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HomeMy WebLinkAbout1981-07-21; City Council; 6678; SANDAG Presentation Regional Energy Task Forcen n 4f AGENDA BILL ) q AGENDA 'BILL NO: 7f INITIAL: (� -- DEFT. HD.b�-- — DATE: DULY_ 21, 1981 CT.1,. ATTY. 1� DEPARTMENT: CITY ENERGY ccmITTEE CTY. MGR. SUBJECT: SANDAG PRESENTATION STATEMENT-0E-THE'MATPER: The San Diego Association of Governments has hosted the Regional Energy Task Force for the past year. The Task Force's main objective was to develop implementation programs for five subjects - solar access, weatherization, solar mandating, removing barriers to solar energy in local zoning ordinances and energy and development review. A member of the city's Energy Committee was Carlsbad s representative to the Task Force. Tonight Steve Sacks from Sandag will present the implementation packages and will be available to answer any questions the Council might have regarding the packages. ENVIR0NM nAL,REVIEW No environmental review is necessary at this stage. If any of the implementation packages are recommended for adoption, environmental review will be necessary at that time. FISCAL IMPACT Beyond staff time needed to review and report back to the Council, no fiscal impact is expected. If any of the implementation packages are recommended for adoption, a fiscal analysis will be necessary at that time. RECUMMEMATION The City Energy Committee recommends that the City Council arMpt the implementation packages and refer them back to the Committee for evaluation and action. NO ACTION ` ''Saint Diego Association of Governments BOARD OF DIRECTORS DATE: 5/18/61 AGENDA REPORT No.: R-99 SO -DIEM PMIONAL ENERGY PLM 3MPUME=TION PROGRAM - RESULTS AND REX'ONI MDATIONS Introduction In August of 1978, the Board of Directors adopted the regional Energy Plan (REP). The plan contains policies which emphasize reducing the region's demand for conventional energy and recommended conservation and alternative energy -source action programs for local jurisdiction evaluation and implementation. The Regional Energy Plan policies,were affirmed by 13 local jurisdictions in 1979. The remaining two jurisdictions adopted -energy policies consistent w�fth the REP. The plan also contains a local implementation schedule and a SANbl technical assistance program. The Regional Energy Plan Implementation Program has been supported by a grant from the California Energy Commission and is being -carried out with the assistance of a Task Force appointed by the Board of Directors in December, 1979. The Task Force is composed of local jurisdiction staffs, representatives of public agencies and private concerns with expertise in particular conservation or alternative energy technologies, and is chaired !y Councilman Mike Flick of Vista. The names and affiliations of the Task Force members are listen as an attachment to this report. Five conservation and solar action programs were selected for development of detailed implementation packages which typically consist of sample codes, ordinances -or procedures and a manual or woexbook with step-by-step explanations of how local staffs can carry out the program. These five action programs are directed at: o Famving barriers to solar energy use in zoning codes. o Creating opportunities for encouraging solar energy in local jurisdiction regulations and review of development proposals (e.g., subdivision, Planned Unit Development, Environmental Impact Report). o Encouraging or requiring solar access in new residential development and assisting voluntary solar access agreements for existing buildings. o Providing for solar hot water and pool heating system standards and for the option of mandatory installation in new residential development. o weatherizing existing housing stock. A summary of each of the five implementation packages is attached to this report. It is my 2. that the Hoard of Directors accept for distribution the implementation packages produced by the Regional Energy Plan Implementation Program and request that each city council and the Hoard of Supervisors review the implementation packages and consider their adoption where compatible with local conditions. DISCUSSION Introduction the objective of the Regional Energy Plan Implementation Program is to provide technical assistance to local governments interested in helping achieve energy and energy cost savings for citizens in their jurisdictions. The impleinertation packages provide a range of programs which -are based -on local interests, state mandates and information on "comparative costs and energy savings of various actions. Each implementation package contains options which can respond to local preferences toward degree of government involvement, public agency costs, and acbinist_ative approach. in the case of solar mandates and weatherization, regionwide consistency is emphasized because of benefits to the public and the private sector of being able to understand and meet the same requirement or standard in every jurisdiction. Regional Energy Task- Force Work The purpose of the Regional Energy Task Force was to enable local government staffs to determine the detailed implementation approaches and documents (ordinances, procedures, etc.) to be developed by SANDAL staff and a consultant for review and adoption by city councils and the Board of Supervisors. The Task Force also included people with detailed knowledge of the implementation of conservation and solar energy programs. Zhese Task Force members assisted local government staff in selecting the most appropriate and cost-effective implementation strategies. The work of the Task Force proceeded in three major steps: o First, specific local action programs were selected for development of detailed implementation tools from a list of about 20 actions contained in the Regional Energy Plan. the selection of action programs was based on: (a) response or relationship to state mandates (removing barriers to solar frog zoning codes, solar access and solar site design); (b) largest potential and most cost-effective results (weatherization); and (c) interest and visibility to local staffs and elected officials (solar standards and marklating). Second, a review of implementation issues and examples for each action program (background papers) was developed by the consultant and SANDAG staff, and reviewed by the Task Force. The Task Force discussed alter- native implementation approaches for each action program and selected an approach or approaches that seemed suitable for the San Diego region. The Task Force was very involved in the development of the implementation packages. The packages reflect a great many Task Force ideas and de- liberations. 3. o Third, detailed implementation packages were developed based on Task Force input from step two, and reviewed and revised by the Task Force. Zhe Task Force has held 20 meetings since January, 1980, when work on the Program started. In addition, several subcommittee meetings were held on the issue of solar hot water and pool heating standards and solar access. Uxal,Jurisdiction Action the following local actions have been aided through the work of the regional Energy Task Force over the past year: o 'i'he City of Carlsbad staff is developing solar hot water, swimming pool and site design programs. o City of Chula Vista is in the process of approving an ordinance requiring solar hot water and pool heating in new constuction. o City of Oceanside is considering an ordinance mandating solar hot water heating for domestic hot water and pools in new construction, and is developing solar access requirements. o City -of San Diego adopted an ordinance removing barriers to solar from its zoning ordinance. Zhe 'cask Force has cieveioped a program for presenting the results of its - work to local jurisdictions for consideration. SANDAG staff will meet with each local jurisdirtir_- to determine how the implementation packages should be.presented to its city council. Me presentations will be made by scare combination of local staff, SANDAG staff and regional Energy Task Force members. The particular implementation packages discussed and the imple. mentation approaches to -be emphasized in each presentation will depend on existing local energy policy and ordinances and each jurisdiction's interests and -priorities. A recommendation for action, customized for each jurisdiction, will be developed and presented to the city council. At a minimum, the council will be asked to refer the implementation packages to staff or a ccmmmittee or commission for a reconmendation on implementation actions. A status report on the presentations and local responses will be made to the Board later this year. RICHARD J. ftVP Executive Director Attachment R. Ifichimel Flick, Chai3mn 00*6ilm'n, City of Vista JcYO6 QnOsdmilj.te Planning Departap-nt City of Carlsbad Gene --Grady ,Diiector-Of Building City of Chula Vista Janet'Tracy Dykstra A&ims tive,Andlyst City of -6rdnadb Bill Healy, Planning bil*cb:)r City of Del,Mhr Patricia Gillen. Assistant -Planner City,of El ciJo"' n GeOrgd,Pields, Director of a Blding 4'H6U'S3'.n'g- City,& Imperial Beach bave-weaur Planning Director City of La '*za Ann,fterd AddhiAtrative, Absistant ty of Li0m Gk6ve pd*xt& diiqy, Civil aigInee;:ing Associate City of NatiorAl City FrAndis,mrx) l. Staglia Building Director City of Oceanside Hal Moines, Chief Building Insp&-tor City of San Marcos Aft Arm Fahey Energy Cloprdirator 'eity'of San Diego Harold Sanders Building Official City of Vistia Attachment IMC-ICNAL ENEMY TASK FORCE MEMBEFGHP Eric Pullium tr'e Office ,CbMtY Of San- Did(p Elaine Miller Cbfiser,vatioin Division California Energy 6i*s-4ion, Harry Dotson Cbzi§eivation,0ffi6& beparhnent of, tjjer�y Jack Flynn, Conservation Prograirre Puperyisor San Di6qjo Gas & Electric Co. David Durkin, E*cvUve­DirectOr California Pubs is Interest Pesearch Group Him Kilkinney Ie4islative Represeritativie Cbnstniction Industry Federation Giegibry M. Br6wh AmricAn Institute, of Architects Donald FCD0nO1X#1 California Sol&f Energy Industry Association H.-Dennis Campbell Energy Counselor Hcm1e Federal Savings, Don hood, Planner am�u At�, Action Pattnexthip and-San'Dikp Gas & Electric Cb. Jay H. Heyes, Director Utilities Engi:neewirg/Conservation -Branch, Navy Public Works sae• • a a a i�- tr Kis Z i Wei a Wg ME-WOU-1. IMPLEMENTATIM PACKAGE 1 SUR WY Removing Barriers to Solar. Energy Use from Zoning Ordinances Mst local zoning ordinances have been developed without regard. to acccmio- dating solar energy use.. There are many simple modifications which can be made to -these ordinances to remove barriers to locating solar collectors and to pro- vide more access to sunlight. For example, most zoning ordinances have building height, lot coverage and yard setback requirements that can easily be made more flexible to allow private investment in active and passive solar energy systems for domestic water, pool and space heating. 'This implementation package contains a -manual that will allow local ,planning and zoning staffs to remove barriers to the use of solar energy systems from existing zoning codes. Each type of barrier to solar energy use which typically.appears, in a zoning ordinance is described, alternative methods of removing the barrier are suggested, and exarrples of regulatory language that could be substitutscl or added are presented. The presentation of this information allows the local, staff person to go through his or her zoning ordinance section by section, determine if removal of a barrier is required and make modifications. Schematic drawings are used, to help describe barriers and their removal. Sample resolutions to direct local jurisdiction staffs to undertake an analysis of zoning ordinance barriers to solar energy, for Planning Camu ssion public hearings, and for city council adoption of amendments to the zoning code are also part of this implementation package. Removing barriers to solar energy use from zoning ordinances is the,sinplest and least costly local government action to encourage the use of solar energy. It will assist charter cities in complying with AB 3250, the Solar Rights Act of 1978, which prohibits ordinances that "have the effect of prohibiting or of unreasonably obstructing the use of solar energy systems, other than for the preservation of public health and safety." This action should be the basis for -other local actions to promote solar energy '(such as solar access, solar site design, solar system mandates, etc.) since it supports or is essential to the effectiveness of these .further actions. Sane of the issues and problems related to removing barriers to solar energy are: Aesthetics -There is some public sentiment that solar collectors are unsightly and should be closely regulated to minimize their visual impact. Lot coverage and setback - The recommended modifications to zoning ordinances will allow increased lot coverage in sane instances (for example, greenhouse additions or solar collectors located in yards) and should be closely reviewed by fire departments to insure they do not interfere with access for public safety. Several jurisdictions have recently adopted or drafted modified zoning ordinances consistent with the recommendations of this implementation Package. The City of San Diego is an exanpla. n/_11i SAN DIEM REGIONAL ENERGY PLAN IMPLEMENTATION PROGRAM' IMPUNEWATION PACKAGE 2 SIHNMARY Solar Site Plan Review The California Solar Rights Act or 1978 requires that in approving tentative subdivision maps local governments "shall provide, to the extent feasible, for future passive or natural heating or cooling opportunities in the sub- division." Although not required by state law, local government action to provide solar opportunities in other types of development regulations such as planned developments and conditional use permits can also be beneficial-. The direction of streets, the orientation of lots and buildings, and require-- ments..for landscaping and open space all have an influence on the type and effectiveness of both passive (few mechanicai or electrical parts) and active solar energy systems. These factors are crucial in allowing the buildings that will eventually be placed on the land to have access to adequate sunlight and in creating opportunities for the building itself to be designed to incorporate passive solar heating and cooling systems: This implementation package includes working documents which will allow local governments -to implement two alternative levels of site plan review to-enaourage solar energy -use. The first alternative emphasizes information required in the formal and informal steps which project proponents and local governments go through in submitting, reviewing and refining a development proposal. The type of information needed at each step in order to insure an adequate opportunity to design the development to take advantage of opportunities,to use solar energy is specified. This part of the implementation package is intended to'allow developers and local staffs to work cooperatively, particularly in the early stages of an application for development approval, to determine the potential for solar design and to be -aware of the natural, site conditions (such -as topography and existing trees, shading patterns, wind patterns and temperature differences) and development design strategies (such. as street orientation and lot location and orientation) which take advantage of the site conditions to .increase comfort and reduce energy costs through the use of solar energy. Information requirements could be incorporated into exis- ting.environmental review procedures. The second level of implementation includes the first part, but adds a check- list and design standards that can be used by local governments in measuring the performance of a development proposal in providing opportunities for solar energy systems to be installed by builders or owners in the future. A sample resolution adopting the standards will be included when distributed to l;peal agencies. The standards will insure that each development approved by the city'will allow significant impleirontation of solar energy technologies �on the site, with no sacrifice in development densitites. Solar site design should be a high priority local action in promotinc the use of solar energy. It is required in order for builders to instal: effective passive heating and cooling solar technology now and preserves the option for its use in the future. It is also a program that is straight- forwardand simple for a local government planning office to implement. This program would require additional costs of land developers in collecting data and designing projects to respond to the standards. These costs can be minimized by providing information on good solar site design to developers as early as possible in the formulation of a project. The implementation package stresses this eaarly contact. An objection often raised to design standards like those proposed in this implementation package is that they restrict innovative design that could accomplish the same objectives as the standards. These standards provide exceptions for designers who want to provide innovative development -design that will provide opportunity for equivalent renewable energy sources to be used. A second objection may be that the standards will reduce density. State law requires that the application of the standards must not reduce allowable density or restrict lot coverage. The standards include exceptions to their application in cases when density would be reduced. Several local jurisdictions in the regicn have adopted policy statements to ccMply with the Solar Rights Act. The County of San Diego has adopted stan- dards for lot orientation. The use of the solar site design implementation package by local jurisdictions will make -available specific and comprehensive guidelines of ztandards for designing developments which can take full advantaige of solar energy. a 5e• • 10.11 JMJMFM�I!Jis ..fin.. DTLOEMATION PAMM 3 SCHVW solar Access Access to sunlight is one of the keys to making solar energy a major factor in the region=s energy supply. Land devel%nMt and its regulation by local =Mnents is the arena where solar access decisions will be made and the success of solar energy in supplementing fossil fuels as an - energyfor the region will be determined. All of the sol ar technologies ��tl available require collectors to be able to receive direct sunlight duringy middle part of the day in order for than to operate .a a cost -effect In 1978, the California legislature adopted the ithe manner. Solar Rights Act which encourages local governments -to promote solar access and a1l6w3 solar easements to be rs- quired in new subdivisions. The Solar Shade Control Act of 1978 Provides a�legal mechanism for removing vegetation which grows to shade an existing solar ocllector. However, in most cases, current land development practice and local 9e mele regulation provides consumers w�itn little or no not.be lost through the shading of clllectors guarantee etch that Mar access will building additions and -enlargements. �' Vegetation, new construction or ImPlementation Packages 1 and 2 Provide a framework and solar access in new devel opportunity for preserving tical tools and legal instruments to s aPl�entation package Provides the analy_g ]landscaping can be arrangedspecifically identify how buildings and serve this access to allofutlse invest wit in the ussolar access e of solar t' 1it is needed, �. pre - This implementation package contains .a template which can be laid over develop - meet maps of various scales,to determine where shading will occur and where ar access is available. Detailed diagrams and instructions on how to apply the sol template in-desi meets to �g (Private sector) and .reviewing (local government) develop- format.samethodology rate solar access are provided in a step-by-step manual but its application isillu trated with residential ied to any low rise,, emVies t of development A second major Part of this implementation package pertains to legal protection - of solar access onoe.it is Provided Sample legal forms far solaeasement and the template analysis procedure. tions on hots to n�easuro and describe 'and CC&R s are provided along with instruct - A model ordinance the protected area and consistent with , rag solar easements in new developnet1ts is ath lso pdoc�anen. provisions of tiva California Solar Rights Act. a major difficulty in makiiig the first parr: of the implementation 4ve7a analysis) work is the staff oamutment needed'to Package (solar analysis methodology. It is hoped that works get fence with the provide an introduction to the use of the templatP� be.1held this summer to obstaole3 to the =,v A .a.._. -� • .+L Z_:.y. aeverai —_„�S yc4u.iLwients of easements in new development (as JON /0,11, . apposed to a requirement to,damnstrate adequate solar �ac ss but not legally � ,protect it in the future) exist, They include; o Resistance to legal restriction of develcp mt and.lamscaping ` opportunities that Oe*m i'se might exist in a pa umlar zo district. ° (70sts of det►elaping and rdmrding� easements, or the legal uncertainty of using less costly methods of presexvina solar access. "1 he C7ourrty of San Diego and City of Del mar are the oily, local ggtnexanents in the region which have adopted solar amess regairenants for new developfiI The cities of Chula Vita and Ooeanside are gently czinsi3ering solar aobess ptwisiohs. Mandatary •;d-ments or C'UR's has been ogns4ared by sate of these ]urisdicticns, but have not been instituted for one or more -of the,iaso�s.dis- cussed above. i SAN DIEGO REGIONAL agERGy pIAN R�PWF*ATION PROGRAM IMPLEI MTION PAC NGE 4 SLII�MARy Solar Water and,pool Heating Solar heating -of water and'swimning pools the part of local is the subject of much interest on governments in the region and throughout the state. Water -heating is a major energy user and solar water and pool heating systems are being marketed very successfully in the San Diego area. Studiess-by the Cali- fdrnia Energy Ccmnission and the Public Utilities CMmission show that current state. and federal tax -subsidies. make solar "rater and pool heating a -cost- effective investment, in -most Instances. HCwever, local building -officials who�must issue permits for solar systems are faced with a wide choice of suggested standaffls for the addition, those local governments which are Consider' system to meet. In sys�s in new -construction must also take the respo� the mandating .of solar these systems are cost effective. nGikiility, of insuring that The emphasis in this implementation for solar package has been to develop a set of �s r water and pool heating systems which is acceptable to local governments and will provide some:standardizati'On the and stability to the solar industry. ,At same time, the standw:ds must be compatible with state and federal tax credit requirements. The implementation package contains model standards and solar mandating ordinances -that were developed by the ttie-past six montls. The s Regional Energy Task Force over the Bass and ordinances. represent A-currentoohsensus and, have the flexibility to be easily modified in the future. Typical active solar water heating systems with_natural gas backup for family housing developments cost benew single tween $1,500 and $3,000. Substantial state and federal tax subsidies care range from 55% to virtually the full cost of the solar system. Calculations by the California En hater heating systems (with natural erg' Camtission show that solar sive to 'Operate than natural gas oraY s stckup) wing tax credits are less,expen- X ystems over a. 20-year its period. Administrative Costs for mandating solar systems may'vazy from minor to'the addi- tion of a building inspector depending on administration approach and local h�usinq growth. Maximum costs can be recovered through nominal pernit processing fees. An issue to be considered in mandating solar water heating in n�xa homes is the impact °f' increased prices on the affordabil-ity of housing. The main impact would be on the ability of have buyers to qualify for a loan. Information.programs-have infonried lenders that reduced home operating costs associated with solar systems Will actually improve the ability of hers to make mortgage Payments. The City of Del Mar and the County of San Diego have adopted ordinances requiring solar hot water and Currentlpool heatinq. The cities of Chula Vista and Oceanside are. y Considering adoption of an ordinance. The local chaptexs of the Inter - Industry Conference of Building Officials (ICBO). and the California Solar Energy Industry Association (CALSEIA) have reviewed and endorsed this i�a Solar Energy package. SAN DIEGO REGIONAL EVEEm PLAN IMPLEMEn'ATION PF GRAM IMPLUUMATION PACKAGE 5 SUHQW Model Weatherization Ordinance State -Building Code requirements to oonseive energy were initiated in 1975. In 108, the current state standards requiring ceiling. and wan insulatiarr,.weather�- stripping and other energy saving measures were adopted. However, most of the 600,000 housing units in the region are uninsulated or underinsulated. Weather- ization is the most cost-effective energy saving hudfiie available to consumers; haqui.ring the weathdrization,of existing structures that do not meet minimtnm standards is the most significant action which local §avw meets can take to save energy and money. This implementation package contains a model ordinance for mandating. -the, weather izatim of existing residential structures at the time of sale. Time of sale weathdrization• is proposed to allow iMxirnun flexibility, in financing the irr Trove= meets. Self -certification is suggested as the enforcement approach in the ordinance to limit ad<iunistratite costs. Written, proof of compliance is required to be 'flied by the seller. Weatherization standards that are suggested in the ordinance are: ceiling insula- tion (h-19); caulking and- weatherstripping; duct insulation; waiter heater insula- tion.blanket; and:,water flow restriotori on fawaets and showers. .Average installed cost for a residence that requires maxj.man•weatherization would•be-about $650. State and federal. tax credits totaling,40% would reduce this cost to $390. Typical annual savings wouid'be 30% in space heating and cooling eosts.and about 20% in water heatingcosts, or about $105- pex year for U1 electric houses and about $65 per year for residences withnatural gas. Therefore tiie initial iirvestment in weatherization would be "paid back" to the haOeowner in six years or less. If energy prices continue to increase rapidly the payback period oould:be reduced significantly. Administrative costs of this type of ordinance would be 104;. mainly information dissemination to hm ecwners and realtors. The major public issue's involved in -considering adoption of the weatherization ordinanoe-wvuld be: ° costs to homeowner government intervention in the sale,o£ property A few jurisdictions in California have adopted weatherization ordinances for existing residences. In this region only,the County of San Diego has considered retrofit weatherization. County staff worked with the real estate industry to develop an ordinance on which the model ordinance in the implementation package is k6sed. The Board of Supervisors voted against adopting the ordinance earlier this•year, partially, on the grounds that any such program should be implemented regionwide rather than just in the unincorporated area. There would be great ene .bfits in implementing a cm mon program in all jurisdictions: realtors and h,rr'eowners would have to deal with only one set of standards and compliance procedures. This would increase the understanding and acceptance of the program. TP.e Regional Enexgy Task Force has rec m►ended' that the -SANDAG Board support i legislation to require weatherization of existing housing stock statewide, con- sistent with the model ordinance. Sfaff will review the model ordinance with each locaOL jurisdiction and report lock to the Bcai-d with a reoarinendaf3cn, on - interest in regionaide implenentation of the ordinance and/or support cif state- wide.leyislation consistent with the ordinance.