HomeMy WebLinkAbout2020-07-14; City Council; Resolution 2020-146EXHIBIT 1
RESOLUTION NO. 2020-146
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF CARLSBAD,
CALIFORNIA, APPROVING AN AMENDMENT TO THE CLIMATE ACTION PLAN
TO REVISE THE GREENHOUSE GAS INVENTORY AND REDUCTION TARGETS
AND FORECAST, UPDATE REDUCTIONS FROM EXISTING MEASURES AND
INCORPORATE COMMUNITY CHOICE ENERGY AS A NEW REDUCTION
MEASURE.
WHEREAS, on Sept. 22, 2015, City Council adopted Resolution Nos. 2015-242 and 2015-244,
approving the Climate Action Plan (CAP) and Program Environmental Impact Report; and
WHEREAS, on Jan. 21, 2020, City Council received a report regarding the need to revise the CAP
greenhouse gas inventory, reduction targets and forecast and incorporate additional reduction
measures; and
WHEREAS, the city derived a 2012 greenhouse gas inventory and forecast using the protocols
established by ICLEI — Local Governments for Sustainability and the San Diego Association of
Government's Regional Climate Action Planning Framework; and
WHEREAS, the city derived greenhouse gas reduction targets using the guidance from the
California Air Resources Board 2017 Climate Change Scoping Plan; and
WHEREAS, the existing CAP reduction measures were recalculated based upon new state and
federal policies and their interaction with the level of renewable electricity provided through
Community Choice Energy; and
WHEREAS, based upon the 2012 inventory, recalculated measures and forecast, the revised
reduction targets for 2020 and 2035 can be met through incorporation of the Community Choice
Energy as a reduction measure; and
WHEREAS, on Sept. 22, 2015, City Council certified the Program Environmental Impact Report
for the General Plan Update and Climate Action Plan (PEIR 13-02); and
WHEREAS, an addendum to PEIR 13-02 was prepared and indicated no significant
environmental impacts would occur as a result of implementing the CAP amendment, including
implementation of the Community Choice Energy.
July 14, 2020 Item #17 Page 4 of 128
A ENGLES City C r
NOW, THEREFORE, BE IT RESOLVED by the City Council of the City of Carlsbad, California, as
follows:
1. That the above recitations are true and correct.
2. That the City Council approves the Amendment to the Climate Action Plan, attached
hereto as Attachment A.
PASSED, APPROVED AND ADOPTED at a Regular Meeting of the City Council of the City of
Carlsbad on the 14th day of July 2020, by the following vote, to wit:
AYES: Hall, Blackburn, Bhat-Patel, Schumacher.
NAYS: None.
ABSENT: None.
MATT HALL, Mayor
(SEAL)
001111111WIIIIIN
0 • .
July 14, 2020 Item #17 Page 5 of 128
EXHIBIT 2
1-1
1
Introduction
1.1 Scope and Purpose
Background and Purpose
The Climate Action Plan (CAP) is designed to reduce Carlsbad’s greenhouse gas (GHG)
emissions and streamline environmental review of future development projects in the city in
accordance with the California Environmental Quality Act (CEQA).
The original CAP, adopted in September 2015, has beenwas prepared concurrently with the
city’s updated General Plan and includesd actions to carry out the General Plan’s goals and
policies, consistent with the Community Vision articulated during Envision Carlsbad. The
original CAP iswas also correlated with the Environmental Impact Report (EIR) on the General
Plan, with the CAP GHG reduction target synchronized with the EIR. CAP Amendment No.
1, adopted in May 2020, revised the greenhouse gas inventory, reduction targets and forecast,
updated reductions from existing measures, and incorporated Community Choice Energy as a
new reduction measure (Measure P). An Addendum to the EIR was also prepared.
Community Vision and Environmental Stewardship
Carlsbad has long been a steward of environmental sustainability. In 2007, the Carlsbad City
Council adopted a set of sustainability and environmental guiding principles (Resolution No.
2007-187) to help guide city investments, activities, and programs. Sustainability emerged as
a key theme during the Envision Carlsbad community outreach process, and reflected as a Core
Value of the Community Vision:
Core Value 6: Sustainability. Build on the city’s sustainability initiatives to emerge as
a leader in green development and sustainability. Pursue public/private partnerships,
particularly on sustainable water, energy, recycling, and foods.
The General Plan
The General Plan includes strategies such as mixed-use development, higher density infill
development, integrated transportation and land use planning, promotion of bicycle and
pedestrian movements, and transportation demand management. It also includes goals and
policies to promote energy efficiency, waste reduction, and resource conservation and
July 14, 2020 Item #17 Page 6 of 128
1: INTRODUCTION
recycling. These strategies, goals, and policies would result in GHG reduction compared to
baseline trends.
CAP
The CAP includes goals, policies, and actions for Carlsbad to reduce GHG emissions and
combat climate change and includes:
An inventory of Carlsbad’s citywide and local government GHG emissions;
Forecasts of future citywide and local government GHG emissions;
A comprehensive, citywide strategy and actions to manage and reduce GHG emissions,
with emission targets through 2035; and
Actions that demonstrate Carlsbad’s commitment to achieve state GHG reduction targets
by creating enforceable measures, and monitoring and reporting processes to ensure
targets are met.
The timeframe for the Plan extends from the date of adoption through 2035.
1.2 Climate Change and Greenhouse Gases Overview
Greenhouse Effect and GHGs
Gases that trap heat in the atmosphere are often called “greenhouse gases” (GHGs). The
greenhouse effect traps heat in the troposphere through a threefold process as follows: Short-
wave radiation emitted by the sun is absorbed by the earth; the earth emits a portion of this
energy in the form of long-wave radiation; and GHGs in the upper atmosphere absorb this
long-wave radiation, emitting some of it into space and the rest back toward the earth. This
“trapping” of the long-wave (thermal) radiation emitted back toward the earth is the underlying
process of the greenhouse effect (Figure 1-1).
Principal GHGs include carbon dioxide (CO2), methane (CH4), nitrous oxide (N2O), ozone
(O3), and water vapor (H2O). Some GHGs, such as CO2, CH4, and N2O, occur naturally and
are emitted to the atmosphere through natural processes and human activities. Since different
gases contribute to the greenhouse effect in different proportions, the term CO2e (carbon
dioxide equivalent) provides the reference frame based on comparison to CO2’s contribution.
The greenhouse effect is a natural process that contributes to regulating the earth’s temperature.
Without it, the temperature of the earth would be about 0°F (−18°C) instead of its present 57°F
(14°C) and unlikely to support human life in its current form.
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Figure 1-1: Greenhouse Gas Effect
(Source: NYS Department of Environmental Conservation, http://www.dec.ny.gov/energy/76533.html)
Carbon Cycle and Global Temperatures
The global carbon cycle is complex and incorporates natural sources of atmospheric carbon
dioxide, including respiration of aerobic organisms, wildfires, and volcanic outgassing, and
sinks such the removal of CO2 from by land plants for photosynthesis, and absorption by the
ocean. Data collected on global GHG concentrations over the past 800,000 years demonstrates
that the concentration of CO2, the principal GHG, has increased dramatically since pre-
industrial times, from approximately below 300 parts per million (ppm) in 1800, to about 353
ppm in 1990, 379 ppm in 2005, and 399 ppm in early 2013407 in 2018.1
Increased atmospheric concentrations of GHGs have led to a rise in average global
temperatures. Figure 1-2 shows the increase in global temperatures from 1880 to 20112019.
While average global temperatures fluctuate on a yearly basis, the general trend shows a long-
term temperature increase. Nine All of the ten warmest years since 1880 have occurred since
the year 2000, and scientists expect the long-term temperature increase to continue as well.
The consensus among climate scientists is that earth’s climate system is unequivocally
1 Source: NOAA “Trends in Atmospheric Carbon Dioxide,”Climate.gov
http://www.esrl.noaa.gov/gmd/ccgg/trends/climate.gov
July 14, 2020 Item #17 Page 8 of 128
1: INTRODUCTION
warming, and rigorous scientific research demonstrates that anthropogenic2 greenhouse gases
are the primary driver.
Figure 1-2: History of global surface temperature since 1880Change in Average
Global Temperatures
(Source: N
Source: NOAA Climate.gov, http://www.climate.govASA Headquarters Release No. 12-020, http://www.nasa.gov/topics/earth/features/2011-temps.html)
2 Caused by human activities
July 14, 2020 Item #17 Page 9 of 128
Climate Change
Global climate change concerns are focused on the potential effects of climate change resulting
from excessive GHGs in the atmosphere and how communities can mitigate effects and adapt
to change in the short and long term.
Numerous observations document the impacts of global climate change, including increases in
global average air and ocean temperatures, the widespread melting of snow and ice, more
intense heat waves, and rising global average sea level. Scientists have high confidence that
global temperatures will continue to rise in the foreseeable future, largely due to anthropogenic
GHG emissions. In addition to the physical impacts to the environment from increased
temperatures, sea level rise, and more frequent extreme weather events, global climate change
is predicted to continue to cause ecological and social impacts. Ecological impacts of climate
change include greater risk of extinction of species, loss of species diversity, and alteration of
global biogeochemical cycles, which play an essential role in nutrient distribution. The social
impacts of climate change include impacts on agriculture, fisheries, energy, water resources,
forestry, construction, insurance, financial services, tourism and recreation.
According to the International Panel on Climate Change (IPCC) in North America, the regional
impacts of climate change are a forecast of decreased snowpack in the western mountains, a 5
to 20 percent decrease in the yields of rain-fed agriculture in some regions, and increased
frequency, intensity and duration of heat waves in cities that currently experience them.
In California, the Climate Action Team (CAT)—a group of state agency secretaries and the
heads of agency, boards and departments, led by the Secretary of the California Environmental
Protection Agency—synthesized current research on the environmental and economic impacts
of climate change. The CAT found that climate changes are poised to affect virtually every
sector of the state’s economy and most ecosystems. Key findings of the CAT include predicted
decreases in water supply that could cause revenue losses of up to $3 billion in the agricultural
sector by 2050, increases in statewide electricity demand of up to 55 percent by the end of the
century, increased wildfire risk that may cause monetary impacts of up to $2 billion by 2050,
and ecosystems impacts affecting California’s historic ranching culture and a source of local,
grass-fed beef.
Higher temperatures, changes in precipitation, decreased water supplies accompanied by
increased demand, increased risk of wildfire, a greater number of extremely hot days, the
decline or loss of plant and animal species, and other impacts of climate change are expected
to continue to affect Carlsbad. Climate change also has public health impacts. City residents
who are already more vulnerable to health challenges are likely to be the most affected by
climate change. These populations tend to be the young and the old, the poor, and those who
are already sick. Increases in extreme heat events can increase the risk of heat-related illness
or death, or the worsening of chronic health conditions. Food scarcity and higher food prices
from impacts to agriculture can cause increased hunger and reduced availability of nutrition.
The increased frequency of natural disasters such as floods, droughts, wildfires, and storm
surges can cause injury or death, illness, and increases or shifts in infectious diseases.
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1: INTRODUCTION
1.3 California GHG Reduction Legal Framework
California has taken an aggressive stance to reduce GHG emissions in order to combat the
impacts of climate change.
Governor’s Executive Order S-3-05
Executive Order S-3-05 (EO S-3-05) recognizes California’s vulnerability to increased
temperatures causing human health impacts, rising sea levels, and reduced Sierra snowpack
due to a changing climate. The Executive Order established targets to reduce GHG emissions
to 2000 levels by 2010, to 1990 levels by 2020, and to 80 percent below 1990 levels by 2050.
Global Warming Solutions Act of 2006 and CARB Scoping Plans
The Global Warming Solutions Act of 2006 (Assembly Bill 32, or AB 32) codifies the target
set in EO S-3-05 of statewide reductions to 1990 emissions levels by 2020. AB 32 directs the
California Air Resources Board (CARB) to develop and implement a scoping plan and
regulations to meet the 2020 target.
CARB approved the first Scoping Plan in 2008, which providesd guidance for local
communities to meet AB 32 and EO S-3-05 targets. The Scoping Plan adopted a quantified cap
on GHG emission representing 1990 emission levels, instituted a schedule to meet the emission
cap, and developed tracking, reporting, and enforcement tools to assist the State in meeting the
required GHG emission reductions. The Scoping Plan recommends that local governments
target 2020 emissions at 15 percent below 2005 levels to account for emissions growth since
1990, as proxy for 1990 emissions, since few localities know those levels.California is
currently on track to meet or exceed the AB 32 target of reducing GHG emissions to 1990
levels by 2020.
Executive Order B-3015 (EO B-30-15) established a new GHG emissions reduction target of
40 percent below 1990 levels by 2030 and directed CARB to update the Scoping Plan. In
September 2016, Senate Bill 32 (SB 32) was signed into law and codified EO B-30-15. In
November 2017, CARB published the 2017 Climate Change Scoping Plan, which offers the
framework for achieving the 2030 reductions set forth in EO B-30-15 and SB 32.
The Carlsbad CAP’s GHG emission targets are based on meeting the goals set in EO S-3-05
and AB 32.
1.4 Federal and State Emissions Reductions Strategies
and Standards
Several federal and state standards have been adopted to reduce GHG emissions, in addition to
and in support of the targets set in EO S-3-05 and AB 32.
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Federal Standards
The United States Environmental Protection Agency (EPA) regulates and tests gas mileage or
fuel economy in order to deter air pollution in the United States. As the transportation sector
produces approximately 30 percent of GHG emissions in the U.S. as a whole, fuel economy
regulations are an important way to reduce GHG emissions.3 The EPA’s Corporate Average
Fuel Economy (CAFE) standards require vehicle manufacturers to comply with the gas
mileage or fuel economy standards to reduce energy consumption by increasing the fuel
economy of cars and light trucks. The most recent CAFE GHG emissions standards were set
in 2012, which will increase the fuel economy to 54.5 miles per gallon average for cars and
light trucks by Model Year 2025, and reduce U.S. oil consumption by 12 billion barrels per
year. The EPA also imposes the Gas Guzzler Tax on manufacturers of new cars that do not
meet required fuel economy levels, to discourage the production and purchase of fuel-
inefficient vehicles. Also, in 2007, the U.S. Supreme Court ruled that CO2 is an air pollutant
under the Federal Clean Air Act, confirming that the EPA can regulate GHG emissions.
The EPA is taking further action to reduce GHG emissions in addition to setting fuel economy
standards. The EPA established a renewable fuel standard to include a minimum volume of
renewable fuel in 2013, which applies to all gasoline and diesel produced or imported. On
September 20, 2013, the EPA proposed the first national limits on the amount of carbon
pollution that new power plants will be allowed to emit. The EPA will propose standards for
existing power plants by June 1, 2014. The EPA also approved oil and natural gas air pollution
standards in 2013 to reduce pollution from the oil and natural gas industry.
State Standards
California Senate Bill 375
SB 375 (2008) requires each Metropolitan Planning Organization (MPO) in the state to adopt
a Regional Transportation Plan (RTP) aimed at achieving a coordinated and balance regional
transportation system, including mass transit, highways, railroads, bicycles, and pedestrians,
among other forms of transit. Each MPO is required to prepare a Sustainable Communities
Strategy (SCS) which sets forth forecast development patterns and describes the transportation
system that achieve the regional GHG emission reduction targets set by CARB.
CARB’s targets for San Diego County call for the region to reduce per capita emissions 7
percent by 2020 and 13 percent by 2035 based on a 2005 baseline. There are no mandated
targets beyond 2035. San Diego Association of Governments (SANDAG), the San Diego
County MPO, adopted its current RTP/SCS in October 2011. The SCS lays out how the region
will meet the CARB GHG targets to the year 2035. As the SCS is focused on passenger vehicle
emissions on a regional scale, it is considered separate from the reductions outlined in this
CAP.
3 In 2011, GHG emissions from transportation were about 28 percent of the total 6,702 million metric tons CO2
equivalents (Source: https://www.epa.gov/ghgemissions/sources-greenhouse-gas-
emissionshttp://www.epa.gov/climatechange/ghgemissions/sources/transportation.html)
July 14, 2020 Item #17 Page 12 of 128
1: INTRODUCTION
Senate Bill 1368
SB 1368 creates GHG emissions performance standards for baseload generation4 from
investor-owned utilities. The bill requires that any long-term financial investment in baseload
generation resources made on behalf of California customers must meet a performance
standard of producing below 1,000 lbs CO2 per MWh (megawatt-hour), approximately equal
to a combined-cycle natural gas plant.
Governor’s Executive Order S-1-07 (Low Carbon Fuel Standard)
Executive Order S-1-07, the Low Carbon Fuel Standard (LCFS), requires a reduction of at least
10 percent in the carbon intensity of California’s transportation fuels by 2020. The LCFS
requires oil refineries and distributors to ensure that the mix of fuel sold in California meets
this reduction. The reduction includes not only tailpipe emissions but also all other associated
emissions from the production distribution and use of transport fuels within the state.
Renewable Portfolio Standards
California’s Renewable Portfolio Standard (RPS), established in 2002 by the California State
Senate in Senate Bill 1078, accelerated in 2006 and expanded in 2011 through SB X1-2, is one
of the most ambitious renewable energy standards in the country. The RPS requires each
energy provider to supply electricity from eligible renewable energy resources to 33 percent of
the total supply by 2020. In 2015, SB 350 increased the RPS to 50 percent renewable by 2030
and a doubling of energy savings in electricity and natural gas customers. In 2018, SB 100
updated SB X1-2 and requires 100 percent of electric retail sales and 100 percent of electricity
procured to serve state agencies be carbon-free by 2045.
Pavley Fuel Economy Standards (AB 1493)
In 2009, CARB adopted amendments to the Pavley regulations to reduce GHG emissions in
new passenger vehicles from 2009 to 2016. The standards became the model for the updated
federal CAFE standards.
Title 24 Building Standards & CALGreen
Title 24 is California’s Building Energy Code, which is updated every three years. In 2010,
Title 24 was updated to include the “California Green Building Standards Code,” referred to
as CALGreen. CALGreen requires that new buildings reduce water consumption, increase
system efficiencies, divert construction waste from landfills, and install low pollutant-emitting
finish materials. CALGreen has mandatory measures that apply to nonresidential and
residential construction. The most recent CALGreen code was adopted in 20139 and became
effective in 201420. CALGreen contains voluntary Tier 1 and Tier 2 levels, which are designed
to exceed energy efficiency and other standards by 15 percent or 30 percent.
4 Baseload generation is the minimum amount of power that a utility must make available to customers to meet minimum
demands based on customer usage.
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1.5 Planning Process
How This Plan Was Prepared
The CAP reflects the city’s commitment to the Core Values presented in the General Plan, and
links the elements of the plan—including Sustainability; Open Space and the Natural
Environment; Access to Recreation and Active, Health Lifestyles; Walking, Biking, Public
Transportation, and Connectivity; and Neighborhood Revitalization, Community Design, and
Livability—with the goal of GHG reduction. The original CAP was prepared in 2013 by City
staff and consultants, with input from the public.
On August 22, 2013 the City of Carlsbad hosted a Community Workshop on the CAP. The
workshop provided an opportunity to present the citywide emissions inventory that had been
completed, and discuss potential emission reduction strategies. Feedback from the Community
Workshop was used to guide the preparation of this document.
Relationship to the California Environmental Quality Act
The California Environmental Quality Act (CEQA) is a statute that requires local agencies to
identify significant environmental impacts of their actions and avoid or mitigate those impacts,
if feasible. In 2007, California’s lawmakers enacted Senate Bill (SB) 97, which expressly
recognizes the need to analyze GHG emissions as part of the CEQA process. SB 97 required
the Governor’s Office of Planning and Research (OPR) to develop recommended amendments
to address GHG emissions as an environmental effect.
In 2010, OPR’s amendments to the CEQA guidelines addressing GHG emissions became
effective. Lead agencies are now obligated to describe, calculate or estimate the amount of
GHG emissions resulting from a project, by using a model or methodology to quantify GHG
emissions resulting from a project or relying on a qualitative analysis or performance
basedperformance-based standards. The lead agency should determine whether a project’s
GHG emissions significantly affect the environment by considering whether the project’s
emissions, as compared to the existing environmental setting, exceeds a threshold of
significance that the lead agency determines applies to the project, and the extent to which the
project complies with the regulations or requirements adopted to implement a statewide,
regional, or local plan for the reduction or mitigation of GHG emissions. In addition, the lead
agency is required to impose feasible mitigation to eliminate or substantially reduce significant
effects.
The CAP will help the city with compliance with CEQA Guidelines Section 15183.5(b):
Tiering and Streamlining the Analysis of Greenhouse Gas Emissions, which became effective
in 2010.5 The required elements of a CAP, as cited in the guidelines, state that a plan for the
reduction of GHG emissions should:
5 15183.5(b) of CEQA Guidelines states, “Plans for the Reduction of Greenhouse Gas Emissions. Public agencies may
choose to analyze and mitigate significant greenhouse gas emissions in a plan for the reduction of greenhouse gas emissions or similar document. A plan to reduce greenhouse gas emissions may be used in a cumulative impacts
analysis as set forth below. Pursuant to sections 15064(h)(3) and 15130(d), a lead agency may determine that a
July 14, 2020 Item #17 Page 14 of 128
1: INTRODUCTION
Quantify greenhouse gas emissions, both existing and projected over a specified time
period, resulting from activities within a defined geographic area;
Establish a level, based on substantial evidence, below which the contribution to
greenhouse gas emissions from activities covered by the plan would not be cumulatively
considerable;
Identify and analyze the greenhouse gas emissions resulting from specific actions or
categories of actions anticipated within the geographic area;
Specify measures or a group of measures, including performance standards, that
substantial evidence demonstrates, if implemented on a project-by-project basis, would
collectively achieve the specified emissions level;
Establish a mechanism to monitor the plan’s progress toward achieving the level and to
require amendment if the plan is not achieving specified levels;
Be adopted in a public process following environmental review.
The CAP is intended to fulfill these requirements. The CAP also contains a Project Review
Checklist, which allows for streamlined review of GHG emissions for projects that demonstrate
consistency with the CAP, as described in CEQA Guidelines Section 15183.5(b).
Relationship to General Plan and Future Projects
Carlsbad’s approach to addressing GHG emissions within the General Plan is parallel to the
climate change planning process followed by numerous California jurisdictions. A General
Plan is a project under CEQA, and projects under CEQA are required to estimate CO2 and other
GHG emissions, as described above. According to the Attorney General, “in the context of a
general plan update, relevant emissions include those from government operations, as well as
from the local community as a whole. Emissions sources include, for example, transportation,
industrial facilities and equipment, residential and commercial development, agriculture, and
land conversion.” The CAP is designed to provide discrete actions to operationalize the General
Plan policies that help with GHG reduction, as well as outline additional actions to help meet
GHG reduction targets. The preparation of a CAP is also consistent with CEQA Guidelines
Section 15183.5 that allows jurisdictions to analyze and mitigate the significant effects of GHG
at a programmatic level, by adopting a plan to reduce GHG emissions.
Project-specific environmental documents prepared for projects consistent with the General
Plan may rely on the programmatic analysis contained in the CAP and the EIR certified for the
Carlsbad General Plan. The thresholds presented in Section 5.3 present a clear method for
determining the significance of GHG emissions for future projects.
project’s incremental contribution to a cumulative effect is not cumulatively considerable if the project complies with
the requirements in a previously adopted plan or mitigation program under specified circumstances.”
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1.6 How to Use This Plan
The CAP is intended to be a tool for policy makers, community members and others to guide
the implementation of actions that limit Carlsbad’s GHG emissions. Ensuring that the
mitigation measures in the CAP translate from policy language to on-the-ground results is
critical to the success of the CAP. Chapter 5 describes how the city will review development
projects to achieve the GHG reduction measures in Chapter 4, consistent with state CEQA
Guidelines. This chapter also outlines how the city will monitor progress in reducing emissions,
and periodically revisit assumptions and key provisions of the plan.
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EXHIBIT 2
2-1
2
Emissions Inventory
This chapter identifies the major sources and the overall magnitude of greenhouse gas (GHG)
emissions in Carlsbad, pursuant to Sections 15183.5(b)(1)(A) and 15183.5(b)(1)(C) of the state
CEQA Guidelines. The City of Carlsbad prepared an inventory of 2005 for communitywide
GHG emissions in 2012, 2014 and 2016, the latter of which was provided through the San
Diego Association of Government’s (SANDAG) Regional Climate Action Planning (ReCAP)
program. The city also prepared a 2005 and 2011 inventory of, including emissions from
government operations, in 2008. As part of the Climate Action Plan (CAP) preparation effort,
this inventory was updated to 2011 to provide a more current measure of emissions, and is
summarized in this chapter. Appendix B-1 provides the 2005 communitywide inventoriesy and
2011 update in detail and Appendix B-2 contains the government operations inventories, both
of, which areis summarized in Section 2.2 and 2.3 in this chapter, respectively.
The inventory follows the standards developed by the International Council for Local
Environmental Initiatives (ICLEI) for community and government operations GHG
inventories. The inventory methodology is described first, followed by the inputs, and results.
2.1 Methodology
The community inventoriesy covers all direct GHG emissions6 from sources within the
boundaries of the City of Carlsbad, including fuel combusted in the community and direct
emissions from landfills within the community. Indirect emissions associated with the
consumption of energy (such as electricity, with no end point emissions) that is generated
outside the borders of the city are also included. The U.S Community Protocol for Accounting
and Reporting of Greenhouse Gas Emissions (U.S. Community Protocol), published by ICLEI
USA, requires a minimum of five basic emissions-generating activities to be included in
Protocol-compliance community-scale inventories. The emissions from off-road transportation
(e.g. lawn and garden, construction and industrial equipment) are considered in the inventories.
The community inventory tallies emissions from six seven emissions-generating activities
included in the community inventories are:
6 GHGs considered in the report are carbon dioxide (CO2), methane (CH4), nitrous oxide (N2O), and hydrofluorocarbons.
The emissions have been converted to carbon dioxide equivalents (CO2e), which converts the three other GHGs into
the equivalent volume of carbon dioxide.
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2: EMISSIONS INVENTORY
sectors:
On-Road TransportationResidential;
ElectricityCommercial;
Natural GasIndustrial;
Solid WasteTransportation;
Off-Road Transportation;
WaterSolid waste; and
Wastewater.
As the city has much greater ability to influence its own operations, the government operations
inventory is presented separately, and covers direct emissions from sources the City of
Carlsbad owns and/or controls. This includes mobile combustion of fuel for city vehicles and
the use of natural gas to heat city buildings. Indirect emissions associated with the consumption
of electricity, steam, heating or cooling for city operations that are purchased from an outside
utility are also included. All other indirect emissions sources, including employee commutes
and the decomposition of government-generated solid waste, are not included as part of the
local government operations, but rather counted in the community inventory. The government
operations inventory covers emissions from the following sectors:
Buildings and Facilities;
Vehicle Fleet;
Public Lighting; and
Water and Wastewater Transport within city borders
ICLEI’s CACP7 model is used to estimate emissions from residential, commercial, and
industrial consumption of energy and solid waste disposal. The California Air Resource
Board’s (CARB’s) EMFAC8 models were used to calculate transportation emissions, and other
sources were used for solid waste and wastewater sectors.
The majority of emissions are calculated using activity data and emissions factors. Activity
data refers to a measurement of energy use or another GHG-generation process, such as
residential electricity use, or vehicle miles traveled. Emissions factors are used to convert
activity data to emissions, and are usually expressed as emissions per unit of activity data (e.g.
metric tons carbon dioxide [CO2] per kilowatt hour of electricity). To estimate emissions, the
following basic equation is used:
[Activity Data] x [Emissions Factor] = Emissions
7 Clean Air and Climate Protection (CACP) is a model developed by ICLEI to inventory and forecast GHG emissions.
The 2011 update utilized the CACP 2009 Version 3.0 software.
8 The Emissions Factors (EMFAC) model was developed by CARB to measure various emissions from vehicles. There
are multiple versions of EMFAC which focus on different vehicle types.
July 14, 2020 Item #17 Page 18 of 128
As an example, multiplying the total amount of residential electricity use (activity data,
expressed in kilowatt-hours) by the emissions factor (expressed as CO2e emissions per
kilowatt-hour) produces the emissions in CO2e from residential energy use. The following
section describes the inputs for the community inventory based on activity data (or usage).
Table 2-1 below describes data sources for estimating activities and emissions factors.
TABLE 2-1: DATA SOURCES FOR ACTIVITIES AND EMISSIONS FACTORS IN
COMMUNITY INVENTORIES
Category Category Detail Data Source
On-Road
Transportation
Activity
Disaggregated vehicle miles traveled (VMT) using the
origin-destination method provided by SANDAG
using Activity Based Model
Emission factor
San Diego region emission factor by vehicle class
from latest approved California Air Resources Board
(CARB) EMFAC model converted to average vehicle
emission factor using VMT distribution by vehicle
class
Electricity
Activity Data from SDG&E based on customer class and
customer type, rate schedule and service provider
Emission factor
Weighted average emission factor based on SDG&E
procurement from each fuel type at each facility and
emission factor of electricity generation at each facility
Natural Gas
Activity Data from SDG&E based on customer class and
customer type, rate schedule and service provider
Emission factor Natural gas emission factor in California from CARB
statewide inventory
Solid Waste
Activity Waste disposal from CalRecycle
Emission factor
Based on waste composition study from similar
jurisdiction (Oceanside) and methane recovery factor
at landfills obtained from the landfill
Off-Road
Transportation
Activity CARB off-road model estimates for applicable San
Diego sub-categories, adjusted using scaling factors
for Carlsbad’s proportion of off-road activity. Emission factor
Water Activity
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2: EMISSIONS INVENTORY
Emission factor Jurisdiction-specific water use and energy intensity
from the supply agency
Wastewater
Activity Jurisdiction-specific wastewater generation and
emission factor based on treatment process from
agency Emission factor
Source: ReCAP Technical Appendix I
Certain emissions that occur in the city are not counted in the community inventory. For
example, during the community workshop on the CAP some participants questioned why
emissions related to the Encina Power Plant are not included in Carlsbad’s GHG inventory.
The reason is as follows: embodied emissions, such as those resulting from power generation
that is produced locally but distributed regionally, are not covered in Carlsbad’s inventory, in
accordance with ICLEI standards. These emissions are included at the points where energy is
consumed (some of which are in Carlsbad) rather than where it is simply produced—otherwise
emissions would either be double counted, or if only counted at the production source,
electricity consumption (which is the second largest contributor to GHG) in climate action
planning would be meaningless. Similarly, for water consumed in Carlsbad, emissions
associated with its transport from Northern California and Colorado are counted in Carlsbad’s
inventory, rather than elsewhere.
The Carlsbad Desalination Plant, which will begin operations in 2016, would therefore not
contribute emissions to the 2011 GHG inventory. The emissions forecast (Chapter 3) uses a
regional average for water consumption emissions, which accounts for the effect of the
desalination plant. In general, including these large regional facilities would effectively add
GHGs from consumption of services outside of Carlsbad to the city’s emission totals.
The McClellan-Palomar airport is county owned and operated, and is outside of the city’s
jurisdiction. The city has little, if any, influence over airport operations, and emissions
associated with airport flight operations are excluded because they occur in a regional context.
For transportation trips that originate or end in Carlsbad, emissions for half of the entire trip
are included, and not just for the miles traveled within Carlsbad; however, trips that just pass
through Carlsbad are excluded, as their emissions would be reflected at their trip ends.9
Furthermore, although pass-through trips contribute a substantial amount to VMT totals, the
city and Carlsbad community has limited ability to influence them.
9 For example, for a trip that begins in downtown San Diego and ends in Carlsbad, the entire trip length is calculated for
that trip. Half of the entire trip length is assigned to Carlsbad, and the other half is assigned to the City of San Diego.
Using half the trip length is standard SANDAG methodology for assigning regional VMT to a particular city.
July 14, 2020 Item #17 Page 20 of 128
2.2 2012 Baseline Community GHG Inventory
Residential, Commercial, and Industrial (RCI) Electricity and
Natural Gas UsageGHG Emissions By Category
The inputs for the CACP model for the residential, commercial and industrial (RCI) sectors are
electricity and natural gas consumed. Table 2-1 shows RCI electricity and natural gas
consumption, and the total citywide consumption of electricity and natural gas. The
commercial sector has the largest electric consumption followed by residential and industrial.
The greatest natural gas consumption is from the residential sector, used for heating homes and
water, followed by commercial and industrial sectors. As discussed in Section 2.1, a GHG
inventory describes the emissions in various categories for a given calendar year. Some of the
inputs, such as electricity and natural gas, are based directly on consumption data. Others, such
as on-road transportation, are based upon model outputs. In order to determine a community’s
GHG emissions reduction targets, and its consistency with state reduction targets, a baseline
GHG inventory is needed. The City of Carlsbad is using the 2012 community GHG inventory
as its baseline for the purpose of deriving GHG reduction targets. A detailed description of the
community GHG inventory, including methods and inputs, is contained in Appendix B-1.
TABLE 2.2 – 2012 COMMUNITY GHG EMISSIONS
Emissions Category GHG Emissions
(MTCO2e)
Percentage of Total
Emissions (%)
On-Road Transportation 488,000 49.9
Electricity 301,000 30.8
Natural Gas 134,000 13.7
Solid Waste 25,000 2.5
Off-Road Transportation 14,000 1.4
Water 12,000 1.2
Wastewater 3,000 <1
Total 977,000 100
July 14, 2020 Item #17 Page 21 of 128
2: EMISSIONS INVENTORY
TABLE 2-1: RESIDENTIAL, COMMERCIAL AND INDUSTRIAL (RCI) INPUTS; 2011
Inputs
Residential Electric (kWh) 275,033,189
Natural Gas (therms) 15,769,481
Commercial Electric (kWh) 411,249,580
Natural Gas (therms) 7,844,336
Industrial Electric (kWh) 116,341,521
Natural Gas (therms) 1,536,470
Total by Source
Electricity (kWh) 802,624,290
Natural Gas (therms) 23,613,817
Source: SDG&E, 2013
Differing emissions based on the source of electricity, either bundled or direct access
electricity, were taken into account. Bundled electricity is produced for SDG&E and
transmitted by SDG&E. Direct access electricity is produced elsewhere in the region but
ultimately transmitted to the consumer by SDG&E. Natural gas produces CO2e regardless of
source.
Transportation
Transportation emissions are based on vehicle miles traveled (VMT) for vehicles and off-road
equipment. GIS-based 2011 VMT data from SANDAG for all roadways was used. All
roadways including the zone connectors were used. The SANDAG data is reported as daily
weekday VMT. This was converted to annual VMT by multiplying it by 347, as recommended
by CARB.10 The total annual VMT in 2011 was 510,973,969 vehicle miles traveled.
CARB’s latest model, EMFAC2011, is made up of three modules: -SG, -LDV, and –HD. The
SG module covers all vehicle types, while LDV calculates light duty vehicles and HD
calculates heavy duty vehicles. Appendix B provides a more detailed explanation of how CO2e
were calculated using each module. As inputs, emissions from local roadway VMT and
freeway VMT were determined separately.
Off-road emissions in Carlsbad include lawn and garden equipment, construction equipment,
industrial equipment, and light commercial equipment. While CARB’s OFFROAD2007 model
generates emission outputs for 16 categories across San Diego County, only the off-road
emissions listed above are included, as they generate the most emissions in Carlsbad in this
category. The CO2, N2O, and CH4 emissions were calculated in short tons per day for the
county. These emissions were then pro-rated by the city’s share of the county population,
multiplied by 365 days, and converted to metric tons.
10 CARB recommends that 347 be used instead of 365 to convert from average daily VMT to annual VMT to account for
less travel on weekends.
July 14, 2020 Item #17 Page 22 of 128
Solid Waste
The default values in the CACP were used for solid waste emissions. For methane emissions
from the one landfill in the city limits—the closed Palomar Airport Landfill—the same data
from the 2005 community inventory was used, as it was unlikely to have changed substantially,
if at all.11
For emissions from solid waste disposed of in Carlsbad and taken to landfills elsewhere, 2011
data for Carlsbad was obtained from CalRecycle. The composition of waste was estimated
from the latest such survey, the 2008 CalRecycle Statewide Waste Characterization Study,
which has averages for the southern region of California. The amount of average daily cover,
which is made of plant debris, was also entered.
Wastewater Treatment
Emissions from methane and nitrous oxide generated in the process of wastewater treatment
were determined using the University of San Diego’s EPIC (Energy Policy Initiatives Center)
model. The EPIC estimate of GHG emissions from countywide wastewater treatment was used
and pro-rated to Carlsbad’s share of the county population.
Total Community Emissions
The total community GHG emissions were 705,744 MTCO2e in 2011. Table 2-2 summarizes
the sources and quantities of community emissions, and Figure 2-1 shows the emissions
graphically by sector. The largest sector is transportation, at 39 percent, followed by
commercial and industrial (32 percent), residential (25 percent), solid waste (3 percent) and
wastewater (1 percent).
11 In November 2014, city staff contacted the County of San Diego Public Works Department in response to a comment
on the draft CAP. County staff reported that for 2011, it calculated GHG emissions from Palomar landfill at 6,703
MTCO2e. Although it is unknown why the reported figure is higher than the assumed figure for the city’s GHG inventory update, County staff did note that their GHG calculation methodology had changed in 2010. The difference
in the County’s calculations of GHG emissions from Palomar landfill does not have a material effect on the
assumptions, conclusions, or recommendations of this CAP.
July 14, 2020 Item #17 Page 23 of 128
2: EMISSIONS INVENTORY
Figure 2-1: 20112 Community GHG Emissions by Sector Category (MTCO2e)
On-Road Transportation
Electricity
Natural Gas
Solid Waste
Off-Road Transportation
Water
Wastewater
July 14, 2020 Item #17 Page 24 of 128
TABLE 2-2: 2011 COMMUNITY GHG EMISSIONS (MTCO2E)
Sector Subsector Emissions
Residential
Bundled Electricity 92,500
Bundled Natural Gas 83,698
Direct Access Electricity 81
Direct Access Natural Gas 126
Total Residential 176,405
Commercial
Bundled Electricity 125,314
Bundled Natural Gas 37,731
Direct Access Electricity 11,701
Direct Access Natural Gas 3,966
Total Commercial 178,712
Industrial
Bundled Electricity 29,329
Bundled Natural Gas -
Direct Access Electricity 8,765
Direct Access Natural Gas 8,154
Total Industrial 46,248
Transportation
On-Road Total 239,467
Lawn and Garden Equipment 2,449
Construction Equipment 23,830
Industrial Equipment 4,943
Light Commercial Equipment 3,056
Off-Road Subtotal 34,279
Total Transportation 273,745
Solid Waste
Community-generated solid waste 21,719
Landfill Waste-in-Place 2,598
Total Solid Waste 24,317
Wastewater
Total Community-generated
Wastewater 6,317
GRAND TOTAL 705,744
Figure 2-2 shows the emission by source for the three largest sectors: residential, commercial
and industrial, and transportation. The largest individual sources are on-road transportation,
bundled commercial and industrial electricity, and bundled residential electricity.
July 14, 2020 Item #17 Page 25 of 128
2: EMISSIONS INVENTORY
Figure 2-2: 2011 Community GHG Emissions by Source for Three Largest
Sectors (MTCO2e)
Emissions By Source
Electricity
Electricity emissions account for 38 percent of the total emissions. Table 2-3 and Figure 2-3
show electricity use by sector—commercial sector consumes more than half of all electricity
in Carlsbad, followed by residential sector, which accounts for just over a third of total
electricity use.
TABLE 2-3: ELECTRICITY EMISSIONS BY SECTOR (MTCO2e)
Sector 2011 Emissions
Residential 92,581
Commercial 137,015
Industrial 38,093
Figure 2-3: Electricity Emissions by Sector
35%
51%
14%
Residential
Commercial
Industrial
July 14, 2020 Item #17 Page 26 of 128
Natural Gas
Natural gas use accounts for 19 percent of total emissions in Carlsbad. The residential sector
accounts for 63 percent of natural gas use, while the commercial sector accounts for 31 percent.
Table 2-4 and Figure 2-4 show natural gas use emissions by sector.
TABLE 2-4: NATURAL GAS EMISSIONS BY
SECTOR (MTCO2e)
Sector 2011 Emissions
Residential 83,824
Commercial 41,697
Industrial 8,154
Figure 2-4: Natural Gas Emissions by Sector
Change Between 2005 and 2011 Community Emissions
Total community emissions in 2005 were 630,310 MTCO2e compared with 705,744 in 2011.
The increase in total GHG emissions of 12 percent in the period parallels the population and
jobs increase, as well as the service population increase (the number of residents plus number
of jobs). While total GHG emissions have increased, emissions per service population
(population plus workers) have held steady since 2005. Table 2-5 summarizes these changes.
63%
31%
6%
Residential
Commercial
Industrial
July 14, 2020 Item #17 Page 27 of 128
2: EMISSIONS INVENTORY
TABLE 2-5: POPULATION AND JOBS, 2005 AND 2011
2005 2011 % Change
Carlsbad Populationa, b 94,961 106,403 12.0%
Carlsbad - # of Jobsc 59,309 66,417 12.0%
Carlsbad – Service Populationd 154,270 172,820 12.0%
GHG Emissions (MTCO2e) 630,310 705,744 12.0%
Emissions per Service Population 4.09 4.08 -0.1%
a. 2011 population from the California Department of Finance, Table E-5.
b. The 2005 Inventory used different populations for the community and local government analyses. This is the
population used for the community inventory.
c. Numbers from SANDAG.
d. The service population is the total number of residents plus workers
Table 2-6 shows the source of growth in emissions. The largest increase in emissions came
from commercial electricity usage (37% of increase), followed by residential electricity usage
(29%). All other emissions increased at a slower pace than the rate of population growth, with
emissions from residential natural gas consumption increasing by 9 percent, and all other
sources increasing by 5 percent, or decreasing, in the case of roadway emissions.
For electricity, the increase was largely caused by the increase (35%) in the CO2 generated by
SDG&E electricity since 2005. For example, residential electricity consumption increased by
10 percent but emissions from that source increased by 29 percent. Commercial electricity
consumption went up by 8 percent while related emissions increased by 37 percent—an even
higher increase as some commercial customers in the greater San Diego region switched from
cleaner direct access electricity to sources producing more CO2.
TABLE 2-6: SOURCES OF GROWTH IN GHG EMISSIONS (METRIC TONS CO2E)
Source 2005 CO2e 2011 CO2e Growth % of Growth
Commercial-Electric 98,352 137,015 38,663 37%
Residential-Electric 62,290 92,581 30,291 29%
Residential-NG 74,137 83,824 9,688 9%
Roads 260,467 239,467 -21,000 -8%
Industrial-Electric 32,417 38,093 5,676 5%
Commercial-NG 36,259 41,697 5,438 5%
Off Road 28,963 34,279 5,315 5%
Industrial-NG 3,013 8,154 5,141 5%
Wastewater 4,397 6,317 1,920 2%
Solid Waste 30,015 24,317 -5,698 -5%
TOTAL 630,310 705,744 75,434
July 14, 2020 Item #17 Page 28 of 128
Table 2-7 shows the sources of emissions, ordered by volume of overall contribution. The
largest contributor continues to be transportation, but that has declined in proportion as
emissions from building energy consumption have grown faster. These sources—roadway
VMT, off-road vehicles, and private electricity and natural gas consumption—account for 96
percent of Carlsbad’s communitywide GHG emissions.
TABLE 2-7: GREENHOUSE GAS EMISSIONS SUMMARY BY SECTOR (METRIC TONS
CO2E)
Sector 2005 % of Total 2011 % of Total
Transportation 289,431 46% 273,745 39%
Commercial / Industrial 170,041 27% 224,960 32%
Residential 136,427 22% 176,405 25%
Solid Waste 30,015 5% 24,317 3%
Wastewater 4,397 1% 6,317 1%
TOTAL 630,310 705,744
2.3 Government Operations Inventory
Government operations represent a small portion (1.2%; see end of this section) of the
communitywide GHG emissions. However, more detailed information is available to
characterize GHG emissions by source and sector. The city has the ability to directly influence
emissions from government operations, and can provide community leadership in reducing
GHG emissions. As described before, the four sectors included in the government operations
inventory are buildings and facilities, vehicle fleet, public lighting, and water and wastewater
transport.
Buildings and Facilities
The inputs for this sector are electricity and natural gas. Data was entered by individual facility
along with departmental information. Table 2-8 lists all of the buildings and facilities operated
by the city and electricity and natural gas inputs.
TABLE 2-38: BUILDINGS AND FACILITIES INPUTS; 2011
Department Building Electricity
(kWh)
Natural gas
(therms)
City City Administration 1,203,726 1,738
City City Hall 233,680 5,313
City Farmers Insurance Bldgs 112,057 -
City Hawthorne Equipment Bldg 10,040 -
City Total 1,559,503 7,051
Community Development Hiring Center 6,972 -
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2: EMISSIONS INVENTORY
TABLE 2-38: BUILDINGS AND FACILITIES INPUTS; 2011
Department Building Electricity
(kWh)
Natural gas
(therms)
Community Development Las Palmas 55,570 -
Community Development Total 62,542
Fire Fire Station No. 1 63,600 1,358
Fire Fire Station No. 2 32,643 1,069
Fire Fire Station No. 3 33,972 675
Fire Fire Station No. 4 28,867 1,062
Fire Fire Station No. 5 98,720 2,061
Fire Fire Station No. 6 55,180 1,464
Fire Total 312,982 7,689
Golf Course The Crossings 1,056,015 18,019
Library Cole Library 430,160 2,119
Library Cultural Arts Department 14,444 321
Library Dove Library 1,432,492 11,200
Library Library Learning Center 192,000 421
Library Total 2,069,096 14,061
PD/Fire Safety Center 988,001 19,816
Public Works City Yard 88,335 729
Public Works CMWD M&O 189,440 86
Public Works Fleet Yard 72,320 456
Public Works Parks Maintenance 39,694 149
Public Works Total 389,789 1,420
Recreation Calavera Community Center 54,970 -
Recreation Carrillo Ranch 58,080 -
Recreation Harding Community Center 60,120 952
Recreation Parks Total 914,888 3,006
Recreation Senior Center 308,318 3,349
Recreation Stagecoach Community Center 195,920 1,424
Recreation Swim Complex 247,240 34,266
Recreation Trails 65,929 -
Recreation Total 1,905,465 42,997
Housing and Neighborhood Services 31,277 -
TOTAL 8,374,670 111,053
July 14, 2020 Item #17 Page 30 of 128
VEHICLE FLEET
The inputs for this sector are all vehicles used by the city. The key data used are fuel consumed
and VMT, broken out by model year, vehicle type, and fuel type. CACP uses fuel consumption
to calculate CO2 emissions and VMT to calculate NO2 and CH4 emissions.
Although the vehicle fleet data from the city was broken down by department, the inputs were
loaded into CACP as a single set for the entire city due to the time-consuming nature of
processing and entering this very detailed information.
Table 2-9 summarizes the inputs by vehicle and fuel type. Gasoline accounted for the largest
amount of fuel consumption (167,345 gallons) and greatest vehicle miles traveled (1,965,416
VMT).
TABLE 2-49: GOVERNMENT OPERATIONS VEHICLE FLEET INPUTS
2011
Fuel (gal) VMT
Diesel 62,407 407,826
Light Truck/SUV/Pickup 31,162 298,388
Heavy Truck 31,245 109,438
Gasoline 167,345 1,965,416
Light Truck/SUV/Pickup 76,663 938,733
Passenger Car 85,874 931,979
Motorcycle 1,787 74,024
Heavy Truck 3,021 20,680
Hybrid 3,581 137,096
Passenger Car 2,478 108,136
Light Truck/SUV/Pickup 1,103 28,960
For the analysis in CACP, motorcycle inputs were grouped under passenger cars and hybrid
fuel consumption was included with gasoline. Hybrid VMT was assumed at one-third of listed
mileage to account for the likely reality of most hybrid miles being under electric power during
low speed driving on local streets.
Public Lighting
This sector covers electricity consumed from three sources: traffic signals, streetlights, and
other outdoor lighting. As shown in Table 2-10, streetlights make up the great majority of
electricity consumption in this sector. Between 2005 and 2011, the city retrofitted its existing
streetlights with more energy-efficient lamps.
July 14, 2020 Item #17 Page 31 of 128
2: EMISSIONS INVENTORY
TABLE 2-510: PUBLIC LIGHTING INPUTS (KWH)
2011 % of Total
Streetlights 4,403,265 85%
Traffic Signals/Controllers 768,784 15%
Outdoor Lighting 17,740 <1%
TOTAL 5,189,789
Water and Wastewater Transport
This sector covers fuel consumed by pumps and other mechanisms used to convey water and
wastewater: water delivery pumps, sprinklers and irrigation, sewage pumps, and recycled water
pump stations. These systems all consumed electricity plus a small amount (170 gallons) of
diesel fuel for water delivery generators.
Table 2-11 shows the electricity consumed by the city’s water and wastewater transport
systems in 2011. The greatest electricity consumption is from sewage pumps (53 percent),
followed by recycle pump stations (34 percent), water delivery pumps (12 percent), and
sprinklers and irrigation (1 percent).
TABLE 2-611: WASTE AND WASTEWATER TRANSPORT
INPUTS (KWH)
2011 % of Total
Sewage Pumps 1,262,824 53%
Recycle Pump Stations 791,732 34%
Water Delivery Pumps 285,345 12%
Sprinklers/Irrigation 22,554 1%
TOTAL 2,362,455
Inventory Results
Emissions by Sector
Government operations in 2011 generated an estimated 8,205 metric tons CO2e in GHG
emissions, as shown in Table 2-12. Emissions for government operations mainly came from
buildings and facilities (42%) and the vehicle fleet (27%), followed by public lighting (21%)
and water and wastewater transportation (10%).
July 14, 2020 Item #17 Page 32 of 128
TABLE 2-712: GOVERNMENT OPERATIONS EMISSIONS
BY SECTOR (MTCO2e)
Source 2011 % of Total
Buildings and Facilities 3,410 42%
Vehicle Fleet 2,253 27%
Public Lighting 1,747 21%
Water and Wastewater Transport 795 10%
TOTAL 8,205
Emissions by Source
Most of the government operations emissions came from electricity consumption, accounting
for 65 percent of emissions, as shown in Table 2-13. Gasoline produced about 19 percent of
emissions, followed by diesel/propane (8 percent), natural gas (7 percent) and mobile
refrigerants (1 percent).
TABLE 2-813: EMISSIONS BY SOURCE (MTCO2e)
Source 2011 % of Total
Electricity 5,362 65.4%
Gasoline 1,538 18.7%
Diesel / Propane 641 7.8%
Natural Gas 590 7.2%
Mobile Refrigerants 74 0.9%
TOTAL 8,205
Comparison of 2011 Government Operations to 2012 Citywide
Emissions
Table 2-14 shows a comparison of the 2011 government operations to 2012 citywide
emissions. Government operations account for a very small portion of GHG emissions in 2011,
comprising about 1.2less than one percent of emissions.
TABLE 2-9: 2011 GOVERNMENT OPERATIONS EMISSIONS
VS 2012 COMMUNITY EMISSIONS (MTCO2e)
2011
Government operations emissions 8,205
Community emissions 705,744977,000
Government operations as proportion
of community emissions 1.20.8%
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July 14, 2020 Item #17 Page 34 of 128
EXHIBIT 2
3-1
3
Greenhouse Gas Reduction
Target, Forecasts, and
Emissions “Gap”
This chapter describes the greenhouse gas (GHG) reduction targets provided by state law,
provides a baseline forecast of community GHG emissions, and models forecasts of future
community and local government GHG emissions through 2035. The chapter also quantifies
GHG reductions from (1) state and federal actions and (2) the updated Draft General Plan
policies and actions, and applies these reductions to the community forecast. The emissions
“gap” between the forecasts (with GHG reductions) and the emissions targets is addressed by
the Climate Action Plan (CAP) GHG reduction strategies in Chapter 4.
3.1 GHG Reduction Target
Governor’s Executive Order S-3-05 and the Global Warming
Solutions Act of 2006 Statewide GHG Reduction Targets and
2017 CARB Scoping Plan
Executive Order S-3-05 (EO S-3-05) and the California Global Warming Solutions Act of 2006
(AB 32 and SB 32) provide the basis for the CAP’s GHG emissions targets. EO S-3-
05Collectively they commits California to reduce its GHG emissions to 1990 levels by 2020,
to 40 percent below 1990 by 2030, and to 80 percent below 1990 levels by 2050. AB 32
codifies the 2020 target and tasks CARB with developing a plan to achieve this target.
CARB first approved the Scoping Plan in 2008, which provides guidance for local
communities to meet AB 32 and EO S-3-05 targets. The Scoping Plan recommended “a
greenhouse gas reduction goal for local governments of 15 percent below today’s levels by
2020 to ensure that their communitywide emissions match the state’s reduction targets.12 s that
12 CARB 2008. Climate Change Scoping Plan. Pursuant to AB 32 the California Global Warming Solutions Act of 2006,
pg. ES-5.
July 14, 2020 Item #17 Page 35 of 128
3: GREENHOUSE GAS REDUCTION TARGET,
FORECASTS, AND EMISSIONS “GAP”
local governments target 2020 emissions at 15 percent below 2005 levels to account for
emissions growth since 1990, as proxy for 1990 emissions, since few localities know those
levels. The 2014 First Update to Scoping Plan repeated that emissions reduction target and
provided guidance for local governments to develop post-2020 GHG reduction targets. It stated
that “there is a need for local government climate action planning to adopt mid-term and long-
term reduction targets that are consistent with…the statewide goal of reducing emissions 80
below 1990 levels by 2050.”13
CARB’s 2017 Climate Change Scoping Plan recommended statewide targets of “no more than
six metric tons CO2e per capita by 2030 and no more than two metric tons CO2e per capita by
2050.”14 These goals are based upon the 2030 and 2050 goals of 40 percent and 80 percent
reductions below 1990 levels and the projected population for those years. Using the statewide
GHG inventories, percentage reductions can be derived for various baseline years
Total Carlsbad GHG emissions from the 2005 2012 inventory were 630,310977,000 metric
tons carbon dioxide equivalents (MTCO2e) per year. Therefore, the 2020 target under State
guidance is a 415 percent reduction from 2005 2012 emissions, which corresponds to a target
of 535,763939,000 MTCO2e. The 2030 target would be 42 percent below 2012 levels and the
2050 goal would be 81 percent below 2012 levels.
The long range 2050 target set by EO S-3-05 is an 80 percent reduction from 2020 emissions
target, which represents the level scientists believe is necessary to stabilize the climate. The
2050 target for Carlsbad is citywide emissions of 107,153 MTCO2e. This is a substantial
decrease in overall emissions, over 500,000 MTCO2e below baseline 2005 emissions levels.
While CARB’s Scoping Plan does not specifically set target levels for intermediate years
between 20202030 and 2050, the Scoping Plan recommends a linear progression in annual
GHG emissions reductions to meet the final targets.
The horizon year for this CAP is 2035, corresponding with the Draft General Plan horizon. The
CAP uses a linear trajectory in emissions reductions between 2020 2030 and 2050 to determine
the 2035, target. Table 3-1 summarizes these emissions targets and the percentage reduction
from 2005 2012 emissions. Figure 3-1 graphs the emissions targets, following a linear
trajectory, from 2020 to 2035. As can be seen, the baseline exceeds the 2020 reduction target
by 15 percent, and the 2035 target by 49 percent.
TABLE 3-1: 2005 2012 EMISSIONS AND EMISSIONS TARGETS
Year GHG Emissions and Targets Reduction From 20122005
Baseline
20052012 630,310977,000 MTCO2e N/A
2020 535,763939,000 MTCO2e 15 4 percent
2035 321,458472,000 MTCO2e 49 52 percent
13 CARB 2014. First Update to the Climate Change Scoping Plan. Building on the framework pursuant to AB 32 the
California Global Warming Solutions Act of 2006, pg. 113
14 CARB 2017. California’s 2017 Climate Change Scoping Plan. The strategy for achieving California’s 2030
greenhouse gas target, pg. 101.
July 14, 2020 Item #17 Page 36 of 128
Figure 3-1: 2005 Emissions and Emissions Targets
3.2 Business as Usual Forecast
The first step in projecting GHG emissions is to calculate the business as usual forecast (BAU).
The business as usual (BAU) forecast estimates community emissions through the year 2035,
based on the growth in emissions from the 2005 to 2011 citywide inventoryin the absence of
any new policies or programs. The BAU calculation relies upon the latest data available, as
well as the most recent projections for population, housing and job growth. The increase in
community emissions from 2005 to 2011 was linearly projected outward to the year 2035. The
BAU forecast simply assumes that emissions will increase in the future at the same growth rate
that occurred between the 2005 and 2011 citywide inventories. Thus, BAU emissions are
forecast to reach 1,007,473 MTCO2e in the year 2035. The BAU calculation typically
represents a linear extrapolation of the most recent data, holding other variables constant.
The BAU includes emissions projections in the following categories:
On-road Transportation
Electricity
Natural Gas
Solid Waste
0
100,000
200,000
300,000
400,000
500,000
600,000
700,000
800,000
900,000
1,000,000
1,100,000
2005 2010 2015 2020 2025 2030 2035MTCO2e EmissionsDate
Baseline
Targets (AB 32/EO S-3-05)
July 14, 2020 Item #17 Page 37 of 128
3: GREENHOUSE GAS REDUCTION TARGET,
FORECASTS, AND EMISSIONS “GAP”
Off-road Transportation
Water
Wastewater
Figure 3-2 shows the difference between emissions under the business as usual forecast and
the 2020 and 2035 emissions targets.
Figure 3-2: Business as Usual Forecast and Emissions Targets
3.3 Community Forecast with General Plan Land Use and
Circulation System
Methodology
The Series 14 Regional Growth Forecast included in the SANDAG 2019 Federal Regional
Transportation Plan was used to obtain the population and job growth in Carlsbad. As of March
0
100,000
200,000
300,000
400,000
500,000
600,000
700,000
800,000
900,000
1,000,000
1,100,000
2005 2010 2015 2020 2025 2030 2035MTCO2e Emissions
Date
Business as Usual
Targets (AB 32/EO S-3-05)
July 14, 2020 Item #17 Page 38 of 128
2020, SANDAG Series 14 Growth Forecast does not have a breakdown of the number of jobs
by employment type (e.g. construction, agriculture) for each jurisdiction. Therefore, the ratio
of the number of jobs by each employment type to total number of jobs from SANDAG Series
13 Growth Forecast were applied to the job forecast from Series 14. Table 3-2 shows the
population and job growth projections for 2020 and 2035.
TABLE 3-2: 2020 and 2035 POPULATION AND JOB GROWTH FORECAST
Year Population Commercial Jobs Industrial Jobs Total Jobs
2020 116,101 65,880 12,548 78,428
2035 119,798 74,039 14,103 88,142
Source: SANDAG 2013, 2019, Energy Policy Initiative Center, 2020
The Statewide Energy Efficiency Collaborative model (SEEC) is used to predict community
GHG emissions across all sectors to 2035. A product of the collaborative, this tool is based on
the International Council for Environmental Initiatives’ (ICLEI’s) Clean Air and Climate
Protection (CACP) model used to estimate the 2005 and 2011 emissions inventories. The
primary reason for using SEEC rather than CACP is that SEEC includes the effects of the
Renewable Portfolio Standard (RPS) and Pavley I Fuel Economy Standards, whereas CACP
requires manual adjustment to account for the state-mandated electrical production and fuel
efficiency improvements. Section 3.4 quantifies other state and federal actions that reduce
GHG emissions and incorporates these actions into the forecast.
The SEEC community forecast predicts all direct GHG emissions15 from sources within the
boundaries of the City of Carlsbad, including fuel combusted in the community16 and direct
emissions from landfills within the community. Indirect emissions associated with the
consumption of energy that is generated outside the borders of the city are also included. Other
indirect or embodied emissions are not covered in the forecast, in accordance with ICLEI
standards. The SEEC community forecast tallies emissions from seven sectors:
Residential
Commercial
Industrial
Transportation
Solid Waste
15 GHGs considered in the report are carbon dioxide (CO2), methane (CH4), nitrous oxide (N2O), and hydrofluorocarbons.
The emissions have been converted to carbon dioxide equivalents (CO2e), which converts the three other GHGs into
the equivalent volume of carbon dioxide.
16 This does not include the Encina Power Station, for reasons described in Chapter 2.
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Landfills17
Wastewater
The emissions projected in the SEEC community forecast use the activity data (or usage) from
the 2005 community inventory as an initial value, and the 2011 inventory to provide an
intermediate value to adjust the model. The predicted growth in each sector is then added into
the model to project future emissions. The following section describes how the predicted
growth in each section was determined.
Inputs
ResidentialOn-Road Transportation
Emissions related to on-road transportation are based upon the vehicle miles traveled (VMT)
and the average vehicle emission rate for the San Diego region. VMT is calculated using the
SANDAG Activity-Based Model and the Origin-Destination (O-D) method. 2035 VMT
projections are estimated from extrapolating SANDAG Series 14 2016 VMT data according
to service population. The service population is the sum of population and jobs, which is
projected to be 207,940 in 2035. With an average annual VMT of 1,231,554,425 miles, and an
average vehicle emission rate of 361 pounds of CO2e per mile, the projected 2020 emissions
from on-road transportation are 452,000 MTCO2e and 2035 emissions total 445,000 MTCO2e.
Electricity
Emissions projections from the residential electricity sector are from electricity and natural gas
demand. The growth in residential electricity and natural gas consumption was assumed to
scale with population growth, estimated at 0.9 percent per year thorough 2035, based on
General Plan buildout estimates. based upon the per capita electricity use on 2014 (2,159 kWh
per person per year) multiplied by the SANDAG Series 14 population forecast. The
commercial and industrial emissions projections are based upon per-job electricity
consumption on 2016 (6,936 kWh per commercial job per year and 10,126 kWh per industrial
job per year) multiplied by the SANDAG Series 13 job growth forecast. The projected 2020
emissions from electricity are 274,000 MTCO2e and 2035 emissions total 296,000 MTCO2e.
CommercialNatural Gas
The emissions projections for natural gas are calculated similar to those for electricity. Per
capita consumption for 2016 (118 therms per person per year, 151 therms per commercial job
per year, and 126 therms per industrial job per year) multiplied by population and job growth
forecasts. The projected 2020 emissions from natural gas are 137,000 MTCO2e and 2035 total
147,000 MTCO2e.
increase in commercial demand for electricity and natural gas was assumed to scale with the
General Plan employment forecasts to 2035 in the commercial sector by land use category:
17 The 2011 inventory considered landfill emissions as part of solid waste. The SEEC model separates out landfills from
solid waste as an emissions source, so the separation has been preserved in this chapter.
July 14, 2020 Item #17 Page 40 of 128
commercial, hotel, office, and other, including construction and transportation-related
employment. For 2010 to 2035, an annual growth of 1.1 percent was used.
IndustrialSolid Waste
The emissions from solid waste disposal are based upon the per capita disposed in 2016 (3.5
kilograms per person per day) multiplied by forecasted population growth. The projected 2020
emissions from solid waste are 36,000 MTCO2e and 2035 emissions total 37,000 MTCO2e.
growth rate in industrial electricity and natural gas demand was based on General Plan
employment forecasts to 2035 in the industrial sector. An annual growth rate of 0.8 percent
was used through 2035.
Off-Road Transportation—With General Plan Land Use and Circulation
System
The emissions from off-road transportation include four categories: lawn and garden
equipment, light commercial equipment, construction and mining, and industrial. Lawn and
garden equipment include sources such as lawn mowers, chainsaws and leaf blowers. Light
commercial equipment includes sources such as generators and pumps. The construction and
mining emissions sources include excavators, off highway tractors and paving equipment.
Industrial equipment sources include forklifts, aerial lifts and sweepers. These emissions are
derived from several models, such as OFFROAD2007 and RV2013, and the CARB In-Use
Off-Road Equipment 2011 Inventory. The projected 2020 emissions from off-road
transportation are 15,000 MTCO2e and 2035 emissions total 19,000 MTCO2e.
Transportation emissions are based on the emissions associated with VMT. The VMT
projections were taken from SANDAG GIS models of regional VMT projections clipped to
the city boundaries and adjusted to remove through trips, or trips that did not originate nor end
within city boundaries.18 The SANDAG data was reported as daily weekday VMT. This was
converted to annual VMT by multiplying it by 347, as recommended by CARB.19
The VMT forecasts incorporate GHG reductions from General Plan land use projections and
new roadway construction thorough 2035. These VMT forecasts reflect the General Plan land
use patterns, include the effects of compact and infill, mixed-use, and transit-oriented
development, and the protection of open space. New roadway construction includes the effects
of street extensions and citywide traffic signalization. The land use projections and new
roadway construction are described in detail in the General Plan.
The SEEC model automatically incorporates the effect of Pavley I Fuel Economy Standards.
Table 3-2 shows the citywide VMT for 2011 and projected VMT forecast, used to estimate
transportation emissions.
18 Excluding through trips removes much of the regional traffic through the Interstate 5 Freeway.
19 347 was used instead of 365 to average out the effect of a dip in traffic during the weekend.
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TABLE 3-2: 2011 VMT AND
PROJECTED 2020 AND 2035 VMT20
Year Vehicle Miles Traveled
2011 510,973,969
2020 560,972,562
2035 651,739,086
Solid Waste
Waste emissions from solid waste disposed of in Carlsbad and taken to landfills elsewhere,
was assumed to scale with population growth at 0.9 percent per year through 2035.
LandfillWater
The emissions from water are based upon the 2016 per capita water consumption (141 gallons
per person per day for potable water and 32 gallons per person per day for recycled water)
multiplied by forecasted population growth. The projected 2020 emissions from water are
9,000 MTCO2e and 2035 emissions total 9,000 MTCO2e.
Emissions from the landfill sector are an estimate of methane generation from the anaerobic
decomposition of all organic waste sent to a landfill. Within city boundaries, landfill emissions
are comprised of leaking methane from the closed Palomar Airport Landfill. Currently, most
of the methane generated at this capped landfill is captured. The EPA estimates 95 percent
methane capture rate for capped landfills and estimates that emissions follow a first-order
exponential decay. Therefore, baseline landfill emissions were estimated to decrease
exponentially over time, at a decay rate of 5 percent over 10 years to 2035, the largest allowed
percentage decrease in the model.
Wastewater
The emissions from wastewater are based upon the 2016 per capita wastewater generation (53
gallons per person per day) multiplied by forecasted population growth. The projected 2020
emissions from wastewater are 3,000 MTCO2e and 2035 emissions total 3,000 MTCO2e.
The Carlsbad Municipal Water District’s 2010 Urban Water Management Plan (UWMP) was
used to determine the growth in emissions from wastewater treatment.21 The demand for
20 VMT includes the effect of an additional 327 units above the growth cap in the Northwest Quadrant by 2035, as shown in the 2014 Draft General Plan. While the City Council will adjust housing sites or densities at adoption time so that
the development cap is not breached, the inclusion of these units in the CAP represents a conservative estimate that
leads to a slightly higher VMT (and corresponding GHG emissions) above levels anticipated under General Plan that
would be adopted.
21 Carlsbad Municipal Water District serves the majority of the city, with the exception of the southeast corner of the
City, which is served by Olivenhain Municipal Water District, and Vallecitos Water District. The changes in water
demand from the UWMP were assumed to be representative of the city as a whole for the purposes of the SEEC model.
July 14, 2020 Item #17 Page 42 of 128
wastewater treatment was assumed to scale with projected 2035 water deliveries listed in the
UWMP. The UWMP includes the effect of conservation policies. Table 3-3 shows water
deliveries and annual growth rates used in the forecast.
TABLE 3-3: PROJECTED UWMP WATER DELIVERY,
USED TO DETERMINE WASTEWATER EMISSIONS
Year Water Delivery (acre-feet
per year, all sectors)
Annual
Percentage
Growth
2005 19,759 -
2010 15,076 -5.3%
2020 20,529 3.1%
2030 21,147 0.3%
2035 22,122 0.9%
Source: 2010 Carlsbad Municipal Urban Water Management Plan
Results
Table 3-34 shows the emissions from the business-as-usualSEEC community forecast for each
sector—residential, commercial, industrial, transportation, solid waste, landfill, and
wastewater—and the sum total community emissions. The forecast includes the reduction from
RPS and Pavley I Fuel Economy Standards, which are quantified separately in Section 3.5,
below. The forecast also includes the effect of the General Plan land use and circulation system
on transportation emissions (compact, infill, mixed-use, and transit-oriented development,
open space protection, new traffic signals and roadway extensions). The Carlsbad General Plan
EIR quantifies the reduction in VMT due to the proposed General Plan in comparison to higher
VMT under the existing General Plan (the No Project alternative).
The greatest projected emissions continue to be from the on-road transportation sectorcategory,
which accounts for 48.91 percent of emissions in 2020 and 36 46.5 percent of emissions in
2035. Residential Electricity emissions are the next largest sectorcategory, with 29.66 percent
of emissions in 2020 and 28 just under 31 percent of the total in 2035. Commercial, industrial,
andEmissions from solid waste, off-road transportation, water and wastewater remain
relatively low compared to other categories., and landfill emissions are the next largest sectors
in order of total emissions.
TABLE 3-3: 2020 COMMUNITY FORECAST EMISSIONS BY CATEGORY
Emissions Category GHG Emissions
(MTCO2e)
Percentage of Total
Emissions (%)
On-Road Transportation 452,000 48.9
Electricity 274,000 29.6
Natural Gas 137,000 14.8
Solid Waste 36,000 3.9
Off-Road Transportation 15,000 1.6
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Water 9,000 <1
Wastewater 3,000 <1
TOTAL 926,000 100
TABLE 3-4: 2035 COMMUNITY FORECAST EMISSIONS BY CATEGORYBY
SECTOR, 2011, 2020, AND 2035 (MTCO2e)
SectorEmissions Category GHG Emissions
(MTCO2e)2035
Percentage of Total
Emissions (%)
ResidentialOn-Road Transportation 163,881445,000 46.5
CommercialElectricity 148,978296,000 30.9
IndustrialNatural Gas 35,249147,000 15.3
TransportationSolid Waste 210,56837,000 3.8
Solid WasteOff-Road Transportation 26,00219,000 1.9
LandfillWater 5589,000 <1
Wastewater 4,6013,000 <1
TOTAL 956,000 100
TOTAL
5
8
9
,
8
3
7
The BAU projections of 926,000 MTCO2e for the Carlsbad community GHG emissions fall below
the 2020 target emissions level of 939,000 MTCO2e. Therefore, the next steps in the projections of
emissions only include a forecast for 2035.
Figure 3-3: Comparison of Emissions by Sector in 2011, 2020 and 2035
2011 2020
July 14, 2020 Item #17 Page 44 of 128
2035
Figure 3-4 shows the change in SEEC-modeled community forecast emissions over time. Total
emissions are projected to decrease from 705,744 MTCO2e in 2011 to 565,873 MTCO2e in
2020 (a decrease of 20 percent). The initial drop in emissions is mostly caused by the
implementation of the RPS, which causes a decrease in residential, commercial, and industrial
emissions, and Pavley I Fuel Economy Standards, which decrease transportation emissions.
Over time, the decreases in emissions from an increased amount of renewable power usage and
fuel efficiency improvements are canceled out by population growth, which cause emissions
to increase from 2020 values to 589,873 MTCO2e in 2035 (an increase of 4 percent).
In 2020, the total emissions of 565,873 are about 30,000 MTCO2e above the AB 32 target
emissions. The following section quantifies GHG reductions from State and Federal actions
and applies them to the emissions forecast.
39%
25%
7%
3%1%
25%
Transportation
Commercial
Industrial
Solid Waste
Wastewater
Residential
41%
22%
6%
4%1%
26%
0%
Transportation
Commercial
Industrial
Waste
Wastewater
Residential
Landfill
.2%
.1%
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3-12
Figure 3-4: Community Forecast with RPS, Pavley I Fuel Economy Standards,
and General Plan Land Use and Roadways
3.43.3 Government Operations Forecast
Methodology
The SEEC government operations forecast, which is a subset of the community forecast, covers
direct emissions from the sources the City of Carlsbad owns and/or controls. The emissions
from government operations are included in the totals shown in Table 3-4 and Figure 3-4 above.
This section separates out emissions from government operations for accounting purposes. The
government operations forecast includes mobile combustion of fuel for city vehicles and the
use of natural gas to heat city buildings. Indirect emissions associated with the consumption of
electricity, steam, heating, or cooling for city operations that are purchased from an outside
utility are also forecast. All other indirect emissions sources, including employee commute and
the decomposition of government-generated solid waste, are not included as part of the local
government forecast, but rather are counted in the community forecast. The government
operations inventory covers emissions from the following sectors:
Buildings and Facilities
2010 2015 2020 2025 2030 2035MTCO2e Emissions
Date
SEEC Forecast with RPS,
Pavley I Fuel Economy, and
General Plan Land Use and
Roadways
Emissions Targets (AB 32/S-3-
05)
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Vehicle Fleet
Public Lighting
Water Delivery Facilities
Wastewater Transport
The government operations forecast uses 2005 inventory to represent baseline emissions, and
the 2011 inventory to provide an intermediate value to adjust the model.
Within each sector, certain types of emissions are assumed to scale with population growth,
projected to grow at 0.9 percent annually through 2035, while other types of emissions are
expected to remain constant or decrease with efficiency improvements. The following sections
describe the assumptions underlying the forecast growth rates for each government operations
sector.
Buildings and Facilities
The 2005 and 2011 inventories of emissions from all buildings and facilities operated by the
city were used to determine the future growth for this sector. The natural gas and electricity
demands were assumed to scale with population for departments such as Police, Fire, and Parks
and Recreation, while others, such as Administration and Utilities, would remain staffed at
current levels. These growth rates were then combined to determine an aggregate annual
growth rate of 0.7 percent, which was applied to the buildings and facilities sector.
Vehicle Fleet
An estimate of the growth in the number of City employees was used to determine City fleet
use. The growth in fleet emissions beyond 2011 was estimated by assuming—similar to the
Buildings and Facilities sector—that certain departments would scale with population growth,
while others would remain staffed at current levels. These growth rates were then combined to
determine an aggregate annual growth rate of 0.6 percent, which was applied to the city fleet
sector.
Public Lighting
From 2005 to 2011, electricity use for streetlights decreased approximately 4 percent due to
the installation of some energy-saving induction streetlights. Following the completion of the
installation of all induction streetlights, the City’s electricity demand for streetlights was
further reduced, which is reflected in the forecast energy demands for this sector.
Water Delivery and Wastewater
The increased demand for energy usage for water delivery and wastewater was assumed to be
proportional to the amount of water delivered by the Carlsbad Municipal Water District
(CMWD), as projected in the 2010 Urban Water Management Plan (UWMP). CMWD’s
service area covers about 85 percent of the City, and it was assumed that water and wastewater
usage in the remaining 15 percent of the City, served by Olivenhain Municipal Water District
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and Vallecitos Water District, would follow similar water use patterns as outlined in the 2010
UWMP.
Results
The city operations forecast for 2020 and 2035 is shown by sector in Table 3-5. Government
operations emissions are projected to decrease from the 2011 inventory total of 8,205 MTCO2e
to 5,185 MTCO2e in 2020. The decrease in emissions is primarily due to the implementation
of the RPS and the fuel efficiency gains from Pavley I standards. Emissions are forecast to then
increase at a low rate through the year 2035 to 5,922 MTCO2e, due to projected increases in
city staff in select departments to accommodate an increased need for city services.
The relative contribution of each sector to the total city operations emissions is generally
constant over time. The two largest emissions sectors are buildings and facilities, comprising
about 40 percent of total emissions, and fleet emissions, which are approximately 33 percent
of the total emissions. Streetlights are about 15 percent of total emissions, followed by
wastewater facilities at 8 percent, and water delivery facilities at 1 percent. Overall,
government operations emissions are forecast to remain a small portion of community
emissions, about 0.9 percent in 2020 and 1 percent in 2035. Chapter 4 discusses mitigation
measures that will reduce government operations emissions.
TABLE 3-5: GOVERNMENT OPERATIONS EMISSIONS INVENTORY
(2011) AND 2020, 2035 FORECAST (MTCO2e)
Sector 2011 2020 2035
Building & Facilities 3,410 2,192 2,409
Streetlights 1,747 902 902
Water Delivery Facilities 79 71 76
Wastewater Facilities 716 470 506
Fleet 2,253 2,092 2,029
TOTAL 8,205 5,185 5,922
3.53.4 GHG Reductions to Community Forecast from
State and Federal and State Actions
Methodology
The next step in projecting GHG emissions is the consideration of GHG reductions from state
and federal actions and other trends to the community forecast are quantified in this section.
This projection is known as the legislatively-adjusted BAU since it still lacks any potential
GHG reductions from local policies and programs.
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The federal and state actions included in the legislatively-adjusted BAUThese reductions
include the following:
Renewable Portfolio StandardFederal and California Vehicle Efficiency Standards
Pavley I fuel economy standardsCalifornia Energy Efficiency Standards
Low Carbon Fuel StandardCalifornia Solar Policy, Programs and 2019 Mandates
Title 24 building efficiency improvementsRenewable Portfolio Standard
Reductions in VMT from rising gasoline prices22
The GHG reductions from these factors were quantified using the EPIC mitigation calculator.
The Energy Policy Initiatives Center (EPIC) at the University of San Diego developed this
model to create business-as-usual projections, set targets, and calculate levels of mitigation
measures for all local jurisdictions in the San Diego region. As the EPIC model was developed
specifically for cities within San Diego County and the mitigation calculator calculates the
effect of the federal and statewide reductions, it was selected to quantify these policies and
actions. GHG reductions from the RPS and Pavley I fuel economy standards were accounted
for in the SEEC model; however, they are quantified separately in this section for informational
purposes.
Renewable Portfolio Standard (RPS)Federal and California Vehicle
Efficiency Standards
California’s RPS, established in 2002 by the California State Senate in Senate Bill 1078,
accelerated in 2006 and expanded in 2011, is one of the most ambitious renewable energy
standards in the country. The RPS requires that investor-owned utilities like SDG&E supply
33 percent of their electricity from renewable resources by 2020. While a renewable portfolio
standard past 2020 has not been established, the assumption used in the EPIC mitigation
calculator was that the 33 percent renewable standard would be extended through the year
2035—a conservative assumption, given that this is targeted to already be attained by 2020. .
Table 3-6 lists the reductions from the RPS in 2020 and 2035.
The federal and California vehicle efficiency standards vary by type of vehicle. For passenger
cars and light-duty vehicles, the applicable standards are the Federal Corporate Average Fuel
Economy (CAFE) standards and California Advanced Clean Car (ACC) Program. The CAFE
standards are developed by the U.S Department of Transportation’s National Highway
Transportation Safety Administration (NHTSA) and regulate how far vehicles must travel on
22 The rise in gasoline prices are not a result of any state or federal policy or action, but are included in this section as
part of a larger systemic trend forecast to occur regardless of other emission reduction measures.
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a gallon of fuel. The ACC program was adopted by CARB and combined the control of smog-
causing pollutants and GHG emissions into a single coordinated package of regulations.
For heavy-duty vehicles (heavy-duty trucks, tractors, and buses), the applicable regulations are
the U.S. Environmental Protection Agency’s (US EPA) Phase-I GHG Regulation and CARB
Tractor-Trailer GHG Regulation. The US EPA regulation was developed in coordination with
the NHTSA and calls for GHG emissions and fuel economy standards. The CARB regulation
reduces GHG emissions by improving aerodynamic performance and reducing the rolling
resistance of tractor-trailers. The reductions projected from the federal and California vehicle
efficiency standards total 113,968 MTCO2e in 2035.
TABLE 3-6: RPS GHG REDUCTIONS
Year MTCO2e Reductions
2020 48,962
2035 36,160
Pavley I Fuel Economy StandardsCalifornia Energy Efficiency Programs
In 2009, CARB adopted amendments to the Pavley regulations to reduce GHG emissions in
new passenger vehicles from 2009 to 2016. The standards set became the model for the updated
Corporate Average Fuel Economy (CAFE) standards set by the US EPA. The emissions
reductions from the improved fuel efficiency standards were calculated using the EPIC
mitigation calculator, and were phased in following the 2011 inventory. Table 3-7 lists the
emissions reductions from Pavley I fuel economy standards in 2020 and 2035. These
reductions are already quantified and applied in the SEEC community forecast, and have been
listed separately here for reference purposes. In September 2017, the California Public
Utilities Commission (CPUC) adopted energy efficiency goals for ratepayer-funded energy
efficiency programs (Decision 17-09-025); these went into effect in 2018. The sources of the
energy savings include, but are not limited to, rebated technologies, building retrofits,
behavior-based initiatives, and codes and standards. The reductions projected from the
California energy efficiency programs total 19,110 MTCO2e in 2035.
TABLE 3-7: PAVLEY I FUEL ECONOMY
STANDARD GHG REDUCTIONS
Year MTCO2e Reductions
2020 40,354
2035 48,369
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Low Carbon Fuel StandardCalifornia Solar Policy, Programs and 2019
Mandates
The Low Carbon Fuel Standard, adopted by CARB, is performance-based and is designed to
reduce the GHG intensity of transportation fuels by 10 percent by 2020. The regulation
established annual performance standards that fuel producers and importers must meet
beginning in 2011. The Low Carbon Fuel Standard applies to all fuels used for transportation
in California, including gasoline, diesel fuel, E85, compressed or liquefied natural gas, biogas,
and electricity. The Standard is also “lifecycle” based, meaning the entire extraction, recovery,
production and transportation of the fuel is taken into account. The default assumption of 10
percent reduction in GHG intensity was assumed to continue through 2035 for the EPIC
mitigation calculator. Table 3-8 shows the reductions from the Low Carbon Fuel Standard in
2020 and 2035. California has several policies and programs to encourage customer-owned,
behind-the-meter PV systems, including the California Solar Initiatives, New Solar Home
Partnership, Net Energy Metering, and electricity rate structures designed for solar customers.
The California Solar Initiative is the solar rebate program for customers of the investor-owned
utilities, including SDG&E. The New Solar Home Partnership provides financial incentives
and other support to home builders to encourage the construction of new, energy efficient solar
homes. This assistance terminates on December 31, 2021. Net Energy Metering provides utility
customers a credit for the unused electricity produced by their solar system. The new California
2019 Building Energy Efficiency Standards, which went into effect on January 1, 2020, require
all newly constructed single-family homes, low-rise multi-family homes, and detached
accessory dwelling units (ADUs) to have PV systems installed, unless the building receives an
exception. The reductions projected from the California solar policy, programs and 2019
mandates total 37,125 MTCO2e in 2035.
TABLE 3-8: LOW CARBON FUEL
STANDARD GHG REDUCTIONS
Year MTCO2e Reductions
2020 20,545
2035 14,906
Title 24 Building Efficiency ImprovementsRenewable Portfolio Standard
Title 24 is California’s Building Energy Code, which is updated every three years. In 2010,
Title 24 was updated to include the California Green Building Standards Code, referred to as
CALGreen. CALGreen requires that new buildings reduce water consumption, increase system
efficiencies, divert construction waste from landfills, and install low pollutant-emitting finish
materials. CALGreen has mandatory measures that apply to nonresidential and residential
construction. The most recent CALGreen code became effective in 2014.
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The Title 24 building efficiency improvements determine the effect of the CALGreen code
mandatory measures for new building construction using the 2010 code update.23 Table 3-9
lists the GHG reductions from building efficiency improvements in new construction
calculated using the EPIC mitigation calculator in 2020 and 2035. SB 100, the 100 Percent
Clean Energy Act of 2018, adopts a 60% RPS for all of California’s retail electricity suppliers
by 2030; this increased the RPS standard from 50% to 60%. The legislation also provides goals
for the intervening years before 2030 and establishes a State policy requiring that “zero-
carbon” resources supply 100% of all retail electricity sales to end-user customers and all State
agencies by December 31, 2045. If interpolated linearly between 60% renewable in 2030 and
100% zero-carbon in 2045, the interim 2035 target would be 73% renewable. The reductions
projected from the RPS total 186,115 MTCO2e in 2035.
TABLE 3-9: TITLE 24 BUILDING
EFFICIENCY IMPROVEMENTS GHG
REDUCTIONS
Year MTCO2e Reductions
2020 1,836
2035 3,582
Reduction in VMT from Rising Gasoline Prices
The U.S. Energy Information Administration (EIA) collects, analyzes and disseminates
independent and impartial energy information, including projections of future gasoline prices.
The 2013 EIA gasoline projection estimate a pump price of gasoline of $4.00 per gallon in
2020 and $6.00 in 2035 per gallon in California.24
The EPIC mitigation calculator measures emissions reductions from changes in fuel
consumption as a result of gasoline price increases. The reductions in GHG emissions based
on the Energy Information Administration gasoline prices are shown in Table 3-10. Although
the projected rise in gasoline prices is not the direct result of a federal or state policy, this effect
was considered in this section, as it is a larger systemic trend that is forecast to occur regardless
of other emissions reductions measures.
TABLE 3-10: GHG REDUCTIONS
FROM RISING GASOLINE PRICES
Year MTCO2e Reductions
2020 12,201
2035 71,316
23 The EPIC mitigation calculator is based on the 2010 CALGreen code. The 2014 CALGreen code and subsequent
updates will likely result in greater GHG reductions as building efficiency standards improve.
24 Both values are listed in 2010 dollars.
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RESULTS
The annual reductions from the above state and federal actions—Federal and California
Vehicle Efficiency Standards, California Energy Efficiency Standards, California Solar Policy,
Programs and 2019 Mandates, and Renewable Portfolio StandardRPS, Pavley I Fuel Economy
Standards, Low Carbon Fuel Standard, Title 24 building efficiency improvements, and the
reductions in VMT from rising gasoline prices—were combined. Table 3-11 lists shows the
total SEEC community forecast in 2020 and 2035 considering federal and state actions, or
legislatively-adjusted BAU., juxtaposed with reductions from state and federal actions not
accounted for in the SEEC forecast: the Low Carbon Fuel Standard, Title 24 Building
Standards, reductions in VMT from higher gasoline prices, and the assumed continuation of
the Renewable Portfolio Standard after the year 2020. Figure 3-5 shows the SEEC Forecast
with General Plan land use and new roadways, as well as state and federal actions.
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Figure 3-5: Community Forecast with (1) General Plan Land Use and New
Roadways and (2) State and Federal Actions (MTCO2e)
TABLE 3-11: COMMUNITY FORECAST WITH STATE AND FEDERAL ACTIONS (MTCO2e)
Year
Business-As-
Usual
Community
Forecast
Emissions
with General
Plan Land
Use and New
Roadways
Low Carbon
Fuel
Standard
ReductionFe
deral and
California
Vehicle
Efficiency
Standards
Title 24 Building
Efficiency
ImprovementsC
alifornia Energy
Efficiency
Programs
Reductions in
VMT from
Rising
Gasoline
PricesCaliforn
ia Solar
Policy,
Programs and
2019
Mandates
Continuation of
Renewable
Portfolio
Standard, 2020
to 2035*
Total Forecast
Emissions with
General Plan
Land Use and
New Roadways
&with State and
Federal Actions
2020 565,873 20,545 1,836 12,201 48,962 482,329
2035 589,837956,00
0
14,906113,96
8
3,58219,110 71,31637,125 36,160186,115 463,873599,682
*RPS considered in SEEC forecast through 2020, RPS continuation through 2035 modeled in EPIC
2010 2015 2020 2025 2030 2035MTCO2e Emissions
Date
SEEC Forecast with (1) General
Plan land use and roadways and
(2) State and Federal Actions
Emissions Targets (AB 32/S-3-05)
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3.63.5 Modified Baseline: GHG Reductions from
Additional General Plan Policies and Actions
Methodology
This section describes General Plan policies and actions that reduce GHG emissions, quantifies
emissions reductions, and explains how these policies and actions will be implemented. These
reductions are from policies and actions in addition to Pavley I, the RPS, and the General Plan
land use and circulation system, which incorporate reductions from “No Project” conditions
which are already reflected in the SANDAG modeling discussed previouslyBAU and
legislatively-adjusted BAU discussed in previous sections. The General Plan policies and
actions are organized according to the following categories:
Bikeway System Improvements
Pedestrian Improvements and Increased Connectivity
Traffic Calming
Parking Facilities and Policies
Transportation Improvements
The California Air Pollution Control Officers Association’s (CAPCOA’s) Quantifying
Greenhouse Gas Mitigation Measures report was developed as a resource for local
governments to assess emissions reductions from GHG mitigation measures. This section uses
the methodology outlined in the CAPCOA report for each category to quantify emissions
reductions from the General Plan policies and actions.25 The reductions are applied to the
community forecast in the following section to get the “modified baseline” forecast.
Bikeway System Improvements
Bikeway System
Improvements
General Plan Policies:
2-P.24, 2-P.25, 2-P.45, 2-P.46, 2-P.53;
3-P.8, 3-P.15, 3-P.16, 3-P.17, 3-P.20,
3-P.21, 3-P.22, 3-P.24, 3-P.25, 3-P.26,
3-P.27, 3-P.28, 3-P.29, 3-P.31, 3-P.32,
3-P.33, 3-P.34, 3-P.40; 4-P.40
2020 Reduction: 164 MTCO2e
2035 Reduction: 608147 MTCO2e
Policy/Action Description
The Carlsbad Bikeway Master Plan, referenced in the General Plan, recommends the
enhancement of the existing bicycle network with the implementation of new Class I bike
paths, new Class II bike lanes, and new Class III bike routes, resulting in a 111.5 mile bikeway
system. The planned bikeways include the Coastal Rail Trail, a Class I bike path on Carlsbad
25 While many of the policies and actions quantified in the report are project-level in nature, much of the supporting
literature is from studies on a citywide, countywide, or regional context. The methodology in this section is based on
these regional studies, which is therefore applicable to the General Plan policies and actions listed in this section.
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Boulevard at Ponto, two Class II bike lanes – one on Hillside Drive and another on Avenida
Encinas, and five Class III bike route projects in the northwest quadrant of the city.
In addition to Bikeway Master Plan recommendations, the Mobility Element identifies the
following new connections to improve connectivity in the area:
A new Class I trail at the terminus of Cannon Road and extending eastward toward the
City of Oceanside
A new Class I trail along the Marron Road alignment between El Camino Real and the
City of Oceanside
A new crossing of the railroad tracks at Chestnut Avenue.
Also, CalTrans’ North Coast Corridor Public Works Plan includes, among other
improvements, a new North Coast Bike Trail and new bicycle/pedestrian connections across
Batiquitos and Agua Hedionda Lagoons.
Finally, the city can install new and enhanced bicycle facilities as opportunities arise in
conjunction with street maintenance and rehabilitation, and as part of “road diet” projects.
Quantification
An estimated 0.05 percent reduction in transportation GHG emissions is assumed to occur for
every two miles of bike lane per square mile in areas with density greater than 2,000 people
per square mile.26 Carlsbad currently has approximately 2,700 people per square mile, greater
than the threshold of 2,000 people per square mile.
With the 111.5 miles of bicycle facilities, there would be approximately 2.85 miles of bikeways
per square mile, which corresponds to a 0.07 percent reduction in VMT emissions, or about
164 MTCO2e in 2020, and 147 608 MTCO2e in 2035.27
Implementation
The bikeway system enhancements will occur incrementally (at approximately .6 miles/ year)
through the implementation of the General Plan and planned and opportunistic bikeway
improvements (e.g., in conjunction with street maintenance and rehabilitation, or as part of a
“road diet”). Improvements will be funded and/or installed as conditions on new private
development as well as through the city’s multi-year CIP and annual operating budget process.
Funding sources may include development impact fees, general funds, local, state, and federal
grants.
26 Cambridge Systematics. Moving Cooler: An Analysis of Transportation Strategies for Reducing Greenhouse Gas
Emissions. Technical Appendices. Prepared for the Urban Land Institute.
27 In this chapter, reductions based on a portion of VMT have lower reductions in 2035 than in 2020 because they are
assumed to decrease with greater vehicle efficiency standards over time.
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Pedestrian Improvements and Increased Connectivity
Pedestrian
Improvements and
Increased
Connectivity
General Plan Policies:
2-P.24, 2-P.25, 2-P.45, 2-P.46, 2-P.47,
2-P.48, 2-P.50, 2-P.53, 2-P.72, 2-P.79;
3-P.8, 3-P.16, 3-P.17, 3-P.20, 3-P.21, 3-
P.22, 3-P.24, 3-P.25, 3-P.26, 3-P.27, 3-
P.28, 3-P.29, 3-P.31, 3-P.32, 3-P.33, 3-
P.40; 4-P.40
2020 Reduction: 2,341 MTCO2e
2035 Reduction: 6152,106
MTCO2e
Policy/Action Description
Pedestrian Improvements
Carlsbad has adopted several programs and plans related to improving the walking
environment. The city’s Pedestrian Master Plan guides the future development and
enhancement of pedestrian facilities to ensure that walking becomes an integral mode of
transportation in Carlsbad. The Carlsbad Residential Traffic Management Program provides a
mechanism for community members to report issues relating to speeding and traffic volumes
on residential roadways, assisting the city in “calming” traffic in these areas to make them
more comfortable for pedestrian travel.
Physical barriers to pedestrian access include gaps in sidewalks, high-volume, high-speed
streets, a circuitous roadway system in several parts of the city, and regional infrastructure such
as freeways and railways that presents barriers to pedestrian mobility. There are four significant
concentrations of high pedestrian improvement needs across the City of Carlsbad, including
the following locations:
The entire northwest quadrant, especially the Carlsbad Village area
The southern coastal area along Carlsbad Boulevard, between Cannon Road and La
Costa Avenue
Several locations along El Camino Real, near Camino Vida Roble, Aviara Parkway/Alga
Road and La Costa Avenue
The southeastern portion of the city, stemming from the intersection of La Costa Avenue
and Rancho Santa Fe Road
A range of potential improvement projects exists throughout the city, as identified in the
pedestrian master plan, to enhance pedestrian mobility, local connectivity, usage, safety and
accessibility. These improvements include filling in gaps in sidewalk connectivity, upgrading
substandard sidewalks, creating new connections to pedestrian attracting designations (such as
access across the railroad track to the beach at Chestnut Avenue, for example), establishing
safe routes to school, enhancing crosswalks, installing pedestrian countdown signals,
improving signage, and providing ADA improvements.
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Increased Connectivity
Increasing connectivity in the city is critical to achieving the Carlsbad Community Vision.
There are a number of improvements described in the General Plan that will enhance
connectivity for bicycles and pedestrians, as noted below:
Cannon Road east of College Boulevard – Provide a bicycle/pedestrian facility that
would begin at the current eastern terminus of Cannon Road and continue eastward to
the city’s eastern boundary.
Marron Road Connection – Provide a bicycle/pedestrian facility that would begin at the
current eastern terminus of Marron Road and extend eastward to the city’s eastern
boundary.
Additional crossings of Interstate-5 and the railroad – Continue to look for opportunities
to add crossings of these two barriers and improve east-west connectivity to and from the
coast. Key connections will include a crossing at Chestnut Avenue (bicycle, pedestrian,
and vehicular) under the freeway and (bicycle and pedestrian) across the railroad, and a
Chinquapin Avenue connection (bicycle, pedestrian, and vehicular) over the freeway and
(bicycle and pedestrian) across the railroad. Additionally, Caltrans is designing a number
of new pedestrian and bicyclist connections along and across Interstate-5 and near the
lagoons as part of the Interstate-5 North Coast Corridor Public Works Plan. The city will
continue to coordinate with Caltrans on these improvements.
Improved accessibility to the lagoons and to the coast are envisioned to improve
connectivity to those areas.
Quantification
Providing an improved pedestrian network and increasing connectivity encourages people to
walk more and results in people driving less, causing a reduction in VMT. An estimate of a 1
percent reduction in VMT from pedestrian improvements and connectivity was assumed,
which corresponds to a reduction of 2,341 MTCO2e in 2020 and 2,106615 MTCO2e in 2035.28
Implementation
Pedestrian improvements and increased connectivity will occur through implementation of the
Pedestrian Master Plan, the Residential Traffic Management Program, and the General Plan,
and through planned and opportunistic pedestrian improvements (e.g., in conjunction with
street maintenance and rehabilitation, or as part of a “road diet”). Improvements will be funded
and/or installed as conditions on new private development as well as through the city’s multi-
year CIP and annual operating budget process. Funding sources may include development
impact fees, general funds, local, state, and federal grants.
28 Center for Clean Air Policy. Transportation Emission Guidebook.
http://www.ccap.org/safe/guidebook/guide_complete.html.
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Traffic Calming
Traffic Calming General Plan Policies:
2-P.53; 3-P.16, 3.P-17
2020 Reduction: 585 MTCO2e
2035 Reduction: 526 969 MTCO2e
Policy/Action Description
The Carlsbad Residential Traffic Management Program provides a mechanism for community
members to report issues relating to speeding and traffic volumes on residential roadways,
assisting the City in “calming” traffic in these areas to make them more safe and comfortable
for pedestrian travel. Traffic calming devices include speed tables, speed bumps, roundabouts,
and other devices that encourage people to drive more slowly or to walk or bike instead of
using a vehicle, especially for short trips in and around residential neighborhoods. The
residential traffic management program is implemented by the Transportation Division and
funded through the annual budget appropriation process.
Quantification
CAPCOA’s “Quantifying Greenhouse Mitigation Measures” was used to quantify the effect of
traffic calming devices. A 0.25 percent reduction in VMT was assumed to occur from these
improvements, which corresponds to a reduction of 585 MTCO2e in 2020 and 526 969
MTCO2e in 2035.
Implementation
The traffic calming improvements will occur through the implementation of the Residential
Traffic Management Program and the General Plan.
Parking Facilities and Policies
Parking Facilities and
Policies
General Plan Policies:
2-P.75, 2-P.83; 3-P.28, 3-P.38, 3-P.39, 3-
P.40, 3-P.41
2020 Reduction: 4,682 MTCO2e
2035 Reduction: 6,6184,211 MTCO2e
Policy/Action Description
Getting parking right is critical to ensuring the success of any urban area. Inadequate parking
is inconvenient and frustrating for businesses and residents. Too much parking underutilizes
valuable land, results in lower density development, discourages use of other forms of
transportation (such as public transit), spreads out land uses, and creates gaps in store fronts;
thereby practically requiring the use of the automobile. Additionally, too much parking also
requires more driveways for accessibility, introducing conflicts between pedestrians and
vehicles. Overly high parking requirements—particularly in downtown areas or urban cores—
can impact the ability to renovate or repurpose older buildings and revitalize activity centers
that can be better served and connected by enhancing facilities and amenities for bicyclists and
pedestrians. Therefore, it is important to “right size” and manage parking such that there is
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enough to support the needs generated by the use, but not so much that it wastes land and
impairs other ways of getting around.
The city’s Zoning Ordinance provides standards for parking facilities based on development
types within the city. To promote “right sizing” of parking facilities, the following techniques
are included as part of the General Plan Mobility Element:
Shared Parking – continue to allow uses that have different parking demands at different
times of the day to share the same parking facilities. This is an effective way to minimize
pavement, allow denser land use, provide for more landscaping, and provide improved
walkability within a mixed use area. The best example of shared parking is an office
building and an apartment building as office’s peak parking demand occurs at 10:00 a.m.
and apartment’s peak parking demand occurs at 11:00 p.m.
Collective Parking – allow uses in mixed use projects/areas to utilize up to 50 percent of
project site’s vacant on-street parking to count toward their parking supply requirements.
Unbundled Parking – rather than provide free guaranteed parking, “unbundle” the
parking from the development and require residents and/or employees to pay for use of
a parking space.
Park Once – a strategy in destination districts to enable visitors to “park once” and visit
a series of destinations. Park once strategies work well in areas like the Village and areas
that are well connected by pedestrian and bicycle facilities. The creation of centralized
parking areas supports this strategy.
In Lieu Parking Fees – continue strategies in appropriate areas by which developers can
contribute fees toward the development of a common parking facility in lieu of providing
on-site parking. This works best in downtown or concentrated commercial areas, works
well to assist in paying for unified structured parking, and provides developers an
opportunity to increase density on their parcels.
Parking Management Strategies –a business district or businesses manage high demand
parking locations and destinations through a number of different strategies including
demand pricing, time restrictions, valet parking, and other techniques.
Public-Private Partnerships –the city, business owners, and developers collaborate to
provide both private and public parking opportunities. Instances where this works well
include parcels owned by the city, where a private entity comes in and develops,
manages, and enforces the parking in these public lots.
Parking Locater Signs – electronic monitoring devices that identify the available parking
in a given facility and utilize changeable message signs to assist travelers in identifying
available parking locations. Please note that this may require modifications to the city’s
zoning ordinance to be implemented in some areas of the city.
Parking Wayfinding Signs – signs identifying where public parking is available, which
support the “park once” concept.
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CARLSBAD CLIMATE ACTION PLAN
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Reduced Parking Standards – reduce parking standards in areas that are well served by
transit, provide shuttle accessibility to the COASTER station, provide parking cash out
programs (where employers pay employees to not park on site), or provide other
programs that will reduce parking demand.
Biking Equals Business Program – businesses provide bicycle parking or corrals and
provide incentives to encourage their patrons and employees to ride rather than drive.
Transit Equals Business Program – businesses provide their customers and employees
incentives to encourage them to use transit rather than drive.
Bicycle Corrals in Lieu of Vehicle Parking – for certain businesses, reduce required
onsite parking for vehicles if they provide a bicycle corral that accommodates more
people.
Although there are additional parking strategies that are available and may become available
in the future, most of the strategies work best in smart growth/mixed use development areas
and will be necessary to accomplish the goals and visions identified in the General Plan and
the General Plan Mobility Element.
Quantification
According to CAPCOA’s Quantifying GHG Mitigation Measures, parking strategies have
estimated VMT reductions. Reduced parking standards and other policies reducing parking
availability have an estimated 5 to 12.5 percent VMT reduction, unbundled parking cost has a
2.6 to 13 percent VMT reduction, and parking management strategies have a 2.8 to 5.5 percent
VMT projection.29 Conservatively assuming the combined effect of these parking reduction
strategies would result in the lower end of the strategies results, and considering that the
strategies would be most applicable in future growth and infill areas, the cumulative reduction
from implementations would result in a 2 percent VMT reduction to give an estimated 4,682
MTCO2e reduction by 2020, and a 4,2116,618 MTCO2e reduction by 2035.
Implementation
The parking strategies will occur through the implementation of the Zoning Ordinance and the
General Plan. The city’s Planning Division is primarily responsible for developing new
ordinances and updating existing ones. Parking policy and ordinance changes would be carried
out under the Planning division’s annual budget authority.
Transportation Improvements
Transportation
Improvements
General Plan Policies:
2-P.48, 2-P.72; 3-P.8, 3-P.19, 3-P.20, 3-
P.27, 3-P.31, 3-P.32, 3-P.35, 3-P.36
2020 Reduction: 1,475 MTCO2e
2035 Reduction: 2,0851,327
MTCO2e
29 The maximum reduction provided from the combination of all parking policies in the CAPCOA report is a 20 percent
reduction in VMT
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Policy/Action Description
Transit in Carlsbad includes bus service, ADA paratransit service, and the COASTER
commuter rail; indirectly, transit service is also provided by the Sprinter light rail system,
Amtrak rail service, and Metrolink commuter rail. Future transit service in the city will
primarily be coordinated by the North County Transit District (NCTD). In addition, there are
several planned transit improvements for Carlsbad that are part of San Diego Association of
Governments (SANDAG) regional planning efforts. These are reflected in the General Plan
Mobility Element:
Coastal rail improvements are proposed for the tracks serving the COASTER and
Surfliner trains in San Diego County along the Los Angeles to San Diego Rail Corridor.
These proposed improvements include double tracking, bridge replacements, and station
improvements. Improvements to the COASTER service (2020 and 2030) are also
proposed and would increase service and reduce headways.
Route 471 (2020) is a proposed rapid bus providing frequent service between Carlsbad
and San Marcos via Palomar Airport Road. This route will operate with 10 minute
headways during peak and off-peak hours. In the city, this rapid bus route is envisioned
to be supported by signal priority at intersections.
AMTRAK will add service to Carlsbad.
As previously described, the above future transit improvements will continue to advance
the backbone transit infrastructure. However, one key component to improving transit
use is improving the “first mile/last mile” access and experience for transit users. This
typically includes end of trip facilities (bike racks, showers, changing rooms, etc.) and
better connectivity from the transit stop to the ultimate destination via bicycle facilities,
pedestrian facilities, local transit circulators, etc.
Carlsbad’s future transit effectiveness will depend on major employers assisting with
providing some of these “first mile/last mile” facilities through transportation demand
management (TDM) measures. TDM is envisioned to include shuttle circulators to
major employers and destinations, showers and changing rooms at those locations, and
a host of other typical TDM techniques that would support transit usage and the
connection to the ultimate destination. This Mobility Element also supports TDM
through potential incentives (such as reduced parking standards for TDM
implementation) to further support transit access to these destinations.
The final component to improving transit use in the city is working with NCTD to
improve the transit experience, particularly along the bus routes. This includes
improving bus stops in the city to ensure that they are well lit, have seating, and are
covered to protect users from inclement weather.
As part of the FY 2014-2015 capital improvement program, the city initiated work on a Coastal
Mobility Readiness Plan. This plan will complement current and planned bicycle and
pedestrian improvements by recommending policy and infrastructure investments that will:
improve accessibility to transit and para-transit services; fill in transportation gaps (“first mile-
last mile” solutions); support and encourage expanded use of low-emission and zero emission
vehicles; provide viable alternatives to private, single-occupant vehicle use (such as through
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CARLSBAD CLIMATE ACTION PLAN
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car-sharing, bike-sharing, and local shuttles); and recommend other transportation/parking
demand management strategies. The plan will emphasize efficiently connecting residents and
visitors among the city’s various coastal activity centers, beaches, the state campground, and
to and from major hotels and resorts, the Village, major shopping centers, and other significant
visitor-serving activity centers. The plan will identify effective, proven tools, and seek out
promising and emerging technologies. The plan will also identify potential funding partners
such as NCTD (e.g. Cooperative Agreements in accordance with NCTD Board Policy 22),
private funding and/or public grants. The plan is expected to be completed at the end of 2015,
with implementation beginning in 2016.
The city has also implemented a state-of-the-practice traffic signal management (TSM) system.
This system integrates traffic signals in the city to a single access point, allowing city staff to
monitor and update signal timings to improve safety and mobility for all users in the city. The
Mobility Element supports further implementation of this program and use of other
technologies that become available, which have the ability to improve mobility for all users of
the city’s transportation system.
Quantification
Transportation system improvements can result in VMT reductions. According to CAPCOA’s
Quantifying Greenhouse Gas Mitigation Measures, transit system improvements can result in
the following reductions: 0.02 to 3.2 percent VMT reduction from a bus rapid transit system,
0.1 to 8.2 percent VMT reduction from expanding the transit network, 0.02 to 2.5 percent VMT
reduction from increasing transit service frequency and speed, and 0.5 to 24.6 percent VMT
reduction from increasing transit accessibility. Reductions from TSM were estimated using
Cambridge Systematics’ Moving Cooler report as a 0.01 percent VMT reduction.
Conservatively assuming the combined effect of these strategies, summing the low end of the
VMT reduction ranges gives a 0.63 percent reduction in VMT emissions.
Implementation
Transit improvements will primarily be coordinated by NCTD and will also be implemented
by SANDAG regional planning and funding efforts. City-led improvements will be carried out
through the city’s multi-year CIP and annual operating budget appropriation process.
Results
Table 3-12 shows the GHG reductions from each of the above General Plan policies and
actions. The largest reduction comes from parking facilities and policies, followed by
transportation improvements, traffic calming, pedestrian improvement and increased
connectivity, transportation improvements, traffic calming, and bikeway system
improvements. VMT emissions are projected to fall in the future due to higher fuel efficiency
standards; however, as the efficiency gains are expected to be largely achieved by 2020 but the
VMT is projected to continue climbing in the future, the effect of the VMT reductions are
greater in 2020 than in 2035 for all General Plan policies and actions considered in this section.
For example, the reductions from traffic calming in 2035 are 526 MTCO2e, which is less than
the reduction in 2020 of 585 MTCO2e. The reductions from these policies and actions are
incorporated into the community emissions forecast in the following section.
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TABLE 3-12: GHG REDUCTIONS FROM ADDITIONAL GENERAL PLAN POLICIES AND ACTIONS
Year
Bikeway System
Improvements
Pedestrian
Improvements
and Increased
Connectivity
Traffic
Calming
Parking
Facilities
and
Policies
Transportation
Improvements
Total GHG
Reductions
from
Additional
General Plan
Policies and
Actions
2020 164 2,341 585 4,682 1,475 9,247
2035 608147 6152,106 526 969 4,2116,618 2,0851,327 8,31710,895
3.73.6 Modified Baseline and the GHG Emissions “Gap”
Table 3-13 shows the total community emissions with the reductions from the following
policies and actions:
General Plan land use and circulation system
Federal and State and federal actions
Additional General Plan policies and actions
Figure 3-6 shows the “modified baseline forecast,” which incorporates the reductions discussed
thus far in comparison to the emissions targets. Emissions drop steeply to 2020 from the
combined effect of GHG reduction policies and actions, continue a gradual decline to 2030,
but then start rising again after that, given that no increases in federal or state standards relating
to fuel efficiency or renewable energy are assumed, even though these may well occur by that
time. The BAU forecast for 2020 already meets the target reduction of four percent below
baseline; therefore, no analysis of the effects of federal and state policies and additional
General Plan policies was necessary. With the effect of all the GHG reductions considered in
this chapter, the total community forecast emissions are 473,082 MTCO2e in 2020, and
455,556 MTCO2e in 2035. Table 3-13 shows that Carlsbad will meetmet its target for 2020
without any additional measures. However, by 2035, there is a GHG emissions “gap” of
134,098116,817 MTCO2e —approximately one-third20 percent of the total projected
community emissions.
TABLE 3-13: MODIFIED BASELINE FORECAST (FORECAST COMMUNITY EMISSIONS
WITH GENERAL PLAN LAND USE AND ROADWAYS, FEDERAL AND STATE AND
FEDERAL ACTIONS, AND ADDITIONAL GENERAL PLAN POLICIES AND ACTIONS)
Year
Total Modified
Baseline Forecast
(MTCO2e)Business-
As-Usual Forecast
(MTCO2e)
473,082
467,018
Total
Modified
Baseline
Forecast
(MTCO2e)
452,762
455,556
GHG Emissions Targets
(Linear Scaling of AB
32/S-3-05) (MTCO2e)
Emissions “Gap”
(MTCO2e)
2020 926,000 N/A 535,763939,000 Target Met
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CARLSBAD CLIMATE ACTION PLAN
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2025 464,328 2,690
2030 392,893 59,869
2035 956,000 588,817 321,458472,000 134,098116,817
Figure 3-6: Modified Baseline Forecast (Forecast Community Emissions with
General Plan Land Use and Roadways, State and Federal Actions, and
Additional General Plan Policies and Actions)
Conclusion
The emissions targets are met in the year 2020, with BAU forecast emissions of
473,082926,000 MTCO2e meeting the target by about 63,00013,000 MTCO2e. There is an
emissions “gap” in the year 2035 of about 134,000116,817 MTCO2e between the forecast
emissions of 455,556588,817 MTCO2e and the emissions target of 321,458472,000 MTCO2e.
Chapter 4 contains CAP GHG reduction measures to close the gap between forecast emissions
and emissions targets in the year 2035.
-
100,000
200,000
300,000
400,000
500,000
600,000
700,000
2010 2015 2020 2025 2030 2035MTCO2e Emissions
Date
SEEC Forecast with (1) General Plan land use and
roadways (2) State and Federal Actions and (3)
Additional General Plan Policies and Actions
Emissions Targets (AB 32/S-3-05)
July 14, 2020 Item #17 Page 65 of 128
EXHIBIT 2
4-1
4
CAP GHG Reduction
Measures
The forecast emissions in Chapter 3 incorporate reductions from (1) state and federal actions,
(2) General Plan land use and roadways, and (3) additional General Plan policies and actions.
This chapter describes additional GHG reduction measures to close the emissions “gap”
between emissions targets and forecast emissions for 2035. These are:
Residential, Ccommercial and industrial photovoltaic systems
Building cogeneration
Single-family, multi-family and commercial efficiency retrofits
Commercial commissioning
CALGreen building code
Solar water heater/heat pump installation
Efficient lighting standards
Increased zero-emissions vehicle travel
Transportation Demand Management (TDM)
Citywide renewable projects
Water delivery and conservation
The sections below describe the GHG reduction measures and explain how they will be
implemented. The GHG reductions from these measures were quantified using the Energy
Policy Initiatives Center (EPIC) mitigation calculator, a tool developed by the University of
San Diego for cities within San Diego County. The EPIC mitigation calculator includes a
“business as usual” (BAU) forecast for each measure estimating GHG reductions from trends
already underway that will occur without any additional city intervention, based on regional
San Diego Gas & Electric (SDG&E) forecasts. For example, under the BAU forecast for
residential photovoltaic (PV) systems, the EPIC mitigation calculator estimates that by the year
2035, energy produced by residential PV systems in the City of Carlsbad will be about 15.9
megawatts (MW), which will offset about 6,233 metric tons CO2e (MTCO2 e).
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The GHG reduction measures describe goals, amount of reduction in 2035, and actions to meet
the target levels. The actions are categorized as short-term actions that will be implemented
within one to two years of CAP adoption; or mid-term actions that will be implemented within
two to five years of CAP adoption. Actions identified as short to long-term, or mid to long-
term are those actions that will begin in the short or mid-term, but take longer than five years
to fully implement. Ongoing actions are those that continue throughout the duration of CAP
implementation. The mixture of short-term, mid-term, and long-term, and ongoing actions
presented for each measure are intended to meet the goals in a realistic timeframe and provide
an effective combination to reach the targets set forth. The “already-projected” amount is based
on the forecast BAU emissions reduction, followed by a target level to reach the goal of the
measure. The measures are then described in greater detail, as is the method of quantifying the
GHG emissions reduction, and the responsibility and implementation of the measure is
discussed. Each measure qualitatively describes costs and benefits, both to the city and the
private sector. Overall benefits of GHG emissions reductions include decreased costs through
energy efficiency, reduced risk to human health and welfare, and less global climate change.
The GHG reduction mitigation measures identified in this chapter are expected to achieve the
targeted emission reductions. However, the nature, location, timing, size and other
characteristics of future development projects may vary widely and additional project-level
mitigation measures may be helpful or necessary to assist individual projects to achieve the
targeted reductions. Accordingly, Appendix E to this Climate Action Plan provides a non-
exclusive list of mitigation measures to be considered by the City and project applicants during
project-level environmental review and adopted as needed to ensure that individual
development projects achieve the targeted emission reductions.
Note: CAP Amendment No. 1, approved May 5, 2020, recalculated the anticipated 2035 GHG
reductions for all measures, based upon new state and federal policies and the interaction
between the existing measures and new Measure P – Community Choice Energy. Four
measures, Measures A, C, G and H, were eliminated for reasons described below. CAP
Amendment No. 1 also updated the Actions calling for ordinance adoption; however, no other
Actions were updated with this amendment. This update will occur with the comprehensive
CAP update being processed in 2020-21.
4.1 Residential, Commercial and Industrial Photovoltaic
Systems
Measure A: Promote Installation of Residential Photovoltaic Systems – Deleted in CAP
Amendment No. 1
Goal: Promote installation of residential PV systems to produce
an additional 9.1 MW above already projected amounts, or the
equivalent of 2,682 more homes with PV systems, by 2035.
2035 Reduction: 10,136 MTCO2eN/A
This Measure is no longer needed due to Section 150.1(c)14 of the 2019 California Energy Code,
mandating all new low-rise residential construction include solar photovoltaic energy generation systems.
Actions:
A-1: Temporarily—for a period of one year—suspend residential and commercial PV system permit
fees, together with a publicity campaign to promote PV systems installation (Short-term)
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A-2: On a continuing basis, ensure that regulatory provisions - such as complying with regulations for
zoning, structure height, permit submittal and review, etc. - do not hinder residential and
commercial PV system installation. (Short to Long-term)
A-3: Adopt an ordinance, similar to those passed by Lancaster and Sebastopol, which requires new
homes to install PV panels to offset a portion of their energy use. (Short-term)
Already-Projected Amount: Solar photovoltaic (PV) systems convert solar energy into
electricity. The projected power generation30 of residential PV systems at 4,685 homes is 15.9
MW31 in the year 2035, which is enough to fully power these homes.32
Target: The target is 25 MW in the year 2035, which is the equivalent amount of production
to power 7,367 homes.33
GHG Reduction Measure Description: PV systems convert solar energy into electricity.
Producing renewable energy locally through residential, commercial, and industrial PV
systems reduces the need to construct costly new power plants that produce air pollution, use
natural resources, and impact the environment.
The San Diego region has among the highest rates of solar energy production in the nation,
producing an annual average of about 6.5 kWh per square meter per day, according to the
National Renewable Energy Laboratories. A 2006 estimate found that existing PV technology
could supply over 100 percent of the peak electricity demands for San Diego County, and over
half of the total energy load.34 Measure A is to promote the installation of PV systems on single-
family and multi-family homes above the already-projected amount (4,685 homes) by an
additional 2,682 homes, or a total of about 15 percent of homes.
Quantification of GHG Emissions Reductions: The EPIC mitigation calculator was used to
quantify emission reductions for Measure A.
Responsibility and Implementation: The City of Carlsbad currently participates in three
Property Assessed Clean Energy (PACE) programs: CaliforniaFIRST, FigTREE, and
30 The maximum amount of power produced is also referred to as solar capacity.
31 Solar capacity (MW) was converted into an annual energy total (kWh per year) as follows: The standard assumption
is about 5 hours of production per day per solar system. The capacity was multiplied by 5 hours per day times 365
days per year to get a total production in kWh per year. Therefore, 15.9 MW converts to 29,017,500 kWh per year.
32 Average household energy use was calculated as follows: The California per capita electricity use in 2010 was 2,337
kWh (source: http://www.eia.gov/state/?sid=CA). The average household size in 2010 was 2.65 people per
household (source: http://www.census.gov/newsroom/releases/archives/2010_census/cb11-cn137.html). Therefore,
the average household energy use in 2010 was: 6,193.1 kWh per year.
33 It was assumed that residential PV systems produce the equivalent amount of energy to the amount consumed in each
household on an annual basis.
34 Anders, Scott and Bialek, Tom. 2006. Technical Potential for Rooftop Photovoltaics in the San Diego Region.
Available: http://www.sandiego.edu/documents/epic/060309_ASESPVPotentialPaperFINAL_000.pdf.
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California HERO. PACE programs provide financing to eligible property owners for
sustainable energy projects, thereby offering a source of funding for residential PV systems.
Property owners can finance PV system installations and energy efficiency improvements
through a voluntary assessment on their property tax bills. Several other financing options are
available to residents, including Federal Housing Financing Administration- (FHFA) insured
Energy Efficient Mortgages, HUD Title 1 Home Improvements Loans, and FHA PowerSaver
Loans.
The city will temporarily suspend residential and commercial solar PV system permit fees. The
city will also on a continuing basis ensure that regulatory provisions—such as complying with
regulations for zoning, structure height, permit submittal and review process, etc.—do not
hinder PV panel installation.
Costs and Benefits:
Private: Private costs would come from the installation and maintenance of a residential PV
system, which can be supported by PACE programs and other incentives. Benefits would
accrue from reduced energy bills and increased property values.
City: City costs would occur from the analysis of potential regulatory barriers and adopting an
ordinance requiring new homes to install PV systems. Revenue would be lost when permit fees
are temporarily suspended.
Measure B: Promote Installation of Commercial and Industrial Photovoltaic Systems
Goal: Promote installation of commercial and industrial PV
systems to produce an additional 10.711.24 MW per year above
projected amounts, or roughly 15 percent of projected
commercial and industrial electricity use, by 2035.
2035 Reduction: 13,3364,457
MTCO2e
Actions: (See also actions A1 and A2 above).
B-1: Adopt a commercial energy conservation ordinance requiring all new nonresidential developments
with more than 50 cars surface parked or on roofs of parking structures to use PV panels over at
least half of the surface/roof-parked cars, or provide equivalent energy conservation/generation by
other means (over and above other requirements). (Short-term)Implement and enforce Title 18,
Chapter 18.30, Section 18.30.130 of the Carlsbad Municipal Code, mandating solar photovoltaic
energy generation systems on new non-residential buildings. (Ongoing)
B-2: Implement and enforce Title 18, Chapter 18.30, Section 18.30.130 of the Carlsbad Municipal Code,
mandating solar photovoltaic energy generation systems on existing non-residential buildings
undergoing major renovations.(Ongoing)Adopt an ordinance requiring existing nonresidential
developments to install PV panels to offset a portion of their energy use. (Mid-term)
Already-Projected Amount: The projected power generation from commercial and industrial
PV systems is 22.3 MW in the year 2035, which is about 30 percent of projected commercial
and industrial electricity use.
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Target: The target is the PV production of 33 MW in the year 2035, which is the equivalent
amount of power production to supply about 45 percent of projected commercial and industrial
demand.
GHG Reduction Measure Description: Photovoltaic (PV) systems convert solar energy into
electricity. Measure B promotes the installation of PV systems on commercial buildings and
industrial facilities above the already-projected amount of 22.3 MW, by an additional
11.2410.7 MW. Together with the already-projected amount of power generation, Measure B
would reach the target PV production of 33 MW in 2035.
Quantification of GHG Emissions Reductions: The EPIC mitigation calculator was used to
quantify emission reductions for Measure B.
Responsibility and Implementation: See Measure A (above) for implementation.Property
owners engaging in new construction and major renovations will be responsible for providing
PV systems. The City is responsible for enforcing the ordinance, as well as encouraging the
voluntary installation of non-residential PV systems through the city website and other means.
Costs and Benefits:
Private: Private costs would result from the installation and maintenance of commercial and
industrial PV systems. Benefits would accrue from reduced energy bills and increased property
values.
City: City costs would occur from removing potential regulatory barriers and preparing
andimplementing and enforcing a nonresidential PV systems ordinance. Revenue would be lost
when permit fees are temporarily suspended.
4.2 Building Cogeneration
Measure C: Promote Building Cogeneration for Large Commercial and Industrial Facilities –
Deleted in CAP Amendment No. 1
Goal: Promote building cogeneration for large commercial and
industrial facilities, with the goal of producing 6.9 MW.
2035 Reduction: 1,067 MTCO2eN/A
This Measures will no longer result in significant GHG reductions due to the high renewable electricity
content associated with SDG&E’s RPS and the CEA CCE.Actions:
C-1: Promote cogeneration by publicizing grant opportunities and financial incentives, such as the Self-
Generation Incentive Program and feed in tariffs for cogeneration systems, for renovations of
existing buildings by posting these on the city’s website and by other means. (Short-term)
C-2: Install cogeneration systems on large city facilities that can benefit from the installation of these
systems, and apply for funding through the Energy Efficiency Financing for Public Sector Projects
program, or other similar funding sources. (Mid to Long-term)
C-3: Require cogeneration systems for large commercial and industrial facilities that have on-site
electricity production, both for new construction and retrofits. (Mid-term)
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Already-Projected Amount: The forecast capacity of building cogeneration systems is 6.9
MW in the year 2035.
Target: The target is to reach the already-projected amount.
GHG Reduction Measure Description: Building cogeneration, also known as combined heat
and power (CHP), is the use of building power stations to simultaneously generate electricity
and heat. Instead of purchasing electricity from a utility and burning fuel in an on-site furnace
to produce needed heat, an industrial or commercial user can use building cogeneration to
provide both electricity and heat in one energy-efficient step. Examples of facilities able to use
building cogeneration include manufacturing plants, hospitals, water and wastewater treatment
facilities,35 and large office buildings.
Building cogeneration reduces building energy costs, provides stability in the face of uncertain
electricity prices, and enhances energy reliability. Building cogeneration also provides the
opportunity to improve critical infrastructure resiliency, by allowing critical facilities to run
without any interruption in service if the electrical grid is impaired. Measure C is to promote
the installation of building cogeneration systems on large commercial and industrial facilities
to reach the projected capacity of 6.9 MW by 2035.
Quantification of GHG Emissions Reductions: The EPIC mitigation calculator was used to
quantify emission reductions for Measure C.
Responsibility and Implementation: The City of Carlsbad will apply for funding to install
cogeneration systems on city facilities that would benefit from the use of these systems. The
city will also publicize incentives for the construction of cogeneration systems, and require
cogeneration systems for new construction and retrofits of large commercial and industrial
facilities through the permitting process, where the facility has on-site non-renewable
electricity generation.
A number of funding sources exist to provide financial support for the installation of
cogeneration systems. Funding for cogeneration systems for city facilities is available through
the Energy Efficiency Financing for Public Sector Projects program. In addition to city
government buildings, the program also applies to schools and other public or institutional
facilities. There is no minimum loan amount, but the maximum loan amount per application is
$3 million. The interest rate is 1 percent, and loans must be repaid from energy cost savings
within 15 years, including principal and interest. As well, the city will consider use of its
Infrastructure Replacement Funds (IRF) to install feasible cogeneration systems as part of
refurbishment of existing city facilities.
The Self-Generation Incentive Program (SGIP) provides financial incentives for the
installation of new qualifying technologies, including cogeneration, that are installed to meet
35 The Encina wastewater treatment plant operates a cogeneration plant that produces over 60 percent of the electricity
used by the facility.
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all or a portion of the electric energy needs of a facility.36 SGIP is funded by the California
Public Utilities Commission, and administered by the California Center for Sustainable Energy
in SDG&E’s service area. San Diego’s 2014 share is approximately $10 million per year.
Under the SGIP program, cogeneration systems receive an incentive of $1.83 per watt
produced. SDG&E also offers seminars on the benefits of cogeneration and fuel cell options
for large facilities.
For cogeneration systems that produce electricity in excess of the facility’s needs, the state of
California has initiated a feed-in tariff, which provides a cost-based price for renewable energy
produced.
36 See the 2014 Self-Generation Incentive Program Handbook. Available:
https://www.selfgenca.com/documents/handbook/2014
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Costs and Benefits:
Private: Private costs would come from the installation and maintenance of building
cogeneration systems, and which could be reduced through funding programs, such as SGIP.
Benefits would accrue from reduced energy bills and increased property values.
City: City costs would come from promoting cogeneration systems, and incorporating the
consideration of cogeneration into the permitting process for commercial and industrial
facilities. Benefits could accrue from reduced energy bills for city facilities that utilize
cogeneration systems.
4.3 Single-family, Multi-family, Commercial, and City
Facility Efficiency Retrofits
Measure D: Encourage Single-Family Residential Energy Efficiency Retrofits
Goal: Encourage single-family residential efficiency retrofits with
the goal of a 50 percent energy reduction compared to baseline
in 30 percent of the total single-family homes citywide by 2035
(approximately 10,000 single-family homes out of a total of
35,000).
2035 Reduction: 1,1327,986 MTCO2e
Actions:
D-1: Publicize available incentive and rebate programs, such as SDG&E’s Residential Energy Efficiency
Program, on the city’s website and by other means. (Short-term)
D-2: Create a citywide “Energy Challenge,” similar to the Department of Energy’s Better Buildings
Challenge, to promote cost-effective energy improvements, while having residents and building
owners commit to reducing energy consumption. (Short-term)
D-3: Adopt a residential energy conservation ordinance, which requires residential property owners to
conduct and disclose an energy audit at the time of major renovations (as defined by the
ordinance), to ensure that homes and residential developments meet specified low cost energy
efficiency measures—such as requisite ceiling insulation, insulated pipes, water heater blankets
and exterior door weather stripping. (Short-term)Implement and enforce Title 18, Chapter 18.30,
Section 18.30.190, mandating energy efficiency measures in existing residential buildings
undergoing major renovations. (Ongoing)
Already-Projected Amount: There is no projection for retrofits that would occur without this
measure.
Target: The target is a 50 percent energy reduction in 30 percent of single-family homes
citywide by the year 2035.
GHG Reduction Measure Description: As single-family homes use a large portion of the
city’s total energy and older homes are substantially less efficient than newly constructed
homes, there is a large opportunity to reduce GHG emissions through the retrofitting of existing
homes. When a single-family homeowner seeks to make major improvements, the owner
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would be required to conduct an energy audit, and meet low-cost energy efficiency measures—
such as changing light bulbs and switches, insulating exposed hot water piping, sealing air
ducts, improving insulation, or installing a “cool roof.” Additional voluntary energy efficiency
measures could include providing weather stripping, promoting natural lighting and
ventilation, and using “smart” thermostats to regulate energy use for heating and cooling.
Quantification of GHG Emissions Reductions: The EPIC mitigation calculator was used to
quantify emission reductions for Measure D.
Responsibility and Implementation: Homeowners would implement this measure. SDG&E
offers a Residential Energy Efficiency Program, which offers residential customers rebates to
improve the efficiency of appliances, such as water heaters, washers, refrigerators, air
conditioners, building insulating, and ceiling fans. The City will publicize this and related
programs on its website and by other means.
Costs and Benefits:
Private: Private costs would come from homeowners conducting energy audits and
implementing efficiency retrofits. The cost of these retrofits is frequently 1 percent or less of
the total renovation cost. Benefits would occur through reduced energy costs. Rebates are
available as described above.
City: City costs would come from promoting incentive programs, creating an “Energy
Challenge” program, and adopting implementing and enforcing a residential energy
conservation ordinance.
Measure E: Encourage Multi-Family Residential Efficiency Retrofits
Goal: Encourage multi-family residential efficiency retrofits with
the goal of a 50 percent energy reduction in 30 percent of the
projected amount of multi-family homes citywide by 2035
(approximately 5,000 out of a total of 17,000).
2035 Reduction: 3,993351 MTCO2e
Actions: See Measure D (above).
Action D-1: Publicize available incentive and rebate programs, such as SDG&E’s Residential Energy
Efficiency Program, on the city’s website and by other means. (Short-term)
Action D-2: Implement and enforce Title 18, Chapter 18.30, Section 18.30.190, mandating energy
efficiency measures in existing residential buildings undergoing major renovations. (Ongoing)
Already-Projected Amount: There is no projection for retrofits that would occur without this
measure.
Target: The goal is a fifty percent energy reduction in thirty percent of the projected amount
of multi-family homes citywide by the year 2035.
GHG Reduction Measure Description: Multi-family residential retrofits provide an
opportunity to reduce building energy use. Multi-family residential retrofits are similar to the
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single-family retrofits described in Measure D, but can provide increased energy savings; for
example, increasing insulation between residential units benefits both units. Other examples of
potential multi-family residential retrofits energy efficiency improvements include replacing
incandescent and halogen lamps with LED or CFL lamps, installing energy-efficient windows
and efficient appliances, and using “smart” thermostats to regulate energy use for heating and
cooling.
Quantification of GHG Emissions Reductions: The EPIC mitigation calculator was used to
quantify emission reductions for Measure E.
Responsibility and Implementation: Multi-family residential unit owners would implement
this measure. SDG&E offers a Residential Energy Efficiency Program, which offers residential
customers rebates to improve the efficiency of appliances, such as water heaters, washers,
refrigerators, air conditioners, building insulating, and ceiling fans. The City will publicize this
and related programs on its website and by other means.
Costs and Benefits:
Private: Private costs would come from multi-family residential unit owners conducting
energy audits and implementing efficiency retrofits. Benefits would occur through reduced
energy costs. Rebates are available as described above.
City: City costs would come from promoting incentive programs, and implementing and
enforcing a residential energy conservation ordinance.and creating an “Energy Challenge”
program.
Measure F: Encourage Commercial and City Facility Efficiency Retrofits
Goal: Encourage commercial and city facility efficiency retrofits
with the goal equivalent to a 40 percent energy reduction in 30
percent of commercial square footage citywide and in city
facilities by 2035.
2035 Reduction: 7,57918,377
MTCO2e
Actions:
F-1: Undertake a program of energy efficiency retrofits for city-owned buildings, with the goal of 40
percent reduction in energy use, beginning with retrofits that would result in the most substantial
energy savings. (Short-term)
F-2: Promote available incentive and rebate programs, such as SDG&E’s Energy Efficiency Business
Rebates and Incentives Program, on the city’s website and by other means. (Short-term)
F-3: Implement and enforce Title 18, Chapter 18.21, Section 18.21.155, mandating energy efficiency
measures in new non-residential buildings and existing non-residential buildings undergoing major
renovations. (Ongoing)Adopt a commercial energy conservation ordinance, which requires
property owners to ensure that commercial buildings meet specified energy efficiency measures—
such as requisite heating, ventilation, and air conditioning improvements, service water system
requirements, and improved refrigeration equipment, at the time of conducting major renovations
(as defined by the ordinance). (Short-term)
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Already-Projected Amount: There is no projection for retrofits that would occur without this
measure.
Target: The target is equivalent to a 40 percent energy reduction in 30 percent of the projected
amount of commercial square footage and in city facilities.
GHG Reduction Measure Description: Relatively straightforward fixes to commercial and
city-owned buildings can significantly reduce spending on fuel and electricity for commercial
buildings. Examples of retrofits include installing efficient boilers and equipment, installation
of high-quality windows, efficient lighting, and other building energy improvements.
Quantification of GHG Emissions Reductions: The EPIC mitigation calculator was used to
quantify emission reductions for Measure F.
Responsibility and Implementation: Building owners would implement this measure for
commercial buildings.37 Funding is available through incentive and rebate programs, such as
SDG&E’s Energy Efficiency Business Rebates and Incentives Program. SANDAG is
preparedpreparing an Energy Roadmap for the city, which included energy audits for most city
facilities and will identifiedy energy conservation measures the city can use to reduce energy
use in city municipal operations.38 Funding for city retrofits can be provided through the
Energy Efficiency Financing for Public Sector Projects program, described above in Measure
C. As well, the city will use its IRF to install energy efficiency retrofits as part of refurbishment
of existing city facilities.
Costs and Benefits:
Private: Private costs would come from building owners and business owners implementing
efficiency retrofits. Benefits would occur through reduced energy costs. Costs could be offset
through incentive and rebate programs.
City: City costs would come from retrofitting city facilities, providing resources to help guide
building owners to implement this measure, promoting available incentive and rebate
programs, and adopting implementing and enforcing a commercial energy conservation
ordinance.
37 AB 8021103, the California Nonresidential Building Energy Use Disclosure Program, requires an owner of a nonresidential building 50,000 square feet or larger to benchmark the building’s energy use data and annually disclose
the energy use to the state.prior to the sale of the building, or the lease and financing of the entire building. This
benchmark data can be used to guide implementation of efficiency measures for buildings renovated after a recent
sale.
38 SANDAG. 2014. “Energy Roadmap for Local Governments.” Available:
http://www.sandag.org/index.asp?classid=17&projectid=373&fuseaction=projects.detail. Accessed: February 25,
2014.
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4.4 Commercial and City Facility Commissioning
Measure G: Promote Commercial and City Facility Commissioning – Deleted in CAP Amendment
No. 1
Goal: Encourage commercial and city facility commissioning, or
improving existing and new building operations, with the goal
equivalent to a 40 percent energy reduction in 30 percent of
commercial square footage citywide and in city-owned buildings
by 2035.
2035 Reduction: 18,377 MTCO2eN/A
This measure is now administered through the utility energy efficiency programs and accounted for in the
legislative business-as-usual projection for state policy and programsActions:
G-1: Promote commissioning programs on the city’s website such as San Diego RCx, and similar
programs for commercial buildings. (Short-term)
G-2: Commission city facilities to improve building operations and reduce energy costs, with a goal of 40
percent energy reduction in 30 percent of city facility square footage. (Mid-term)
Already-Projected Amount: There is no projection for commercial commissioning that
would occur without this measure.
Target: The target is equivalent to a 40 percent energy reduction in 30 percent of existing and
new commercial square footage citywide and in city facilities.
GHG Reduction Measure Description: Commercial commissioning is a systematic process
of ensuring that a building performs according to its design and the occupant’s operational
needs. Commissioning allows the design developed to be successfully constructed and
operated. Examples includes measuring temperatures and flow rates from heating, ventilation,
and air conditioning (HVAC) systems to calibrate to a known standard, as well as reviewing
operations to verify that controls are properly functioning.
Quantification of GHG Emissions Reductions: The EPIC mitigation calculator was used to
quantify emission reductions for Measure G.
Responsibility and Implementation: The City is responsible for commissioning city
facilities. Building owners would implement this measure for commercial buildings. Programs
exist to offer assistance with the commissioning. San Diego RCx, a SDG&E program, provides
a free engineering study to qualified buildings to identify opportunities to save energy. After
opportunities are identified, the program offers financial assistance to help pay the cost of
implementing measures, which are typically low or no cost. Once implementation is complete,
energy savings are confirmed with the utility, and the program pays the building owner the cost
of the improvements. Commissioning of existing city facilities can occur concurrently with
the 10-year master refurbishments schedule, using IRF.
Costs and Benefits:
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Private: Private costs would come from building owners paying for building commissioning,
which may be offset entirely through commissioning programs. Benefits would occur through
reduced energy costs.
City: City costs would come from commissioning city facilities and from promoting
commissioning programs to help guide building owners to implement this measure. Benefits
would occur through reduced energy costs.
4.5 Green Building Code
Measure H: Implement Green Building Measures – Deleted in CAP Amendment No. 1
Goal: Implementation of a 5 percent improvement in energy
efficiency above the City of Carlsbad residential green building
code (based on CALGreen, the statewide green building code),
for new construction.
2035 Reduction: 179 MTCO2eN/A
This Measure is no longer needed because new and future building codes are already more efficient than
the 2013 CALGreen code.Action:
H-1: Adopt residential and commercial energy conservation ordinances requiring a 5 percent
improvement in energy efficiency for residential and nonresidential new construction, above the
existing City of Carlsbad green building code. (Short-term)
Already-Projected Amount: There are no projections for this measure.
Target: The target is a five percent improvement in energy efficiency above the mandatory
requirements set in CALGreen.
GHG Reduction Measure Description: CALGreen, also known as Title 24, is California’s
Building Energy Code. CALGreen requires that new buildings reduce water consumption,
increase system efficiencies, divert construction waste from landfills, and install low pollutant-
emitting finish materials. CALGreen has mandatory measures that apply to nonresidential and
residential construction. The most recent CALGreen code was adopted in 2013 and became
effective in 2014. This measure applies a five percent improvement in energy efficiency above
CALGreen as part of a local Green Building Code.
Quantification of GHG Emissions Reductions: The EPIC mitigation calculator was used to
quantify emission reductions for Measure H.
Responsibility and Implementation: The City of Carlsbad shall adopt a Green Building Code
with a standard of five percent improvement in energy efficiency above CALGreen, which
would also apply to any subsequent updates of the CALGreen Building Code. The Green
Building Code would apply to new construction within the city.
Costs and Benefits:
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Private: Private costs would occur in implementing the improvements in energy efficiency
above the CALGreen code in new construction.
City: There is no cost to the City of Carlsbad, other than adopting the ordinance.
4.6 Efficient Lighting Standards
Measure I: Promote Replacement of Incandescent and Halogen Bulbs with LED or Other Energy
Efficient Lamps
Goal: Replace 50 percent of incandescent and halogen light
bulbs citywide with LED or similarly efficient lighting by 2035. 2035 Reduction: 21,90022 MTCO2e
Actions:
I-1: Replace 50 percent of incandescent or halogen light bulbs in city facilities with LED or similarly
efficient lighting, or follow SANDAG Energy Roadmap recommendations for lighting in city
facilities, whichever results in greater energy savings. (Short-term)
I-2: Promote the use of LED or other energy efficient lamps by publicizing rebate programs and
information from SDG&E on the benefits of the use of LED or other energy efficient lighting on the
city’s webpage. (Short-term)
I-3: Evaluate the feasibility of adopting a minimum natural lighting and ventilation standard, developed
based on local conditions. Demonstrate natural lighting and ventilation features in future city
facility upgrade or new construction. (Mid-term)
Already-Projected Amount: There are no projections for this measure.
Target: The target is to replace 50 percent of incandescent and halogen bulbs citywide with
LED bulbs or similarly efficient lighting by 2035.
GHG Reduction Measure Description: Replace inefficient incandescent and halogen light
bulbs with more efficient light bulbs to reduce the amount of energy needed to power the bulbs,
which will reduce the demand for electricity and thus the amount of GHG emissions created
by the electrical power generation. In November 2019, the California Energy Commission
(CEC) voted to ban the sale of inefficient light bulbs, effective January 2020. Inefficient light
bulbs are defined as any general service lamps with a efficacy of less than 45 lumens per watt.
Under AB 1109 (2007), minimum energy efficiency standards are structured to reduce
statewide electrical consumption by 50 percent or greater from 2007 levels for indoor
residential lighting and by 25 percent or greater from 2007 levels for indoor commercial and
outdoor lighting by 2018. The improved efficiency standards from AB 1109 will help to meet
the goals of this measure. SANDAG is preparingprepared an Energy Roadmap for the city,
which may include lighting replacement recommendations for city facilities. Either the
measures in the Energy Roadmap or the goal of 50 percent of incandescent and halogen light
bulbs will be followed for city facilities, whichever results in greater energy savings.which
included energy audits for most municipal facilities and energy conservation measures the city
can use to reduce energy use in city municipal operations. For existing city facilities, tThe city
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has, and will continue to, implement the will also time the lighting efficiency replacements
with the master refurbishment schedule.
Quantification of GHG Emissions Reductions: An estimated 17 percent of residential and
commercial energy nationwide39 and about 25 percent in California40 is used for lighting.
Applied to citywide energy use, 25 percent corresponds to about 78,000 MTCO2e of forecast
emissions in 2035 (from the SEEC community forecast with General Plan land use and
roadways). LED light bulbs reduce energy consumption and therefore GHG emissions by 75
percent compared to incandescent lighting.41 This measure assumes that about 75 percent of
the bulbs citywide are currently incandescent or halogen, and sets the target of replacing half
of these bulbs with more efficient ones by 2035. 42 New construction could set at a goal of 75
percent of bulbs to be LED or similarly efficient. This would overall lead to a 28 percent
decrease in emissions compared to halogen/incandescent bulbs, which equates to emissions
reductions of 21,900 MTCO2e.43 Promotions and rebates, outreach and education, and the
recent CEC decision have all contributed to lighting efficiency replacements in both the
residential and commercial sectors. Therefore, the GHG reductions from this measure are not
significant.
Responsibility and Implementation: Carlsbad’s street lights were replaced in 2011 with
energy-saving induction units, leading to a reduction of approximately 1,240 MTCO2e per year
(already taken into account). The City has been and will continue to replace light bulbs within
City facilities with LED or similarly efficient lighting, as facilities are upgraded. For residential
and commercial customers, SDG&E currently does not offer rebates for the purchase of LED
or similarly efficient lighting, but the City will promote rebates as they come available on its
website and by other means. The City will also provide information on the benefits of the use
of LED and efficient lighting from SDG&E and other sources.
Costs and Benefits:
Private: Private costs would be from purchasing LED light bulbs for new construction, and
replacing existing light bulbs over time. Benefits would be from reduced energy costs and
reduced cost to replace light bulbs (as LED lights last substantially longer).
City: City costs would come from replacing existing inefficient lighting in City facilities with
more efficient light bulbs over time, providing information to homeowners and business
39 http://www.eia.gov/tools/faqs/faq.cfm?id=99&t=3
40 California Public Utilities Commission; http://www.cpuc.ca.gov/NR/rdonlyres/6234FFE8-452F-45BC-A579-
A527D07D7456/0/Lighting.pdf
41 http://www.energystar.gov/index.cfm?fuseaction=find_a_product.showProductGroup&pgw_code=LB
42 It is estimated that 75 percent of lighting within the City is currently incandescent, halogen, or linear fluorescent. U.S. Department of Energy, 2010 U.S. Lighting Market Characterization, January 2012, Table 4.1;
http://apps1.eere.energy.gov/buildings/publications/pdfs/ssl/2010-lmc-final-jan-2012.pdf
43 75 percent reduction in energy use in half of the 75 percent total incandescent bulbs is (75 percent)*(75 percent)*(50
percent)= 28 percent reduction
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owners to encourage a switch to LED or other efficient lamps, and evaluating the feasibility of
a natural lighting and ventilation ordinance.
4.7 Solar Water Heater/Heat Pump Installation
Measure J: New Construction Residential and Commercial Solar Water Heater Installation
Goal: Install solar water heaters or heat pumps on all new
residential and commercial construction. Retrofit up to 30
percent of existing homes and commercial buildings to include
solar water heaters or heat pumps.
2035 Reduction: 11,6042,813
MTCO2e
Actions:
J-1: Promote the installation of solar water heaters and heat pumps by publicizing incentive, rebate and
financing programs, such as PACE programs and the California Solar Initiative for renovations of
existing buildings by posting this information on the city’s website and by other means. (Short-term)
J-2: Adopt residential and commercial energy conservation ordinances requiring new residential and
commercial buildings to install solar water heaters or heat pumps, or use alternative energy (such as
PV-generated electricity) for water heating needs. (Short-term)Implement and enforce Title 18,
Chapter 18.30, Sections 18.30.150 and 18.30.170, mandating alternative water heating
requirements in new residential and non-residential buildings. (Ongoing)
Already-Projected Amount: There are no solar water heaters/heat pumps projected to be
installed.
Target: The target is to install solar water heaters or heat pumps on all new residential and
commercial construction, and retrofit up to 30 percent of existing homes and commercial
buildings to include solar water heaters or heat pumps.
GHG Reduction Measure Description: Solar water heaters use water heated by the sun to
provide domestic and commercial hot water. Solar water heaters reduce the demand for energy
used to heat water. A solar water heater can contribute 30 to 80 percent of the energy needed
for residential water heating.44 Heat pumps are devices that use a small amount of energy to
move heat from one location to another.
Quantification of GHG Emissions Reductions: The EPIC mitigation calculator was used to
quantify emission reductions for Measure J.
Responsibility and Implementation: The City of Carlsbad currently participates in three
Property Assessed Clean Energy (PACE) programs: CaliforniaFIRST, Ygrene, and California
HERO. PACE programs provide financing to eligible property owners for sustainable energy
projects, including The three PACE programs described in Measure A also provide financing
for the installation of solar water heaters and heat pumps to improve residential energy
44 California Energy Commission. 2009. Go Solar California: A Step by Step Tool Kit for Local Governments to Go
Solar. Available: http://www.energy.ca.gov/2009publications/CEC-180-2009-005/CEC-180-2009-005.PDF.
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efficiency. The California Solar Initiative has a low-income solar water heating rebate program
and solar thermal program, which offers rebates for solar water heaters. Installation of solar
water heaters on all new residential and commercial water heaters could occur through city
ordinance. Retrofit of existing homes could occur through a combination of additional
encouragement and incentives.
Costs and Benefits:
Private: Private costs would occur through the installation of residential and commercial solar
water heaters, which would be passed onto building owners. Benefits would occur through
reduced water heating costs.
City: City costs would occur from adopting implementing and enforcing an ordinance requiring
new homes and commercial buildings to install solar water heaters or heat pumps.
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4.8 Transportation Demand Management
Measure K: Promote Transportation Demand Management Strategies
Goal: Promote Transportation Demand Management Strategies
with a goal of achieving a 10 percent increase in alternative
mode use by workers in Carlsbad, for a total of 32 percent
alternative mode use.
2035 Reduction: 23,5496,325
MTCO2e
Actions:
K-1: Adopt aImplement the citywide transportation demand management (TDM) plan, as described in
the General Plan Mobility Element, detailing a mix of strategies to reduce travel demand,
specifically of single occupancy vehicles. SANDAG’s 2012 “Integrating Transportation Demand
Management Into the Planning and Development Process”45 provides a guide to designing and
implementing a TDM plan and will be used as a reference document to develop the city’s TDM
plan. TDM and strategies evaluated in the plan include parking ordinances, subsidized or
discounted transit programs, transit marketing and promotion, carsharing, bikesharing, parking
pricing, and bike parking. (Short-termOngoing)
K-2: Adopt a TDM ordinance, defining a minimum trip generation threshold for nonresidential
development projects. The city will set performance requirements for minimum alternative mode
use based on project type. All projects above the threshold shall submit a TDM plan, which
includes a description of how the minimum alternative mode use will be achieved and maintained
over the life of the project. Potential TDM trip reduction measures can include carpool and vanpool
ridematching services; designated employees as contacts for trip reduction programs; providing a
direct route to transit in coordination with NCTD; developing public-private transit partnerships;
passenger loading zones; pedestrian connections; showers and clothes lockers; carsharing,
bikesharing long–term bicycle parking and shuttle programs. (Mid-term)Implement and enforce
Title 18, Chapter 18.51, mandating TDM improvements and strategies for non-residential
development. (Ongoing)
Already-Projected Amount: There are no projections for this measure. As of 2012,
alternative (non-single occupancy vehicle use—such as working at home, carpooling, transit,
walking and biking) mode use by Carlsbad workers is 22 percent.46 Of these alternative uses,
most workers work at home (44 percent) and carpool (36 percent), followed by public transit
(10 percent), other means (including biking, 6 percent), and walking (5 percent).
Target: The Carlsbad General Plan promotes the use of Transportation Demand Management
(TDM), but does not specify a target goal. This measure specifies a goal of achieving an
additional 10 percent use of alternative modes, for an overall 32 percent alternative mode use
by workers employed in Carlsbad. This is projected to be achieved through 40 percent
alternative mode use by workers in new nonresidential buildings, and 30 percent alternative
mode use by workers in existing (as of 2013) nonresidential buildings.
45 Available: http://www.icommutesd.com/documents/tdmstudy_may2012_webversion_000.pdf.
46 American Community Survey. 2012. Selected Economic Characteristics for Carlsbad, California. Available:
http://factfinder2.census.gov/.
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GHG Reduction Measure Description: Chapter 3 quantifies emissions reductions from the
Carlsbad General Plan due to bikeway system improvements, pedestrian improvements, traffic
calming, parking facilities and policies, and transportation improvements. This measure is
distinct from these reductions because it focuses on TDM, or the application of strategies and
policies to reduce travel demand, or redistribute it in time and space. This measure reduces
VMT by shifting single occupancy vehicle use to alternative modes, reducing the average
commute length, promoting an alternate work schedule, and promoting telecommuting.
Quantification of GHG Emissions Reductions: The EPIC mitigation calculator was used to
quantify emission reductions for Measure K.
Responsibility and Implementation: The City of Carlsbad will develop implement a TDM
plan describing strategies to reduce travel demand. The city will also develop implement an
ordinance applying to nonresidential developments meeting a specified minimum trip
generation threshold, providing connections to public transportation whenever possible. The
city will facilitate a coordinated effort between local businesses and NCTD to develop a route
expansion and ridership plan wherever feasible. SANDAG’s iCommute program assists
commuters by providing free carpool and ridematching services, a subsidized vanpool
program, the Guaranteed Ride Home program, SchoolPool carpooling programs for parents,
and information about teleworking, all of which can support the city’s TDM goals.
Costs and Benefits:
Private: Private costs could include need for a TDM coordinator for private businesses,
providing on-site facilities (showers, lockers), and shuttle programs. Benefits would accrue
from reduced spending on gasoline, and reduced traffic from less employee commute.
City: City costs would result from developing, implementing, and enforcing a TDM plan and
ordinance. Implementation costs would include conducting an outreach and education
campaign to promote the benefits of TDM.
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4.9 Increased Zero-Emissions Vehicle (ZEV) Travel
Measure L: Promote an Increase in the Amount of Zero-Emissions Vehicle Travel
Goal: Promote an increase in the amount of ZEV47 miles
traveled from a projected 15 4.5 percent to 25 percent of total
vehicle miles traveled by 2035.
2035 Reduction: 54,15849,912
MTCO2e
Actions:
L-1: Working with industry partners, construct a “PV to EV” pilot project to install a PV charging station at
a city facility (such as the Faraday Center), to charge city ZEVs. The purpose of the pilot project
would be to evaluate the feasibility of incorporating more ZEV into the city’s fleet. (Short-term)
L-2: Prepare a community-wide charging station siting plan, which evaluates site visibility and exposure,
EV driving ranges, high volume destinations, locations with high ownership or interest in EVs, and
cost of construction. (Short-term)
L-3: Construct ZEV charging stations based on the community-wide charging station siting plan
described in L-2 above. The ZEV charging stations will be funded by grant funds when available,
and the city will post signage directing ZEVs to charging stations. (Mid-term)
L-4: Offer dedicated ZEV parking, and provide charging stations adjacent to ZEV parking as identified in
the community-wide charging station siting plan. (Mid-term)
L-5: Adopt requirements for ZEV parking for new developments. (Short-term)
L-6: Implement and enforce Title 18, Chapter 18.21, Sections 18.21.140 and 18.21.150, mandating
electric vehicle charging infrastructure in new residential and non-residential building and existing
residential and non-residential buildings undergoing major renovations. (Ongoing)Adopt a residential
energy conservation ordinance, similar to Palo Alto, requiring the installation of EV chargers or pre-
wiring in new residential construction and major renovations. (Short-term)
L-7: Update the city’s Fleet Management Program to include a low and zero-emissions vehicle
replacement/purchasing policy. Increase the proportion of fleet low and zero–emissions vehicle miles
traveled to 25 percent of all city-related VMT by 2035. (Short-term)
Already-Projected Amount: According to the EPIC mitigation calculator, 15 4.5 percent of
the vehicle miles traveled in 2035 are projected to be from ZEVs.
Target: The target is to increase the proportion of vehicle miles traveled from 15 4.5 percent
to 25 percent by the year 2035.
GHG Reduction Measure Description: Driving ZEVs reduces carbon emissions by
eliminating direct tailpipe emissions of carbon dioxide and other GHGs. The production of
electricity used to power electric vehicles generates GHGs; however, SDG&E electricity
generates much less GHGs than the direct combustion of fossil fuels. Furthermore, electric
vehicles can be charged at home or the workplace using energy produced by PV panels,
47 Zero-Emissions Vehicle (ZEV) is a vehicle that emits no tailpipe pollutants from the onboard source of power. ZEVs
include electric vehicles, fuel cell vehicles, and plug-in hybrids, when in electric mode.
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eliminating GHG emissions completely, at least for the months when PV panels produce the
full amount of electricity needed for operations. The ability to provide entirely emissions-free
transportation through the use of PV panels to charge ZEVs should be capitalized on whenever
possible.
Quantification of GHG Emissions Reductions: The EPIC mitigation calculator was used to
quantify emission reductions for Measure L.
Responsibility and Implementation: The city will promote an increase in the amount of
electric vehicle travel by constructing ZEV charging stations using the community-wide station
siting plan. Grant funding for the construction of the ZEV charging stations can come from the
California Energy Commission’s Electric Vehicle Charging Infrastructure grant, or other
similar grant programs. The city would be responsible for operating (including electricity
provision, for stations not using PV panels) and maintaining charging stations.
The city will is also promoteing the use of ZEVs by offering requiring dedicated ZEV parking
and adopting requirements for ZEV parkingcharging infrastructure for new development and
major renovations. The city will create an ordinance requiring the installation of ZEV chargers
or pre-wiring in new residential construction and major renovations.48 Through its Fleet
Vehicle Replacement Fund, the City of Carlsbad will is increasinge the city fleet mix of ZEVs,
hybrids, and other low- or zero-emissions vehicles to increase low and zero–emissions vehicle
miles traveled to 25 percent by 2035.
Costs and Benefits:
Private: The private cost would be the purchase of an electric vehicle and the cost of electricity
to power the electric vehicle, for community members who elect to purchase an electric vehicle.
Costs may also occur from installing EV chargers or pre-wiring into new residential
construction or major renovations. Benefits would accrue from reduced spending on gasoline.
City: City costs would be from planning for, constructing, operating (including providing
electricity, for stations not using PV panels) and maintaining ZEV charging stations, which
may be offset by potential user fees or grants from the California Energy Commission, or other
similar agencies. City costs may occur from developingwould also be from implementing
ordinances to require the installation of ZEV chargers in new residential construction and major
renovations.. City costs may also occur from fleet purchases of ZEV vehicles. Benefits would
accrue from reduced spending on gasoline.
48 Assembly Bill 1092 (2013) requires the Department of Housing and Community Development to propose minimum
building standards for the installation of future electric vehicle charging infrastructure for parking spaces in multi-
family dwellings and nonresidential development.
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4.10 Citywide Renewable Projects
Measure M: Develop More Citywide Renewable Energy Projects
Goal: Produce the equivalent amount of energy to power 2,000
homes (roughly equivalent to a 5 percent reduction) by 2035
from renewable energy projects.
2035 Reduction: 4,5802,774 MTCO2e
Actions:
M-1: Conduct a feasibility study to evaluate citywide renewable energy projects and prioritize
accordingly. (Short-term)
M-2: Incorporate renewable energy measures such as PV system installation on city buildings and
parking lots, or microturbine installation on city facilities, with the goal of producing approximately
12,000 megawatt-hours per year. (Mid to Long-term)
M-3: Pursue available funding sources for the construction of renewable energy projects by the city,
such as Energy Efficiency Financing for Public Sector Projects and SGIP. (Mid to Long-term)
Already-Projected Amount: There is no projected amount for this measure.
Target: The target is the production of 12,341 megawatt-hours per year, approximately the
energy required to power 2,000 homes.
GHG Reduction Measure Description: The City of Carlsbad has a number of renewable
energy projects in various stages of planning and development. The Maerkle Reservoir
Hydropower Project, which has been permitted by the Federal Energy Regulatory Commission
(FERC), is estimated to produce about 833 MWh per year. In 2014, Alga Norte Community
Park was outfitted with a PV system in the parking area, which will generate some 360 MWh
of electricity per year. Other planned projects include a second pressure-reducing hydroelectric
generator, similar to the Maerkle Reservoir Hydropower Project, and a potential large PV
system at the Maerkle Reservoir property.
Quantification of GHG Emissions Reduction: The production of 12,341 megawatt-hours per
year was converted into MTCO2e using the 2010 SDG&E coefficient of 742.2 lb CO2e per
megawatt-hour. This corresponds to a reduction of 4,5802,774 MTCO2e.
Responsibility and Implementation: The City of Carlsbad would be responsible for
conducting a feasibility study, determining suitable renewable technologies, siting renewable
projects, and constructing and maintaining the renewable energy projects. Funding sources
include the Energy Efficiency Financing for Public Sector Projects, which includes renewable
energies such as PV systems and other distributed generation technologies, as well as the Self-
Generation Incentive Program (SGIP), as described above in Measure C. As well, the city will
use IRF to install renewable energy systems as part of refurbishment of existing city facilities,
where it is feasible to do so.
Costs and Benefits:
Private: There are no direct private costs from this measure.
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City: City costs are planning (including a feasibility study), constructing and maintaining the
renewable facilities, some of which may be offset through the funding sources described above.
Benefits accrue from electricity savings to City through net energy metering.
4.11 Water Utilities System Improvements
Measure N: Reduce GHG Intensity of Water Utilities Supply Conveyance, Treatment, and
Distribution 49
Goal: Reduce the intensity of GHG emissions from water utilities
(including water supply, wastewater, and recycled water)
conveyance, treatment, and distribution by 8 percent by 2035.
2035 Reduction: 5,968713 MTCO2e
Action:
N-1: Improve water utilities (including water supply, wastewater, and recycled water) conveyance,
treatment and distribution, and other system improvements. (Mid to Long-term)
Already-Projected Amount: The goal of an 8 percent reduction by 2035 is the default value
in the EPIC mitigation calculator.
Target: The target is to achieve the already-projected amount.
GHG Reduction Measure Description: This measure estimates emissions reductions from
changes in the efficiency of water utilities (including water supply, wastewater, and recycled
water) conveyance, treatment, and distribution facilities within the City of Carlsbad.50 This
combines improvements in overall system efficiency, the reduction in GHG intensity of
electricity used to move water, wastewater, and recycled water, and replacing potable water
needs with expanded recycled water supply. Carlsbad’s Sewer Master Plan, for example, calls
for eliminating several sewer lift stations and replacing them with gravity pipelines, which
would reduce energy usage.51 The Encina Water Pollution Control Facility exemplifies GHG
reductions from water treatment; the facility currently is able to satisfy 60 percent of its energy
needs through methane capture and cogeneration and has a long-term goal of energy
independence from purchased energy. The 2012 Carlsbad Municipal Water District Recycled
Water Master Plan estimates that, by 2030, recycled water demand could double from 4,100
acre-feet/year to about 9,100 acre-feet/year. Expanding the recycled water system would
appreciably reduce the need for more expensive imported water needs in the future.
49 For purposes of this measure, water utilities include potable water treatment and conveyance, sewer conveyance, and
recycled water treatment and conveyance systems.
50 Note: The GHG reductions from water conservation measures detailed in the 2010 Carlsbad Municipal Water District
Urban Water Management Plan (UWMP) have already been considered in the GHG forecasts. Further GHG reductions may be possible through greater conservation efforts than those outlined in the UWMP, including Ordinance No. 44 (2009); however, these have not been quantified in this CAP.
51 The City is replacing three sewer lift stations, which use a combined total of approximately 6,200 kWh of electricity
per year with gravity pipelines, in addition to other planned rehabilitation upgrades included in the Sewer Master Plan.
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Quantification of GHG Emissions Reduction: The EPIC mitigation calculator was used to
quantify emission reductions for Measure N, which estimates wastewater emissions reductions
from methane capture, reductions from water treatment and distribution facilities, and changes
in the supply network, including greater use of recycled water.
Responsibility and Implementation: The City of Carlsbad would be responsible for making
the improvements to water supply conveyance, treatment, and distribution, which could occur
through improvements to the Carlsbad Municipal Water District’s system.
Costs and Benefits:
Private: There would be no private costs for this measure.
City: Costs to the City of Carlsbad are from implementing the improvements to the water
utilities system. Benefits occur by reducing energy costs and having newer water delivery
infrastructure.
Measure O: Encourage the Installation of Greywater and Rainwater Collection Systems
Goal: Encourage the installation of greywater and rainwater
collection systems with a goal of 15 percent of homes by 2035.
2035 Reduction: 1,205137 MTCO2e
Actions:
O-1: Host workshops on greywater and rainwater collection systems through the Carlsbad Municipal
Water District, or partner with existing workshop providers, for homeowners interested in installing
systems suitable for their property. (Mid-term)
O-2: Create a design reference manual, or provide links to an existing one, for the design of greywater
and rainwater collection systems. (Mid-term)
O-3: Evaluate the feasibility of offering a rebate for residential greywater systems that require a permit
to cover the cost of obtaining a permit. (Mid-term)
Already-Projected Amount: There is no projection for this measure.
Target: The target is for 15 percent of single-family homes to have greywater and rainwater
collection systems installed by 2035.
GHG Reduction Measure Description: Greywater is wastewater generated from hand
washing, laundry machines, and showers and baths that have not been contaminated by any
toilet discharge. Greywater can be recycled onsite for toilet flushing and subsurface (below
ground) landscape irrigation using a greywater system. The regulations for the design,
construction and use of greywater systems are in Chapter 16A of the California Plumbing
Code. Some small greywater systems that involve laundry machines or single fixtures only are
exempt from permits. More complicated greywater systems require building permits from the
City. Rainwater harvesting is the practice of collecting rainwater from hard surfaces, such as
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roofs, and storing it in barrels or cisterns, which can be used for landscape irrigation. Measure
O is to promote the use of on-site greywater and rainwater collection systems for residences.
Quantification of GHG Emissions Reductions: Nationwide, about seven percent of U.S.
GHG emissions are from water and wastewater service provision to urban populations.52 For
this measure, it was assumed that seven percent of the citywide emissions are from water
provision and wastewater services.53 Therefore, about 32,000 MTCO2e of 2035 emissions are
from water provision and wastewater services.
If maximally pursued, the use of greywater and rainwater collection systems could reduce
water demands by 25 percent on a statewide scale.54 For this measure, it was assumed the 25
percent reduction in water demand would scale to individual houses that implement greywater
and rainwater collection systems. A goal of 15 percent of homes with greywater and rainwater
harvesting systems was chosen. A 25 percent reduction of water use in 15 percent of homes
corresponds to a GHG reduction of about 1,205137 MTCO2e.
Responsibility and Implementation: Homeowners would be responsible for the installation
of greywater and rainwater collection systems. The City of Carlsbad will, through the Carlsbad
Municipal Water District, host greywater and rainwater harvesting workshops, or partner with
existing workshop providers. The City will also reference or develop a greywater and rainwater
collection system design manual and consider offering a rebate for residential greywater
systems that require a permit to cover the cost of obtaining a permit.
Costs and Benefits:
Private: Costs to homeowners would be from constructing and maintaining greywater and
rainwater collection systems. Benefits would accrue over time through water savings.
City: Costs to the City of Carlsbad are from hosting workshops and developing or reviewing
greywater and rainwater collection manuals to adopt.
4.13 Clean Electricity
Measure P: Increase the Proportion of Clean Electricity in Community Energy Consumption
52 Source: V. Novotny. 2010. “Urban Water and Energy Use: From Current US Use to Cities of the Future.” Cities of the
Future/Urban River Restoration. Water Environment Federation. 9: 118-140.
53 The 7 percent estimate was used for the purpose of this reduction measure because the Chapter 2 inventory did not directly quantify all emissions associated with water use, but rather included those as part of commercial, industrial
and residential energy use (e.g. heating water).
54 Source: J. Loux, R. Winer-Skonovd, E. Gellerman. 2012. “Evaluation of Combined Rainwater and Greywater Systems
for Multiple Development Types in Mediterranean Climates.” Journal of Water Sustainability. 2(1): 55-77.
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Goal: Achieve 100% renewable electricity by 2030 for 95% of
the residential bundled load and 85% commercial + industrial
bundled load.
2035 Reduction: 56,207 MTCO2e
Action:
P-1: Continue participation in the Clean Energy Alliance Community Choice Energy program (Ongoing).
P-2 Explore the purchase of renewable energy credits if Community Choice Energy program is not
reaching 2035 goal.
Already-Projected Amount: There is no projection for this measure.
Target: The target is for 95 percent of the bundled residential load and 85 percent of the
bundled commercial plus industrial load to use 100% renewable electricity.
GHG Reduction Measure Description: California Assembly Bill 117 allows local
governments to form Community Choice Aggregations, commonly referred to as Community
Choice Energy (CCE) program. These programs offer an alternative electric power option to
customers with the area currently served by an investor-owned utility. CCEs allow local
jurisdictions to increase the proportion of renewable energy available to customers that, in turn,
lowers the GHG emissions from electricity consumption. Another means to lower electricity-
related GHG emissions is to purchase renewable energy credits as an offset to the consumption
of electricity from non-renewable generation sources.
Quantification of GHG Emissions Reductions: The GHG emissions reductions anticipated
with this measure are derived from the Community Choice Energy Technical Feasibility Study
(prepared by EES Consulting, Inc. and dated March 28, 2019), which was prepared for the
cities of Carlsbad, Del Mar, Encinitas and Oceanside. The study evaluates three renewable
energy portfolio scenarios: an SDG&E equivalent; 100% renewable by 2030; and, 100%
renewable upon inception. The GHG emissions reductions associated with this measure are
beyond the reductions assumed by the state mandated renewable portfolio standard.
Responsibility and Implementation: The Clean Energy Alliance Joint Powers Authority and
its staff are responsible for implementing the Community Choice Energy program. Electricity
customers can choose the proportion of renewable energy they consume (50% or 100%). City
staff will monitor the program participation rates and renewable proportions, amount of
renewable energy procured, and the resulting GHG emissions reductions to determine the need
for purchasing renewable energy credits to meet the 2035 reduction target.
Costs and Benefits:
Private: Costs to electricity customers will be a function of the Clean Energy Alliance rate
structure and the proportion of renewable energy purchased through the program.
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City: Costs to the City of Carlsbad are from staff and financial contributions to the Clean
Energy Alliance Joint Powers Authority and, if needed, the purchase of renewable energy
credits.
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4.124.14 Combined Effect of CAP GHG Reduction
Measures and Forecast with CAP
Table 4-1 shows a summary of the CAP GHG reduction measures. While the individual
measures may be implemented over different timescales, for the purposes of calculating their
impact in this section, it was assumed that the effect of all measures would begin in the mid-
term time frame and increase linearly to reach the full reduction potential in the year 2035.
Table 4-2 shows proposed residential energy conservation, commercial energy conservation,
and transportation demand management ordinances adjacent to the applicable reduction
measures.
As a whole, the CAP GHG reduction measures were designed to enable Carlsbad to achieve
its GHG reduction target in the year 2035. The combined GHG reductions from these measures
is 185,919142,918 MTCO2e in 2035, which covers the emissions “gap” identified in Chapter
3. Table 4-23 adds the effect of the CAP GHG reduction measures to the community forecast,
and compares the resulting forecast with CAP GHG reduction measures to emission targets.
As proposed, this CAP meets the emissions targets for both 2020 and 2035. Interim “milestone”
years 2025 and 2030 are presented in Table 4-3 in order for the city to check its progress
towards meeting the 2035 target. Figure 4-1 shows the forecast with CAP reduction measures
compared to the emissions targets to demonstrate that both 2020 and 2035 targets will be met
with the implementation of this CAP.
For this CAP to successfully be implemented, the City of Carlsbad must play a prominent role
in implementing the CAP GHG reduction measures. In addition to responsibility and
implementation covered for each measure in this chapter, the following chapter discusses how
the CAP will be revised and updated in the future to ensure that the targets are met.
July 14, 2020 Item #17 Page 94 of 128
4: CAP GHG REDUCTION MEASURES
4-30
TABLE 4-1: CAP GHG REDUCTION MEASURES SUMMARY
Measure
Letter
GHG Reduction Measures GHG Reduction in
2035 (MTCO2e)
A Install residential PV systems 10,136N/A
B Install commercial and industrial PV systems 13,3364,457
C Promote building cogeneration for large commercial and industrial
facilities
1,067N/A
D Encourage single-family residential efficiency retrofits 1,1327,986
E Encourage multi-family residential efficiency retrofits 3513,993
F Encourage commercial and city facility efficiency retrofits 18,3777,579
G Promote commercial and city facility commissioning, or improving
building operations
18,377N/A
H Implementation of Green Building Code 179N/A
I Replace Incandescent bulbs with LED bulbs 21,90022
J New construction residential and commercial solar water
heater/heat pump installation & retrofit of existing residential
11,6042,813
K Promote Transportation Demand Management 23,5496,325
L Increase zero-emissions vehicle travel 54,15849,912
M Develop more citywide renewable energy projects 4,5802,774
N Reduce the GHG intensity of water supply conveyance, treatment
and delivery
5,968713
O Encourage the installation of greywater and rainwater systems 1,205137
P Implement Community Choice Energy 56,207
Total GHG Reductions 185,919142,918
TABLE 4-2: LIST OF PROPOSED ORDINANCES AND APPLICABLE MEASURES
PROPOSED ORDINANCES Applicable Measures
Residential Energy Conservation Ordinance A, D, E, H, I, J, L
Commercial Energy Conservation Ordinance B, F, H, I, J, L
Transportation Demand Management Ordinance K
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CARLSBAD CLIMATE ACTION PLAN
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TABLE 4-23: FORECAST COMMUNITY EMISSIONS WITH CAP GHG REDUCTION MEASURES
AND TARGETS
Year Modified Baseline
ForecastBusiness-
As-Usual Forecast
(MTCO2e)
Total
Modified
Baseline
Forecast
(From
Chapter
3)
(MTCO2e)
CAP GHG
Reduction
Measures
(Phased in
Linearly to
2035)
(MTCO2e)
Forecast
Community
Emissions
with CAP GHG
Reduction
Measures
GHG Emission
Targets
(Linear Scaling
of AB 32/S-3-
05) (MTCO2e)
Emission
Target
Met?
2020 473,082926,000 N/A 53,120N/A 419,962N/A 535,763939,000 Yes
2025 467,018 97,386 369,632 464,328
2030 452,762 141,654 311,108 392,893
2035 455,556956,000 588,817 185,919142,918 269,637445,899 321,458472,000 Yes
Figure 4-1: Forecast Community Emissions with CAP Reduction Measures
and Targets
-
100,000
200,000
300,000
400,000
500,000
600,000
700,000
2010 2015 2020 2025 2030 2035MTCO2e Emissions
Date
Forecast with CAP Reduction
Measures
Emissions Targets (AB 32/S-3-05)
July 14, 2020 Item #17 Page 96 of 128
4: CAP GHG REDUCTION MEASURES
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July 14, 2020 Item #17 Page 97 of 128
EXHIBIT 2
5-1
5
Implementation, Monitoring
and Reporting
Chapters 3 and 4 identify a comprehensive set of goals and specific, enforceable measures and
actions that the city will take in order to meet its GHG emissions targets. Implementation and
monitoring are key to ensuring that the city is successful in reaching those targets. The city will
use an adaptive management approach to CAP implementation. Adjustments to management
actions will be made as needed to support continuous improvement based on measured results,
monitoring effectiveness, new technology, or in response to deficiencies in program
assessment results. This chapter describes how the City of Carlsbad will implement the CAP
and monitor and report on its effectiveness, consistent with State CEQA Guidelines Sections
15183.5(b)(1)(D) and (E).
For discretionary projects seeking to use CEQA streamlining provisions, in an environmental
document the city shall refer to the required measures in this CAP as mandatory conditions of
approval or as mitigation. This will enable projects to benefit from CEQA streamlining
provisions, while ensuring that the city can achieve the reduction targets outlined in this plan.
5.1 Implementation
Table 5-1 lists all of the measures and actions identified in Chapters 3 and 4 along with the
following information:
Responsible Department: The city department(s) that will be primarily responsible for
implementing, monitoring, and reporting on the progress for each measure.
Annual GHG Reduction Goal: The estimated annual emission reductions anticipated by the
2035 target years 2020 and 2035, and interim milestone years 2025 and 2030.
Performance Target: The expected quantified outcome of the GHG reduction measure.
Progress Indicators: The types of data that will be collected to measure progress toward the
performance target and correlate to GHG emissions reductions. Progress indicators will be
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5: IMPLEMENTATION, MONITORING AND REPORTING
5-2
confirmed as part of the implementation of each measure. If a recommended progress indicator
is found to be infeasible to collect or track, an alternative indicator will be identified.
Unit of Measure: Input units used to calculate GHG emissions reductions (MTCO2e),
whereby:
Gallons of water = water consumption
kWh/MWh = electricity consumption in kilowatt-hours or megawatt-hours
MTCO2e = metric tons of CO2 equivalent emissions
Therm = natural gas consumption in therms
VMT = vehicle miles traveled
Implementation Timeframe: The schedule by which each action is to be implemented,
beginning from the year the CAP is adopted, as follows:
Short-term – one to two years
Mid-term – two to five years
Short to Long-term, or Mid-to Long-term – actions that will begin in the short or mid-
term, but take longer than five years to fully implement.
Ongoing - continue for the duration of CAP implementation
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5-3 TABLE 5-1: CAP IMPLEMENTATION MATRIX Measure / Actions Responsible Department(s) Annual GHG Reduction Goals (MTCO2e) Performance Target Unit of Measure Implementation Timeframe o Progress Indicators General Plan Measures (see Section 3.6 for complete descriptions) Bikeway system improvements Public Works, Community & Economic Development 2020: 164 2025: 159 2030: 153 2035: 608147 Achieve 2.85 miles of bike lanes per square mile, corresponding to .07% VMT reduction VMT Short to Long-term o Miles of bikeways added o Miles of bikeways enhanced Pedestrian improvements and increased connectivity Public Works, Parks & Recreation, Community & Economic Development 2020: 2,341 2025: 2,268 2030: 2,194 2035: 6152,106 1% VMT reduction VMT Short to Long-term o Miles of pedestrian and trail improvements o Number of new connection points Traffic calming Public Works, Community & Economic Development 2020: 585 2025: 567 2030: 548 2035: 526969 .25% VMT reduction VMT Short to Long-term o Number of traffic calming devices installed o Vehicle travelway width reduction o Pedestrian crossing width reduction Parking facilities and policies Public Works, Community & Economic Development 2020: 4,682 2025: 4,535 2030: 4,388 2035: 6,6184,211 2% VMT reduction VMT Short to Long-term o % reduction in parking standards o Number of projects with alternative parking provisions (shared parking, unbundled parking cost, valet, etc.) o Number of EV parking spaces installed Transportation improvements Public Works, 2020: 1,475 .63 VMT reduction VMT July 14, 2020Item #17 Page 100 of 128
[Type here] TABLE 5-1: CAP IMPLEMENTATION MATRIX Measure / Actions Responsible Department(s) Annual GHG Reduction Goals (MTCO2e) Performance Target Unit of Measure Implementation Timeframe o Progress Indicators Community & Economic Development 2025: 1,429 2030: 1,383 2035: 2,0851,327 o Transit ridership counts MTCO2e Short to Long-term CAP Measures (see Sections 4.1 - 4.11 for complete descriptions) A – Promote installation of residential photovoltaic systems 2020: 2,896 2025: 5,309 2030: 7,723 2035: 10,136N/A Promote installation of residential PV systems to produce an additional 9.1 MW above already projected amounts, or the equivalent of 2,682 more homes with PV systems, by 2035N/A A-1: Temporarily suspend PV system permit fees Community & Economic Development, Communications o Number of promotional events o MW installed PV kWh Short-term A-2: Review local regulations for constraints on PV Community & Economic Development n/a Short to Long-term A-3: Adopt ordinance requiring PV in new residential construction Community & Economic Development o Ordinance adoption o MW installed PV kWh Short-term July 14, 2020Item #17 Page 101 of 128
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5-5 TABLE 5-1: CAP IMPLEMENTATION MATRIX Measure / Actions Responsible Department(s) Annual GHG Reduction Goals (MTCO2e) Performance Target Unit of Measure Implementation Timeframe o Progress Indicators B - Promote Installation of commercial and industrial photovoltaic systems 2020: 3,810 2025: 6,986 2030: 10,161 2035: 13,3364,457 Promote installation of commercial and industrial PV systems to produce an additional 10.7 MW per year above projected amounts, or roughly 15 percent of projected commercial and industrial electricity use, by 2035 B-1: Implement and enforce Title 18, Chapter 18.30, Section 18.30.130 of the Carlsbad Municipal Code, mandating solar photovoltaic energy generation systems on new non-residential buildings. Require PV on large new nonresidential construction Community & Economic Development o Ordinance adopted o MW installed PV kWh Short-termOngoing B-2: Implement and enforce Title 18, Chapter 18.30, Section 18.30.130 of the Carlsbad Municipal Code, mandating solar photovoltaic energy generation systems on existing non-residential buildings undergoing major renovationsAdopt an ordinance requiring existing nonresidential developments to install PV panels to offset a portion of their energy use Community & Economic Development o Ordinance adopted o MW installed PV kWh Mid-termOngoing July 14, 2020Item #17 Page 102 of 128
[Type here] TABLE 5-1: CAP IMPLEMENTATION MATRIX Measure / Actions Responsible Department(s) Annual GHG Reduction Goals (MTCO2e) Performance Target Unit of Measure Implementation Timeframe o Progress Indicators C - Promote building cogeneration for large commercial and industrial facilities 2020: 305 2025: 559 2030: 813 2035: 1,067N/A Promote building cogeneration for large commercial and industrial facilities, with the goal of producing 6.9 MWN/A C-1: Promote cogeneration Public Works, Communications o Promotional activities conducted o Number and/or sq. footage of SGIP-funded projects kWh/therms Short-term C-2: Install cogeneration systems for large city facilities where beneficial Public Works o MW installed co-generation systems kWh/therms Mid to Long-term C-3: Require cogeneration systems for large commercial and industrial facilities that have on-site electricity production Community & Economic Development o MW installed co-generation systems kWh/therms Mid-term D - Encourage single-family residential efficiency retrofits 2020: 323 2025: 593 2030: 862 2035: 1,132 Encourage single-family residential efficiency retrofits with the goal of a 50 percent energy reduction compared to baseline in 30 percent of the total single-family homes citywide by 2035 (approximately 10,000 single-family homes out of a total of 35,000) D-1: Promote residential energy efficiency incentive and rebate programs Public Works, Communications o Promotional activities conducted kWh/therms Short-term D-2: Create a citywide “Energy Challenge” Public Works, Communications o Program launch o Promotional activities conducted o Number of program participants and/or sq. footage of buildings in program kWh/therms Short-term July 14, 2020Item #17 Page 103 of 128
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5-7 TABLE 5-1: CAP IMPLEMENTATION MATRIX Measure / Actions Responsible Department(s) Annual GHG Reduction Goals (MTCO2e) Performance Target Unit of Measure Implementation Timeframe o Progress Indicators D-3: Implement and enforce Title 18, Chapter 18.30, Section 18.30.190, mandating energy efficiency measures in existing residential buildings undergoing major renovations.Require residential energy audits/retrofits Community & Economic Development o Ordinance adopted o Number and/or sq. footage of existing homes retrofitted kWh/therms Short-termOngoing E - Encourage multi-family residential efficiency retrofits 2020: 100 2025: 184 2030: 267 2035: 3513,993 Encourage multi-family residential efficiency retrofits with the goal of a 50 percent energy reduction in 30 percent of the projected amount of multi-family homes citywide by 2035 (approximately 5,000 out of a total of 17,000) E-1 and E-2: (See Measures D-1 and D-2 above) Public Works, Communications, Community & Economic Development o See Actions D-1 through D-32 above kWh/therms Short-term E-3: Implement and enforce Title 18, Chapter 18.30, Section 18.30.190, mandating energy efficiency measures in existing residential buildings undergoing major renovations. o Number and/or sq. footage of existing homes retrofitted kWh/therms Ongoing July 14, 2020Item #17 Page 104 of 128
[Type here] TABLE 5-1: CAP IMPLEMENTATION MATRIX Measure / Actions Responsible Department(s) Annual GHG Reduction Goals (MTCO2e) Performance Target Unit of Measure Implementation Timeframe o Progress Indicators F - Encourage commercial and city facility efficiency retrofits 2020: 5,251 2025: 9,626 2030: 14,002 2035: 18,3777,579 Encourage commercial and city facility efficiency retrofits with the goal of a 40 percent energy reduction in 30 percent of commercial square footage citywide and in city facilities by 2035 F-1: Install energy efficiency retrofits for city-owned buildings Public Works o Sq. footage of buildings retrofitted o % energy use reduction kWh/therms Short-term F-2: Promote nonresidential energy efficiency incentive and rebate programs Public Works, Community & Economic Development, Communications o Promotional activities conducted o Number of program participants and/or sq. footage of buildings retrofitted o % energy use reduction kWh/therms Short-term F-3: Implement and enforce Title 18, Chapter 18.21, Section 18.21.155, mandating energy efficiency measures in new non-residential buildings and existing non-residential buildings undergoing major renovations.Require nonresidential energy audits/retrofits Community & Economic Development o Ordinance adopted o Number and/or sq. footage of existing buildings retrofitted o % energy use reduction kWh/therms Short-termOngoing G - Promote commercial and city facility commissioning 2020: 5,251 2025: 9,626 2030: 14,002 2035: 18,377N/A Encourage commercial and city facility commissioning, or improving existing and new building operations, with the goal of a 40 percent energy reduction in 30 percent of commercial square footage citywide and in city-owned buildings by 2035N/A July 14, 2020Item #17 Page 105 of 128
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5-9 TABLE 5-1: CAP IMPLEMENTATION MATRIX Measure / Actions Responsible Department(s) Annual GHG Reduction Goals (MTCO2e) Performance Target Unit of Measure Implementation Timeframe o Progress Indicators G-1: Promote commercial commissioning Public Works, Community & Economic Development, Communications o Promotional activities conducted o Number and/or sq. footage of commissioned buildings o % energy use reduction kWh/therms Short-term G-2: Commission city facilities Public Works o Number and/or sq. footage of commissioned buildings o % energy use reduction kWh/therms Mid-term H - Implement green building measures 2020: 51 2025: 94 2030: 136 2035: 179N/A Implementation of a 5 percent improvement in energy efficiency above the City of Carlsbad residential green building code (based on CALGreen, the statewide green building code), for new constructionconstruction/A H-1: Increase Green Building Code requirements by five percent. Community & Economic Development o Ordinance adopted o Number and/or sq. footage of buildings with enhanced GBC features kWh/therms MTCO2e Short-term I - Promote replacement of incandescent and halogen bulbs with LED or other energy efficient lamps 2020: 6,257 2025: 11,471 2030: 16,686 2035: 21,90022 Replace 50 percent of incandescent and halogen light bulbs citywide with LED or similarly efficient lighting by 2035 I-1: Replace incandescent and halogen light bulbs in city facilities Public Works o Building sq footage upgraded o Number of fixtures replaced kWh Short-term I-2: Promote the use of LED rebate programs Public Works, Communications o Promotional activities conducted kWh Short-term July 14, 2020Item #17 Page 106 of 128
[Type here] TABLE 5-1: CAP IMPLEMENTATION MATRIX Measure / Actions Responsible Department(s) Annual GHG Reduction Goals (MTCO2e) Performance Target Unit of Measure Implementation Timeframe o Progress Indicators I-3: Develop natural lighting and ventilation standards; install city facility demonstration project Community & Economic Development Public Works o Feasibility study conducted o Number of buildings with natural lighting and ventilation features o % energy use reduction kWh/therms Mid-term J - New construction residential and commercial solar water heater/heat pump installation & retrofit of existing residential 2020: 3,315 2025: 6,078 2030: 8,841 2035: 11,6042,813 Install solar water heaters or heat pumps on all new residential and commercial construction. Retrofit up to 30 percent of existing homes and commercial buildings to include solar water heaters or heat pumps J-1: Promote residential solar water heaters and heat pump retrofit incentive, rebate and financing programs Public Works, Communications o Promotional activities conducted o Solar heater/heat pump installations kWh/therms Short-term J-2: Implement and enforce Title 18, Chapter 18.30, Sections 18.30.150 and 18.30.170, mandating alternative water heating requirements in new residential and non-residential buildings.Solar water heater and heat pump ordinance for new nonresidential construction Community & Economic Development o Ordinance adopted o Solar heater/heat pump installations o MW installed PV kWh/therms Short-termOngoing July 14, 2020Item #17 Page 107 of 128
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5-11 TABLE 5-1: CAP IMPLEMENTATION MATRIX Measure / Actions Responsible Department(s) Annual GHG Reduction Goals (MTCO2e) Performance Target Unit of Measure Implementation Timeframe o Progress Indicators K - Promote transportation demand management strategies 2020: 6,728 2025: 12,335 2030: 17,942 2035: 23,5496,325 Promote Transportation Demand Management Strategies with a goal of achieving a 10 percent increase in alternative mode use by workers in Carlsbad, for a total of 32 percent alternative mode use K-1: Adopt Implement citywide transportation demand management (TDM) plan Community & Economic Development, Public Works o TDM plan adopted o TDM participation rates o % VMT reduced VMT Short-term K-2: Implement and enforce Title 18, Chapter 18.51, mandating TDM improvements and strategies for non-residential development. Adopt TDM ordinance Community & Economic Development, Public Works o TDM ordinance adopted o TDM participation rates o % VMT reduced VMT Mid-termOngoing L - Promote an increase in the amount of zero-emissions vehicle travel 2020: 15,474 2025: 28,368 2030: 41,263 2035: 54,15856,207 Promote an increase in the amount of ZEV miles traveled from a projected 15 percent to 25 percent of total vehicle miles traveled by 2035 L-1: Construct a “PV to EV” pilot project Public Works, Community & Economic Development o kW installed PV o Number of ZEV charging units VMT kWh Short-term July 14, 2020Item #17 Page 108 of 128
[Type here] TABLE 5-1: CAP IMPLEMENTATION MATRIX Measure / Actions Responsible Department(s) Annual GHG Reduction Goals (MTCO2e) Performance Target Unit of Measure Implementation Timeframe o Progress Indicators L-2: Prepare a community-wide charging station siting plan Public Works, Community & Economic Development o Siting Plan prepared Short-term L-3: Construct ZEV charging stations based on the community-wide charging station siting plan Public Works o Number of charging stations installed o kWh charging sessions VMT Mid-term L-4: Offer dedicated ZEV parking and charging stations Public Works, Community & Economic Development o Number of installed ZEV parking spaces/charging stations o kWh charging sessions VMT Mid-term L-5: Adopt requirements for ZEV parking for new developments. Community & Economic Development o Number of installed ZEV parking spaces/charging stations o kWh charging sessions VMT Short-term L-6: Implement and enforce Title 18, Chapter 18.21, Sections 18.21.140 and 18.21.150, mandating electric vehicle charging infrastructure in new residential and non-residential building and existing residential and non-residential buildings undergoing major renovations.Require EV chargers or pre-wiring in new residential construction and major renovations. Community & Economic Development o Ordinance adopted o Number of EV chargers installed VMT Short-termOngoing July 14, 2020Item #17 Page 109 of 128
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5-13 TABLE 5-1: CAP IMPLEMENTATION MATRIX Measure / Actions Responsible Department(s) Annual GHG Reduction Goals (MTCO2e) Performance Target Unit of Measure Implementation Timeframe o Progress Indicators L-7: Increase the proportion of city fleet low and zero–emissions vehicle miles traveled to 25 percent of all city-related VMT Public Works o % LEV and ZEV fleet VMT VMT Short-term M - Develop more citywide renewable energy projects 2020: 1,309 2025: 2,399 2030: 3,490 2035: 4,5802,774 Produce the equivalent amount of energy to power 2,000 homes (roughly equivalent to a 5 percent reduction) by 2035 from renewable energy projects M-1: Conduct a feasibility study to evaluate citywide renewable energy projects and prioritize accordingly. Public Works o Feasibility study conducted Short-term M-2: Incorporate renewable energy measures such as PV system installation on city buildings and parking lots, or microturbine installation on city facilities Public Works o MW installed renewable energy systems MWh Mid to Long-term M-3: Pursue available funding sources for the construction of municipal renewable energy projects Public Works o Number of EEFP or SGIP-funded projects MWh Mid to Long-term N - Reduce the GHG intensity of water supply conveyance, treatment and distribution 2020: 1,705 2025: 3,126 2030: 4,547 2035: 5,968713 Reduce the intensity of GHG emissions from water utilities (including water supply, wastewater, and recycled water) conveyance, treatment, and distribution by 8 percent by 2035 July 14, 2020Item #17 Page 110 of 128
[Type here] TABLE 5-1: CAP IMPLEMENTATION MATRIX Measure / Actions Responsible Department(s) Annual GHG Reduction Goals (MTCO2e) Performance Target Unit of Measure Implementation Timeframe o Progress Indicators N-1: Improve water utilities (including water supply, wastewater, and recycled water) conveyance, treatment and distribution, and other system improvements. Public Works, Carlsbad Municipal Water District o Number of water system improvement projects o % energy use reduction kWh Mid to Long-term O - Encourage the installation of greywater and rainwater systems 2020: 344 2025: 631 2030: 918 2035: 1,205137 Encourage the installation of greywater and rainwater collection systems with a goal of 15 percent of homes by 2035 O-1: Conduct greywater and rainwater collection systems workshops Carlsbad Municipal Water District, Communications o Number of workshops conducted o % water use reduction Gallons of water Mid-term O-2: Create a greywater design reference manual Community & Economic Development, Carlsbad Municipal Water District o Reference manual created o % water use reduction Gallons of water Mid-term O-3: Evaluate the feasibility of offering a rebate for residential greywater systems that require a permit to cover the cost of obtaining a permit. Carlsbad Municipal Water District o Feasibility study conducted o Number of permit rebates issued o % water use reduction Gallons of water Mid-term P – Clean Electricity 2035: 56,207 Achieve 100% renewable electricity by 2030 for 95% of the residential bundled load and 85% commercial + industrial bundled load. July 14, 2020Item #17 Page 111 of 128
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5-15 TABLE 5-1: CAP IMPLEMENTATION MATRIX Measure / Actions Responsible Department(s) Annual GHG Reduction Goals (MTCO2e) Performance Target Unit of Measure Implementation Timeframe o Progress Indicators P-1: Continue participation in Clean Energy Alliance Community Choice Energy program City Manager o Continued participation N/A Ongoing P-2: Explore the purchase of renewable energy credits if Community Choice Energy program is not reaching 2035 reduction target Public Works Finance o CCE participation rates and percentage of customers at 100% renewable energy. kWh Ongoing July 14, 2020Item #17 Page 112 of 128
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5.2 Monitoring and Reporting
This CAP serves as a toolkit for the City of Carlsbad to reduce community-wide GHG
emissions and meet emissions targets. Climate action planning, however, is an iterative and
adaptive management process: it requires administration, public outreach, monitoring progress
and measuring results, periodically revisiting assumptions and adjusting provisions when
necessary. Through regular monitoring and measuring the performance of CAP activities, the
city will learn what is working and what is not. This will enable the city to make timely
adjustments to existing measures, replace ineffective actions, and/or add new measures as
changes in technology, federal and state programs, or other circumstances warrant.
Figure 5-1 shows the steps in the process of climate action planning.
Figure 5-1: Process of Climate Action Planning
To continue
the process of climate action
planning, the City of
Carlsbad will follow these
steps:
Administration
Education and
Outreach
Monitoring and
Reporting
Updating GHG
inventory and the CAP
Update Project Review
Checklist
Administration
Following adoption of this CAP, the city will designate a CAP administrator and form an
interdisciplinary CAP implementation team from within the city organization. The
administrator, in conjunction with the implementation team, will be responsible for initial
program start-up activities and for overseeing implementation, monitoring and reporting of all
actions described in the CAP. The composition of the implementation team may vary from
time to time as needed, but it is expected that core members will include staff from Public
Inventory GHG Emissions
Set Reduction Targets
Update GHG Inventory
Develop (Update) Climate Action Plan
Implement Measures
Measure Effectiveness
Report Progress
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Works, Community and Economic Development, Finance, and Communications departments.
As some of the monitoring and reporting activities will require coordination with other
agencies, the implementation team will need to foster effective partnerships accordingly.
Operating resources for administering the CAP will be provided through the city’s annual
budget process. To maximize efficiency and maintain costs, the city will integrate CAP
implementation activities into existing workloads and programs whenever possible. Potential
private and public funding resources for individual GHG reduction measures are identified in
the measure descriptions in Chapter 4. However, since program incentives and funding sources
change over time, the CAP administrator and Implementation Team will need to keep current
on available resources as GHG reduction measures are implemented.
Education and Outreach
A program of this scope and consequence will require substantial community support in order
to succeed. Key to garnering this support is to raise the level of community awareness through
education and outreach. Most of the individual GHG reduction measures in Chapter 4 include
a promotion and education component. Appendix A provides a listing of internet resources on
a variety of climate change-related topics. In addition to these features built into the CAP, the
city will utilize its website, social media, and other communications channels to provide
information about climate change science and anticipated impacts, and by providing residents
and businesses with information and resources to help them take action. The city’s website
already has a good deal of information related to energy and water efficiency programs, and
other environmental sustainability efforts. This Climate Action Plan is also available on the
city’s website. The city will build upon this base of resources by providing current information
and links to various local, state and federal incentive programs to reduce one’s carbon footprint,
and provide assistance to homeowners, businesses, and contractors seeking to make energy
efficiency improvements.
Monitoring and Reporting
The City of Carlsbad will annually monitor and report on CAP implementation activities. The
annual monitoring report will include implementation status of each action and progress
towards achieving the performance targets of the corresponding emissions reduction measure.
The annual monitoring report will also include information on the status of the federal and state
level emissions reductions measures identified in Chapter 3 of this CAP, as well as any new
efforts that may emerge in the reporting year. The annual report will be presented to the City
Council at a public meeting during which interested parties may comment on the report.
Updating GHG Inventory and the CAP
The city will update the community and government operations inventories for calendar year
2014 for inclusion in the first annual report, and then will update the inventories every three
years thereafter. For continuity, the inventory updates will tally emissions from the same
sectors analyzed in Chapter 2 of this CAP. If an updated inventory reveals that the plan is not
making adequate progress toward meeting the GHG target, or that new technologies and
programs emerge that warrant inclusion in the CAP, the city will adjust the CAP by modifying,
adding, and/or replacing measures as necessary. New opportunities for GHG reductions,
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5: IMPLEMENTATION, MONITORING AND REPORTING
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including new funding sources and the ability to link city reduction actions to the city’s Capital
Improvement Plan, Infrastructure Replacement and Fleet Vehicle Replacement schedules, and
other programs can also be incorporated into future updates of the CAP. Interim “milestone”
targets for years 2025 and 2030 as shown in Table 4-3 will be used to gauge whether the city
is making adequate progress toward meeting the 2035 target. Recommendations to adjust the
CAP may be presented to the City Council as part of the annual report or at any other time
throughout the year as necessary to ensure effective CAP implementation.
5.3 Project Review Thresholds and Checklist
Compliance with CAP
During the course of project review, city will evaluate whether a project is subject to provisions
of this CAP, using the screening criteria below. Once this is established, a project shall comply
with the CAP in one of two ways:
Checklist Approach. The Project Review Checklist below provides direction about
measures to be incorporated in individual projects, which will be used during the normal
development review process. Project features that help a project meet the provisions of
the CAP shall then become part of project conditions of approval.
Self-Developed Program Approach. Rather than use the standard checklist, project
proponents can develop their own program that would result in the same outcome as the
checklist. Appendix E provides a non-exclusive list of potential mitigation measures that
can be applied at the project level to reduce project-level greenhouse gas emissions.
Other measures not listed in the Appendix may be considered, provided that their
effectiveness in reducing greenhouse gas emissions can be demonstrated. The self-
developed program approach and selection of mitigation measures shall be subject to city
review and approval.
CEQA Streamlining
Project Screening Thresholds
The California Air Pollution Control Officers Association (CAPCOA) published various
screening thresholds to guide lead agencies in determining which projects require greenhouse
gas analysis and mitigation for significant impacts related to climate change. Utilizing this
guidance, the City has determined that new development projects emitting less than 900
MTCO2e annual GHG would not contribute considerably to cumulative climate change
impacts, and therefore do not need to demonstrate consistency with the CAP.
The city prepared a “Climate Action Plan Consistency Checklist” and “Guidance to
Demonstrating Consistency with the Climate Action Plan For Discretionary Projects Subject
to CEQA,” which lists the types and sizes of projects that correspond to the 900 MTCO2e
screening threshold. The documents were revised to reflect adoption of CAP ordinances. For
proposed projects above the screening threshold, project proponents shall complete the
Checklist. Table 5-2 lists types and sizes of projects that correspond to the 900 MTCO2e
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screening threshold; projects equal to or exceeding these thresholds would be subject to CAP
measures.55
TABLE 5-2: PROJECT REVIEW THRESHOLDS
Project/Plan Type Screening Threshold
Single-Family Housing 50 dwelling units
Multi-family Housing 70 dwelling units
Office 35,000 square feet
Retail Store 11,000 square feet
Grocery Store 6,300 square feet
Source: Adapted from California Air Pollution Control Officers Association (CAPCOA). CEQA and Climate Change, Evaluating and Addressing Greenhouse Gas Emissions from Projects Subject to the California Environmental Quality Act (January 2008).
Note: For project types not listed in this table, the need for GHG analysis and mitigation will be made on a project-specific basis, considering the 900 MTCO2e screening threshold.
Project Review Checklist
For proposed projects above the screening thresholds, project proponents shall complete the
CAP Project Review Checklist (similar to that shown in Table 5-3). For each item on the
checklist, project proponents shall indicate whether or not the measure is included as part of
the project, or if it is not applicable. The checklist is designed to meet the targets set for the
measures presented in Chapter 4. The checklist shown in Table 5-3 is preliminary and
illustrative of the items that will be included in the finalized checklist. The city will provide a
final checklist incorporating requirements in ordinances drafted for the CAP.
TABLE 5-3: PRELIMINARY CAP PROJECT REVIEW CHECKLIST
RENEWABLE ENERGY PRODUCTION
1. For new nonresidential projects with more than 50 cars surface parked
or on roofs of parking structures, would the project include PV panels over
at least half of the surface/roof-parked cars or other equivalent renewable
energy production?
Included Not Applicable
Explanation:
Describe the measures taken to meet this requirement, if applicable.
55 If a proposed project is below the screening criteria, GHG emissions would still be reduced through compliance with
applicable City of Carlsbad General Plan goals and policies, ordinances and regulations.
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TABLE 5-3: PRELIMINARY CAP PROJECT REVIEW CHECKLIST
COGENERATION
2. For the construction or retrofit of a large commercial or industrial facility
with an on-site electricity production, would the proposed project include
a building cogeneration system?
Included Not Applicable
Explanation:
ENERGY CONSERVATION ORDINANCES
3. For residential and commercial construction or major renovations,
would the proposed project meet the requirements in the applicable
energy conservation ordinance?
Included Not Applicable
Explanation:
GREEN BUILDING CODE
4. Would the proposed project meet the energy efficiency standard of 5
percent above Title 24 standards (CALGreen)?
Included Not Applicable
Explanation:
SOLAR WATER HEATERS/HEAT PUMPS
5. For residential and commercial projects, does the project include solar
water heaters to reduce the energy needed for residential water heating
by 50 percent, or heat pumps to reduce the heating/cooling load by 50
percent?
Included Not Applicable
Explanation:
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CARLSBAD CLIMATE ACTION PLAN
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TABLE 5-3: PRELIMINARY CAP PROJECT REVIEW CHECKLIST
TRANSPORTATION DEMAND MANAGEMENT
6. For proposed projects that meet the minimum trip generation thresholds
set in the City of Carlsbad Transportation Demand Management (TDM)
ordinance, does the project include a TDM plan, containing a description
of how minimum alternative mode use will be achieved and maintained
over the life of the project?
Included Not Applicable
Explanation:
Include TDM plan if applicable.
ZERO-EMISSIONS VEHICLES
7. For proposed projects subject to the City of Carlsbad off-street parking
requirements, does the proposed project provide preferential parking for
electric vehicles and/or charging stations for electric vehicle use?
Included Not Applicable
Explanation:
OTHER GHG REDUCTION MEASURES AND/OR FEATURES
8. Describe other GHG reductions measures and/or features of the
proposed project:
Included Not Included
Explanation:
A completed CAP Project Review Checklist, including supporting documentation for
applicable measures, demonstrates a proposed project complies with the CAP.
As an alternative to utilizing the Project Review Checklist, a project proponent may develop a
project-specific GHG emissions reduction program that would achieve the same required GHG
reductions. Appendix E to the CAP provides a non-exclusive list of mitigation measures which
may be considered by a project proponent for inclusion in a project-specific GHG emissions
reduction program. The reduction measures identified in the CAP and Appendix E are non-
exclusive, and other effective reduction measures may be available or become available in the
future. The type, character, and level of mitigation would depend on the project type, size,
location, context, and other factors. The availability of mitigation measures changes over time,
as well, with new technologies, building materials, building design practices, and other
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changes. Therefore, in developing project-specific reductions measures, the city recommends
that a project proponent refer to current guidance from CAPCOA, ARB, OPR, California
Attorney General, and SANDAG to determine applicable mitigation measures and estimate
their effectiveness (see references in Appendix C).
Updating Project Review Checklist
The Project Review Checklist will be finalized by the City of Carlsbad during the first year of
CAP implementation, and updated as necessary to reflect lessons learned through project
streamlining. Federal, state, and San Diego Air Pollution Control District actions will be
monitored to identify future changes to federal or state standards or guidelines that affect
implementation of the CAP. Any changes to California Environmental Quality Act (CEQA)
and CEQA Guidelines will also be integrated into the Project Review Checklist.
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