Wariness of petroleum refinery conversions to produce renewable fuels could complicate California's low-carbon transportation goals.
Skepticism about biofuel's environmental benefits and growing attention to the pollution endured by communities closest to such facilities will challenge Phillips 66 and Marathon Petroleum plans to establish some of the largest renewable diesel plants in the world.
The companies say they remain confident about their projects. But regulators warn that permitting challenges could frustrate California's efforts to transform its transportation fuel mix.
"I think there is a higher bar to meet than what it would have been in the past," said John Gioida, one of five Contra Costa County supervisors who will decide whether to grant final permits for the projects likely next year.
"Communities in the shadow of industry have had to bear an undue burden," Gioida said. "And we owe it to them to reduce that burden, even as part of permitting these projects."
Phillips 66 and Marathon Petroleum plan to wind down decades of petroleum fuel production at their Contra Costa County refineries and shift production to renewable fuels.
Contra Costa County planning officials expect to issue by early September draft environmental impact reports analyzing Phillips 66 and Marathon Petroleum's proposals. The county will take public comment for up to 60 days and must then respond before county supervisors consider approving them, potentially in the first quarter of 2022.
Marathon halted crude processing and converted its 166,000 b/d Martinez refinery to terminal operations last year. The company is targeting 14,000 b/d of renewable diesel production in the second half of next year with an ultimate capacity of 48,000 b/d.
Phillips 66 reached 8,000 b/d of renewable diesel output in July at its 120,000 b/d Rodeo refinery. The company plans more than 50,000 b/d of biofuels capacity when it ceases crude refining there in 2024.
Renewable diesel offers an immediate reduction in greenhouse gas emissions for medium- and heavy-duty vehicles. California anticipates these vehicles will need liquid fuels for decades, even as the state pursues aggressive electrification goals for its transit and light-duty vehicle fleet.
Renewable diesel faces no limits on blending and can move in existing pipelines, terminals and fuel systems. Its production gives refiners credits needed to comply with federal biofuel and California low-carbon fuel mandates.
Renewable diesel made up more than a third of credits generated to meet the state's low-carbon fuel requirements in the first quarter of 2021. Conversions shut refining units and reduce site emissions. Yet the projects raise concerns about the environmental consequences of supplying such massive renewable diesel projects.
Smaller conversions under construction today in nearly every region of the US would expand renewable diesel production to more than 200,000 b/d in 2024, up fivefold from about 40,000 b/d in 2020. Most of these sites will use at least some soybean oil as feedstock.
Oilseed crushing capacity limits the supplies of these feedstocks. But such demand can entice farmers to expand cropland, groups warn.
"These conversions are very much happening in gold-rush mode," said Ann Alexander, a senior attorney with the National Resource Defense Council monitoring the California proposals. "You have state officials largely taking positions that are just uncritically supportive."
Advocates from coast to coast this year have protested the continued use of liquid fuels as extending the burden faced by communities already blanketed by emissions from tailpipes or refinery flares. Converted plants may emit less, but they also can extend the life of a facility for years.
President Joe Biden has given new momentum to a movement broadly labeled as "environmental justice," specifically referencing it while promoting new national electric vehicle and fuel efficiency goals with the support of US automakers and union workers.
"There is no going back," Biden said of the transition to electric.
Members of the California Air Resources Board's (ARB) Environmental Justice Advisory Committee this month expressed frustration with the state's plan for meeting sweeping carbon reductions goal.
Kevin Hamilton, a committee member and co-director of the Central California Asthma Collaborative, voiced concern that the state was unwilling to go further to cut emissions. "There is this sort of inherent need to support as much of this existing infrastructure as can survive without dramatically impacting it in ways that could in fact disrupt it and maybe even eliminate it in California," Hamilton said in a recent committee meeting.
Rejecting alternative liquid fuels risks leaving the state short of tools to meet its low carbon goals, regulators warn. Biofuels cut the state's emissions by 17mn metric tonnes in 2019, according to the board. California's aggressive pursuit of light-duty electric vehicle infrastructure has not kept pace with state targets. And the heavy-duty vehicle fleet faces more significant obstacles to conversion. The state anticipates heavy vehicles will need liquid fuels into the 2040s.
"We can set ambitious targets," ARB deputy executive officer for climate change and research Rajinder Sahota said during a summer workshop. "But if, during implementation, we are putting up hurdles through permitting processes or other kinds of processes that need to happen before you can break ground and actually have that production happen, then we are not actually going to realize those reductions and benefits that we anticipate."
There are other, local reasons to favor transition, supervisor Gioida said. Gioida's district includes Richmond, where Chevron operates a 250,000 b/d petroleum refinery. Gioida served on the ARB board from 2013-2020 and has served on the Bay Area Air Quality Management District Board since 2006.
Last year's shutdown of Marathon's Martinez refinery ended hundreds of union jobs. Losing the refineries mean reducing the local tax base. And in-state production must meet California's tough in-state standards. Planners must take care to ensure communities that have shouldered the greatest pollution burden see greater benefits from carbon reduction, Gioida said.
"There clearly is sentiment in the community to shift production elsewhere," Gioida said. "But I think also there is sentiment in communities to benefit from any new projects."
Refiners must prove the benefits of not cutting straight to zero.
