operational in California. The dedication of funding for 100
hydrogen stations in lieu of requiring the development of such
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stations administratively as was considered through the Clean
Fuels Outlet regulation provides a stronger, more certain path
to achieving the state's air quality and climate change goals.
Guaranteeing funding for infrastructure upfront will support the
initial commercial launch of vehicles, which is in advance of
the triggers as was proposed in the regulation. By contrast,
the regulation would have only provided for hydrogen fueling
stations after a significant volume of vehicles were on the
road." Furthermore, ARB contends that adequate funding for
hydrogen stations effectively achieves the goal of that proposed
regulation, therefore rendering those regulatory changes
unnecessary. As a result, this bill also repeals the authority
of ARB, until January 1, 2024, from enforcing any element of the
Clean Fuels Outlet regulation that requires, or has the effect
of requiring, any person to construct, operate, or provide
funding for the construction or operation of any publicly
available hydrogen fueling station.
The Sierra Club California objects to the repeal of ARB's
authority of enforcing any element of the Clean Fuels Outlet
regulation and contends that it "undermines the integrity of the
rulemaking process?It suggests that, if one of the regulated
entities is dissatisfied with the outcome, that entity can march
over to the Capitol and get the Legislature to simply throw out
the rule?"
In response, ARB contends that the bill provides greater
certainty that the minimum fueling infrastructure will be in
place to support the initial commercial launch of fuel cell
vehicles, which are necessary for achieving the state's
long-term air quality and climate change goals. Furthermore,
the amendments to the regulation were controversial and would
have been litigated, potentially delaying their implementation.
They believe that the bill represents a collaboration among
stakeholders and is a more certain and productive way to achieve
the goals of the proposed regulation amendments.
The need for hydrogen fueling stations : This bill requires CEC
to fund enough hydrogen stations to make fueling convenient to
the owners of hydrogen vehicles or until the private sector
takes over building and operating stations. According to CEC,
it currently costs about $1.5 million to construct a hydrogen
fueling station. Currently, CEC requires a match of non-state
funds, so it provides about $1 million per station. For
start-up funding for installation of a preliminary hydrogen
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fueling network, this bill directs $20 million per year for
three years plus additional revenues as necessary until there
are at least 100 hydrogen fueling stations operational.
It is ARB's contention that transitioning the vehicle fleet to
lower carbon intensity and zero emission fueling technologies
requires a portfolio of investments in a variety of fueling and
vehicle technologies to achieve near- and long-term goals. They
further contend that the bill provides parity to hydrogen when
compared to other alternative fueling technologies, and it does
so at a critical period in the deployment of hydrogen fuel cell
vehicles. They express that "The auto manufacturers have
committed to an initial commercial launch of fuel cell vehicles
beginning in 2015 and it is critical that a minimum network of
hydrogen fueling stations is in place to support those vehicles.
Without the deployment of early stations, consumers will not
have confidence that fuel will be available, undermining demand
for these vehicles. The auto manufacturers have collectively
invested several billions of dollars in this important zero
emission technology. Only a dedicated, multi-year funding
stream will provide the necessary certainty that the fueling
infrastructure will be available."
Article XIX of the California Constitution : The California
Constitution requires that revenues from fees and taxes imposed
by the state on vehicles and their use or operation can only be
used for certain purposes, including:
1)Collection of these fees and taxes;
2)Motor vehicle and traffic law administration and enforcement;
3)Research, planning, construction, maintenance, operation, and
environmental mitigation of streets and roads;
4)Research, planning, construction, improvement, and mitigation
of environmental impacts of exclusive mass transit guideways;
and,
5)Mitigating the environmental effects of motor vehicle sound
and air emissions.
When the Legislature passed AB 118 in 2007, it funded the
programs with increases in fees paid to register a motor
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vehicle, as well as utility ratepayer (electric utility charges
to fund research), and surcharges on boat registration fees.
The vehicle fees, however, are the only ones subject to the
constraints in Article XIX above. Now the specified utility
ratepayer funds no longer exist due to changes in law and the
boat registration fees have proved to be a very small revenue
source (approximately $300,000 per year). This bill updates the
AB 118 statute to reflect that virtually all expenditures made
of AB 118 funds by either CEC or ARB comply with these
constitutional spending restrictions.
Support : Writing in support of this bill, the proponents note
that the bill would provide the necessary funding for hydrogen
fueling infrastructure to support commercial fuel cell vehicle
deployment in California beginning in 2015. Fuel cell vehicles,
in addition to other advanced clean vehicles, are necessary to
meet federal and state clean air standards, AB 32 goals and to
increase energy security. They further cite that the existing
programs "have already resulted in significant air quality and
public health benefits, supported advances in clean
transportation."
Oppose : Writing in opposition to this bill, as indicated
earlier in the discussion of the Clean Fuels Outlet regulation,
the Sierra Club California contends that the bill could set a
dangerous precedent by prohibiting ARB from implementing and
enforcing the regulation. They urge that the bill be amended to
remove the prohibition language so that ARB's rulemaking
authority will not be abrogated.
Also, in opposition to the bill, the Howard Jarvis Taxpayers
Association indicates that the tax increase will prove to be
extremely regressive for California drivers. They also contend
that the Legislature is "breaking another promise as these fees
were supposed to sunset at the end of 2014, not be extended for
another nine years."
Related bills : AB 8 (Perea) of 2013, a similar bill. That bill
passed the Assembly Floor and is awaiting assignment in the
Senate. At some point in the legislative process, SB 11 and AB
8 may need to be reconciled.
SB 1455 (Kehoe) of 2012, a similar bill introduced last session
that passed the Assembly but died in the final moments of the
prior legislative session.
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Double referral : This bill has also been referred to the
Assembly Natural Resources Committee.
REGISTERED SUPPORT / OPPOSITION :
Support
American Lung Association in California (Co-sponsor)
California Air Pollution Control Officers Association
(Co-sponsor)
CALSTART (Co-sponsor)
Agricultural Council of California
Alameda-Contra Costa Transit District
Alliance of Automobile Manufacturers
American Federation of State, County and Municipal Employees,
AFL-CIO
Associated General Contractors
Association of Global Automakers
Bay Area Air Quality Management District
Bioenergy Association of California
Breathe California
California Association of Winegrape Growers
California Citrus Mutual
California Cotton Ginners & Growers Association
California Council for Environmental and Economic Balance
California Dairies, Inc.
California Electric Transportation Coalition
California Energy Commission
California Farm Bureau Federation
California Forestry Association
California Grape & Tree Fruit League
California Independent Oil Marketers Association
California Manufacturers & Technology Association
California Municipal Utilities Association
California Natural Gas Vehicle Coalition
California Public Health Association - North
California Refuse Recycling Council
California Rice Industry Association
California Service Station & Automotive Repair Association
California Thoracic Society
California Transit Association
California Trucking Association
Capstone Turbine Corporation
Clean Power Campaign
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Coalition for Clean Air
Construction Industry Air Quality Coalition
Contra Costa Council
CR & R
Environmental Defense Fund
Health Care Without Harm
Honda North America
Hyundai Motor America
Linde North America
Los Angeles County Medical Association
Metropolitan Transportation Commission
Move LA
Natural Resources Defense Council
Nisei Farmers League
Physicians for Social Responsibility, Sacramento Chapter
Physicians for Social Responsibility, San Francisco Bay Area
Chapter
Public Health Institute
Regional Asthma Management and Prevention
Sacramento Area Council of Governments
Sacramento Metropolitan Air Quality Management District
Sacramento Municipal Utility District
San Diego Gas & Electric Company
San Diego Regional Asthma Coalition
San Francisco County Transportation Authority
San Joaquin Valley Air Pollution Control District
Santa Clara Valley Transportation Authority
Sempra Energy utilities
South Coast Air Quality Management District
Southern California Gas Company
Southern California Regional Rail Authority (Metrolink)
United Parcel Service, West Region
Waste Management - Government Affairs/West
Western Agricultural Processors Association
Western Growers Association
Western States Petroleum Association
Workplace Wellness Los Angeles
(numerous medical professionals)
Opposition
California Federation of Republican Women
CRM Company of Rancho Dominguez
Howard Jarvis Taxpayers Association
Sierra Club California, oppose unless amended
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Analysis Prepared by : Ed Imai / TRANS. / (916) 319-2093