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HomeMy WebLinkAbout07/06/1993, 3 - EMISSION REDUCTION OF OZONE DEPLETING SUBSTANCES � MEETING DATE IIII II ��Nu�� CIof san tins oBispo July 6, 1993 COUNCIL AGENDA REPORT ITEM NUMBER: FROM: John Moss, Acting Utilities Director ;ir PREPARED BY: Cyndi Butterfield, Solid Waste Coordinator SUBJECT: Emission Reduction of Ozone Depleting Substances CAO RECOMMENDATION: By motion, receive report and provide staff with direction to 1) develop City policy to reduce emissions of ozone depleting substances (ODS) within the City organization; 2) generate an in-house information and education program; and 3) work with the Air Pollution Control District (APCD) to develop regional programs aimed at control and reduction of ODSs. DISCUSSION Staff was directed by Council to evaluate the cost and feasibility of implementing actions within the City organization to reduce emissions of ozone depleting substances (ODS) and to develop a report concerning the possible regulation of DDSs community-wide. Background information on DDSs is followed by a discussion of national legislation, a look at potential internal and community activities, and recommendations for action. The Ozone Layer Ozone is a naturally occurring gas found in the stratosphere, the atmospheric layer between 6 and 30 miles above the earth's surface. This layer of ozone shields life on earth from the dangerous effects of exposure to the sun's powerful ultraviolet radiation. Ozone depletion is no longer considered a theory. According to the National Resource Defense Council, ozone levels have dropped 3.5 to 5.5% over the U.S. since 1979. The U.S. Environmental Protection Agency (EPA) explains that to the extent depletion occurs, penetration of ultraviolet radiation increases,resulting in potential health and environmental harm including: Increased incidence of certain skin cancers and cataracts. Suppression of the human immune system. Damage to plants including crops. Damage to aquatic organisms and threat to the aquatic food chain. Increased formation of ground level ozone. �uM���H��IIIII�I�IjI city Of San CAIS OBISPO amia COUNCIL AGENDA REPORT Ozone Depleting Substances Page 2 Ozone Depleting Substances Ozone depleting substances are known collectively as halocarbons and include chlorofluorocarbons (CFCs), halon, and chlorocarbons. These are human-made chemicals containing carbon, chlorine, fluorine, and bromine. In the stratosphere, halocarbon molecules break up into their component atoms in the presence of ultraviolet light. This releases chlorine and bromine which act as catalysts in the breakdown of ozone. Single atoms of chlorine and bromine repeatedly break apart ozone molecules for up to a hundred years before they become chemically inactive. Even if worldwide production of all ODSs were stopped today, depletion of the ozone layer would accelerate for the next decade and continue for several decades. CFC levels in the stratosphere are increasing by 5% annually and bromine levels are increasing by 12% annually. Unknown quantities of ozone depletors in existence have yet to be released. These compounds, whether stored in foam furniture padding or a refrigerator, will eventually reach the stratosphere. The Many Uses of Halocarbons In the 1930s halocarbons entered the industrial scene as technological sensations. CFCs were-developed as non-toxic, non-flammable, and highly stable coolants for refrigerators. They were used as propellants during WWII, and as blowing agents for foam products beginning in the 1950s. CFCs are also used in gas sterilization of medical equipment and for solvent cleaning of manufactured parts. Halon were developed in the 1970s and are used primarily as fire extinguishers. Chlorocarbons are used as solvents. Common chlorocarbon are carbon tetrachloride and methyl chloroform. You may find these substances in bottles of spot and stain remover in your home. Methyl bromide, with over 30 times the destructive power of CFCs, is widely used for structural pest control and for many agricultural processes. Bromide is used in San Luis Obispo county as a soil fumigant on strawberry fields. However, the use of bromide in SLO has sharply declined since 1990 and a State task force is exploring alternative products. The EPA has published a list of commodities and products which either contain or are manufactured with ozone depletors. This list illustrates the level at which ozone depletors permeate almost everything we use in daily life. The list includes adhesives, cosmetics, plastics, fabrics, ink, construction materials, audio and video equipment and even paper bags. A copy of this extensive list is available for review in the Council office. 111111Ill 1100�dlll city of San tins OBISPO, is COUNCIL AGENDA REPORT Ozone Depleting Substances Page 3 Federal Law - The Clean Air Act U.S. Environmental Protection Agency law within the Clean Air Act establishes the following: Prohibits the venting of refrigerants during servicing, repair or disposal of air conditioning or refrigeration equipment. Prohibits the sale of small containers of refrigerants except to certified repair technicians. All shops servicing motor vehicle air conditioners must certify to the EPA that they have purchased approved equipment and that their technicians are properly trained and certified. Prohibits the U.S. production of CFCs after 1995. The most obvious impact of the prohibition of production will be on the cost and availability of refrigerants for servicing and repairing air conditioning and refrigerator units. When CFCs are no longer produced in the U.S., recharging of units will depend on a diminishing, and increasingly costly supply of recycled or imported CFCs. Existing replacements for CFCs cannot be used in current refrigeration units. The EPA is responsible for implementing national prohibitions on the venting and sale of ozone depletors. However, the current method of enforcing the law is through offering a reward for prosecution of noncompliance. Also, a public information, education and technical assistance program is not offered by the EPA nor has the EPA been directed to provide one. REDUCING EMISSIONS WITHIN THE CITY ORGANIZATION A survey of potential emissions from the City organization revealed City activities that result in ODS emissions. Although building air conditioners are serviced by a vendor who captures refrigerants for recycling, areas of concern include the use of solvents, the repair of auto air conditioners, the disposal of refrigerators and the use and disposal of rigid and flexible foam. Reducing ODS emissions within the City Organization is feasible. An in-house policy would provide the mandate to develop a program and would function as a role model for the community. Information on ozone depleting solvents and substitutions has already been distributed on a limited basis. ���� ► ��11111 �i j������ city of san Luis oBispo COUNCIL AGENDA REPORT Ozone Depleting Substances Page A- A A relatively simple way to reduce emissions within the City organization would be to develop information and educational materials for distribution to employees. An understanding of the issues along with some "how to" information on recognizing potential emission sources and proper handling of, and substitutions for ozone depleting substances would provide the tools for voluntary compliance with a City policy. Existing publications could be adapted to address City needs. EMISSION REGULATION WITHIN THE COMMUNITY Regulation of emissions within the community would entail a significant commitment of staff time and funding to enforce national and local prohibitions. Potential components for community regulation include: Prohibition of the manufacture, sale or distribution of products using ODSs. Prohibition of venting of ODSs. Certification and approval of recharge and recovery equipment and technicians. Certification of lawful container sales. Prohibition of disposal of air conditioning and refrigeration systems without recovery and recycling of ODSs. Technical assistance and education program providing information on alternatives to products containing or manufactured with ODSs. Inspection, certification and enforcement program. The Air Pollution Control District (APCD) is currently examining the potential for a community education program and local enforcement of Federal Clean Air Act regulations. APCD staff has proposed the formation of a working group that would include City staff to analyze the functions of jurisdictions in a regional program and to shape a recommendation for action. APCD is currently developing an orientation paper for potential participants along with some ideas about what the group should attempt to accomplish, how much time participation would take, and how the committee might function in forming recommendations to jurisdictions. SUMMARY Stratospheric ozone protects life from the lethal effects of the suns ultraviolet radiation. Current scientific evidence establishes that the ozone layer is being destroyed at an accelerated rate due to our own industrial activities. While halocarbons have profoundly contributed to technological advancement and enhanced the quality of life of millions of people, it is this same pervasive usefulness to growing populations that now threatens the city of san tuis oBispo HiS COUNCIL AGENDA REPORT Ozone Depleting Substances Page 5 ozone layer and, consequently, life support systems. Federal law under the Clean Air Act regulates the sale and handling of major ozone depletors and will prohibit the production of the most potent ODSs in the U.S. after 1995. Although federal law is stern, enforcement is effectively nonexistent at the federal level. Reducing emissions within the City organization can be based on development of policy and a campaign to educate employees. Local enforcement and community education is being discussed at the regional level with the Air Pollution Control District taking the lead. City participation with the APCD might be the best approach to addressing community wide reduction of ODS emissions. RECOMMENDATIONS Staff recommends ODS emission reduction within the City organization through adaptation of existing education and information materials to reflect the City's specific needs and distribution of materials to City employees. Several organizations, including the City of Irvine, have developed promotional literature targeting specific segments of the residential, commercial and industrial sectors which could be modified to reflect City specific needs. Educating City employees about ozone depletors and their effects, and providing employees with "how to" information would reduce emissions within the City's daily operations and provide a group of well informed citizens to spread the word in their own communities. Development of this in-house program is projected to. take twelve hours of staff time a month for one year. To avoid a duplication of efforts and the significant costs of implementing a program within the community, regulation of, and education about ODS emissions would best be addressed at the regional level. Staff recommends City participation with the APCD in development of a program which would reflect the City's interests and be recommended to the Board of Supervisors for regional implementation. Based on discussions with APCD staff, City involvement in this planning process is projected to entail two hours of staff time a month for one year to attend meetings of a working group which is now being formed by the APCD. After the projected one year planning period, implementation would occur at the regional level. Involvement in these programs conforms with the City's planned Resource Management approach to interconnected environmental issues and would be evaluated from this perspective in a report to Council after the first year. Staff recommends that these two tasks, entailing fourteen hours of staff time a month for one year, would best be accomplished through the Solid Waste Coordinator position.