I don't think it's terribly harmful for humans if it's safe for a women's uterus. California tends to be exceptionally concerned for the environment in general. All that copper dust making it into the coastal marine environments isn't going to be good for it, considering the same stuff is used to keep marine life off boats.
edit:
"The issue has been under consideration since the 1990s, when cities south of San Francisco were having trouble meeting Clean Water Act requirements to reduce copper in urban run-off flowing into San Francisco Bay. Preliminary studies indicated that brake pads were a significant source of copper in that runoff. Tiny amounts of copper fall onto the streets and parking lots every time drivers step on their brakes."
from https://www.copper.org/environment/impact/copper-brake.html
As I suspected, it doesn't appear to be primarily a human toxicity concern. It's to protect the marine environment.
https://www.baltimoresun.com/news/bs-xpm-2006-05-04-06050400...
https://canada.autonews.com/article/20180107/CANADA/18010983...
Asbestos isn't that harmful, until it goes airborne. My understanding from research (I worked expanding a landfill that took asbestos at one point). is that the particles are too small to be caught by our bodies defenses and when it ends up in your lungs its cancerous. Asbestos in brakes seems like a bad idea.
I believe a lot of the stopping power comes from ceramic cinders in the pads. Those showed up in high end bicycle brake pads about 25 years ago, and I think they were old news in high performance cars before that. I have a fuzzy recollection that they trickled down into mid-tier vehicles not long after that. 2000-ish?
But that's been outlawed now, presumably due to potential for metal toxicity (any mineral you need in your diet is also lethal at higher doses). We're leaving powdered copper at every stop light.