04.27.23 Agenda
M ayor
Aaron Brockett
Council M e mbe rs
Matt Benjamin
Lauren Folkerts
Rachel Friend
Junie Joseph
Nicole Speer
Mark Wallach
Tara Winer
Bob Yates
Council Chambers
1777 Broadway
Boulder, CO 80302
April 27, 2023
6:00 PM
City M anage r
Nuria Rivera-Vandermyde
City Attorne y
Teresa Taylor Tate
City Cle rk
Elesha Johnson
ST UDY S E S S ION
BOULDE R CIT Y COUNCIL
Discussion regarding impacts of methamphetamine in the community 90 min – 30
min staff
presentation /
60 min Council
discussion
Policy Discussion Related to Gas-P owered L andscaping E quipment 90 min
3:00 hrs
City Council documents, including meeting agendas, study session agendas, meeting action
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Packet Page 1 of 40
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C OVE R SH E E T
ME E T I N G D AT E
April 27, 2023
ST U D Y SE SSI ON I T E M
Discussion regarding impacts of methamphetamine in the community
P RI MARY STAF F C ON TAC T
N A
AT TAC H ME N T S:
Description
No Attachments Available
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C OVE R SH E E T
ME E T I N G D AT E
April 27, 2023
ST U D Y SE SSI ON I T E M
Policy Discussion Related to Gas-Powered Landscaping Equipment
P RI MARY STAF F C ON TAC T
C arolyn Elam, Sustainability Senior Manager
AT TAC H ME N T S:
Description
P olicy Discussion Related to Gas-P owered Landscaping Equipment
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STUDY SESSION MEMORANDUM
TO: Mayor and Members of City Council
FROM: Nuria Rivera-Vandermyde, City Manager
Jonathan Koehn, Director of Climate Initiatives
Carolyn Elam, Sustainability Senior Manager
Brett KenCairn, Natural Climate Solutions Senior Policy Advisor
Rella Abernathy, Senior Ecologist
Kara Mertz, Senior Project Manager
Emily Sandoval, Community Engagement Senior Project Manager
DATE: April 27, 2023
SUBJECT: Study Session for April 27, 2023
Policy Discussion Related to Gas-Powered Landscaping Equipment
EXECUTIVE SUMMARY
Commercial landscaping companies provide a variety of lawn and plant care services to
residents and commercial businesses. While these services are an important part of the
local economy, they are also a source of routine concern among some community
members. Two-stroke engines, such as those commonly found in leaf blowers, are the
most cited area of concern due largely to their noise. While this concern has been
longstanding, recent years have seen a heightened level of interest, due to an increased
number of people working from home during and following the pandemic. In addition to
noise pollution, there is also a growing understanding of gas-powered landscaping
equipment’s contribution to air pollution, particularly ground-level ozone.
In 2022, staff launched the Addressing the Impacts of Landscaping Equipment Project to
better understand the local impacts and opportunities presented by gas-powered
landscaping equipment use in Boulder. The purpose of this Study Session is to provide
council with an update on that project and to get input on which strategies should be
prioritized for further analysis and potential implementation.
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The key issues to be discussed include:
Equity considerations and potential disparate impacts of regulatory strategies;
Technology readiness, cost and risks associated with electric equipment
alternatives;
Overall contribution to local pollution; and
Best practices and lessons learned from other jurisdictions.
This memo is organized as follows:
QUESTIONS FOR COUNCIL ........................................................................................... 2
BACKGROUND ................................................................................................................ 3
Overview ......................................................................................................................... 3
Ecological Impacts of Landscaping and Landscaping Maintenance .............................. 4
Landscaping Service Industry and the Reliance on the Leaf Blower ............................. 4
Addressing the Impacts of Landscaping Equipment Project .......................................... 5
ANALYSIS ......................................................................................................................... 5
Smog and Ozone ............................................................................................................. 6
Greenhouse Gas Emissions ............................................................................................. 7
Highlights of Municipal and State Efforts ...................................................................... 8
Lessons Learned and Risks ............................................................................................. 9
RACIAL EQUITY ............................................................................................................ 11
COMMUNITY AND BUSINESS ENGAGEMENT ....................................................... 12
Environmental Advisory Board (EAB) ........................................................................ 12
Be Heard Boulder Questionnaires ................................................................................ 13
Business Engagement ................................................................................................... 13
PILOT VOUCHER PROGRAM ...................................................................................... 14
MATRIX OF OPTIONS AND STAFF RECOMMENDATIONS .................................. 14
NEXT STEPS ................................................................................................................... 19
ATTACHMENTS ............................................................................................................. 19
QUESTIONS FOR COUNCIL
1.Does council wish to pursue any policy actions to address community members'
concerns over the use of gas-powered landscaping equipment? If so, should that
be focused on all equipment or just leaf blowers?
2.What strategy or strategies should staff prioritize for further analysis and for
resource needs estimates?
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Landscaping Equipment
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BACKGROUND
Overview
For much of the year, commercial landscaping companies provide a variety of lawn and
plant care services to residents and commercial businesses. While these services are an
important part of the local economy, they are also a source of routine concern among
some community members as illustrated by emails and direct communication to council
members and city staff. Certain types of landscaping equipment present a variety of
environmental and health concerns. These include noise, air pollution and greenhouse gas
(GHG) emissions. Two-stroke engines, such as those commonly found in leaf blowers,
are the most cited area of concern, though other types of equipment such as lawnmowers
are also identified by community member complaints.
In addition to the noise impacts, landscaping equipment presents an air-emission concern
for both the operator and for the surrounding community. EPA studies 1 have shown that
this class of small engines result in disproportionally higher amounts of volatile organic
chemical (VOC) and particulate matter (PM) emissions as compared to other types of
gasoline engines, with two-cycle motors among the worst due to entrainment of
lubricating oils within the exhaust. Both VOC and PM emissions are known sources of
severe respiratory and other health-related issues. They also contribute to front-range
ground-level ozone pollution. Landscaping equipment is also a source of GHG emissions
that must be addressed to achieve the community’s climate goals, particularly net zero
carbon by 2035.
While Boulder, like most municipalities, does not have the authority to regulate air
emissions – that authority vests at the state and federal level only – Boulder can regulate
noise pollution. Title 5, Chapter 9, of the Boulder Revised Code governs noise and is the
source of existing local regulation addressing landscaping equipment. Under this code,
normally operating landscaping equipment is generally allowed throughout the city limits
during daytime hours. Because the concerns associated with landscape equipment is not
unique to Boulder, states and communities throughout the U.S. have modified their
respective noise ordinances to address leaf blower and gas-powered equipment use.
Tactics range from creation of quiet zones where leaf blower use is prohibited completely
to seasonal and full-time city-wide bans on gas-powered blowers (with or without
allowance for electric alternatives) to all electric requirements. Strategies to successfully
implement these restrictions include incentive programs to offset the cost to transition,
gradual implementation to align with equipment replacement cycles, and extensive
outreach. (See Highlights of Municipal and State Efforts in the Analysis section for
further discussion.)
1 https://www.epa.gov/sites/production/files/2015-09/documents/banks.pdf
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Ecological Impacts of Landscaping and Landscaping Maintenance
Historically, a greener and bigger lawn demonstrated wealth, prestige and privilege.
However, this status symbol is a significant contributor to our rapidly declining
ecosystems. Lawn pesticides have been detected in groundwater, have the ability to leach
into drinking water sources, and are toxic to fish and other aquatic organisms vital to our
ecosystem, including bees, mammals and birds.2 Studies also show that hazardous lawn
chemicals are drifting into our homes where they contaminate indoor air and surfaces,
exposing children to levels ten times higher than pre-application levels. Lawn pesticide
use is linked with human cancer or carcinogenicity, birth defects, reproductive effects,
liver or kidney damage, neurotoxicity and disruption of the endocrine (hormonal) system.
Maintaining the green lawn requires regular irrigation and maintenance. Maintaining a
green lawn during the hot summer months can require up to 2.5 inches of water per week.
Overall, landscape irrigation accounts for more than half of Colorado residential water
use. In addition to straining water resources, yard maintenance also leads to significant
waste. During peak growing season, the service interval is usually weekly, and many yard
trimmings end up in the landfill. A 2018 EPA study found that, nationally, yard
trimmings comprise 7.2 % of all waste going to the landfill.3 Once in landfills, yard waste
decomposes in an oxygen-starved environment, producing methane, which has 80 times
the global warming potential of carbon dioxide (CO2). Finally, a pristine lawn aesthetic
typically includes a lawn free of leaves and other debris. In addition to disrupting natural
nutrient cycles, reducing carbon sequestration, water infiltration and cycling, and
important wildlife/insect life habitat, it also leads to increasingly mechanized approaches
to removal of these organic materials (leaves, grass clippings).
Landscaping Service Industry and the Reliance on the Leaf Blower
Most landscaping businesses are small, individually/family owned with less than 10
employees. Many are minority-owned, and a high percentage of workers are Hispanic.
According to the U.S. Bureau of Labor Statistics, there are more than 1.7 million building
grounds maintenance workers nationwide; the average worker earns just above minimum
wage. 4
Landscaping service is synonymous with entrepreneurship. Since there has been the
suburban lawn, there has been the kid from the neighborhood who starts by earning extra
money mowing their neighbors’ lawns and ends up with a career in the landscaping
industry. Other than acquiring the landscaping equipment, there are little to no other
overhead costs, allowing business owners to enter the industry with a small capital
investment, usually starting with used equipment, and then grow their business and
adding more workforce over time.
2 https://www.beyondpesticides.org/resources/lawns-and-landscapes/overview/hazards-and-alternatives
3 https://www.epa.gov/facts-and-figures-about-materials-waste-and-recycling/yard-trimmings-material-
specific-data
4 https://www.bls.gov/oes/current/oes370000.htm
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While landscaping service is a successful entrepreneurial industry, the margins are thin,
particularly for smaller businesses. Earnings are limited to the months during which they
operate, late spring to early fall. Because of the small business nature of the industry,
there are many businesses competing for work, keeping the price of service relatively
low. Margins are based on productivity and reliability. This push for increasing efficiency
led naturally to increasingly mechanized approaches including the evolution of the leaf
blower. The powerful leaf blower reduced wear and tear on workforce in an industry that
requires crews to service 100 to 200 yards per week to break even, much less be
profitable.
Addressing the Impacts of Landscaping Equipment Project
To advance the community’s climate, environmental, racial and health equity goals and
to address the growing concern within the community, staff launched the Addressing
Impacts of Landscaping Equipment Project in early 2022 to explore options that might be
suitable for the city to pursue to mitigate the impacts of landscaping equipment. This
includes better understanding of the actual impacts of landscaping services within
Boulder, where other communities have been successful or run into challenges, and
assessing the potential local and regional impacts adopting a more restrictive code might
present to Boulder residents, businesses, and to service providers and their workforce in
the event such a strategy were to be pursued.
To support the project, the city hired American Green Zone Alliance (AGZA). Based out
of Los Angeles, AGZA specializes in training, education, strategic planning and
implementation of low-impact solutions for municipalities, land care operators and
property managers to transition from gas-powered land care to low-impact, zero-
emissions operations.
AGZA has been in operation since 2014. Its founder, Dan Mabe, operated his own
sustainable landscaping business for many years before forming AGZA. A key aspect of
AGZA’s work is the AGZA Green Zone® Certification program that has a number of
municipalities, academic institutions, school districts and private industry throughout the
country strengthen their environmental leadership and set examples for clean, quiet and
sustainable landscape maintenance practices in their regions and beyond.
AGZA is currently leading engagement efforts for California’s Clean Off-Road Equipment
Voucher Incentive Project (CORE). The goal of that particular effort is to connect with
professional landscapers by organizing in-person and online events where landscapers can
test out zero-emission professional landscaping equipment, connect with industry
professionals and learn more about CORE voucher incentives.
ANALYSIS
The following summarizes the analysis completed to date by staff and the consulting
team.
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Smog and Ozone
EPA estimates that, nationally, gas-powered landscaping equipment is responsible for
nearly 4% of volatile organic chemical (VOC) and 12% of carbon monoxide (CO)
emissions.5 Landscaping equipment also produces particulate matter (PM) and nitrogen
oxide (NOx) emissions. Operating a commercial gas-powered lawn mower for one hour
emits as much smog-forming pollution as driving a new light-duty passenger car about
300 miles – about the distance from Los Angeles to Las Vegas, more than four hours of
drive time. For a commercial leaf blower, one hour of operation emits smog-forming
pollution comparable to driving a new light-duty passenger car about 1,100 miles – about
the distance from Los Angeles to Denver, over 15 hours of driving.6
Ground-level ozone forms when NOx and VOC compounds react with each other in
sunlight and hot temperatures. Given that landscaping equipment use occurs during the
sunniest and hottest months of the year, the emissions from gas-powered landscaping
equipment are a leading contributor to Denver Metropolitan/Northern Front Range
(DM/NFR) ozone. The EPA acceptable standard for ozone is 70 parts per billion (ppb), a
value the DM/NFR has exceeded based on recent 3-year averages.7 Table 1 provides a
summary of the general contributors to summertime ozone in the DM/NFR. Landscaping
equipment represents approximately 3% of all ozone sources and approximately 8% of
sources targeted for pollution control (sources other than background and naturally
occurring).
5 https://www.epa.gov/sites/default/files/2015-09/documents/banks.pdf
6 https://ww2.arb.ca.gov/resources/fact-sheets/sore-small-engine-fact-sheet
7 The EPA 8-hour ozone standard is written such that attainment is met if the 3-year average of the 4th
max. value from each of the 3 years is less than or equal to 70 ppb.
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Table 1 - Regional Air Quality Council: General Contribution to Front Range
Summertime Ozone Concentrations8 reported as parts per billion (ppb)
Ozone Source Contribution Includes
Oil & Gas 8.6 ppb Area and point sources
(operation, storage
facilities, drilling, trucking
and engine exhaust)
On-Road Vehicles 6.8 ppb Light/Medium/Heavy Duty
vehicles (SUVs, cars,
pickup trucks)
Non-Road Sources 5.4 ppb Construction operations,
rail/train operations,
agriculture
Point Sources 5.3 ppb Industrial sources and
electricity generation
Lawn & Garden 2.5 ppb Commercial lawn
equipment and residential
lawn and garden equipment
(mowers, leaf blowers,
trimmers, etc.)
Area 1.2 ppb Personal care products,
cleaning products, paints
and solvents
Background and Natural 48.6 ppb Background ozone,
transport, local fires, plant-
based emissions
Landscaping equipment is a broad term that includes mowers (40%), trimmers (18%),
tractors (14%), leaf blowers (9%), chainsaws (7%), snow blowers (6%) and other types of
equipment (7%).9 While mowers have a lower emissions impact on a per hour basis, their
annual run hours are two or more times that of other equipment. Trimmers have
comparable fuel combustion emissions as leaf blowers and have comparatively higher
run hours during summer months.
Greenhouse Gas Emissions
Compared to its contribution to smog and ozone formation, gas-powered landscaping
equipment plays a much smaller role when it comes to GHG emissions. According to the
EPA, gas-powered landscaping equipment is responsible for just 0.3% of total CO 2
emission nationally. A leaf blower burns approximately 0.43 gallons of fuel, producing
11 pounds of carbon dioxide (CO2), per hour of use. Staff and the consulting team are
8 Source: Screenshot of Regional Air Quality Council (RAQC) presentation dated 8/18/22 and labeled
AQCC Presentation SIP Planning Process published by the Colorado Sun (https://coloradosun.com/wp-
content/uploads/2022/08/Screen-Shot-2022-08-23-at-1.21.25-PM.png?w=710)
9 National estimates (https://www.epa.gov/sites/default/files/2015-09/documents/banks.pdf)
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currently developing a Boulder-specific estimate of GHG emissions and expect to be able to
share this during the study session.
Highlights of Municipal and State Efforts
The following are highlights of tactics that have been implemented or are being
considered by states and municipalities related to the environmental and climate impacts
of landscaping services, and that have been considered as part of staff’s analysis and
recommendations.
State of Colorado: During the 2022 Colorado legislative session, Senator Chris Hansen
proposed a plan to ban the sale of gas-powered lawn equipment in areas with poor air
quality in 2030. While that bill did not move forward, Senator Hansen has now
introduced Senate Bill 23-016, which includes provisions for tax credits for electric
landscaping equipment.10 For many years, the state has, through the Regional Air Quality
Council (RAQC), offered a buyback/voucher programs for residents.11
State of California: In December 2021, the California Air Resources Board approved a
measure that will require most newly manufactured small off-road engines (SORE) such
as those found in leaf blowers, lawn mowers and other equipment, be zero emission
starting in 2024. Portable generators, including those in recreational vehicles, would be
required to meet more stringent standards in 2024 and meet zero-emission standards
starting in 2028.12 The state currently has $15 million allocated to its Clean Off-Road
Equipment (CORE) incentives voucher program for professional landscaping
equipment.13
Aspen, Colorado: In 2003, Aspen banned the use of gas-powered leaf blowers.14
Violators can receive a $100 ticket. Aspen allows the use of electric leaf blowers without
limitation.
Washington, DC: In 2018, the Council of the District of Columbia adopted the Leaf
Blower Regulation Amendment Act of 2018, which banned both the sale and use of gas-
powered leaf blowers with an effective date of January 1, 2022.
City of South Pasadena, California: In 2015, South Pasadena embarked on a lead-by-
example approach prior to enacting an ordinance on gas leaf blowers. In 2016, South
Pasadena became the first certified AGZA Green Zone city in the nation. In September
2021 the City Council passed a ban on gas leaf blowers with exemptions for emergencies
and a one-year grace period. Property owners face escalating fines up to $500 for
violations.
10 https://leg.colorado.gov/bills/sb23-016
11 The City of Boulder helped fund the RACQ program for several years.
12 https://ww2.arb.ca.gov/sites/default/files/offroadzone/pdfs/offroad_booklet.pdf
13 https://californiacore.org/
14 https://www.aspen.gov/329/Noise
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Lincoln, Massachusetts: In 2013, the Town of Lincoln voted to form the Lincoln Leaf
Blower Study Committee. Lincoln presented its first proposed ordinance in 2015 but
withdrew it following public feedback that more education and engagement was needed.
In 2019, Lincoln adopted an ordinance restricting the use of gas leaf blowers to within
defined time windows in Spring and Fall and allowing the use of electric blowers year-
round.
Ojai, California: Ojai banned the use of gas-powered leaf blowers in 1998. The city
stopped enforcing the ban in 2014 but resumed enforcement in 2017. In December 2017,
Ojai implemented a temporary ban on electric leaf blowers, as well, due to air quality
concerns associated with the Thomas Fire. Electric leaf blowers were again allowed
starting in January 2018. In April 2020, Ojai began banning other gas-powered handhelds
(trimmers, edgers, pole saws) and walk-behind mowers. Ojai prohibits the use of
landscaping equipment on Sundays and holidays.
Southern Nevada: In May 2021, the Nevada Legislature passed Assembly Bill No. 356
for the purpose of making various changes relating to the conservation of water. The bill
prohibits waters of the Colorado River that are distributed by the Southern Nevada Water
Authority or one of the member agencies of the Southern Nevada Water Authority from
being used to irrigate nonfunctional turf on any property that is not zoned exclusively for
a single-family residence beginning January 1, 2027.15 The Southern Nevada Water
Authority has since defined nonfunctional turf to be areas of nonfunctional turf include,
but are not limited to grass located along public or private streets, streetscape sidewalks,
driveways and parking lots, including turf within a community, park and business
streetscape frontage areas, medians and roundabouts.16
Lessons Learned and Risks
Based on survey of the experiences from other communities, direct interviews, and the
experiences of our expert consultants, the following are key considerations to inform any
future regulatory action in Boulder:
Proof of Violation - Noise complaints are challenging to enforce. In the case of
landscaping services, the offending piece of equipment is often used for a fairly
short period of time. Rarely can an enforcement officer arrive within the timespan
that the offense is occurring. For this reason, noise issues are typically treated as a
code violation requiring the complainant to identify themselves and be party to
the enforcement process. This can pit neighbor against neighbor.
Enforcement on Landscaping Businesses – In addition to the aforementioned
challenges of enforcement overall, issuing penalties against businesses may not
result in the desired changes. In the case of smaller businesses, the impact of
penalty may simply be to force out businesses or shift their customer base to
15 https://www.leg.state.nv.us/App/NELIS/REL/81st2021/Bill/7910/Text
16 https://www.snwa.com/importance-of-conservation/understand-laws-
ordinances/index.html#:~:text=Areas%20of%20nonfunctional%20turf%20include,areas%2C%20medians
%2C%20and%20roundabouts.
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outside of the city. In contrast, the larger business may just simply consider the
risk of being caught as the cost of doing business.
Socioeconomic and Racial Conflict – While those that contract for service are
accountable for the services that are provided to them, service providers can often
find themselves to be the target of conflict. Because of the nature of the industry –
number of businesses, worker turnover, language barriers, limitations of
municipal outreach – workers may be unaware of local ordinance. These workers
may then find themselves being confronted by community members while they
are just trying to do their job.
Equivalent Electric Alternatives – While there are electric alternatives that
provide equivalent or even superior performance for light-duty applications, there
are not electric alternatives that provide the same level of performance as gas in
commercial applications. For example, the leading commercial-grade electric leaf
blowers deliver roughly half the force (21 newtons) of the most common gas
blowers (41 newtons).
Cost of Electric – Table 2 provides a cost comparison for the typical equipment
needed for a landscaping service. In addition to the higher upfront cost of the base
equipment, the cost of electric equipment includes the need for redundant battery
purchases. Battery performance also degrades over time, requiring routine
replacement.
Electric Makes Noise – Most electric equipment is substantially quieter than gas
equipment. In the case of electric leaf blowers, however, the velocity of the air
through the nozzle will generate noise. While quieter than gas, the electric leaf
blower will still be considered a nuisance noise, particularly if it has to be run
longer or if more units need to be run concurrently to achieve the same
performance as what would have been achieved with gas.
Safety and Fire Hazard, Cost of Charging – Most small landscaping businesses
store their equipment at their home or the homes of workers. For electric
equipment, this also means that most battery charging occurs inside worker
homes. In addition to bearing the cost of increased electricity consumption, this
also presents a significant hazard if charging is not done properly. Instances of
both overloaded circuits and battery ignition have led to house fires.
Modal Safety and Infrastructure Reliability – While leaving some leaf debris in
yards is beneficial for microorganism development, in areas with a lot of tree
canopy, such as western Boulder, leaf debris can migrate into roadways and
stormwater drainage.
Customer Satisfaction – Without education and acceptance, customers will expect
that service providers deliver the same level of performance and at rates that are
competitive. Service providers and workforce will bear the brunt and
consequences of customer complaints.
Staffing Resources – Roughly 70% of all residents and the majority of
commercial businesses use some form of landscaping service. Hundreds to even a
thousand or more landscaping businesses serve customers in Boulder. Managing
education, outreach and enforcement with this large base of both customers and
businesses requires dedicated staffing and financial resources to be successful.
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Table 2 – Cost comparison between gas-powered and all-electric landscaping
equipment typically used by landscapers (excludes riding mowers)
Quantity Gas Electric17
Blower (backpack) 2 $840 $840
Blower (handheld) 1 $280 $280
String Trimmer 2 $820 $1000
Hedge Trimmer 1 $550 $550
Hedge Trimmer
(extended)
1 $480 $450
Pole Saw 1 $690 $620
Chainsaw 1 $370 $370
Self-propelled
Mower
1 $850 $850
Backpack Batteries 4 n/a $6000
Standard Batteries 12 n/a $3000
Fast Charger 6 n/a $990
Standard Charger 10 n/a $1000
Total (sales tax not included): $4880 $15,950
RACIAL EQUITY
Staff and our consulting team (Team) are utilizing the city’s Racial Equity Instrument
throughout the course of this project. The instrument is made up of the following six
steps:
17 Battery cost is excluded from the equipment cost and shown as a separate line item.
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Currently, the Team is focused on Steps 1 through 4. In utilizing the tool, the Team
started by defining the desired outcome as:
All Boulder residents will benefit from reduced air and noise pollution; the
community and service workers will experience improved health and wellbeing;
landscaping businesses will retain or even grow their profitability; and the
workforce will realize benefits through higher earning potential as part of a
“green collar” workforce.
In considering all data and influencing factors, substantial risk exists associated with
trying to achieve this ideal. Racial disparity already exists within the current baseline of
landscaping services. Demographically, the majority of customers in Boulder receiving
landscaping services are Caucasian and many would also be considered affluent. In
contrast, 80% or more of the landscaping workforce are Hispanic and most business
owners and workers earn well below the area median income. In addition to the high
potential for negative impacts on Hispanic-owned businesses and workforce, there are
customer segments that could also realize disparate impact. For example, fixed-income
seniors routinely rely on landscaping services and may lack the financial capacity to bear
an increased cost of service. Similarly, landscaping service costs already represent a
significant portion of Homeowner Association (HOA) dues for multifamily properties.
Dues increases can further impact housing affordability for renters and owners. Finally,
the majority of landscaping service providers and equipment retailers and distributors are
based in surrounding communities, such as Longmont. These communities could benefit
from increased sales revenue associated with electric equipment purchases but could also
realize harm due to economic impacts on businesses and workers.
See Attachment A for a summary of the Racial Equity Instrument working sessions.
COMMUNITY AND BUSINESS ENGAGEMENT
Environmental Advisory Board (EAB)
Staff presented an update to EAB at their March 1, 2023, meeting. During the discussion,
board members raised several concerns and suggestions, including:
Cost and Equity Concerns:
o High cost of transitioning to electric equipment.
o Potential equity concerns and racial disparities, including the
consequences of enforcement.
o Lack of an electric version of gas-powered blowers with the same weight-
to-power ratio, durability and efficacy.
o High cost of purchasing multiple electric blowers and/or batteries.
Environmental Impacts:
o Need to educate property owners and service providers on negative
impacts of traditional landscaping.
o Potential for banning leaf blowers for all but two months of the year or
requiring raking before blowing, at least for smaller properties.
o Significant environmental impact of commercial leaf blowers on ozone
levels.
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o Need for further study of environmental impacts associated with electric
equipment.
Noise Concerns:
o Possibility of removing noise ordinance exception for landscaping
equipment or allowing it only for electric equipment.
o Concerns about neighboring yards being left with leaf litter.
o Issue of landscaping equipment primarily a noise concern disguised as
environmental one.
o Practicality of using leaf blowers on certain surfaces or large areas.
o The possibility of local investment in pilots for emerging technology
solutions or implementing a new incentive program for electric equipment
adoption.
Customer Cost:
o Suggestion that customers bear some of the costs of providers switching to
electric.
Be Heard Boulder Questionnaires
The City of Boulder launched three questionnaires on its online engagement platform, Be
Heard Boulder, to evaluate community concerns regarding the use of landscaping
equipment. The city sought feedback from three groups: those who live and work in
Boulder, rental property owners, and owners/workers of landscaping businesses that
operate in Boulder. The questionnaires will be open through April 17.
Full results from the Be Heard Boulder questionnaires will be available for the council
discussion on April 27.
Business Engagement
There is no single means for identifying or connecting with landscaping businesses
serving customers in Boulder. To learn from businesses and workers, as well as gather
data for the impacts analysis, the project team has utilized several tactics. This includes
an on-site visit to Western Disposal and interviews with businesses during yard waste and
debris disposal, company shadowing (including shadowing all-electric business),
interviews with equipment distributors and retailers, outreach through the Latino
Chamber and referrals. The city is also hosting a series of workshops that will include
equipment demonstrations and educational seminars. The first workshop took place April
13, 2023. Dates are being finalized for two more workshops for the May/June timeframe.
Highlights of some of the feedback obtained to date include:
Productivity is critical to their bottom line.
o Less powerful equipment slows them down.
o They cannot afford to waste time in the field.
There is a lack of trust that electric equipment will be reliable.
o No way to charge batteries in the field and/or recharging takes too long
and slows them down.
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o Less knowledge of how to troubleshoot equipment when it isn’t working.
There is a high degree of concern over cost impacts.
o High first cost of equipment.
o Need to charge more for service due to higher-cost equipment and lower
productivity.
Their customers care about the bottom line and quality of service, not the
equipment they use.
o Customers unwilling to pay premium for electric service.18
o Customers complain if there is debris left on the lawn or walk.
There is concern about how the operational model will work.
o Workers must charge batteries in their homes.
PILOT VOUCHER PROGRAM
Staff were successful in obtaining a $211,774 grant through Boulder County’s
Sustainability Grants Program to implement a pilot rebate programs for landscaping
equipment. The pilot is being administered through Partners for a Clean Environment
(PACE).19 The PACE team worked with AGZA, the Latino Chamber and Boulder
County distributors and retailers in developing the program. Under the pilot, small
landscaping businesses would receive a voucher for up to 70% of cost for electric
landscaping tools. Participating businesses will also receive, at no cost, a smart charging
box to provide for safe managed charging, two fire extinguishers and a fire blanket. The
goal of the pilot is to test the program design, increase experience with electric equipment
and to drive additional participation by landscaping service providers in the city’s
engagement efforts. The program will launch in April 2023 and will continue through the
end of the year.
MATRIX OF OPTIONS AND STAFF RECOMMENDATIONS
Table 3 provides a summary of the different strategies staff have evaluated and are now
seeking council feedback on. For each strategy, the following parameters can be
considered:
Zones: Programs and restrictions can be targeted at specific zoning areas,
subcommunities, and/or neighborhoods. For example, some municipalities have
established quiet zones, usually single-family residential areas, that have different
restrictions than higher-density and mixed-use areas.
Phasing: Multiple strategies could be employed in parallel or sequentially. For
example, an education and outreach campaign could be combined with an
incentive program. After a period of voluntary adoption, a regulatory approach
could then be employed.
18 One business reported that they started as an all-electric company but converted to gas because they were
losing jobs.
19 https://pacepartners.com/
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Table 3 – Potential strategies that could be considered either independently or in combination.
Strategy Pros Cons Recommendations
Business As Usual
Wait until all-electric
technology can meet all
existing needs.
Enables staff resources to be
focused on other council
priorities.
Least impactful on landscaping
industry.
Fails to address air quality
issues.
Fails to address community
noise concerns.
Not recommended.
Policy Focus
Advocate for state-level
action – sales bans, tax
credits, all-electric.
Market transformation is more
likely to occur when action is
taken at the state level.
State action might not fully
consider local impacts,
particularly related to
affected workforce and
businesses.
Recommended.
Regional and state-level
efforts will better drive
systemic change and could
reduce the need for local
resources.
Education and Outreach -
Equipment
Encourage voluntary electric
equipment adoption and
business education.
Supports industry in making the
transition to cleaner solutions.
Requires investment
through city tax dollars.
Adoption takes time.
Recommended.
Encouraging the transition
will both reduce pollution
and create conditions for
systemic change.
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Strategy Pros Cons Recommendations
Education and Outreach -
Landscapes
Through Cool Boulder and
future initiatives, grow
community understanding of
sustainable landscaping
practices.
Reduces barriers to all-electric
transition.
Addresses other climate and
water resource priorities.
Reducing landscaping
service needs without
workforce training and
transition will impact small
businesses and workers.
Recommended.
Encouraging the transition
will both reduce pollution
and create conditions for
systemic change.
Advising and Incentives
Drive market transformation
through education and
financial assistance.
Supports future regulation.
Encourages market
transformation.
Likely not to result in
material change
Recommended.
Adoption will remain slow
if financial and knowledge
barriers are not addressed.
Sales Ban
Ban the sale of gas-powered
equipment from retailers and
distributors within the city.
Provides a market signal Easy to buy elsewhere Not recommended.
Gas equipment is easily
obtained in adjacent
communities.
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Strategy Pros Cons Recommendations
Electric Only
Require all handhelds and
walk-behind mowers be
converted to electric.
Reduces pollution.
Provides a market signal.
Cost impacts to both
industry and customers.
Cost to city operations
Recommended for future
consideration.
Focusing on building
education and experience
with electric alternatives
first will reduce barriers to
successful implementation.
Technology will continue
to evolve.
Gas-Leaf Blower Ban
Ban gas powered leaf blowers
(no restriction on electric).
Addresses main issue of
concern.
Reduces Boulder’s contribution
to front-range ozone.
Cost impacts for both
industry and customers.
Cost to city operations.
Does not fully address noise
issues.
Recommended for future
consideration.
Focusing on building
education and experience
with electric alternatives
first will reduce barriers to
successful implementation.
Technology will continue
to evolve.
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Strategy Pros Cons Recommendations
Leaf Blower Ban
Ban all leaf blower use.
Maximizes noise reduction. Increase likelihood of debris
migration across property
boundaries and into
roadways and stormwater
drainage.
Increases worker fatigue
and potential for repetitive
injury.
Not recommended.
Seasonal Equipment
Allowance
Restrict which types of
equipment can be used when.
Reduces impact while still
allowing equipment to be used
when it is most critical for
productivity.
Mitigates cost impact on
businesses and customers.
Provides a market signal.
Potential to increase noise
during the allowance period.
Requires allocation of
additional city staffing
resources for enforcement.
Recommended in
combination with
voluntary strategies should
council wish to pursue a
regulatory strategy.
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NEXT STEPS
If council directs staff to take further steps to address landscaping equipment, staff will
conduct additional analysis and engagement on the strategies council wishes to prioritize.
Staff will also report back on the pilot voucher program. Staff will also continue
education and outreach efforts on sustainable landscaping practices.
ATTACHMENT
Attachment A – Racial Equity Instrument
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•All Boulder residents will benefit from:
•Reduced pollution and greenhouse gas emissions
•40-70% reduction in noise levels
•Improved community health and well being
•Improved health and well being of service workers
•Reduced operational costs for landscapers
•Increased potential for wages, social image and public perceptions
•Transition to emerging “green collar” workforce
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•Sole proprietors
•Workers
•Mid-sized organizations
•Large enterprises
•Suppliers and vendors
•Homeowners
•Tenants and renters
•Multi-unit investors
•HOAs and property managers
•City departments
•Local businesses
•Schools and universities
Service Providers Service Receivers
All Boulder residents will benefit from
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During Policy Development
Equal Access To:
Information
Training and Certification
Laws, Rules and Regulation
Planning and Enforcement
Decision Makers
1a Desired Community Results
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During Deployment and Executions
Equal Access To:
Grants and Incentives
Training and Certification
Transition Support
Information
Laws, Rules and Regulation
1a Desired Community Results
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•Achieves desired community results (1a)
•Is all-inclusive with equally shared benefits among all racial and socio-economic
groups, including outside service providers
•Is efficiently and effectively adopted by residents, commercial property owners,
service providers and equipment distributors/dealers
•Directly contributes to improvements in community health outcomes
•Improves collaboration among various city, county and state government
departments and agencies under the common set of sustainable living objectives
1b Desired Organizational Outcomes
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1b Desired Organizational Outcomes
Successful racial equity strategy will consider and plan for the key stages of the
transition process.
Ensure Racial Equity is addressed at each phase and focus on the user journeys of the
Service Providers.
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•Inclusiveness of engagement
and decision-making process
•Availability of
bilingual/language-of-comfort
program literature, digital
media and meeting translations
•Hours of engagement with
landscaping service providers
•Number of landscaping service
providers and workers that
participate in engagement
process
1c Performance Indicators
Planning Adoption Enforcement
•Percent of Latino participation
in informational sessions and
workshops
•Percent of participation and by
small, minority-owned
businesses in city incentive
programs
•Rebate dollars invested
•Availability of
bilingual/language-of-comfort
program literature, digital media
and meeting translations
•Percent of equipment converted
•Number of warnings and fines
issued
•Percent of customers whose
landscapers adhered to
regulatory requirements
•Number of community
complaints received by staff or
council
•Reduction in emissions
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1d Impacted Populations and 1e Issue Areas
•Businesses and Workforce
•2000-2500 landscaping microbusinesses and small operator serving Boulder County, including thecity (affordability, technology, jobs, health, economic development, government decision making)
•~80% of workers are Hispanic (jobs, health, safety, technology, civic engagement)
•Multi-family and commercial properties
•Building occupants (environment, health)
•Surrounding neighbors (environment, health)
•Tenants/HOA dues payers (affordability)
•Business community (economic development)
•Single-family homes
•Residential neighborhoods (environment, health)
•Fixed income seniors, lower income households, renters (affordability)
•Workforce (jobs, economic development)
•Public agencies and universities largely in source maintenance
•Building occupants (environment, health)
•Surrounding neighbors (environment, health)
•Taxpayers (jobs, economic development)
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Community Profile
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Community Profile
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Geographic Impacts
•Most businesses serving Boulder are
based out of communities other than
Boulder
•Longmont
•Superior
•Louisville
•Lafayette
•Broomfield
•Other areas (Arvada, Federal
Heights, Loveland)
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Influencing factors
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Data Gathering Through Engagement
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Best Practices
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Best Practices (cont.)
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