BILL ANALYSIS Ó
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Date of Hearing: June 27, 2016
ASSEMBLY COMMITTEE ON NATURAL RESOURCES
Das Williams, Chair
SB
1383 (Lara) - As Amended April 12, 2016
SENATE VOTE: 21-13
SUBJECT: Short-lived climate pollutants
SUMMARY: Requires the Air Resources Board (ARB) to approve and
implement the comprehensive short-lived climate pollutant (SLCP)
strategy to achieve, from 2013 levels, a 40% reduction in
methane, a 40% reduction in hydrofluorocarbon gases (HFCs), and
a 50% reduction in anthropogenic black carbon, by 2030.
EXISTING LAW:
1)Requires ARB, pursuant to California Global Warming Solutions
Act of 2006 [AB 32 (Nunez), Chapter 488, Statutes of 2006], to
adopt a statewide greenhouse gas (GHG) emissions limit
equivalent to the 1990 level by 2020 and adopt regulations to
achieve maximum technologically feasible and cost-effective
GHG emission reductions.
2)Requires ARB, pursuant to SB 605 (Lara), Chapter 523, Statutes
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of 2014, to complete, by January 1, 2016, a comprehensive
strategy to reduce emissions of SLCPs, defined as an agent
that has a relatively short lifetime in the atmosphere and a
climate-warming influence that is more potent than carbon
dioxide.
THIS BILL:
1)Requires ARB to approve and begin implementing the
comprehensive strategy to reduce SLCPs in the state to
achieve, from 2013 levels, a 40% reduction in methane, a 40%
reduction in HFCs, and a 50% reduction in anthropogenic (i.e.,
non-forest) black carbon, by 2030.
2)Requires ARB, prior to approving the strategy, to do all of
the following:
a) Coordinate with other state and local governments to
develop measures identified in the strategy;
b) Hold at least three public hearings in geographically
diverse locations in the state;
c) Evaluate the best available scientific, technological,
and economic information to ensure the strategy is cost
effective and technologically feasible; and
d) Incorporate and prioritize, as appropriate, measures and
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actions that provide cobenefits, as specified.
3)Requires ARB to publicly notice the strategy and post a copy
of the strategy on their Web site at least one month prior to
approval.
FISCAL EFFECT: According to the Senate Appropriations
Committee, unknown, but potentially millions of dollars in cost
pressures to implement the comprehensive strategy (Greenhouse
Gas Reduction Fund).
COMMENTS:
1)Background. The 5th assessment report from the
Intergovernmental Panel on Climate Change (IPCC) notes that
atmospheric concentrations of global warming pollutants have
risen to levels unseen in the past 800,000 years. Carbon
dioxide concentrations have increased by 40% since
pre-industrial times. There is broad scientific consensus
that these global GHG emission increases are leading to higher
air and water temperatures as well as rising sea levels. Sea
level is expected to rise 17 to 66 inches by 2100, and the
frequency of extreme events such as heat waves, wildfires,
floods, and droughts is expected to increase.
Pursuant to AB 32, ARB approved the first Scoping Plan in
2008. The Scoping Plan outlined a suite of measures aimed at
achieving 1990-level emissions, a reduction of 80 million
metric tons of CO2 (MMT CO2e). Average emission data in the
Scoping Plan reveal that transportation accounts for almost
40% of statewide GHG emissions, and electricity and commercial
and residential energy sector account for over 30% of
statewide GHG emissions. The industrial sector, including
refineries, oil and gas production, cement plants, and food
processors, was shown to contribute 20% of California's total
GHG emissions.
The 2008 Scoping Plan recommended that reducing GHG emissions
from the wide variety of sources that make up the state's
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emissions profile could best be accomplished through a
cap-and-trade program along with a mix of other strategies,
including a low carbon fuel standard (LCFS), light-duty
vehicle GHG standards, expanding and strengthening existing
energy efficiency programs, and building and appliance
standards, a 33% Renewable Portfolio Standard (RPS), and
regional transportation-related GHG targets. Pursuant to
authority under AB 32, the ARB adopted a Low Carbon Fuel
Standard in 2009, and a cap-and-trade program approved on
December 13, 2011.
ARB approved an update to the Scoping Plan on May 22, 2014.
The update describes policies, actions, and strategies in the
energy, transportation, fuels, agriculture, waste, and natural
lands sectors as a means to continue emissions reductions in
each of these sectors. The update also asserts that California
is on track to meet the near-term 2020 GHG limit and is well
positioned to maintain and continue reductions beyond 2020 as
required by AB 32.
CO2 remains in the atmosphere for centuries, which makes it
the most critical GHG to reduce in order to limit long-term
climate change. However, climate pollutants including
methane, hydrofluorocarbons (HFCs), and soot (black carbon),
are relatively short-lived (anywhere from a few weeks to 15
years), but have much higher global warming potentials than
CO2. New research suggests that aggressively reducing these
short-lived climate pollutants in the short-term, compared to
only cutting CO2 emissions, can do more to slow sea level rise
and other climate change impacts in the near-term.
a) Black carbon, a component of soot, also known as PM 2.5,
comes from diesel engines and incomplete burning of carbon
sources. Wildfires contribute two-thirds of the total
black carbon emissions in the state. In addition to being
a powerful global warming pollutant, black carbon is
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associated with numerous negative health impacts and is
designated a potential human carcinogen. Black carbon is
not listed under AB 32 as a GHG subject to AB 32
regulations. However, due to known health and air quality
impacts, ARB has several programs to reduce PM emissions
from heavy-duty vehicles. Black carbon has a global warming
potential 3200 times that of CO2 on a 20-year time scale.
b) Methane (CH4) is the principal component of natural gas
and is also produced biologically under anaerobic
conditions in ruminants, landfills, and waste handling.
Atmospheric methane concentrations have been increasing as
a result of human activities related to agriculture, fossil
fuel extraction and distribution, and waste generation and
processing. Many emissions sources of methane are
unregulated (e.g., methane from dairy production and
fugitive methane emissions from landfills and natural gas
distribution). Methane is about 80 times more powerful as
a global warming pollutant than CO2 on a 20-year time
scale.
c) HFCs (also known as F-gases) are synthetic gases used in
refrigeration, air conditioning, insulation foams,
solvents, aerosol products, and fire protection. They are
primarily produced for use as substitutes for
ozone-depleting substances which are being phased out
globally. Currently, HFCs are a small fraction of the
total climate forcing, but they are the fastest growing
source of carbon pollution. HFCs, on average, have a global
warming potential 1600 times that of CO2 on a 20-year time
scale.
SB 605 (Lara, Chapter 523, Statutes of 2014) requires ARB to
complete a comprehensive strategy to reduce emissions of
short-lived climate pollutants by January 1, 2016. Following
the release of a concept paper and a draft strategy, on April
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11, 2016, ARB published a proposed SLCP Reduction Strategy,
which is scheduled for adoption in September. The ARB
Strategy recommends the same 40/40/50 targets for methane,
HFCs, and black carbon as established by this bill. In
addition to the targets, the Strategy proposes specific
measures, including:
a) Removal and replacement of old fireplaces and
woodstoves;
b) Implementing a sustainable freight strategy
c) Regulations for best management practices for new
dairies;
d) Financial incentives for manure management and dairy
digesters;
e) Requiring organics diversion from landfills;
f) Regulations to reduce methane emissions from oil and gas
production, processing and storage;
g) Financial incentives for low-GWP refrigeration early
adoption; and
h) Bans on the sale of very-high GWP refrigerants and
prohibitions on new equipment using high GWP gases.
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ARB indicates that each proposed regulation will be subject to
its own public process with workshops, opportunities for
stakeholder discussion, consideration of environmental
justice, and legally required analyses of the economic and
environmental impacts.
1)Author's statement:
California has been a proud and bold leader in pursuing
environmental policies to reduce climate change and address
the sources that cause it. Those policies have mostly
focused on reducing emissions of CO2, the most significant
long-term driver of climate change. This (bill) represents
the next step in those efforts, to establish a goal to
reduce SLCPs that are among the most harmful emissions to
both human health and global climate change.
There is an urgent need to develop a strategy to address
and reduce these deadly pollutants. Extensive research
links particulate pollution and increased ozone levels to
severe and chronic health conditions such as cancer, heart
disease, and asthma?
Reducing super pollutants in California will have an
immediate beneficial effect - dramatically reducing the
serious impacts these pollutants have on our air quality
and the health of our children.
2)Prior legislation.
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SB 605 (Lara, Chapter 523, Statutes of 2014) requires ARB to
complete a comprehensive strategy to reduce emissions of
short-lived climate pollutants by January 1, 2016.
AB 1496 (Thurmond, Chapter 604, Statutes of 2015) requires ARB
to monitor high-emission methane hot-spots in the state;
consult with specified entities to gather information for
purposes of carrying out life-cycle GHG emissions analyses of
natural gas imports; update relevant policies and programs
based on those updated life-cycle analyses; and, review
scientific information on atmospheric reactivity of methane as
a precursor to the formation of photochemical oxidants.
REGISTERED SUPPORT / OPPOSITION:
Support
Alliance of Nurses for Healthy Environment
American Academy of Pediatrics - California
American Cancer Society Cancer Action Network, California
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American Lung Association
American Heart Association, California
Asthma Coalition of Los Angeles County
Bay Area Regional Health Inequities Initiative
Baz Allergy, Asthma and Sinus Center
Ben & Jerry's
Bloom Energy
Bonnie J. Addario Lung Cancer Foundation
Breathe California
Burton
California Black Health Network, Inc.
Californians Against Waste
California Conference of Directors of Environmental Health
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California Environmental Justice Alliance
California Medical Association
California Nurses Association
California Pan-Ethic Health Network
California Public Health Association - North
California State PTA
California Thoracic Society
California Walks
Center for Climate Change and Health , Public Health Institute
Center for Food Safety
Center on Race, Poverty & the Environment
Central California Asthma Collaborative
Central California Environmental Justice Network
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Clean Power Campaign
Clif Bar & Company
Climate 911
Common Sense Kids Action
Community Alliance for Agroecology
Dignity Health
Eileen Fisher
Environmental Defense Fund
Environmental Health Coalition
Fetzer Vineyards
Food & Water Watch
Health African American Families II
Health Care Without Harm
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Health Officers Association of California
Institute for Agriculture and Trade Policy
Leadership Counsel for Justice and Accountability
Levi Strauss & Co.
Long Beach Alliance for Children with Asthma
Maternal and Child Health Access (Los Angeles)
Medical Advocates for Healthy Air
Network of Ethnic Physician Organizations
Nike, Inc.
Patagonia
Placer Land Trust
PSE Healthy Energy (Physicians, Scientists and Engineers)
Physicians for Social Responsibility, Sacramento
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Physicians for Social Responsibility, San Francisco Bay Area
Chapter
Prevention Institute
St. John's Well Child and Family Centers (Los Angeles)
Santa Clara County Board of Supervisors
Santa Clara County Public Health Department
Seventh Generation
Sierra Business Council
Sierra Club California
Sierra Foothill Conservancy
The North Face
Timberland
Truckee Donner Land Trust
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Vans
VF Corporation
Voices for Progress
30 Individuals
Opposition
Agricultural Council of California
Association of California Egg Farmers
Association of Home Appliance Manufacturers
California Poultry
California Business Properties Association
California Cattlemen's Association
California Chamber of Commerce
California Citrus Mutual
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California Cattlemen's Association
California Cotton Ginners and Growers Association
California Council for Environmental and Economic Balance
California Dairies, Inc.
California Farm Bureau Federation
California Fresh Fruit Association
California Grain & Feed Association
California Manufacturers & Technology Association
California Poultry
California Retailers Association
CIPA
Milk Producers Council
NFIB
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Nisei Farmers League
Pacific Coast Rendering Association
Western Agricultural Processors Association
Western Growers
Western Plant Health Association
WSPA
Waste Management
Western United Dairymen
Analysis Prepared by:Lawrence Lingbloom / NAT. RES. / (916)
319-2092
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