Environmental Justice and Systems Analysis for Air Quality Planning in the Port of Oakland in California

Abstract

Many frontline communities experience adverse health impacts from living in proximity to high-polluting industrial sources. Securing environmental justice requires, in part, a comprehensive set of quantitative indicators. We incorporate environmental justice and life-cycle thinking into air quality planning to assess fine particulate matter (PM2.5) exposure and monetized damages from operating and maintaining the Port of Oakland, a major multimodal marine port located in the historically marginalized West Oakland community in the San Francisco Bay Area. The exposure domain for the assessment is the entire San Francisco Bay Area, a home to more than 7.5 million people. Of the more than 14 sources included in the emissions inventory, emissions from large container ships, or ocean-going vessels (OGVs), dominate the PM2.5 intake, and supply chain sources (material production and delivery, fuel production) represent between 3.5% and 7.5% of annual intake. Exposure damages, which model the costs from excess mortalities resulting from exposure from the study’s emission sources, range from USD 100 to 270 million per annum. Variations in damages are due to the use of different concentration-response relationships, hazard ratios, and Port resurfacing area assumptions. Racial and income-based exposure disparities are stark. The Black population and people within the lowest income quintile are 2.2 and 1.9 times more disproportionately exposed, respectively, to the Port’s pollution sources relative to the general population. Mitigation efforts focused on electrifying in-port trucking operations yield modest reductions (3.5%) compared to strategies that prioritize emission reductions from OGVs and commercial harbor craft operations (8.7-55%). Our recommendations emphasize that a systems-based approach is critical for identifying all relevant emission sources and mitigation strategies for improving equity in civil infrastructure systems.