Stricter diesel emissions standards show results in Port of Oakland air quality
One of the expenses truckers face is paying to upgrade their rigs to meet new environmental emissions regulations for diesel engines. California has the strictest gasoline emissions regulations in the country. If you own a car in this state, then you’ve been through the ritual of the smog check. Until very recently, diesel engines on freight trucks – big rigs that haul almost everything we buy in and out of ports and across the country – haven’t been under the same rules. Now, that’s starting to change.
In 2010, the California Air Resources Board created a new set of emissions regulations for diesel engines. On a rolling basis, freight trucks are required to retrofit older engines, or to buy completely new trucks to meet stricter emissions standards. While those requirements can be expensive for truckers, so are the environmental impacts.
KALW’s Julie Caine sat down to talk with Rob Harley, professor of environmental engineering at U.C. Berkeley about how the new regulations are changing the air we breathe.
JULIE CAINE: Can you just summarize the changes in regulations, the effects on port truckers?
ROB HARLEY: There’s been a lot of effort in the last couple of years to take steps to clean up the emissions from port trucks. Some of the oldest trucks, built before 1994, are no longer able to be at the port. Some of the more recent models have needed exhaust filters installed or even been replaced completely with brand new trucks or newer trucks.
CAINE: Why were those regulations put into place?
HARLEY: Diesel trucks are one of the biggest sources of air pollution in the state of California and the whole country. And the trucks last a long time. They can stay on the road for 20 years or more. And, especially at the ports, we had a pretty old mix of trucks operating right in an urban community with residential neighborhoods nearby. So that posed air pollution and health concerns for the neighbors.
CAINE: You've been studying some of the effects of those changes. You did some measurements at the Port of Oakland in 2009 and then again in 2010. Was that timed with the changes in the regulations?
HARLEY: Yeah, exactly. We made some measurements just before the first phase of the program took effect and then we were back about six months later after the oldest trucks had been banned and a lot of filters had been installed and some newer trucks had come into the fleet. We timed those measurements deliberately to give a before and an after – and to see what the emission changes were from this attempt to clean up the port trucks.
CAINE: What did you find?
HARLEY: Well, it was pretty impressive reductions. Things went down by about 50 percent. When I say “things” I mean the black smoke emissions and also the nitrogen oxide emissions. These are two of the major air pollutants that diesel trucks emit a lot of and we were really struck by how quickly this reduction in emissions had occurred. Normally it might take 10 years of gradual replacement of old trucks to get that kind of reduction. Here it was in 6 months instead of 10 years that those emission reductions happened. That's a very rapid and successful reduction in emissions.
CAINE: These emission regulations are for the whole state of California, is that correct?
HARLEY: They will be. The ports and rail yards have been what the state calls an early action item. They got started there first, but the same kinds of requirements are coming statewide to all trucks, not just the ports and rail yards. There's going to be a lot of activity there in the next coming years, but California's approach is different from the national approach. The national approach is only about new trucks, saying they need to have modern emission equipment, but California reaches out to the older models and says that those trucks have to be either cleaned up or retired on an accelerated schedule. That's part of California's longstanding role or approach as a laboratory for air pollution control. The program here is pushing more rapidly to reduce these diesel emissions than elsewhere in the country.
CAINE: Tell me about the impact on individual truckers who often own their own vehicles. Do you know how much it costs to retrofit a truck, as opposed to buying a new truck?
HARLEY: Yeah, so ballpark numbers might be $15,000 to put an exhaust filter on a diesel truck – that's a big investment and on a very old truck – it's probably not worth it because that would be more than the value of the truck. Brand new trucks could be $100,000, or something in that range. These are expensive pieces of equipment. There are some grant programs that the state and various other agencies involved have been helping, not to cover the complete cost, but to at least subsidize the costs of retrofits. And then there are some truckers who just replace, who get a newer or brand new truck rather than go through the investment of control equipment on an old truck that's not worth it. So it’s left to the individual to decide whether it makes more sense to replace with newer equipment or to retrofit older equipment. The very oldest trucks just weren't suitable for retrofitting, so they aren't in the program at all for being retrofitted.
CAINE: I would guess, similarly to people who drive very old, used cars, that people who were driving those very old trucks – that was probably all they could afford. I'm just curious if there are alternatives for people who can't afford a $15,000 filter, or can’t really put in a huge investment to meet those new requirements. Are there are any alternatives?
HARLEY: I think it is going to make it more expensive to operate. You need newer and cleaner equipment and there's a cost to having that. There are a lot of interesting questions about air pollution control related to this program. One of them is sort of a financial question: is it better to retrofit older trucks or just to replace them outright? I think the approach the Port of Oakland has taken is more cost effective by trying to retrofit some of the middle-aged trucks, and not delay and buy time before the bigger costs of replacing the equipment need to be incurred. In Southern California, they implemented a fee on every container and the shippers ended up subsidizing the replacement of trucks down there. Oakland's sort of in competition with the Southern California ports and it couldn't implement that fee on the shippers because it would just drive the business to other ports. So the approach in the Bay Area was a less costly one. On the other hand, there wasn't money from the shippers to cover all the costs. There were grant programs from the port itself, the state, and various other agencies to help offset some of the costs, but not all of them. So that's an interesting question: what's the right approach? What's the right short-term approach and what's the right longer term approach in terms of retrofitting filters on older trucks versus just replacing them to newer trucks?
CAINE: So what's the payoff for the rest of us? Let's talk about the community around the Port of Oakland. Do you have a sense of how the changes in regulations are affecting the health of folks around the port?
HARELY: That's a hard question – to say how people's health status is changing as the truck emissions are cleaned up. But it's an interesting question. It's really the point of all this effort to clean up the emissions of diesel trucks. So I can go only some of the first steps, and others will have to take some of the next steps in understanding what the health outcomes are. But we are seeing changes in air quality in the community, in West Oakland, near the port. Similar things are happening in Southern California, in the ports of L.A., and Long Beach regulation.
CAINE: Are you going back to do any more testing of the air?
HARELY: We are. We've been back – actually, quite recently – in November of this year. We'll go back again in early 2013, after 3 more model years of trucks have been fixed with emission filters and more replacement of the older trucks have occurred. So it's an ongoing program to clean up the diesel truck fleet in California. It started at the Port of Oakland and the Southern California ports as well, and it's going to move statewide over the coming years. You could almost call this the decade of diesel control coming up, and a really strong focus now on controlling diesel emissions in California.