The Port of Oakland has completed Phase I of its Vision 2000 Air Quality Mitigation Program to address adverse effects of the Vision 2000 Maritime Development Program, an expansion and improvement of the Port facility. The air quality program, adopted in April 1999, contains measures to mitigate the air quality impacts identified in the Environmental Impact Reports prepared for the remodeling of the Port, and includes input and recognition of concerns of West Oakland residents over harmful impacts on the adjacent community (September/October 1999).
The Port's Vision 2000 Maritime Development Program, begun in September 1997, was prompted by the need to deepen shipping channels to accommodate newer deep-draft container ships, along with the availability of land for expansion from the closure of two nearby military bases. Besides modernization and reconfiguration, projects include 4 new wharves and two mega-terminals, reconfiguration of the harbor transportation center, the Joint Intermodal Terminal for improved intermodal (ship-rail) services, and a 30-acre public park along the shoreline of Middle Harbor.
Residents of nearby West Oakland feared that the increased rail, truck, and ship traffic generated by the expanded Port, as well as the on-site cargo handling equipment, would increase air-polluting emissions and endanger health. Most of the equipment involved is diesel fueled, and diesel soot has been determined by the California Air Resources Board to be toxic. Particulate matter (PM) such as diesel soot has a tendency to be concentrated more heavily around the site of its origin. For these reasons, the Port has emphasized reducing PM, while also reducing other air pollutants.
The agreement with the group West Oakland Neighbors included 19 air quality mitigation measures, a pledge of $8.98 million for their implementation, biennial reports to the residents, and involvement of the adjacent community in the process.
Much of the mitigation effort will involve voluntary participation of many and various operators. Each project must be designed to appeal to its specific target group. After setting up procedures for monitoring, documenting, evaluating, and reporting, the next step involved acquiring information and expertise in implementing the various mitigation measures and preparing a plan for each.
The technology for reducing diesel emissions is new and dynamic. A variety of equipment and alternative fuels had to be evaluated for suitability for the Vision 2000 air quality projects.
Two small projects were begun early on. In the first project, the Port entered into a Memorandum of Understanding (MOU) with AC Transit, providing Port funds to repower 27 transit buses with new, lower-emission engines. These buses will also have catalytic soot filters installed to further reduce emissions. When completed, this project will reduce PM emissions by 3.9 tons per year (t/y) and nitrogen oxides (NOx) by 39.7 t/y. These buses will serve the Port vicinity and will reduce emissions in West Oakland, Emeryville, and Alameda. A component of the MOU promotes employment and job training by AC Transit for West Oakland residents. This project has also received a grant from the Metropolitan Transportation Commission.
The second project authorized repowering or retrofitting a tugboat serving Port tenants. The Port set up an incentive-based funding program, using estimated emissions reduction and cost-effectiveness as criteria. The "Silver Eagle", owned by Oscar Niemith Towing Co., was selected to be repowered with lower-emitting diesel engines. Projected emissions reductions are 1.0 t/y of PM and 27.5 t/y of Nox. Over the project's lifetime, based on replacing two-stroke engines which had a remaining useful life of 16.5 years, the reductions will be 16.5 tons of PM and 445 tons of NOx. These estimates far exceed earlier projections and are based on specifications of the two engines that have been purchased and will be installed in April or May.
The Container Terminal Equipment Repower and Retrofit Program has the greatest potential to reduce emissions. The engines of older, more polluting equipment will be replaced with new, cleaner engines. Newer equipment will be retrofitted with soot filters or oxidation catalysts. The challenge was to attract operators to voluntarily participate in the program; although the Port owns the facility, the operators are the Port's tenants. The program sets up a system of dollar incentives based on amounts of emissions reductions that will be achieved in each case by the technology used. Partial funding is provided for repowering and installing emission control devices on eligible equipment. An inventory disclosed 408 pieces of equipment of five types, of which 306 are eligible for the program. All marine terminal operators at the Port are now participating in the program and have submitted proposals. The projected emissions reductions are 18 t/y of PM, 143 t/y of NOx, 35 t/y of hydrocarbons, and 122 t/y of carbon monoxide.
These projects for diesel equipment not only provide financial aid to operators to update their engines, but the upgrades also mean lower maintenance costs and better fuel economy.
To identify eligible companies for its Truck Repower and Retrofit Program, the Port and the City of Oakland surveyed West Oakland trucking companies, finding that twenty-seven of them provide container transport services to Port tenants. Most of the companies do not own trucks, but contract with truck owner-operators on a daily basis. Devising an effective plan to engage a significant number of participants will be a challenge. Currently, the Port is developing a demonstration project for a company which operates about 25 trucks, using aqueous diesel fuel, which burns more cleanly than standard diesel fuel, and installing diesel oxidation catalysts on three trucks. The Port will study emissions reduction and cost-efficiency of using this fuel.
Among other mitigation measures, the Port has installed power plug-ins on the new tugboat wharf so that tugboats can shut down their engines while they remain berthed, called "cold ironing". Cold ironing for ocean-going vessels is expensive and far more complicated technically, and its effectiveness varies. Emission reduction for ocean going vessels can best be achieved by reducing time spent in the harbor.
Plans and specifications of the construction projects at Berths 55-58 and the Joint Intermodal Terminal required contractors to monitor and abate any visible dust caused by construction activity. Equipment and vehicles with visible emissions are required to be repaired or, if that is not effective, removed from the site. Inspectors monitor construction sites during all working hours. Employees at the sites have become more aware of the problem of air pollution.
Through enrollment in the Bay Area Air Quality Management District's Employer's Spare the Air Program, the Port has committed to responding to smog alerts by avoiding air polluting activities and also providing employees with information and incentives to do likewise.
In addition, the Port is investigating whether public transit service to Middle Harbor Shoreline Park and other Port facilities can be arranged, to reduce vehicle trips by visitors and employees.
In the next phases of the Vision 2000 air quality program, the Port will continue its repower and retrofit programs. It will also continue a study of various fuel options to be used with marine engines, cargo-handling equipment, and trucks, and the relative emissions reduction capabilities of various retrofits for diesel engines used in trucks, on-site equipment, and marine vessels. Throughout, the success of the projects will be monitored and evaluated. The process of implementing the program should create not only economic but also social and cultural bonds between the Port and its surrounding community.
Adelia Sabiston
For more information:
Richard Sinkoff, Port of Oakland, 510-627-1182, rsinkoff@gw.portoakland.com