HomeMy WebLinkAbout; ; Climate Action Plan 2015;Draft General Plan
www.carlsbadca.gov/envision
Climate Action Plan
September 2015
~City of Carlsbad
www.carlsbadca.gov/envision
Introduction
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City Staff
Kathryn Dodson, Interim City Manager
Gary Barberio, Assistant City Manager
Celia Brewer, City Attorney
Ronald Kemp, Assistant City Attorney
Glen Van Peski, Community and Economic Development Director
Don Neu, City Planner
David de Cordova, Principal Planner (Project Manager)
Jennifer Jesser, Senior Planner (Project Manager)
Doug Bilse, Senior Traffic Engineer
Kristina Ray, Communications Manager
City Council
Matt Hall, Mayor
Keith Blackburn, Mayor Pro Tem
Mark Packard, Council Member
Michael Schumacher, Council Member
Lorraine Wood, Council Member
Prepared by
DYETT & BHATIA
Urban and Reilonal Planners
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Table of Contents
Introduction ...................................................................................................... 1-1
1.1 Scope and Purpose .............................................................................. 1-1
1.2 Climate Change and Greenhouse Gases Overview ............................ 1-2
1.3 California GHG Reduction Legal Framework ....................................... 1-5
1.4 Federal and State Emissions Reductions Strategies and Standards .. 1-6
1.5 Planning Process ................................................................................. 1-8
1.6 How to Use This Plan ......................................................................... 1-10
Emissions Inventory ........................................................................................ 2-1
2.1 Methodology ......................................................................................... 2-1
2.2 Community Inventory ........................................................................... 2-3
2.3 Government Operations Inventory ..................................................... 2-11
Greenhouse Gas Reduction Target, Forecasts, and Emissions “Gap” ...... 3-1
3.1 GHG Reduction Target ........................................................................ 3-1
3.2 Business as Usual Forecast ................................................................. 3-3
3.3 Community Forecast with General Plan Land Use and Circulation
System ................................................................................................. 3-4
3.4 Government Operations Forecast ........................................................ 3-9
3.5 GHG Reductions to Community Forecast from State and Federal
Actions ............................................................................................... 3-11
3.6 Modified Baseline: GHG Reductions from Additional General Plan
Policies and Actions .......................................................................... 3-16
3.7 Modified Baseline and the GHG Emissions “Gap” ............................. 3-25
CAP GHG Reduction Measures ...................................................................... 4-1
4.1 Residential, Commercial and Industrial Photovoltaic Systems ............ 4-2
4.2 Building Cogeneration .......................................................................... 4-5
4.3 Single-family, Multi-family, Commercial, and City Facility Efficiency
Retrofits ............................................................................................... 4-7
4.4 Commercial and City Facility Commissioning .................................... 4-10
4.5 Green Building Code .......................................................................... 4-11
4.6 Efficient Lighting Standards ............................................................... 4-12
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4.7 Solar Water Heater/Heat Pump Installation ....................................... 4-14
4.8 Transportation Demand Management ............................................... 4-16
4.9 Increased Zero-Emissions Vehicle (ZEV) Travel ............................... 4-18
4.10 Citywide Renewable Projects ............................................................. 4-20
4.11 Water Utilities System Improvements ................................................ 4-21
4.12 Combined Effect of CAP GHG Reduction Measures and Forecast
with CAP ............................................................................................ 4-24
Implementation, Monitoring and Reporting ................................................... 5-1
5.1 Implementation ..................................................................................... 5-1
5.2 Monitoring and Reporting ................................................................... 5-14
5.3 Project Review Thresholds and Checklist .......................................... 5-16
Appendix A - Climate Change Informational Resources
Appendix B - City of Carlsbad Greenhouse Gas Emissions Inventories
B-1 2005 City of Carlsbad Greenhouse Gas Inventory
B-2 2011 Carlsbad Community and Local Government Operations
Greenhouse Gas Inventory Updates
Appendix C - References
Appendix D - Applicable General Plan Policies
Appendix E - Project Level Mitigation Measures
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List of Figures
Figure 1-1: Greenhouse Gas Effect ......................................................................... 1-3
Figure 1-2: Change in Average Global Temperatures ............................................. 1-4
Figure 2-1: 2011 Community GHG Emissions by Sector (MTCO2e) ....................... 2-6
Figure 2-2: 2011 Community GHG Emissions by Source for Three Largest
Sectors (MTCO2e) ............................................................................... 2-8
Figure 2-3: Electricity Emissions by Sector ............................................................. 2-8
Figure 2-4: Natural Gas Emissions by Sector .......................................................... 2-9
Figure 3-1: 2005 Emissions and Emissions Targets ............................................... 3-2
Figure 3-2: Business as Usual Forecast and Emissions Targets ............................ 3-3
Figure 3-3: Comparison of Emissions by Sector in 2011, 2020 and 2035 .............. 3-8
Figure 3-4: Community Forecast with RPS, Pavley I Fuel Economy
Standards, and General Plan Land Use and Roadways ..................... 3-9
Figure 3-5: Community Forecast with (1) General Plan Land Use and New
Roadways and (2) State and Federal Actions (MTCO2e) ................. 3-15
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) ............. 3-26
Figure 4-1: Forecast Community Emissions with CAP Reduction Measures
and Targets ........................................................................................ 4-26
Figure 5-1: Process of Climate Action Planning .................................................... 5-14
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List of Tables
Table 2-1: Residential, Commercial and Industrial (RCI) Inputs; 2011 ................... 2-4
Table 2-2: 2011 Community GHG Emissions (MTCO2e) ....................................... 2-7
Table 2-3: Electricity Emissions by Sector (MTCO2e) ............................................. 2-8
Table 2-4: Natural Gas Emissions by Sector (MTCO2e) ......................................... 2-9
Table 2-5: Population and Jobs, 2005 and 2011 ................................................... 2-10
Table 2-6: Sources of Growth in GHG Emissions (metric tons CO2e) .................. 2-10
Table 2-7: Greenhouse Gas Emissions Summary by Sector (metric tons
CO2e) ................................................................................................ 2-11
Table 2-8: Buildings and Facilities Inputs; 2011 .................................................... 2-11
Table 2-9: Government Operations Vehicle Fleet Inputs ....................................... 2-13
Table 2-10: Public Lighting Inputs (kWh) ............................................................... 2-14
Table 2-11: Waste and Wastewater Transport Inputs (kWh) ................................. 2-14
Table 2-12: Government Operations Emissions by Sector (MTCO2e) .................. 2-15
Table 2-13: Emissions by Source (MTCO2e) ......................................................... 2-15
Table 2-14: Government Operations Emissions vs Community Emissions
(MTCO2e) .......................................................................................... 2-15
Table 3-1: 2005 Emissions and Emissions Targets ................................................. 3-2
Table 3-2: 2011 VMT and Projected 2020 and 2035 VMT ...................................... 3-6
Table 3-3: Projected UWMP Water Delivery, Used To Determine Wastewater
Emissions ............................................................................................ 3-7
Table 3-4: Community Forecast Emissions by Sector, 2011, 2020, and 2035
(MTCO2e) ............................................................................................ 3-7
Table 3-5: Government Operations Emissions Inventory (2011) and 2020,
2035 Forecast (MTCO2e) .................................................................. 3-11
Table 3-6: RPS GHG Reductions .......................................................................... 3-12
Table 3-7: Pavley I Fuel Economy Standard GHG Reductions ............................. 3-13
Table 3-8: Low Carbon Fuel Standard GHG Reductions ...................................... 3-13
Table 3-9: Title 24 Building Efficiency Improvements GHG Reductions ............... 3-14
Table 3-10: GHG Reductions from Rising Gasoline Prices ................................... 3-14
Table 3-11: Community Forecast with State and Federal Actions (MTCO2e) ....... 3-15
Table 3-12: GHG Reductions from Additional General Plan Policies and
Actions ............................................................................................... 3-25
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Table 3-13: Modified Baseline Forecast (Forecast Community Emissions with
General Plan Land Use and Roadways, State and Federal
Actions, and Additional General Plan Policies and Actions) ............. 3-25
Table 4-1: CAP GHG Reduction Measures Summary ........................................... 4-25
Table 4-2: List of Proposed Ordinances and Applicable Measures ....................... 4-25
Table 4-3: Forecast Community Emissions with CAP GHG Reduction
Measures and Targets ....................................................................... 4-26
Table 5-1: CAP Implementation Matrix .................................................................... 5-3
Table 5-2: Project Review thresholds .................................................................... 5-17
Table 5-3: Preliminary CAP Project Review Checklist ........................................... 5-17
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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 CAP has been prepared concurrently with the city’s updated General Plan and includes
actions to carry out the General Plan’s goals and policies, consistent with the Community
Vision articulated during Envision Carlsbad. The CAP is also correlated with the
Environmental Impact Report (EIR) on the General Plan, with the CAP GHG reduction
target synchronized with the EIR.
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
recycling. These strategies, goals, and policies would result in GHG reduction compared to
baseline trends.
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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 2013.1
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 2011. While
average global temperatures fluctuate on a yearly basis, the general trend shows a long-term
temperature increase. Nine 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 warming,
1 Source: NOAA “Trends in Atmospheric Carbon Dioxide,” http://www.esrl.noaa.gov/gmd/ccgg/trends/
1: INTRODUCTION
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and rigorous scientific research demonstrates that anthropogenic2 greenhouse gases are the
primary driver.
Figure 1-2: Change in Average Global Temperatures
(Source: NASA Headquarters Release No. 12-020, http://www.nasa.gov/topics/earth/features/2011-temps.html)
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,
2 Caused by human activities
Global Temperature Difference ( · C)
0.6 -
0.4 -Annual Mean
0.2 -5-year Mean
0-
-0.2 -
-0.4 -
1880 1900 1920 1940
!.~
1960 1980 2000
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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.
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 Plan
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 Scoping Plan in 2008, which provides guidance for local communities to
meet AB 32 and EO S-3-05 targets. The Scoping Plan adopted a quantified cap on GHG
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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.
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.
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.
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.
3 In 2011, GHG emissions from transportation were about 28 percent of the total 6,702 million metric tons CO2
equivalents (Source: http://www.epa.gov/climatechange/ghgemissions/sources/transportation.html)
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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.
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, 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.
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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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 2013 and
became effective in 2014. 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.
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 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 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
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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:
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,
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
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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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.
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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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 communitywide
GHG emissions, 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
provides the 2005 inventory and 2011 update in detail, which is summarized in Section 2.2 in
this chapter.
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 inventory 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 community inventory tallies emissions
from six sectors:
Residential;
Commercial;
Industrial;
Transportation;
Solid waste; and
Wastewater.
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.
2: EMISSIONS INVENTORY
2-2
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
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).
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
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.
CARLSBAD CLIMATE ACTION PLAN
2-3
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.
2.2 Community Inventory
Residential, Commercial, and Industrial (RCI) Electricity and
Natural Gas Usage
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.
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.
2: EMISSIONS INVENTORY
2-4
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.
CARLSBAD CLIMATE ACTION PLAN
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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.
2: EMISSIONS INVENTORY
2-6
Figure 2-1: 2011 Community GHG Emissions by Sector (MTCO2e)
39%
25%
7%
3%
1%
25%
Transportation
Commercial
Industrial
Solid Waste
Wastewater
Residential
■
■
lol
■
■
CARLSBAD CLIMATE ACTION PLAN
2-7
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.
2: EMISSIONS INVENTORY
2-8
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
300,000 ... 239,467 C ., 250,000 ;;; > ':i 200,000 ,,. w
N 0 150,000 u
"' C 92,500 83,698 0 I-100,000 -~ ... 50,000 .,
:E 81 126
Bundled Bundled Direct Access Direct Access Bundled Bundled Direct Access Direct Access On-Road
Electricity Natural Gas Electricity Natural Gas Electricity Natural Gas Electricity Natural Gas Total
RESIDENTIAL COMMERCIAL & INDUSTRIAL TRANSPORTATION
Sectors
•
CARLSBAD CLIMATE ACTION PLAN
2-9
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
■
■
2: EMISSIONS INVENTORY
2-10
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
CARLSBAD CLIMATE ACTION PLAN
2-11
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 2-8: 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 -
2: EMISSIONS INVENTORY
2-12
TABLE 2-8: 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
CARLSBAD CLIMATE ACTION PLAN
2-13
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 2-9: 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.
2: EMISSIONS INVENTORY
2-14
TABLE 2-10: 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 2-11: 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%).
CARLSBAD CLIMATE ACTION PLAN
2-15
TABLE 2-12: 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 2-13: 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 Government Operations to Citywide Emissions
Table 2-14 shows a comparison of the government operations to citywide emissions.
Government operations account for a very small portion of GHG emissions in 2011,
comprising about 1.2 percent of emissions.
TABLE 2-14: GOVERNMENT OPERATIONS EMISSIONS VS
COMMUNITY EMISSIONS (MTCO2e)
2011
Government operations emissions 8,205
Community emissions 705,744
Government operations as proportion
of community emissions 1.2%
2: EMISSIONS INVENTORY
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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
Executive Order S-3-05 (EO S-3-05) and the California Global Warming Solutions Act of
2006 (AB 32) provide the basis for the CAP’s GHG emissions targets. EO S-3-05 commits
California to reduce its GHG emissions to 1990 levels by 2020 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 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.
Total Carlsbad GHG emissions from the 2005 inventory were 630,310 metric tons carbon
dioxide equivalents (MTCO2e) per year. Therefore, the 2020 target under State guidance is a
15 percent reduction from 2005 emissions, which corresponds to a target of 535,763
MTCO2e.
3: GREENHOUSE GAS REDUCTION TARGET,
FORECASTS, AND EMISSIONS “GAP”
3-2
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 2020 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 and 2050 to
determine the 2035, target. Table 3-1 summarizes these emissions targets and the percentage
reduction from 2005 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 EMISSIONS AND EMISSIONS TARGETS
Year GHG Emissions and Targets Reduction From 2005
Baseline
2005 630,310 MTCO2e N/A
2020 535,763 MTCO2e 15 percent
2035 321,458 MTCO2e 49 percent
Figure 3-1: 2005 Emissions and Emissions Targets
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 2035
MT
C
O
2
e
E
m
i
s
s
i
o
n
s
Date
Baseline
Targets (AB 32/EO S-3-05)
-----------
CARLSBAD CLIMATE ACTION PLAN
3-3
3.2 Business as Usual Forecast
The business as usual (BAU) forecast estimates emissions through the year 2035, based on the
growth in emissions from the 2005 to 2011 citywide inventory. 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.
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
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 2035
MT
C
O
2e
E
m
i
s
s
i
o
n
s
Date
Business as Usual
Targets (AB 32/EO S-3-05)
------------
3: GREENHOUSE GAS REDUCTION TARGET,
FORECASTS, AND EMISSIONS “GAP”
3-4
3.3 Community Forecast with General Plan Land Use and
Circulation System
Methodology
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 emissions12 from sources within the
boundaries of the City of Carlsbad, including fuel combusted in the community13 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
Landfills14
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.
12 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.
13 This does not include the Encina Power Station, for reasons described in Chapter 2.
14 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.
CARLSBAD CLIMATE ACTION PLAN
3-5
Inputs
Residential
Emissions from the residential 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.
Commercial
The 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: commercial, hotel, office, and other, including construction and transportation-
related employment. For 2010 to 2035, an annual growth of 1.1 percent was used.
Industrial
The 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.
Transportation—With General Plan Land Use and Circulation System
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.15 The SANDAG data was reported as daily weekday VMT. This
was converted to annual VMT by multiplying it by 347, as recommended by CARB.16
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.
15 Excluding through trips removes much of the regional traffic through the Interstate 5 Freeway.
16 347 was used instead of 365 to average out the effect of a dip in traffic during the weekend.
3: GREENHOUSE GAS REDUCTION TARGET,
FORECASTS, AND EMISSIONS “GAP”
3-6
TABLE 3-2: 2011 VMT AND
PROJECTED 2020 AND 2035 VMT17
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.
Landfill
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 Carlsbad Municipal Water District’s 2010 Urban Water Management Plan (UWMP) was
used to determine the growth in emissions from wastewater treatment.18 The demand for
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.
17 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.
18 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.
CARLSBAD CLIMATE ACTION PLAN
3-7
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 3-4 shows the emissions from the SEEC 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 transportation sector, which
accounts for 41 percent of emissions in 2020 and 36 percent of emissions in 2035. Residential
emissions are the next largest sector, with 26 percent of emissions in 2020 and 28 percent of
the total in 2035. Commercial, industrial, and solid waste, wastewater, and landfill emissions
are the next largest sectors in order of total emissions.
TABLE 3-4: COMMUNITY FORECAST EMISSIONS BY
SECTOR, 2011, 2020, AND 2035 (MTCO2e)
Sector 2011 2020 2035
Residential 176,405 145,419 163,881
Commercial 178,712 126,431 148,978
Industrial 46,248 31,278 35,249
Transportation 273,745 234,113 210,568
Solid Waste 21,719 23,073 26,002
Landfill 2,598 1,204 558
Wastewater 6,317 4,355 4,601
TOTAL 705,744 565,873 589,837
3: GREENHOUSE GAS REDUCTION TARGET,
FORECASTS, AND EMISSIONS “GAP”
3-8
Figure 3-3: Comparison of Emissions by Sector in 2011, 2020 and 2035
2011 2020
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%
36%
25%
6%
4%
1%
28%
0%
Transportation
Commercial
Industrial
Waste
Wastewater
Residential
Landfill
.1%
■
■
■
■
■
■
■
■
■
■
CARLSBAD CLIMATE ACTION PLAN
3-9
Figure 3-4: Community Forecast with RPS, Pavley I Fuel Economy Standards,
and General Plan Land Use and Roadways
3.4 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
-
100,000
200,000
300,000
400,000
500,000
600,000
700,000
800,000
900,000
1,000,000
1,100,000
2010 2015 2020 2025 2030 2035
MT
C
O
2e
E
m
i
s
s
i
o
n
s
Date
SEEC Forecast with RPS,
Pavley I Fuel Economy, and
General Plan Land Use and
Roadways
Emissions Targets (AB 32/S-3-
05)
······ ··········· ······················································ ------r-.-.-.-.-.-.----------------~ - - -------
3: GREENHOUSE GAS REDUCTION TARGET,
FORECASTS, AND EMISSIONS “GAP”
3-10
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
CARLSBAD CLIMATE ACTION PLAN
3-11
Water District 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
3.5 GHG Reductions to Community Forecast from State
and Federal Actions
Methodology
GHG reductions from state and federal actions and other trends to the community forecast
are quantified in this section. These reductions include the following:
Renewable Portfolio Standard
Pavley I fuel economy standards
3: GREENHOUSE GAS REDUCTION TARGET,
FORECASTS, AND EMISSIONS “GAP”
3-12
Low Carbon Fuel Standard
Title 24 building efficiency improvements
Reductions in VMT from rising gasoline prices19
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)
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.
TABLE 3-6: RPS GHG REDUCTIONS
Year MTCO2e Reductions
2020 48,962
2035 36,160
Pavley I Fuel Economy Standards
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.
19 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.
CARLSBAD CLIMATE ACTION PLAN
3-13
TABLE 3-7: PAVLEY I FUEL ECONOMY
STANDARD GHG REDUCTIONS
Year MTCO2e Reductions
2020 40,354
2035 48,369
Low Carbon Fuel Standard
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.
TABLE 3-8: LOW CARBON FUEL
STANDARD GHG REDUCTIONS
Year MTCO2e Reductions
2020 20,545
2035 14,906
Title 24 Building Efficiency Improvements
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.
The Title 24 building efficiency improvements determine the effect of the CALGreen code
mandatory measures for new building construction using the 2010 code update.20 Table 3-9
lists the GHG reductions from building efficiency improvements in new construction
calculated using the EPIC mitigation calculator in 2020 and 2035.
20 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.
3: GREENHOUSE GAS REDUCTION TARGET,
FORECASTS, AND EMISSIONS “GAP”
3-14
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.21
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
RESULTS
The annual reductions from the above state and federal actions—RPS, 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 the total
SEEC community forecast in 2020 and 2035, 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.
21 Both values are listed in 2010 dollars.
CARLSBAD CLIMATE ACTION PLAN
3-15
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
Community
Forecast
Emissions
with General
Plan Land
Use and New
Roadways
Low Carbon
Fuel
Standard
Reduction
Title 24 Building
Efficiency
Improvements
Reductions in
VMT from
Rising
Gasoline
Prices
Continuation of
Renewable
Portfolio
Standard, 2020
to 2035*
Total Forecast
Emissions with
General Plan
Land Use and
New Roadways
& State and
Federal Actions
2020 565,873 20,545 1,836 12,201 48,962 482,329
2035 589,837 14,906 3,582 71,316 36,160 463,873
*RPS considered in SEEC forecast through 2020, RPS continuation through 2035 modeled in EPIC
-
100,000
200,000
300,000
400,000
500,000
600,000
700,000
800,000
900,000
1,000,000
1,100,000
2010 2015 2020 2025 2030 2035
MT
C
O
2e
E
m
i
s
s
i
o
n
s
Date
SEEC Forecast with (1) General
Plan land use and roadways and
(2) State and Federal Actions
Emissions Targets (AB 32/S-3-05)
.
····· ..
······ ······· --.... ... --······ ·· ·· ·· ·--· ....-•·· ·· ·· ·· ·· ·· ·· ···· ·· ···· ·· ··· --------._
3: GREENHOUSE GAS REDUCTION TARGET,
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3-16
3.6 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
previously. 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.22 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: 147 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
22 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.
CARLSBAD CLIMATE ACTION PLAN
3-17
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.23 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 MTCO2e in 2035.24
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.
23 Cambridge Systematics. Moving Cooler: An Analysis of Transportation Strategies for Reducing Greenhouse Gas
Emissions. Technical Appendices. Prepared for the Urban Land Institute.
24 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.
3: GREENHOUSE GAS REDUCTION TARGET,
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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: 2,106 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.
CARLSBAD CLIMATE ACTION PLAN
3-19
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 2,106 MTCO2e in 2035.25
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.
25 Center for Clean Air Policy. Transportation Emission Guidebook.
http://www.ccap.org/safe/guidebook/guide_complete.html.
3: GREENHOUSE GAS REDUCTION TARGET,
FORECASTS, AND EMISSIONS “GAP”
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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 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 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: 4,211 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
CARLSBAD CLIMATE ACTION PLAN
3-21
that there is 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.
3: GREENHOUSE GAS REDUCTION TARGET,
FORECASTS, AND EMISSIONS “GAP”
3-22
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.26 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 4,211 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: 1,327 MTCO2e
26 The maximum reduction provided from the combination of all parking policies in the CAPCOA report is a 20
percent reduction in VMT
CARLSBAD CLIMATE ACTION PLAN
3-23
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
3: GREENHOUSE GAS REDUCTION TARGET,
FORECASTS, AND EMISSIONS “GAP”
3-24
through 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
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.
CARLSBAD CLIMATE ACTION PLAN
3-25
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 147 2,106 526 4,211 1,327 8,317
3.7 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
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. 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 meet its target for 2020 without any additional
measures. However, by 2035, there is a GHG emissions “gap” of 134,098 MTCO2e —
approximately one-third of the total projected community emissions.
TABLE 3-13: MODIFIED BASELINE FORECAST (FORECAST COMMUNITY EMISSIONS
WITH GENERAL PLAN LAND USE AND ROADWAYS, STATE AND FEDERAL ACTIONS,
AND ADDITIONAL GENERAL PLAN POLICIES AND ACTIONS)
Year
Total Modified Baseline
Forecast (MTCO2e)
GHG Emissions Targets
(Linear Scaling of AB 32/S-3-
05) (MTCO2e) Emissions “Gap” (MTCO2e)
2020 473,082 535,763 Target Met
2025 467,018 464,328 2,690
2030 452,762 392,893 59,869
2035 455,556 321,458 134,098
3: GREENHOUSE GAS REDUCTION TARGET,
FORECASTS, AND EMISSIONS “GAP”
3-26
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 forecast emissions of 473,082 MTCO2e
meeting the target by about 63,000 MTCO2e. There is an emissions “gap” in the year 2035 of
about 134,000 MTCO2e between the forecast emissions of 455,556 MTCO2e and the
emissions target of 321,458 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 2035
MT
C
O
2e
E
m
i
s
s
i
o
n
s
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)
.... ·· . .. .. .. .. ... ' ·•... ' ..... .. ....
················ .... ·i..···························· ........ .... .... .... .... .... ....
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, commercial 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).
4: CAP GHG REDUCTION MEASURES
4-2
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. The mixture of short-term, mid-term, and long-
term 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.
4.1 Residential, Commercial and Industrial Photovoltaic
Systems
Measure A: Promote Installation of Residential Photovoltaic Systems
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 MTCO2e
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)
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)
CARLSBAD CLIMATE ACTION PLAN
4-3
Already-Projected Amount: Solar photovoltaic (PV) systems convert solar energy into
electricity. The projected power generation27 of residential PV systems at 4,685 homes is 15.9
MW28 in the year 2035, which is enough to fully power these homes.29
Target: The target is 25 MW in the year 2035, which is the equivalent amount of production
to power 7,367 homes.30
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.31 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
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.
27 The maximum amount of power produced is also referred to as solar capacity.
28 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.
29 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.
30 It was assumed that residential PV systems produce the equivalent amount of energy to the amount consumed in
each household on an annual basis.
31 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.
4: CAP GHG REDUCTION MEASURES
4-4
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 10.7 MW per year above
projected amounts, or roughly 15 percent of projected
commercial and industrial electricity use, by 2035.
2035 Reduction: 13,336 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)
B-2: 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.
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 10.7
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.
CARLSBAD CLIMATE ACTION PLAN
4-5
Responsibility and Implementation: See Measure A (above) for implementation.
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 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
Goal: Promote building cogeneration for large commercial and
industrial facilities, with the goal of producing 6.9 MW.
2035 Reduction: 1,067 MTCO2e
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)
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,32 and large office buildings.
32 The Encina wastewater treatment plant operates a cogeneration plant that produces over 60 percent of the electricity
used by the facility.
I
4: CAP GHG REDUCTION MEASURES
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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
all or a portion of the electric energy needs of a facility.33 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.
33 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: 1,132 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)
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 would be required to conduct an energy audit, and meet low-cost energy efficiency
measures—such as improving insulation, providing weather stripping, promoting natural
4: CAP GHG REDUCTION MEASURES
4-8
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 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: 351 MTCO2e
Actions: See Measure D (above).
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
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 multi-family residential retrofits 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.
CARLSBAD CLIMATE ACTION PLAN
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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 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: 18,377 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: 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)
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.
4: CAP GHG REDUCTION MEASURES
4-10
Responsibility and Implementation: Building owners would implement this measure for
commercial buildings.34 Funding is available through incentive and rebate programs, such as
SDG&E’s Energy Efficiency Business Rebates and Incentives Program. SANDAG is preparing
an Energy Roadmap for the city, which will identify energy conservation measures the city
can use to reduce energy use in city municipal operations.35 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 and enforcing a commercial energy conservation ordinance.
4.4 Commercial and City Facility Commissioning
Measure G: Promote Commercial and City Facility Commissioning
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 MTCO2e
Actions:
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.
34 AB 1103, the California Nonresidential Building Energy Use Disclosure Program, requires an owner of a
nonresidential building to benchmark the building’s energy use data and disclose the energy use 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.
35 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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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:
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
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 MTCO2e
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)
4: CAP GHG REDUCTION MEASURES
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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:
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: 21,900 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)
I
CARLSBAD CLIMATE ACTION PLAN
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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. 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 preparing 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. For existing city facilities, the city 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 nationwide36 and about 25 percent in California37 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.38 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. 39 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.40
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
36 http://www.eia.gov/tools/faqs/faq.cfm?id=99&t=3
37 California Public Utilities Commission; http://www.cpuc.ca.gov/NR/rdonlyres/6234FFE8-452F-45BC-A579-
A527D07D7456/0/Lighting.pdf
38 http://www.energystar.gov/index.cfm?fuseaction=find_a_product.showProductGroup&pgw_code=LB
39 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
40 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
4: CAP GHG REDUCTION MEASURES
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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
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: 11,604 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)
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
CARLSBAD CLIMATE ACTION PLAN
4-15
needed for residential water heating.41 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 three PACE programs described in Measure A also
provide financing for the installation of solar water heaters and heat pumps to improve
residential energy 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 and enforcing an ordinance requiring new homes
and commercial buildings to install solar water heaters or heat pumps.
41 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.
4: CAP GHG REDUCTION MEASURES
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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: 23,549 MTCO2e
Actions:
K-1: Adopt a 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”42 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 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-term)
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)
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.43 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.
GHG Reduction Measure Description: Chapter 3 quantifies emissions reductions from the
Carlsbad General Plan due to bikeway system improvements, pedestrian improvements,
42 Available: http://www.icommutesd.com/documents/tdmstudy_may2012_webversion_000.pdf.
43 American Community Survey. 2012. Selected Economic Characteristics for Carlsbad, California. Available:
http://factfinder2.census.gov/.
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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 a TDM plan
describing strategies to reduce travel demand. The city will also develop 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 ZEV44 miles
traveled from a projected 15 percent to 25 percent of total
vehicle miles traveled by 2035.
2035 Reduction: 54,158 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: 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 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 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,
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
44 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.
CARLSBAD CLIMATE ACTION PLAN
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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 also promote the use of ZEVs by offering dedicated ZEV parking and adopting
requirements for ZEV parking for new development. The city will create an ordinance
requiring the installation of ZEV chargers or pre-wiring in new residential construction and
major renovations.45 Through its Fleet Vehicle Replacement Fund, the City of Carlsbad will
increase 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 developing 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.
45 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.
4: CAP GHG REDUCTION MEASURES
4-20
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: 4,580 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 4,580 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
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.
CARLSBAD CLIMATE ACTION PLAN
4-21
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 46
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: 5,968 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.47 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.48 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.
46 For purposes of this measure, water utilities include potable water treatment and conveyance, sewer conveyance, and
recycled water treatment and conveyance systems.
47 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.
48 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.
4: CAP GHG REDUCTION MEASURES
4-22
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: 1,205 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
roofs, and storing it in barrels or cisterns, which can be used for landscape irrigation.
I
CARLSBAD CLIMATE ACTION PLAN
4-23
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.49 For
this measure, it was assumed that seven percent of the citywide emissions are from water
provision and wastewater services.50 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.51 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 1,205 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.
49 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.
50 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).
51 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.
4: CAP GHG REDUCTION MEASURES
4-24
4.12 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 185,919 MTCO2e in 2035, which cover the emissions “gap” identified in Chapter
3. Table 4-3 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.
CARLSBAD CLIMATE ACTION PLAN
4-25
TABLE 4-1: CAP GHG REDUCTION MEASURES SUMMARY
Measure
Letter
GHG Reduction Measures GHG Reduction in
2035 (MTCO2e)
A Install residential PV systems 10,136
B Install commercial and industrial PV systems 13,336
C Promote building cogeneration for large commercial and industrial
facilities
1,067
D Encourage single-family residential efficiency retrofits 1,132
E Encourage multi-family residential efficiency retrofits 351
F Encourage commercial and city facility efficiency retrofits 18,377
G Promote commercial and city facility commissioning, or improving
building operations
18,377
H Implementation of Green Building Code 179
I Replace Incandescent bulbs with LED bulbs 21,900
J New construction residential and commercial solar water
heater/heat pump installation & retrofit of existing residential
11,604
K Promote Transportation Demand Management 23,549
L Increase zero-emissions vehicle travel 54,158
M Develop more citywide renewable energy projects 4,580
N Reduce the GHG intensity of water supply conveyance, treatment
and delivery
5,968
O Encourage the installation of greywater and rainwater systems 1,205
Total GHG Reductions 185,919
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
4: CAP GHG REDUCTION MEASURES
4-26
TABLE 4-3: FORECAST COMMUNITY EMISSIONS WITH CAP GHG REDUCTION
MEASURES AND TARGETS
Year 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 473,082 53,120 419,962 535,763 Yes
2025 467,018 97,386 369,632 464,328
2030 452,762 141,654 311,108 392,893
2035 455,556 185,919 269,637 321,458 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 2035
MT
C
O
2e
E
m
i
s
s
i
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n
s
Date
Forecast with CAP Reduction
Measures
Emissions Targets (AB 32/S-3-05)
... ·· .. .. .. ··.. .... ........ .. .... ·•.. .... ........ ··.. .... .... ··.. .. .... ·········· .... ················
······················
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
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
confirmed as part of the implementation of each measure. If a recommended progress
5: IMPLEMENTATION, MONITORING AND REPORTING
5-2
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.
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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: 147
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: 2,106
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: 526
.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: 4,211
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 Short to Long-
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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: 1,327 o Transit ridership counts
MTCO2e 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: 10,136
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
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
B - Promote Installation of commercial and
industrial photovoltaic systems
2020: 3,810
2025: 6,986
2030: 10,161
2035: 13,336
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
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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-1: Require PV on large new
nonresidential construction
Community & Economic
Development o Ordinance adopted
o MW installed PV kWh Short-term
B-2: Adopt 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-term
C - Promote building cogeneration for large
commercial and industrial facilities
2020: 305
2025: 559
2030: 813
2035: 1,067
Promote building cogeneration for large
commercial and industrial facilities, with
the goal of producing 6.9 MW
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
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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 - 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
D-3: Require residential energy
audits/retrofits
Community & Economic
Development
o Ordinance adopted
o Number and/or sq. footage of existing
homes retrofitted
kWh/therms Short-term
E - Encourage multi-family residential
efficiency retrofits
2020: 100
2025: 184
2030: 267
2035: 351
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)
(See Measure D above)
Public Works,
Communications,
Community & Economic
Development
o See Actions D-1 through D-3 above kWh/therms Short-term
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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: 18,377
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: 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-term
G - Promote commercial and city facility
commissioning
2020: 5,251
2025: 9,626
2030: 14,002
2035: 18,377
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 2035
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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: 179
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
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: 21,900
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
CA
R
L
S
B
A
D
C
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P
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5-
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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: 11,604
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: 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-term
K - Promote transportation demand
management strategies
2020: 6,728
2025: 12,335
2030: 17,942
2035: 23,549
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 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
5:
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E
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E
N
T
A
T
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O
N
,
M
O
N
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O
R
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N
G
A
N
D
R
E
P
O
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T
I
N
G
5-
1
0
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-2: Adopt TDM ordinance
Community & Economic
Development,
Public Works
o TDM ordinance adopted
o TDM participation rates
o % VMT reduced
VMT Mid-term
L - Promote an increase in the amount of
zero-emissions vehicle travel
2020: 15,474
2025: 28,368
2030: 41,263
2035: 54,158
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
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
CA
R
L
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B
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1
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-6: 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-term
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: 4,580
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
5:
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N
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N
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P
O
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G
5-
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2
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 - Reduce the GHG intensity of water
supply conveyance, treatment and
distribution
2020: 1,705
2025: 3,126
2030: 4,547
2035: 5,968
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
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: 1,205
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
CA
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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
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
5: IMPLEMENTATION, MONITORING AND REPORTING
5-14
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
Inventory GHG
Emissions
Set Reduction
Targets
Update GHG
Inventory
Develop
(Update)
Climate Action
Plan
Implement
Measures
Measure
Effectiveness
Report
Progress
CARLSBAD CLIMATE ACTION PLAN
5-15
Public 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
5: IMPLEMENTATION, MONITORING AND REPORTING
5-16
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, 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. Table 5-2 lists
CARLSBAD CLIMATE ACTION PLAN
5-17
types and sizes of projects that correspond to the 900 MTCO2e screening threshold; projects
equal to or exceeding these thresholds would be subject to CAP measures.52
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.
52 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.
5: IMPLEMENTATION, MONITORING AND REPORTING
5-18
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:
CARLSBAD CLIMATE ACTION PLAN
5-19
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
5: IMPLEMENTATION, MONITORING AND REPORTING
5-20
measures changes over time, as well, with new technologies, building materials, building
design practices, and other 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.
Appendix A
Climate Change
Informational Resources
Combating climate change requires education and personal action. This section contains
resources on climate change and its impacts, calculating individual carbon footprints, and
ways to reduce individual carbon footprints.
Education
The evidence is clear that climate change is happening. Humans are largely responsible for
recent climate change. International scientific bodies, federal agencies, and state agencies
have numerous resources that summarize the current scientific understanding of climate
change and the latest projections of climate change impacts.
The Intergovernmental Panel on Climate Change is the leading international body for the
assessment of climate change:
• http://www.ipcc.ch/
The National Aeronautics and Space Administration (NASA) has documented recent
impacts and future trends of climate change:
• http://climate.nasa.gov/effects
The U.S. Environmental Protection Agency (U.S. EPA) has information of climate change,
and it’s effects:
• http://www.epa.gov/climatechange/basics/
Cal-Adapt, a product of the Public Interest Energy Research (PIER) program, funded by the
California Energy Commission, provides California-specific climate change research,
including interactive climate tools:
• http://cal-adapt.org/
Carbon Footprint
A carbon footprint is a measure of the total amount of GHG emissions produced by an
individual. It can be thought of as a personal inventory of one’s impacts on climate change.
APPENDIX A: CLIMATE CHANGE INFORMATIONAL RESOURCES
A-2
There are a number of online calculators that estimate personal carbon footprints.
Individuals can use the following carbon footprint calculators as a guide to help reduce
personal carbon emissions.
U.S. Environmental Protection Agency (EPA)
• http://www.epa.gov/climatechange/ghgemissions/ind-calculator.html
Cool California
• http://www.coolcalifornia.org/calculator
Cool Climate Network
• http://coolclimate.berkeley.edu/carboncalculator
Nature Conservancy
• http://www.nature.org/greenliving/carboncalculator/index.htm
Conservation International
• http://www.conservation.org/act/live_green/carboncalc/Pages/default.aspx
Earth Lab
• https://www.earthlab.com/createprofile/reg.aspx
Carbon Footprint
• http://www.carbonfootprint.com/calculator1.html
EarthLab
• http://www.earthlab.com/carbon-footprint/California-carbon-calculator.aspx
Global Footprint Network
• http://www.footprintnetwork.org/en/index.php/gfn/page/calculators/
Reducing your Carbon Footprint
Reducing one’s personal carbon footprint saves money, decreases impact on the
environment, and helps fight climate change. The following links provide resources from
federal and state agencies on changes one can make in his or her day-to-day life to diminish
GHG emissions.
U.S. EPA: What can you do at home?
• http://www.epa.gov/climatechange/wycd/home.html
CARLSBAD CLIMATE ACTION PLAN
A-3
U.S. EPA: What can you do at school?
• http://www.epa.gov/climatechange/wycd/school.html
U.S. EPA: What can you do on the road?
• http://www.epa.gov/climatechange/wycd/road.html
U.S Department of Energy: Save energy, save money
• http://energy.gov/energysaver/energy-saver
California Environmental Protection Agency: Climate change resources for individuals
• http://www.climatechange.ca.gov/individuals.html
California Air Resources Board: Low emissions vehicles
• http://www.arb.ca.gov/msprog/consumer_info/advanced_clean_cars/consumer_acc.h
tm
APPENDIX A: CLIMATE CHANGE INFORMATIONAL RESOURCES
A-4
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Appendix B-1
2005 City of Carlsbad
Greenhouse Gas Inventory
2005 City of Carlsbad Greenhouse Gas Emissions Inventory i
City of Carlsbad
2005 Greenhouse Gas
Emissions Inventory
Prepared by ICLEI – Local Governments for Sustainability
«1 ~
CITY OF
CARLSBAD
2005 City of Carlsbad Greenhouse Gas Emissions Inventory ii
Credits and
Acknowledgements
CITY OF CARLSBAD
Linda Kermott, Manager- Public Works
Administration and Environmental Programs
Joe Garuba, Municipal Projects Manager
Jim Elliott, Deputy City Manager
Dale Schuck, Public Works Superintendent
Bob Richardson, Facilities Maintenance Supervisor
Sheree Hildebrandt, Solid Waste Administrator
Bonnie Elliott, Management Analyst
John McKelvey, Engineering Technician
Susanne Johnson, Engineering Technician
Heidi Versteeg, Engineering Technician
Don Wasko, Wastewater Superintendent
Jayme Foster, Office Specialist
San Diego Foundation
Emily Young, Senior Director, Environmental Analysis and Strategy
San Diego Gas & Electric
Risa Baron, Energy Programs Supervisor
Steve Campbell, Account Executive
Ben Lopez, Senior Customer Service Analyst
Noel Crisostomo, Energy Programs Specialist
San Diego Association of Governments (SANDAG)
Rick Curry, Senior Transportation Modeler
Beth Jarosz, Associate Analyst
Andrew Martin, Associate Regional Planner
Waste Management
Lori Somers, Community and Municipal Relations Representative
ICLEI-Local Governments for Sustainability USA
Alison Culpen, Program Officer
Sarah Favrot, Program Intern
Linda Halabi, Climate Fellow
Brian Holland, Program Officer (San Diego Region)
Michael Schmitz, Regional Director (California)
This report was prepared by Linda Halabi, Climate Fellow, and Brian Holland, Program Officer, at ICLEI-Local Governments for Sustainability USA, with the
generous assistance of Noel Crisostomo, SDG&E. The authors gratefully acknowledge the dedication of the staff of the City of Carlsbad, which provided much of the insight and local information necessary for the completion of this report. We would also like to extend our thanks to the San Diego Foundation, which supported the preparation of this inventory.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory iii
The San Diego Foundation
Bob Kelly, President and Chief Executive Officer
With a dynamic mix of leadership, grantmaking, and civic engagement, The San Diego Foundation makes the San
Diego region a better place to live. Founded in 1975, The Foundation addresses evolving issues facing our region by
convening community leaders, providing research and expertise on topics important to our citizens, and partnering
with nonprofit organizations to meet urgent and changing needs. By working with individuals, families and
organizations to carry out their giving plans, The San Diego Foundation utilizes charitable dollars toward the
ultimate goal of improving the quality of life in the greater San Diego region, now and for generations to come.
www.sdfoundation.org
The San Diego Foundation launched its Climate Initiative in 2006, to raise public awareness about the local
implications of climate change and catalyze more comprehensive regional action on global warming. The initiative
represents a multi-year effort to bring government, business, the research community, and nonprofits together to
tackle one of the greatest challenges of our time.
Over the next few years, The San Diego Foundation will work in partnership with ICLEI to engage local
governments and public agencies to develop local climate action plans to reduce emissions and vulnerabilities to
climate change in our region, bring more resources to support model programs to promote ―green‖ economic
growth and build a more sustainable region, and build public awareness and support for climate action.
ICLEI-Local Governments for Sustainability USA
Jeb Brugmann, Interim Executive Director
ICLEI-Local Governments for Sustainability USA (ICLEI) is a membership association of more than 1,000 local
governments worldwide—more than 500 in the United States—committed to advancing climate protection and
sustainability. Through technical expertise, direct network engagement, and the innovation and evolution of tools,
ICLEI strives to empower local governments to set and achieve their emissions reduction and sustainability goals.
http://www.icleiusa.org
2005 City of Carlsbad Greenhouse Gas Emissions Inventory iv
LETTER FROM
MAYOR
2005 City of Carlsbad Greenhouse Gas Emissions Inventory v
Table of Contents
Executive Summary
Government Operations Inventory Results ............................................................................................. xii
Community Inventory Results xiii
Introduction
1.1 Climate Change Background and Potential Impacts ............................................................................ 2 1.2 Purpose of Inventory ............................................................................................................................ 3
1.3 Climate Change Mitigation Activities in California ............................................................................ 4
1.4 The San Diego Regional Climate Protection Initiative ........................................................................ 6
Methodology
2.1 Greenhouse Gases ................................................................................................................................ 9 2.2 Calculating Emissions .......................................................................................................................... 9
2.3 Reporting Emissions .......................................................................................................................... 10
2.3.1 The Scopes Framework ............................................................................................................... 10
2.3.2 Double Counting and Rolling Up Scopes ................................................................................... 12
2.3.3 Emissions Sectors ........................................................................................................................ 13
Government Operations Inventory Results
3.1 Summary by Sector ............................................................................................................................ 15
3.2 Summary by Source ........................................................................................................................... 16
3.3 Summary of Energy-Related Costs .................................................................................................... 17
3.4 Detailed Sector Analyses ................................................................................................................... 18
3.4.1 Buildings and Other Facilities .................................................................................................... 18
3.4.2 Streetlights, Traffic Signals, and Other Public Lighting ............................................................ 20
3.4.3 Water Transport .......................................................................................................................... 21
3.4.4 Vehicle Fleet and Mobile Equipment .......................................................................................... 21
Community Inventory Results
4.1 Community Inventory Summary ....................................................................................................... 25
4.1.1 Summary by Scope ...................................................................................................................... 25
4.1.2 Summary by Sector ...................................................................................................................... 27
4.1.3 Summary by Source ..................................................................................................................... 28
4.1.4 Per Capita Emissions .................................................................................................................. 29
4.2 Community Inventory Detail by Sector ............................................................................................. 29
4.2.1 Residential Sector........................................................................................................................ 30
4.2.2 Commercial / Industrial Sector ................................................................................................... 30
2005 City of Carlsbad Greenhouse Gas Emissions Inventory vi
4.2.3 Transportation Sector ................................................................................................................. 31
4.2.4 Solid Waste Sector....................................................................................................................... 32
4.2.5 Wastewater Sector ....................................................................................................................... 33
4.3 Community Emissions Forecasts ....................................................................................................... 33
4.3.1 Residential Forecast ................................................................................................................... 34
4.3.2 Commercial / Industrial Forecast ............................................................................................... 34
4.3.3 Transportation Forecast ............................................................................................................. 34
4.3.4 Solid Waste and Wastewater Forecast ........................................................................................ 35
Conclusion
5.1 Toward Setting Emissions Reduction Targets ................................................................................... 37
5.1.1 The Long-Term Goal ................................................................................................................... 38
5.1.2 State of California Targets and Guidance .................................................................................. 38
5.1.3 Department Targets .................................................................................................................... 38
5.2 Creating an Emissions Reduction Strategy ........................................................................................ 39
Appendix A: The Local Government Operations Protocol
A.1 Local Government Operations Protocol .............................................................................................. I
A.1.1 Background ................................................................................................................................... I
A.1.2 Organizational Boundaries ......................................................................................................... II
A.1.3 Types of Emissions ...................................................................................................................... III
A1.4 Quantifying Emissions ................................................................................................................. III
A.1.5 Reporting Emissions ................................................................................................................... IV
A.2 Baseline Years .................................................................................................................................... V
Appendix B: LGOP Standard Report
Appendix C: Reporting on Scope 3 Emissions from Government Operations
C.1 Government Generated Solid Waste ............................................................................................. XIV
C.2 Employee Commute ........................................................................................................................ XV
Appendix D: Employee Commute Methodology
D.1 Methodology Summary ............................................................................................................... XVIII
D.2 Employee Commute Survey............................................................................................................ XX
Appendix E: Government-Generated Solid Waste Methodology
E.1 Estimating Waste Tonnages from Carlsbad's Operations ............................................................ XXIV
E.2 Emissions Calculation Methods .................................................................................................. XXIV
E.2.1 Methane Commitment Method ................................................................................................ XXV
2005 City of Carlsbad Greenhouse Gas Emissions Inventory vii
Appendix F: Community Inventory Methodology
F.1 Overview of Inventory Contents and Approach .......................................................................... XXVI
F.1.1 Emissions Sources Included and Excluded........................................................................... XXVII
F.2 Emissions Forecast ................................................................................................................... XXVIII
F.3 The Built Environment: Residential, Commercial, and Industrial Sectors ............................... XXVIII
F.4 On-road Transportation and Off-road Mobile Sources ................................................................ XXIX
F.4.1 On-road Transportation ........................................................................................................ XXIX
F.4.2 Off-road Mobile Sources ........................................................................................................ XXX
F.5 Solid Waste ................................................................................................................................... XXX
F.5.1 Landfill Waste-in-Place .......................................................................................................... XXX
F.5.2 Community-generated Solid Waste......................................................................................... XXX
F.6 Wastewater .................................................................................................................................... XXX
Appendix G: Conducting a Monitoring Inventory
G.1 ICLEI Tools for Local Governments .......................................................................................... XXXI
G.2 Relationship to Other San Diego Regional Climate Protection Initative Inventories ................. XXXI
G.3 Improving Emissions Estimates .................................................................................................. XXXI
G.4 Conducting the Inventory ......................................................................................................... XXXIII
2005 City of Carlsbad Greenhouse Gas Emissions Inventory viii
List of Tables and Figures
List of Tables
ES.1 2005 Carlsbad Government Operations Emissions by Sector xiii
ES.2 2005 Carlsbad Community Emissions by Sector xiv
2.1 Greenhouse Gases 9
2.2 Basic Emissions Calculations 10
3.1 2005 Carlsbad Government Operations Emissions by Sector 16
3.2 2005 Carlsbad Government Operations Emissions by Source 17
3.3 2005 Carlsbad Energy Costs by Sector 18
3.4 Energy Use and Emissions from Major Facilities 19
3.5 Energy Use and Emissions from Public Lighting 20
3.6 Energy Use and Emissions from Water Transport Equipment 21
3.7 Vehicle Fleet and Mobile Equipment Emissions 22
4.1 Community Emissions Summary by Scope 26
4.2 Community Emissions Summary by Sector 27
4.3 Community Emissions Summary by Source 29
4.4 Per Capita Emissions 29
4.5 Transportation Emissions by Type 32
4.6 Waste Emissions Sources 33
4.7 Community Emissions Growth Forecast by Sector 35
C.1 Emissions from Government-Generated Solid Waste XV
C.2 Emissions from Employee Commutes XVI
C.3 Distance and Time to Work and Cost of Employee Commutes XVII
2005 City of Carlsbad Greenhouse Gas Emissions Inventory ix
List of Figures
ES.1 2005 Carlsbad Government Operations Emissions by Sector xii
ES.2 2005 Carlsbad Community Emissions by Sector xiii
1.1 The Five-Milestone Process 4
2.1 Emissions Scopes 11
3.1 2005 Carlsbad Government Operations Emissions by Sector 16
3.2 2005 Carlsbad Government Operations Emissions by Source 17
3.3 Emissions from Major Facilities 19
3.4 Emissions from Major Facilities by Source 20
3.5 Emissions from Mobile Sources 23
4.1 Community Scope 1 Emissions 26
4.2 Community Emissions Summary by Sector 28
4.3 Community Emissions Summary by Source 28
4.4 Residential Emissions by Source 30
4.5 Commercial / Industrial Emissions by Source 31
4.6 Community Emissions Forecast for 2020 34
5.1 California Greenhouse Gas Reduction Targets 38
C.1 Employee Commute Modes XVI
2005 City of Carlsbad Greenhouse Gas Emissions Inventory x
Executive
Summary
The City of Carlsbad has established strategic goals that help guide the Council in it decisions and in its direction to
City staff. Included within these strategic goals is the concept of creating a community that will help provide a
sustainable high quality of life for its citizens for generations to come. The Council recognizes that the concept of
sustainability includes social, economic and environmental components which must be considered and provided for
in order to achieve a healthy community.
In August, 2007 the Council formally adopted a set of guiding principles describing the overarching goal of
sustainability and the environmental component. By adopting these principles, the Council clarified its commitment
to creating a community with a sustainable environmental component including, but not limited to, the efficient use
of non-renewable resources, stewardship of natural and constructed open spaces, development of a drought resistant
water supply, reduction in the City‘s waste stream and clean air and water.
Specifically, Carlsbad adopted a principal titled the Ethic of Conservation, which supports the conservation of non-
renewable resources, including efforts to reduce the use of energy, greenhouse gas emissions (consistent with AB
32) and to find new and more energy efficient methods for delivering services. Carlsbad recognizes that local
governments play a leading role in reducing greenhouse gas emissions. Local governments can dramatically reduce
emissions from their government operations through such measures as increasing energy efficiency in facilities and
vehicle fleets, utilizing renewable energy sources, enacting sustainable purchasing policies and reducing waste. The
co-benefits of these measures may include lower energy bills, improved air quality, and more efficient government
operations.
Carlsbad has begun its efforts in this area with the assistance of the partners in the San Diego Regional Climate
Protection Initiative. These partners include the San Diego Foundation; local governments in San Diego County;
and ICLEI.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory xi
This greenhouse gas emissions inventory is an important step in helping Carlsbad to understand the various sources
of green house gas emissions within Carlsbad operations and to learn where there are opportunities to improve our
operations to not only reduce emissions but also make save money by making investments in more energy efficient
programs. . As advised by ICLEI, it is essential to first quantify emissions to establish:
A baseline emissions inventory, against which to measure future progress.
An understanding of the scale of emissions from various sources.
Presented here are estimates of greenhouse gas emissions in 2005 resulting from the City of Carlsbad‘s government
operations and from the Carlsbad community-at-large. With one exception,1 all government operations emissions
estimates in this report refer to emissions generated from sources over which the City has direct operational control,
exclusive of physical location.2 This includes all government-operated facilities, streetlights, and other stationary
sources; the on-road vehicle fleet and off-road equipment. The inventory also estimates emissions from the
community-at-large. Community-scale emissions are reported by five primary sectors: residential,
commercial/industrial, transportation, waste, and wastewater.
Like all emissions inventories, this document must rely on the best available data and calculation methodologies.
Emissions estimates are subject to change as better data and calculation methodologies become available in the
future. Nevertheless, the findings of this analysis provide a solid basis upon which Carlsbad can begin planning and
taking action to reduce its greenhouse gas emissions.
This inventory is one of the first inventories to use a new national standard developed and adopted by the California
Air Resources Board (CARB) in conjunction with ICLEI, the California Climate Action Registry, and The Climate
Registry. This standard, called the Local Government Operations Protocol (LGOP), provides standard accounting
principles, boundaries, quantification methods, and procedures for reporting greenhouse gas emissions from local
government operations. The LGOP represents a strong step forward in standardizing how inventories are conducted
and reported, providing a common national framework for all local governments to establish their emissions
baseline.
1 The exception is emissions from employee-owned vehicles that are used by employees during commuting. 2 Facilities, vehicles, or other operations wholly or partially owned by, but not operated by the City of Carlsbad are not included in this inventory. See Appendix A for more details on the boundaries of the inventory.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory xii
Figure ES.1 2005 Carlsbad Government Operations Emissions by Sector
Government Operations Inventory Results
In 2005, Carlsbad‘s operational greenhouse gas emissions totaled 6,555 metric tons of CO2e.3 Of the total emissions
accounted for in this inventory, emissions from the City‘s vehicle fleet were the largest (37 percent as shown in
Figure ES.1 and Table ES.1). The next largest source of emissions resulted from buildings and facilities, followed
by emissions from energy use in public lighting.
Cumulatively, Carlsbad spent approximately $2,621,937 on energy for government operations in 2005. Of this total,
74 percent of these energy expenses ($1,943,359) resulted from electricity consumption and 4 percent ($108,321)
from natural gas purchases from SDG&E. Fuel purchases (gasoline, diesel) for the vehicle fleet and mobile
equipment totaled $570,257, or 22 percent of total costs included in this inventory. These figures demonstrate the
potential for significantly reducing energy costs while also mitigating climate change impacts and helping to
stimulate green job development and economic recovery.
3 This number represents a ―roll-up‖ of emissions, and is not intended to represent a complete picture of emissions from
Carlsbad‘s operations. This roll-up number should not be used for comparison with other local government roll-up numbers without a detailed analysis of the basis for this total.
Buildings and
Facilities
35°0
Vehicle Fleet
37°0
2005 City of Carlsbad Greenhouse Gas Emissions Inventory xiii
Table ES.1: 2005 Government Operations Emissions by Sector
Sector Greenhouse Gas Emissions
Vehicle Fleet 2,474
Buildings and Facilities 2,266
Public Lighting 1,354
Water/Sewage Transport 461
All units are in metric tons CO2e
Community Inventory Results
In 2005, the Carlsbad community emitted approximately 925,248 metric tons of CO2e. As shown in Figure ES.2 and
Table ES.2 below, the transportation sector was by far the largest source of emissions, generating approximately
584,369 metric tons of CO2e, or 64 percent of total 2005 emissions. Transportation sector emissions are the result of
diesel and gasoline combustion in vehicles traveling on both local roads and state highways that pass through the
jurisdictional boundaries of Carlsbad. Electricity and natural gas consumption within the Commercial / Industrial
Sector, the second greatest source of 2005 emissions, generated 170,041 metric tons CO2e, or 18 percent of the
total.4 Similarly, electricity and natural gas use in Carlsbad‘s Residential Sector produced 136,427 metric tons CO2e,
or 15 of total community emissions. The remaining 3 percent (34,412 metric tons) are estimated methane emissions
from the solid waste and wastewater sectors.
Figure ES.2 2005 City of Carlsbad Community Emissions by Sector
Commercial /
Industrial
18%
Residential
15%Solid Waste
3%
Wastewater
0.5%
Transportation
64%
4 This estimate excludes emissions from the combustion of natural gas at the Encina electricity generation facility, which totaled approximately 1,251,972 metric tons CO2e. These emissions occur in within the jurisdictional boundaries of Carlsbad.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory xiv
Table ES.2: 2005 Community Emissions Summary by Sector
Sector
Greenhouse Gas
Emissions
(metric tons CO2e)
Transportation 584,369
Commercial / Industrial 170,041
Residential 136,427
Solid Waste 30,015
Wastewater 4,397
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 1
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 2
Introduction
Within the context of government operations, local governments have direct control over their emissions-generating
activities. They can reduce energy consumption in buildings and facilities, reduce fuel consumption by fleet
vehicles and equipment, reduce the amount of government-generated solid waste that is sent to a landfill, and
increase the amount of energy that is obtained through alternative energy sources. By quantifying the emissions
coming from government operations, this report will assist policymakers and stakeholders in developing plans that
will assist Carlsbad in reducing GHG emissions and more efficiently using the limited resources we have available
to us.
Local jurisdictions in California also have broad influence over activities in the community that generate
greenhouse gas emissions, such as new construction, the operation of buildings and transportation, and solid waste
disposal. That influence may be exercised directly through the jurisdiction‘s authority over local land use planning
and building standards, and indirectly through programs that encourage sustainable behavior among local residents
and businesses. The community inventory provides a starting point for addressing how the City can impact
emissions within its jurisdictional boundaries.
1.1 Purpose of Inventory
The objective of this greenhouse gas emissions inventory is to identify the sources and quantities of greenhouse gas
emissions resulting in Carlsbad in 2005. This inventory is a necessary first step in addressing greenhouse gas
emissions, serving two purposes:
It creates an emissions baseline against which Carlsbad can set emissions reductions targets and
measure future progress.
It allows local governments to understand the scale of emissions from various sources.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 3
While the City of Carlsbad has already begun to reduce greenhouse gas emissions through its actions (See Section
1.4 for more detail), this inventory represents the first step in a systems approach to reducing the City‘s emissions.
1.2 Climate Change Mitigation Activities in California
Since 2005, the State of California has responded to growing concerns over the effects of climate change by
adopting a comprehensive approach to addressing emissions in the public and private sectors. This approach was
officially initiated with the passage of the Global Warming Solutions Act of 2006 (AB 32), which requires the state
to reduce its greenhouse gas emissions to 1990 levels by 2020. It also requires the California Air Resources Board
(CARB) to develop a policy plan for reaching AB32 emissions reduction goals and to adopt and enforce regulations
to implement the plan.
The resulting AB 32 Scoping Plan was adopted by CARB in December 2008. Among many other strategies, it
encourages local governments to reduce emissions in their jurisdictions by a degree commensurate with state goals,
approximately 15 percent below current levels. In addition, it identifies the following strategies that will impact
local governance:
Develop a California cap-and-trade program
Expand energy efficiency programs
Establish and seek to achieve reduction targets for transportation-related GHG emissions
Expand the use of green building practices
Increase waste diversion, composting, and commercial recycling toward zero-waste
Continue water efficiency programs and use cleaner energy sources to move and treat water
Preserve forests that sequester carbon dioxide
Other measures taken by the state include mandating stronger vehicle emissions standards (AB 1493, 2002),
establishing a low-carbon fuel standard (EO # S-01-07, 2007), mandating a climate adaptation plan for the state (S-
EO # 13-08, 2008), establishing a Green Collar Job Council, and establishing a renewable energy portfolio standard
for power generation or purchase in the state. The state also has made a number of legislative and regulatory
changes that have significant implications for local governments:
SB 97 (2007) requires the Office of Planning and Research to create greenhouse gas planning
guidelines for the California Environmental Quality Act (CEQA). In addition, CARB is tasked with
creating energy-use and transportation thresholds in CEQA reviews, which may require local
governments to account for greenhouse gas emissions when reviewing project applications.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 4
AB 811 (2007) authorizes all local governments in California to establish special districts that can be
used to finance solar or other renewable energy improvements to homes and businesses in their
jurisdiction.
SB 375 (2008) revises the process of regional transportation planning by metropolitan planning
organizations (MPOs), which are governed by elected officials from local jurisdictions. The statute
calls on CARB to establish regional transportation-related greenhouse gas targets and requires the
MPO to develop a regional ―Sustainable Communities Strategy‖ of land use, housing and
transportation policies that will move the region towards its GHG target. The statute stipulates that
transportation investments must be consistent with the Sustainable Communities Strategy and provides
CEQA streamlining for local development projects that are consistent with the Strategy.
1.3 Climate Change Mitigation Activities in Carlsbad
The City of Carlsbad has been very progressive in the energy and climate change arena and has already taken many
steps to evaluate and reduce the City‘s energy consumption.
California Climate Action Registry
The City of Carlsbad is a member of the California Climate Action Registry (CCAR) and has voluntarily monitored and
reported the City‘s greenhouse gas (GHG) emissions since 2006.
Energy Efficiency Improvements
In 2005 the City of Carlsbad was selected as the pilot jurisdiction for an Energy Efficiency Program developed by the
San Diego Association of Governments‘ (SANDAG) Energy Working Group (EWG). The Program was designed to
help local governments reduce energy use, save on their utility bills, and promote conservation. This pilot project
included developing a comprehensive energy management plan and facilitating energy-saving projects. Energy
engineers from the San Diego Regional Energy Office (now the California Center for Sustainable Energy) performed
energy assessments at several of the City of Carlsbad‘s buildings and identified energy-related improvements. This study
identified thirty Energy Conservation Opportunities (ECOs) and estimated a total annual savings of $150,408 with an
implementation cost of $1,039,868 (taking into account rebates), equating to a 6.9 year payback or a 15% return on
investment.
Since the completion of the Energy Assessment Report in 2005, the City of Carlsbad has implemented many of the
recommended energy-related improvements. For example, lighting retrofits have been completed in various facilities
including the Senior Center, City Hall, Stagecoach and Calavera Community Centers, and the Carlsbad Municipal Water
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 5
District Maintenance and Operations Building. New chillers have been installed in the City Hall, Cole Library, and the
Safety Center, and HVAC equipment efficiency has been improved in the Cole and Dove Libraries.
Thus far, the energy-related measures the City has taken are projected to save an annual 116,713 kWh and $155,204.
Policy 71
The City Council adopted Policy 71 in July of 2006. This Policy outlines the following measures to help Carlsbad reach
the goals set out by the City‘s Energy Conservation and Management Program:
Maximize energy conservation measures when purchasing equipment and products
Whenever practicable, design new facilities to be at least 25% more energy efficient than required by
the State of California, Title 24 Energy Regulations.
Strive to achieve LEED "Silver" Level Certification or the equivalent for all new City facilities.
Maintain and operate City buildings in such a fashion that the minimum amounts of energy are
consumed.
Reduce demand on the energy grid and to enhance energy reliability and independence for City
facilities.
Continually evaluate and update the Building Code so that the most current energy conservation
regulations are incorporated in the plans for the construction of buildings by the private sector.
Create non-financial, building permit processing incentives (e.g. priority building permit processing
and inspections) to developers of private property that demonstrate a commitment to building projects
that exceed the minimum standards in the State of California, Title 24 Energy Regulations
Sustainable Energy Master Plan
In December of 2008 the City of Carlsbad released their Sustainable Energy Master Plan, a report on potential
renewable energy sources and measures to reduce power consumption. This report evaluated a variety of energy
efficiency and reduction measures including automated meter readings to monitor water meters and reduce operating
costs, off peak water pumping to lower power costs, and variable speed motors to increase efficiency of HVAC systems
and water pumps. The Report also evaluated green roofs which reduce inside building temperatures and remove GHGs
from the air, as well as solar water heating systems and tankless water heating systems that would reduce energy
consumption. Also discussed were hybrid and electric vehicles, energy efficient chillers, LEED, LED traffic signals and
interconnection, induction and LED streetlights, and Energy Management Systems.
In terms of renewable energy, the report details solar photovoltaic systems and outlines potential locations for solar PV
panels. Wind power and bioenergy were also examined as potential renewable energy sources. The Report also describes
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 6
hydrokinetic and wave energy, micro-hydropower generators, hydroelectric pressure-reducing stations, microturbine
power generation, and fuel cells.
To save on vehicle fuel consumption, the City is pursuing traffic signal coordination on major corridors. The City of
Carlsbad has also encouraged water conservation and has implemented water recycling projects to reduce the demand
for imported water, thereby reducing energy consumption for pumping.
Fleet Related Energy Management
Over the last several years the City of Carlsbad has downsized their fleet while population continued to grow and service
demands continued to increase. A large number of full-size pickups and sedans have been replaced with mid-size,
compact, and hybrid vehicles.
Hydro-Electric Project
In early 2009 the City Council authorized moving forward with the development of a hydro-electric project which will
produce an estimated 2,200 MWh of electricity per year. The energy is created by using micro-turbines instead of
pressure reducing stations to adjust water pressure coming from the County aqueduct. The project is out for design now
and is expected to be operational within 12-18 months.
Street Light Retrofit
In 2009 the City Council authorized changing all of the City's street lights (7,000+) from High Pressure Sodium lights to
Induction lights. This shift in technology will result in a projected savings of 3,000 MWh per year in electricity with an
annual savings of more than $400,000. The California Energy Commission has approved a loan to help the City with the
project, and it is anticipated that replacement will begin within the next couple of months.
1.4 The San Diego Regional Climate Protection Initiative
The San Diego Regional Climate Protection Initiative is a joint effort between The San Diego Foundation,
ICLEI, and 10 local governments in San Diego County. ICLEI is working directly with local governments in
the San Diego region to quantify greenhouse gas emissions and drive regional activity to reduce emissions and
enhance resiliency to a changing climate. In addition to performing greenhouse gas inventories for each local
jurisdiction, ICLEI is providing ongoing training and technical assistance to participating agencies. The
Initiative also includes the initiation and facilitation of a formal regional network of local governments and key
stakeholders focused on climate protection initiatives, including both mitigation and adaptation activities. The
Network mirrors similar networks across the country that ICLEI supports to engage local governments in
information and resource exchange, best practices and lessons learned, as well as collaboration opportunities.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 7
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 8
Methodology
The inventories in this report follow two standards, one for government operations emissions and one for
community emissions. As local governments all over the world continue to join the climate protection movement,
the need for common conventions and a standardized approach to quantifying greenhouse gas (GHG) emissions is
more pressing than ever.
The government operations component of the greenhouse gas emissions inventory follows the standard
methodology outlined in the Local Government Operations Protocol (LGOP), which was adopted in 2008 by CARB
and serves as the national standard for quantifying and reporting greenhouse emissions from local government
operations. By participating in the San Diego Regional Climate Protection Initiative, the City of Carlsbad has the
opportunity to be one of the first in the nation to follow LGOP when inventorying emissions from government
operations.
The community emissions inventory follows the standard outlined in the draft International Local Government
GHG Emissions Analysis Protocol (IEAP). ICLEI has been developing this guidance since the inception of its
Cities for Climate Protection Campaign in 1993, and has recently formalized version 1 of the IEAP as a means to
set a common framework for all local government worldwide. The community inventory also draws on the
methodology developed in the San Diego County Greenhouse Gas Inventory developed by the Energy Policy
Initiatives Center (EPIC) at the University of San Diego in September 2008.
This chapter outlines the basic methodology utilized in the development of this inventory to provide clarity on how
the inventory results were reported. Specifically, this section reviews:
What greenhouse gases were measured in this inventory.
What general methods were used to estimate emissions.
How emissions estimates can be reported (the scopes framework, roll-up numbers).
How emissions estimates were reported in this inventory.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 9
A more detailed account of the methodology used in this inventory can be found in Appendices A, B, and E.
2.1 Greenhouse Gases
According to both the LGOP and the IEAP, local governments should assess emissions of all six internationally
recognized greenhouse gases regulated under the Kyoto Protocol. These gases are outlined in Table 2.1, which
includes the sources of these gases and their global warming potential (GWP).5 This report focuses on the four
GHGs most relevant to local government policymaking: CO2, CH4, N2O, and hydrofluorocarbons. These gases
comprise a large majority of greenhouse gas emissions at the community level, and are the only gases emitted in
Carlsbad‘s government operations. The omitted gases, SF6 and perfluorocarbons, are emitted primarily in private
sector manufacturing and electricity transmission, and are the subject of regulation at the state level.
Table 2.1 Greenhouse Gases
Gas
Chemical
Formula Activity
Global Warming
Potential (CO2e)
Carbon Dioxide CO2 Combustion 1
Methane CH4
Combustion, Anaerobic Decomposition of
Organic Waste (Landfills, Wastewater), Fuel Handling 21
Nitrous Oxide N2O Combustion, Wastewater Treatment 310
Hydrofluorocarbons Various Leaked Refrigerants, Fire Suppressants 12–11,700
Perfluorocarbons Various
Aluminum Production, Semiconductor
Manufacturing, HVAC Equipment
Manufacturing 6,500–9,200
Sulfur Hexafluoride SF6 Transmission and Distribution of Power 23,900
2.2 Calculating Emissions
The majority of the emissions recorded in this inventory have been calculated using calculation-based
methodologies to derive emissions using activity data and emission factors. To estimate emissions accordingly, the
basic equation below is used:
Activity Data x Emission Factor = Emissions
Activity Data
Activity data refer to the relevant measurement of energy use or other greenhouse gas-generating processes such as
fuel consumption by fuel type, metered annual electricity consumption, and annual vehicle miles traveled. Please
see the appendices for detailed listing of the activity data used in composing this inventory.
5 Global warming potential (GWP) is a measure of the amount of warming a greenhouse gas may cause, measured against the amount of warming caused by carbon dioxide.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 10
Emission Factors
Emission factors are used to convert energy usage or other activity data into associated emissions quantities. They
are usually expressed in terms of emissions per unit of activity data (e.g. lbs CO2/kWh). Please see Appendix B for a
listing of emissions factors used in this report. Table 2.2 demonstrates an example of common emission calculations
that use this formula.
Table 2.2 Basic Emissions Calculations
Activity Data Emissions Factor Emissions
Electricity Consumption (kilowatt hours) CO2 emitted/kWh CO2 emitted
Natural Gas Consumption (therms) CO2 emitted/therm CO2 emitted
Gasoline/Diesel Consumption (gallons) CO2 emitted /gallon CO2 emitted
Waste Generated by Government Operations
(tons) CH4 emitted/ton of
waste CH4 emitted
2.3 Reporting Emissions
LGOP provides two reporting frameworks: reporting by scope and reporting by sector. This section defines the two
reporting frameworks and discusses how they are used in this inventory. It also discusses the concept of ―rolling up‖
emissions into a single number. The section provides guidance on communicating the results of the inventory and
using the inventory to formulate emissions reductions policies.
2.3.1 The Scopes Framework
For government operations and community inventories, emissions sources can be categorized by ―scope‖ according
to the entity‘s degree of control over the emissions source and the location of the source. Emissions sources are
categorized as direct (Scope 1) or indirect (Scope 2 or Scope 3), in accordance with the World Resources Institute
and the World Business Council for Sustainable Development‘s Greenhouse Gas Protocol Corporate Standard. The
standard is to report emissions by scope as a primary reporting framework.6
Community Scope Definitions
The scopes framework includes three emissions scopes for community emissions:
Scope 1: All direct emissions from sources located within the jurisdictional boundaries of the local government,
including fuel combusted in the community and direct emissions from landfills in the community.
Scope 2: Indirect emissions associated with the consumption of energy that is generated outside the jurisdictional
boundaries of the local government.
6 Another common reporting framework is emissions by sector: See Section 2.3.3-Emisisons Sectors for details
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 11
Source: WRI/WBCSD GHG Protocol Corporate Accounting and
Reporting Standard (Revised Edition), Chapter 4.
Figure 2.1 Emissions Scopes
Scope 3: All other indirect or embodied emissions not covered in Scope 2, that occur as a result of activity within
the jurisdictional boundaries.
Scope 1 and Scope 2 sources are the most essential components of a community greenhouse gas analysis. This is
because these sources are typically the most significant in scale, and are most easily impacted by local policy
making. The IEAP also includes, in its Global Reporting Standard, the reporting of Scope 3 emissions associated
with the future decomposition of solid waste generated in the community in the base year.
Government Scope Definitions
Similar to the community framework, the government scopes are divided into three main categories:
Scope 1: Direct emissions from sources within a local government‘s operations that it owns and/or controls. This
includes stationary combustion to produce electricity, steam, heat, and power equipment; mobile combustion of
fuels; process emissions from physical or chemical processing; fugitive emissions that result from production,
processing, transmission, storage and use of fuels; leaked refrigerants; and other sources.
Scope 2: Indirect emissions associated with the consumption of electricity, steam, heating, or cooling that are
purchased from an outside utility.
Scope 3: All other emissions sources that hold policy relevance to the local government that can be measured and
reported. This includes all indirect emissions not covered in Scope 2 that occur as a result of activities within the
operations of the local government. Scope 3 emission sources include (but are not limited to) tailpipe emissions
from employee commutes, employee business travel, and emissions resulting from the decomposition of
government-generated solid waste.
co, .... , -HFCs PFCs
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 12
2.3.2 Double Counting and Rolling Up Scopes
Many local governments find it useful for public awareness and policymaking to use a single number (a ―roll-up‖
number) to represent emissions in its reports, target setting, and action plan. A roll-up number allows local
governments to determine the relative proportions of emissions from various sectors (e.g., 30 percent of rolled up
emissions came from the vehicle fleet), which can help policymakers and staff identify priority actions for reducing
emissions from their operations.
For these reasons, this report includes roll-up numbers as the basis of the both the government operations and
community emissions analyses in this inventory. This roll-up number is composed of direct emissions (Scope 1), all
emissions from purchased electricity (Scope 2), and other indirect emissions (Scope 3).
While this report uses a standard roll-up number, these numbers should be used with caution, as they can be
problematic for three reasons:
First, a roll-up number does not represent all emissions from Carlsbad‘s operations, only a summation of
inventoried emissions using available estimation methods. Reporting a roll-up number can be misleading and
encourage citizens, staff, and policymakers to think of this number as the local government‘s ―total‖ emissions.
Therefore, when communicating a roll-up number it is important to represent it only as a sum of inventoried
emissions, not as a comprehensive total.
Second, rolling up emissions may not simply involve adding emissions from all sectors, as emissions from different
scopes can be double-counted when they are reported as one number. For example, if a local government operates a
municipal utility that provides electricity to government facilities, these are emissions from both the power
generation and facilities sectors. If these sectors are rolled up into a single number, these emissions are double
counted, or reported twice. For these reasons, it is important to be cautious when creating a roll-up number to avoid
double counting; the roll-up number used in this report was created specifically to avoid any possible double
counting.
Third, it is very difficult to use a roll-up number as a common measure between local governments, which is how
the results are sometimes applied. Currently, there is no national or international standard for reporting emissions as
a single roll-up number. In addition, local governments provide different services to their citizens, and the scale of
the services (and thus the emissions) is highly dependent upon the size of the jurisdiction. For these reasons,
comparisons between local government roll-up numbers should not be made without significant analysis of the basis
of the roll-up number and the services provided by the local governments being compared.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 13
Furthermore, the results from the government operations component and community component of the inventory
should not be rolled-up into one number, as government operations emissions are already accounted for as one
source among many in the community inventory.
2.3.3 Emissions Sectors
In addition to categorizing emissions by scope, ICLEI recommends that local governments examine their emissions
in the context of the sector that is responsible for those emissions. Many local governments will find a sector-based
analysis more directly relevant to policy making and project management, as it assists in formulating sector-specific
reduction measures and climate action plan components. The government operations inventory uses LGOP sectors
as a primary reporting framework, including the following sectors:
Buildings and other facilities
Streetlights, traffic signals, and other public lighting
Water delivery and collection facilities
Recycled water facilities
Vehicle fleet and mobile equipment
Government-generated solid waste
Emissions from employee commutes
The community inventory reports emissions by the following sectors:
Residential. This sector includes Scope 1 natural gas combustion and Scope 2 electricity
consumption.
Commercial/Industrial. This sector includes Scope 1 fuel combustion and Scope 2 electricity
consumption.
Transportation. The transportation sector includes exclusively Scope 1 transportation fuel
combustion.
Solid Waste. The sector includes Scope 1 emissions from landfills located in the jurisdiction and
Scope 3 emissions from future decomposition of solid waste generated in the community in the
base year.
Wastewater. This sector includes Scope 3 emissions from treatment of wastewater generated in the
community.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 14
Section Three: Government
Operations Inventory Results
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 15
Government
Operations
Inventory
Results
This chapter provides a detailed description of Carlsbad‘s greenhouse gas emissions from government operations in
2005, rolling up and comparing emissions across sectors and sources as appropriate. This chapter also provides
details on emissions from each sector, including a breakdown of emissions types and, where possible, an analysis of
emissions by department. This information identifies more specific sources of emissions (such as a particular
building) that can help staff and policymakers in Carlsbad to best target emissions reduction activities in the future.
For a report of emissions by scope, and a detailed description of the methodology and emission factors used in
calculating the emissions from Carlsbad‘s operations, please see Appendix B: LGOP Standard Report.
In 2005, Carlsbad‘s government operations greenhouse gas emissions totaled 6,556 metric tons of CO2e. In this
report, this number is the basis for comparing emissions across sectors and sources (fuel types), and is the aggregate
of all emissions estimates included in the body of this inventory.
3.1 Summary by Sector
Reporting emissions by sector provides a useful way to understand the sources of Carlsbad‘s emissions. By better
understanding the relative scale of emissions from each of the sectors, Carlsbad can more effectively focus
emissions reductions strategies to achieve the greatest emissions reductions.7
7 The sectors with the largest scale of emissions do not necessarily represent the best opportunity for emissions reductions. Cost, administration, and other concerns may affect Carlsbad‘s ability to reduce emissions from any one sector.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 16
Figure 3.1 2005 Carlsbad Government Operations Emissions by Sector
Table 3.1: 2005 Carlsbad Government Operations
Emissions by Sector
Sector Greenhouse Gas Emissions
Vehicle Fleet 2,474
Buildings and Facilities 2,266
Public Lighting 1,354
Water/Sewage Transport 461
All units are in metric tons CO2e
As visible in Figure 3.1, the City‘s vehicle fleet was the largest emitter (2,474 metric tons CO2e) in 2005. Emissions
from building and facilities produced the second highest quantity of emissions, resulting in 2,266 metric tons of
CO2e. Carlsbad‘s public lighting produced 1,354 metric tons of CO2e of total emissions with the remainder coming
from water and sewage transport.
3.2 Summary by Source
When considering how to reduce emissions, it is helpful to look not only at which sectors are generating emissions,
but also at the specific raw resources and materials (gasoline, diesel, electricity, natural gas, solid waste, etc.) whose
use and generation directly result in the release of greenhouse gases. This analysis can help target resource
Buildings and
Facilities
35%
Vehicle Fleet
37°0
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 17
management in a way that will successfully reduce greenhouse gas emissions. Table 3.2 and Figure 3.2 provide a
summary of Carlsbad‘s government operations 2005 greenhouse gas emissions by fuel type or material.
Table 3.2: 2005 Government Operations
Emissions by Source
Source
Greenhouse Gas Emissions
(metric tons CO2e)
Electricity 3,534
Gasoline 1,853
Diesel 560
Natural Gas 537
Refrigerants 67
Propane 6
All units are in metric tons CO2e
Figure 3.2 2005 Carlsbad Government Operations Emissions by Source
Gasoline
28°0
Refri erants
Propane
0.1%
Electricity
54%
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 18
3.3 Summary of Energy-Related Costs
In addition to tracking energy consumption and generating estimates on emissions per sector, ICLEI has calculated
the basic energy costs of various government operations. During 2005, Carlsbad spent approximately $2,621,937 on
energy (e.g., electricity, natural gas, gasoline, and diesel) for its operations. Over 78 percent of these energy
expenses ($2,051,680) are the result of electricity and natural gas purchases from SDG&E. Carlsbad spent
approximately $570,257 on gasoline and diesel for the municipal fleet (22 percent of total costs). Beyond reducing
harmful greenhouse gases, any future reductions in energy use will have the potential to reduce these costs, enabling
Carlsbad to reallocate limited funds toward other municipal services or create a revolving energy loan fund to
support future climate protection activities.
Table 3.3 2005 Carlsbad Energy Costs by Sector
Sector Cost
Buildings and Facilities $1,071,484
Public Lighting $696,130
Vehicle Fleet $570,257
Water / Sewage Transport $284,066
TOTAL $2,621,937
3.4 Detailed Sector Analyses
3.4.1 Buildings and Other Facilities
Through their use of energy for heating, cooling, lighting, and other purposes, buildings and other facilities operated
by local governments constitute a significant amount of their greenhouse gas emissions. Carlsbad operates 27
facilities and numerous parks, including City administration buildings, two libraries, five fire stations, a swim
complex, and three community centers. Facility operations contribute to greenhouse gas emissions in two main
ways. The majority of emissions are related to the consumption of electricity and fuels such as natural gas and
diesel. In addition, fire suppression, air conditioning, and refrigeration equipment in buildings can emit
hydrofluorocarbons (HFCs) and other greenhouse gases when these systems leak refrigerants or fire suppressants.
In 2005, the operation of Carlsbad‘s facilities produced approximately 2,266 metric tons of CO2e from the above
sources. Table 3.4 shows estimated costs associated with the activities that generated these emissions, and Figure
3.3 depicts 2005 emissions per facility or department. Of total facility emissions, 76 percent came from the
consumption of electricity, 24 percent came from the combustion of natural gas, and less than 1 percent came from
the combustion of other fuels such as diesel and propane (see Figure 3.4). Carlsbad spent approximately $1,071,484
in 2005 on the fuels and electricity that were the cause of these emissions.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 19
Table 3.4: Energy Use and Emissions from Major Facilities
Facility
Greenhouse Gas
Emissions
(metric tons CO2e)
Percent
Emissions of
All Facilities
Electricity Use
(kWh)
Natural Gas
Use (therms)
Total
Energy Cost
Libraries 559 25% 1,802,637 20,467 $227,777
Safety Center 402 18% 1,163,336 20,845 $138,705
Parks and Recreation 335 15% 1,230,178 4,904 $271,295
City Administration 282 12% 1,099,520 1,430 $126,845
Swim Complex 216 10% 202,520 31,116 $58,415
City Hall 119 5% 294,080 8,552 $52,086
Fire Stations 98 4% 289,274 4,876 $52,705
Senior Center 90 4% 224,100 6,319 $44,890
Maintenance Yards 56 2% 173,501 1,632 $30,140
CMWD M&O 53 2% 197,920 754 $29,993
Other Facilities 55 2% 218,810 71 $38,633
TOTAL 2,266 100% 6,895,876 100,966 $1,071,484
Figure 3.3: Emissions from Major Facilities
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2005 City of Carlsbad Greenhouse Gas Emissions Inventory 20
Figure 3.4: Emissions from Major Facilities by Source
Natural
Gas
24%
Electricity
76%
Diesel
0.1%
Propane
0.2%
3.4.2 Streetlights, Traffic Signals, and Other Public Lighting
Like most local governments, Carlsbad operates a range of public lighting, from traffic signals and street lights to
outdoor and park lights. Electricity consumed in the operation of this infrastructure is a significant source of
greenhouse gas emissions.
In 2005, public lighting in Carlsbad consumed a total of 5,424,206 kWh of electricity, producing approximately
1,354 metric tons CO2e. Table 3.5 depicts 2005 emissions per lighting type and estimated electricity consumption
and costs associated with the activities that generated these emissions. Carlsbad spent approximately $696,130 in
2005 on the fuels and electricity that were the cause of these emissions.
Table 3.5: Energy Use and Emissions from Public Lighting
Source
Greenhouse Gas
Emissions (metric
tons CO2e)
Percent
Emissions of
All Lighting
Electricity Use
(kWh) Cost
Streetlights 1,162 86% 4,652,801 $572,637
Traffic
Signals/Controllers 187 14% 750,417 $116,364
Outdoor Lighting 5 0.4% 20,988 $7,129
TOTAL 1,354 100% 5,424,206 $696,130
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 21
3.4.3 Water Transport
This section addresses any equipment used for the distribution of water and collection of wastewater.8 Typical
systems included in this section are water pumps/lifts and sprinkler and other irrigation controls. Carlsbad operates a
range of water transport equipment, including water distribution pumps, recycled water pumps, and wastewater
collection systems. Electricity consumption is the most significant source of greenhouse gas emissions from the
operation of Carlsbad‘s water transport equipment.
In 2005, the operation of Carlsbad‘s water transport equipment produced approximately 461 metric tons of CO2e
from the above sources. Table 3.6 depicts 2005 emissions per equipment type and shows estimated activities and
costs associated with the operation of this equipment. Carlsbad spent approximately $284,066 in 2005 on the fuels
and electricity that were the cause of these emissions.
Table 3.6: Energy Use and Emissions from Water Transport Equipment
Source
Greenhouse Gas
Emissions (metric
tons CO2e)
Percent Emissions
of Water Transport
Equipment
Electricity
Use (kWh) Cost ($)
Sewage Pumps 263 57% 1,038,941 $156,370
Recycle Pump Stations 105 23% 418,980 $59,035
Water Pumps 90 19% 360,237 $65,862
Irrigation / Sprinkler Systems 3 1% 13,151 $2,799
TOTAL 461 100% 1,831,309 $284,066
3.4.4 Vehicle Fleet and Mobile Equipment
The majority of local governments use vehicles and other mobile equipment as an integral part of their daily
operations—from maintenance trucks used for parks and recreation to police cruisers and fire trucks. These vehicles
and equipment burn gasoline, diesel, and other fuels, which results in greenhouse gas emissions. In addition,
vehicles with air conditioning or refrigeration equipment use refrigerants that can leak from the vehicle. Emissions
from vehicles and mobile equipment compose a significant portion of emissions within most local governments.
8 While equipment that transports water and stormwater may be managed separately in Carlsbad‘s operations, the types of equipment are similar, and therefore the ways to reduce emissions from this equipment, are similar. For this reason, this section groups equipment used for transporting water and wastewater.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 22
Table 3.7: Vehicle Fleet and Mobile Equipment Emissions9
Function
Greenhouse Gas
Emissions (metric
tons CO2e)
Percent of All
Mobile
Emissions
Gasoline
Consumption
(gal)
Diesel
Consumption
(gal) Cost
Police Department 967 40% 108,626 124 $233,062
Fire Department 317 13% 8,769 23,452 $77,670
Parks and Recreation 308 13% 23,725 9,238 $70,638
Water Operations 254 11% 23,870 3,974 $59,316
Street Maintenance 229 9% 11,479 12,359 $51,931
Engineering 100 4% 11,071 0 $23,362
Sewer Operations 81 3% 2,899 5,378 $18,397
Facilities Maintenance 52 2% 5,757 0 $12,187
Building 47 2% 5,292 0 $11,245
Stormwater 3 0.1% 284 65 $761
Other 50 2% 5,515 0 $11,688
TOTAL 2,408 100% 207,286 54,589 $570,257
In 2005, the City of Carlsbad operated a vehicle fleet with 279 vehicles and 45 pieces of equipment. Carlsbad‘s
vehicle fleet performed a number of essential services, from maintaining parks, streets, and facilities, to protecting
the City through the fire and police fleets. In 2005, the police department made up the majority of vehicles in the
fleet (38 percent), followed by the fire department while other departments including parks and recreation, water
operations, street maintenance, and engineering made up the rest of the fleet.
In 2005, Carlsbad emitted approximately 2,408 metric tons of CO2e as a result of the combustion of fuels to power
the City‘s vehicle fleet. Table 3.7 shows estimated costs associated with the activities that generated these
emissions, and Figure 3.5 depicts 2005 emissions per department. Across departments, the vehicles used by the
police department were the largest emitters of greenhouse gases, representing 40 percent of total vehicle fleet
emissions. The fire department and parks and recreation were the next largest emitters of greenhouse gases
responsible for 13 percent of emissions each respectively.
Across all government operations, emissions from mobile sources made up 27 percent of all inventoried emissions.
Of total mobile emissions, 75 percent came from the consumption of gasoline, 22 percent came from the
combustion of diesel, and the remaining 3 percent came from leaked refrigerants10.The City of Carlsbad spent
approximately $570,257 in 2005 on the fuels that were the cause of these emissions.
9 The numbers reported here include emissions from fuel consumption only-emissions from leaked refrigerants are reported separately. 10 The LGOP Alternative Method (Mobile Fugitive Emissions) was used to estimate emissions from leaked refrigerants. This amount is likely to be a significant overestimate due to high default ranges but in line with LGOP methods.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 23
Figure 3.5: Emissions from Mobile Sources
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2005 City of Carlsbad Greenhouse Gas Emissions Inventory 24
Section Four: Community
Inventory Resu Its
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 25
Community
Inventory
Results
4.1 Community Inventory Summary
In 2005, activities and operations taking place within Carlsbad‘s jurisdictional boundaries resulted in approximately
925,248 metric tons of CO2e. This number includes Scope 1 emissions from the on-site combustion of fuels in the
residential and commercial / industrial sectors,11 and from the combustion of gasoline and diesel in vehicles
traveling on local roads and state highways within Carlsbad. This figure also includes all Scope 2 emissions
associated with community electricity consumption, and Scope 3 emissions from waste and wastewater generated
by the Carlsbad community.12
4.1.1 Summary by Scope
As shown in Table 4.1, Scope 1 sources produced the largest amount of community greenhouse gas emissions in
2005, totaling 700,375 metric tons of CO2e. Scope 2 emissions constituted the second largest amount (193,059
metric tons of CO2e), and Scope 3 emissions totaled 31,814 metric tons of CO2e.13
Scope 1 Emissions
In 2005, Carlsbad‘s community produced 700,375 metric tons CO2e of Scope 1 greenhouse gas emissions. As seen
in Figure 4.1, the largest percent (84 percent) of Scope 1 emissions resulted from combustion of transportation fuels.
The second largest source of Scope 1 emissions was stationary natural gas combustion, constituting 16 percent of
Scope 1 emissions.
11 Emissions from the combustion of natural gas at the Encina electricity generation facility were excluded from reporting of emissions in this inventory. While the emissions occur inside the boundaries of Carlsbad, the City elected not to report these
emissions to allow for a more straightforward comparison of sectors over which the City has jurisdictional influence. The emissions were estimated at 1,251,972 metric tons CO2e. 12 For a detailed description of scopes, please see Section 2: Methodology 13 These emissions have not been totaled as this may result in double counting and a percentage is not significantly relevant to
forming emissions reduction policy. The summaries by sector and source have percentage breakdowns, as do individual sources of emissions.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 26
Table 4.1: Community Emissions Summary by Scope in Metric Tons
Activity CO2e emitted Scope Total
Scope 1 700,375
Transportation Fuels 584,369
Natural Gas* 113,409
Landfill Waste-in-Place 2,598
Scope 2 193,059
Purchased Electricity 193,059
Scope 3 31,814
Community-Generated Solid Waste 27,417
Wastewater 4,397
*In addition to approximately 1,251,972 metric tons CO2e emitted at the Encina generation facility
Figure 4.1 Community Scope 1 Emissions
Natural Gas
16%
Landfill Waste-in-
Place
0.4%
Transportation
Fuels
84%
Scope 2 Emissions
In 2005, Carlsbad‘s community generated 193,059 metric tons of CO2e in the form of Scope 2 emissions. All Scope
2 emissions in this inventory result from electricity consumed within Carlsbad but purchased from outside entities.
Scope 3 Emissions
In 2005, Carlsbad‘s community generated 31,814 metric tons of CO2e in the form of Scope 3 emissions. Scope 3
emissions reported include those resulting from the decomposition of solid waste and the treatment of wastewater
generated by the community in 2005, as well as from the decomposition of waste-in-place at the inactive Palomar
Airport Landfill.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 27
4.1.2 Summary by Sector
By better understanding the relative scale of emissions from each primary sector, Carlsbad can more effectively
focus emissions reductions strategies to achieve the greatest emission reductions. For this reason, an analysis of
emissions by sector is included in this report, based on the total of 925,248 metric tons of CO2e. The five sectors
included in this inventory are the following:
1. Residential
2. Commercial / Industrial
3. Transportation
4. Solid Waste
5. Wastewater
As shown in Figure 4.2, the transportation sector was the largest emitter (64 percent) in 2005 (584,369 metric tons
of CO2e). Emissions from the commercial / industrial sector produced the second highest quantity, resulting in 18
percent of total emissions, or 170,041 metric tons of CO2e. The remainder of emissions came from the residential
sector (15 percent), the solid waste sector (3 percent), and the wastewater sector (0.5 percent). Please see detailed
sector emissions analyses below for more detail.
Table 4.2: Community Emissions Summary by
Sector
Sector
Greenhouse Gas
Emissions
(metric tons CO2e)
Transportation 584,369
Commercial / Industrial 170,041
Residential 136,427
Solid Waste 30,015
Wastewater 4,397
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 28
Figure 4.2 Community Emissions Summary by Sector
Commercial /
Industrial
18%
Residential
15%
Solid Waste
3%
Wastewater
0.5%
Transportation
64%
4.1.3 Summary by Source
When considering how to reduce emissions, it is also helpful to look not only at which sectors are generating
emissions, but also at the specific raw resources and materials whose use and generation directly result in the release
of greenhouse gases. Such analysis can help target resource management in a way that will successfully reduce
greenhouse gas emissions. Below (Figure 4.3 and Table 4.3) is a summary of Carlsbad‗s 2005 greenhouse gas
emissions by fuel type or material, based upon the total community emissions of 925,248 metric tons.
Figure 4.3 Community Emissions Summary by Source
Gasoline
55%
Wastewater
0.5%
Solid Waste
3%Diesel
9%Natural Gas
12%
Electricity
21%
Compressed
Natural Gas
0.2%
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 29
Table 4.3: 2005 Community Emissions by Source
Source
Greenhouse Gas
Emissions
(metric tons CO2e)
Gasoline 497,869
Electricity 193,059
Natural Gas 113,409
Diesel 84,958
Solid Waste 30,015
Wastewater 4,397
Compressed Natural Gas 1,542
TOTAL 925,248
4.1.4 Per Capita Emissions
Per capita emissions can be a useful metric for measuring progress in reducing greenhouse gases and for comparing
one community‘s emissions with neighboring cities and against regional and national averages. That said, due to
differences in emission inventory methods, it can be problematic to produce directly comparable per capita
emissions numbers, and one must be cognizant of a margin of error when comparing figures between jurisdictions.
As shown in Table 4.4, dividing the total community-wide GHG emissions by population yields a result of 9.7
metric tons of CO2e per capita. It is important to note that this number is not the same as the carbon footprint of the
average individual living in Carlsbad (which would include lifecycle emissions, emissions resulting from air travel,
and other indirect emissions).
Table 4.4: Per Capita Emissions
Estimated 2005 Population* 94,961
Community GHG Emissions (MT CO2e) 925,248
Per Capita GHG Emissions (MT CO2e) 9.7
4.2 Community Inventory Detail by Sector
This section explores community activities and emissions by taking a detailed look at each primary sector. As listed
above, the sectors included in the community emissions analysis are:
Residential
Commercial / Industrial
Transportation
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 30
Solid Waste
Wastewater
4.2.1 Residential Sector
Energy consumption associated with Carlsbad homes produced 136,427 metric tons of greenhouse gas emissions in
2005 (15 percent of total community emissions). All residential sector emissions are the result of electricity
consumption and the on-site combustion of natural gas. Emissions from lawn equipment, wood-fired stoves,
transportation and waste generation are not included in these totals.
In 2005, Carlsbad‘s entire residential sector consumed 249,287 MWh of electricity and around 13.9 million therms
of natural gas. As shown in Figure 4.4, 54 percent of total residential emissions were the result of natural gas use,
and 46 percent were the result of electricity consumption. Natural gas is typically used in residences as a fuel for
home heating, water heating and cooking, and electricity is generally used for lighting, heating, and to power
appliances.
Figure 4.4 Residential Emissions by Source
Natural Gas
54%
Electricity
46%
4.2.2 Commercial / Industrial Sector
The commercial / industrial sector includes emissions from the operations of businesses as well as public agencies.
For example, the majority of buildings and facilities included in the government operations inventory are also
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 31
included as a subset of the commercial / industrial sector. In 2005, buildings and facilities within the commercial /
industrial sector produced 170,041 metric tons of greenhouse gas emissions (18 percent of total community
emissions). All commercial / industrial sector emissions included in this inventory are the result of electricity
consumption and the on-site combustion of natural gas. It is important to note that emissions from off-road
equipment, transportation, waste generation, stationary combustion other than natural gas, and other industrial
processes are not included in these totals.
Carlsbad businesses generated 2.9 metric tons of GHG emissions per job in 2005.14 This metric provides an
indication of the carbon intensity of economic activity in Carlsbad.
As shown in Figure 4.5, 23 percent of total commercial / industrial emissions were the result of natural gas use,15
and 77 percent were the result of electricity consumption. Natural gas is typically used in the commercial / industrial
sector to heat buildings, fire boilers, and generate electricity; and electricity is generally used for lighting, heating,
and to power appliances and equipment.
Figure 4.5 Commercial / Industrial Emissions by Source
Electricity
77%
Natural Gas
23%
4.2.3 Transportation Sector
As with many other local governments, transportation within Carlsbad‘s geographical boundary constitutes the
greatest percentage (64 percent) of community wide greenhouse gas emissions – 584,369 metric tons CO2e.
As shown in Table 4.5, 95 percent of transportation sector emissions came from on-road travel, with the remaining
five percent originating from off-road vehicle use. Of on-road transportation activity, travel on local city roads
14 2005 jobs data was provided by SANDAG Technical Services Department, Current Estimates, August 2009. 15 As previously noted, emissions from the combustion of natural gas at the Encina electricity generation facility were not reported in this inventory.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 32
constituted 52 percent of emissions, and 43 percent came from travel on state highways within the jurisdictional
boundaries of Carlsbad. An estimated 84 percent of transportation emissions were due to gasoline consumption with
just less than 15 percent coming from diesel use and a small fraction from compressed natural gas in off-road
vehicles.16 Please see Appendix E for more detail on methods used in calculating emissions from the transportation
Sector.
Table 4.5: 2005 Transportation Emissions by Type
Source
Greenhouse Gas
Emissions
(metric tons CO2e)
Share of Total
Transportation
Emissions
On-Road Transportation
Local Roads 302,370 52%
State Highways 253,036 43%
On-Road Subtotal 555,405 95%
Off-Road Transportation 28,963 5%
TOTAL 584,369 100%
4.2.4 Solid Waste Sector
As noted above in Figure 4.2, the solid waste sector constituted three percent of total emissions for the Carlsbad
community in 2005. Emissions from the solid waste sector are an estimate of methane generation from the
decomposition of municipal solid waste (MSW) and alternative daily cover (ADC) sent to landfill in the base year
(2005). These emissions are considered Scope 3 because they are not generated in the base year, but will result from
the decomposition of 2005 waste over the full 100+ year cycle of its decomposition. As stated in the Government
Inventory section, about 75 percent17 of landfill methane emissions are captured through landfill gas collection
systems, but the remaining 25 percent escape into the atmosphere as a significant contributor to global warming.
The solid waste sector also includes base year emissions from waste-in-place at the inactive Palomar Airport
Landfill. Please see Table 4.6 on the next page for a summary of emissions per waste type.18
16 These figures do not account for alternative fuels in on-road transportation, which continue to comprise a negligible portion
of on-road emissions. 17 US EPA AP 42. 18 Waste characterization figures were provided by the 2004 California Waste Characterization Study,
http://www.ciwmb.ca.gov/Publications/default.asp?pubid=1097
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 33
Table 4.6: Waste Emissions Sources
Source
Greenhouse Gas Emissions
(metric tons CO2e)
Share of Total Waste
Emissions
Paper Products 13,887 51%
Food Waste 5,465 20%
Wood / Textiles 4,080 15%
Plant Debris 3,985 15%
TOTAL 27,417 100%
4.2.5 Wastewater Sector
The wastewater sector contributed 4,397 metric tons of greenhouse gas emissions, constituting 0.5 percent of total
emissions for the Carlsbad community in 2005. Emissions from the wastewater sector are an estimate of methane
and nitrous oxide generated in the process of wastewater treatment. These emissions are considered Scope 3
because occur ―downstream‖ from the community where the wastewater was generated. Scope 1 emissions from
the Encina Water Pollution Control Facility, like those of the Encina electricity generation facility, are not included
in this inventory. In the San Diego region, about 71 percent19 of wastewater treatment methane emissions are
captured through biogas collection systems, but the remainder escape into the atmosphere and contribute the
jurisdiction‘s impact on climate change.
4.3 Community Emissions Forecast
To illustrate the potential emissions growth based on projected trends in energy use, driving habits, job growth, and
population growth from the baseline year going forward, this report includes an emissions forecast for the year
2020. Under a business-as-usual scenario, Carlsbad‘s emissions will grow by approximately 16 percent by the year
2020, from 925,248 to 1,121,673 metric tons CO2e. Figure 4.6 and Table 4.7 show the results of the forecast. A
variety of different reports and projections were used to create the emissions forecast, as profiled on the following
page.
19 San Diego County Greenhouse Gas Inventory, USD Energy Policy Initiatives Center.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 34
Figure 4.6 Community Emissions Growth Forecast for 2020
0
250,000
500,000
750,000
1,000,000
1,250,000
Me
t
r
i
c
T
o
n
s
C
O
2e
Wastewater
Solid Waste
Transportation
Commercial / Industrial
Residential
4.3.1 Residential Forecast
For the residential sector, a households projection for Carlsbad conducted by the San Diego Association of
Government (SANDAG) was used to estimate average annual compound growth in residential energy demand (1.4
percent). SANDAG estimates that the number of Carlsbad households was 37,467 in 2005, and will be 46,157 in
2020.20
4.3.2 Commercial / Industrial Forecast
The California Energy Commission‘s California Energy Demand 2008-2018 shows that commercial floor space and
the number of jobs have closely tracked the growth in energy use in the commercial sector. Using job growth
projections for Carlsbad also provided by SANDAG, it was calculated that the average annual growth in energy use
in the commercial / industrial sector between 2005 and 2020 will be 0.97 percent.21
20 SANDAG 2030 Regional Growth Forecast Update (2006). 21 Ibid.
■
□
□
■
□
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 35
4.3.3 Transportation Forecast
Growth in transportation emissions over the forecast period is closely related to planned transportation infrastructure
investments and the associated vehicle activity, as measured in vehicle miles traveled (VMT). Long-term
transportation infrastructure is planned through the 2030 San Diego Regional Transportation Plan, published by
SANDAG in 2007, and travel activity projections performed by SANDAG are based on this plan. These
projections forecast a 22 percent increase in regional VMT between 2005 and 2020; this trend was applied to
Carlsbad‘s 2005 VMT to estimate 2020 travel activity. While this increase is attributed to regional travel as a whole
and not specifically local travel in Carlsbad, local VMT is likely to follow a similar trend, and this forecasting
approach is more reliable than applying state-wide travel forecasts to the local level.22
4.3.4 Solid Waste and Wastewater Forecast
Population is the primary determinate for growth in emission pertaining to solid waste and wastewater generation.
Therefore, the average annual population growth rate from 2005 to 2020 (1.52 percent, as calculated from above-
referenced SANDAG projections) was used to estimate future emissions from waste disposal and wastewater
treatment.
Table 4.7: 2005 Community Emissions Growth Forecast by Sector
Sector
2005
(metric tons CO2e)
2020
(metric tons
CO2e)
Annual
Growth
Rate
Percent
Change from
2005 to 2020
Residential 136,427 168,069 1.40% 23%
Commercial / Industrial 170,041 196,669 0.97% 16%
Transportation 584,369 713,778 1.34% 22%
Solid Waste 30,015 37,643 1.52% 25%
Wastewater 4,397 5,514 1.52% 25%
TOTAL 925,248 1,121,673 -- 21%
22 New fuel efficiency standards under the federal Corporate Average Fuel Economy (CAFE) program and State of California ―Clean Car‖ standards under AB 1493 (Pavley) could significantly reduce the demand for transportation fuel in Carlsbad. An
analysis of potential fuel savings from these measures at a scale that would be useful for the purpose of this report has not been conducted, nor would such an analysis produce a true business-as-usual estimation.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 36
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 37
Conclusion
By participating in the San Diego Regional Climate Protection Initiative and other sustainability initiatives, the City
of Carlsbad has taken bold steps toward reducing its impacts on the environment. Policymakers and have chosen to
take a leadership role in addressing climate change, and this leadership will allow Carlsbad to make tough decisions
to create and implement innovative approaches to reduce its emissions. With increasing guidance and support from
the state and the federal governments, Carlsbad should be increasingly empowered to make the necessary changes
to promote its vision for a more sustainable future.
This conclusion discusses the inventory as a baseline for emissions targets and suggests steps for the City of
Carlsbad to move forward to reduce emissions both from its internal operations and from the Carlsbad community.
5.1 Toward Setting Emissions Reduction Targets
This inventory provides an emissions baseline that the City can use to inform Milestone Two of ICLEI‘s Five-
Milestone process—setting emissions reduction targets. The greenhouse gas emissions reduction target is a goal to
reduce emissions to a certain percentage below base year levels by a chosen planning horizon year. An example
target might be a 20 percent reduction in emissions below 2005 levels by 2020. A target provides an objective
toward which to strive and against which to measure progress. It allows a local government to quantify its
commitment to fighting climate change—demonstrating that the jurisdiction is serious about its commitment and
systematic in its approach.
In selecting a target, it is important to strike a balance between scientific necessity, ambition, and what is
realistically achievable. Carlsbad will want to give itself enough time to implement chosen emissions reduction
measures—but note that the farther out the target year is, the more that Carlsbad should pledge to reduce. ICLEI
recommends that regardless of the City‘s chosen long-term emissions reduction target (e.g., 15-year, 40-year), it
should establish interim targets for every two- to three-year period. Near-term targets facilitate additional support
and accountability, and help to ensure continued momentum around Carlsbad‘s local climate protection efforts. To
monitor the effectiveness of its programs, Carlsbad should plan to re-inventory its emissions on a regular basis;
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 38
many jurisdictions are electing to perform annual inventories. See Appendix F for more information on how to re-
inventory the City‘s emissions.
5.1.1 The Long-Term Goal
ICLEI recommends that the City of Carlsbad‘s near-term climate work should be guided by the long-term goal of
reducing its emissions by 80 percent to 95 percent from the 2005 baseline level by the year 2050. By referencing a
long-term goal that is in accordance with current scientific understanding, Carlsbad can demonstrate that it intends
to do its part to reduce emissions over the long haul.
It is important to keep in mind that it will be next to impossible for local governments to reduce emissions by 80 to
95 percent without the assistance of state and federal policy changes that create new incentives and new sources of
funding for emissions reduction projects and programs. However, in the next 15 years, there is much that local
governments can do to reduce emissions independently.
5.1.2 State of California Targets and Guidance
An integral component of the State of California‘s
climate approach has been establishing three core
emissions reduction targets at the community level.
While these targets are specific to the community-scale,
they can be used to inform emissions targets for
government operations as well. Figure 4.1 highlights
adopted emissions targets for the State. The AB 32
Scoping Plan also provides further guidance on
establishing targets for local governments; specifically
the Plan suggests creating an emissions reduction goal of 15 percent below ―current‖ levels by 2020. This target has
informed many local government‘s emission reduction targets for municipal operations—most local governments in
California with adopted targets have targets of 15 to 25 percent reductions under 2005 levels by 2020.
5.1.3 Department Targets
If possible, ICLEI recommends that Carlsbad consider department-specific targets for each of the departments that
generate emissions within its operations. This allows the City‘s staff to do a more in-depth analysis of what is
achievable in each sector in the near, mid and long-term, and also encourages each department head to consider
their department‘s impact on the climate and institute a climate-conscious culture in its operations.
On June 1, 2005, California Governor
Schwarzenegger signed Executive Order
S-3-05 establishing climate change emission
reductions targets for the State of California. The California targets are an example of near-, mid- and long-term targets:
Reduce emissions to 2000 levels by 2010
Reduce emissions to 1990 levels by 2020 Reduce emissions to 80 percent below 1990
levels by 2050
Figure 5.1: California Greenhouse
Gas Reduction Targets
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 39
5.2 Creating an Emissions Reduction Strategy
This inventory identifies the major sources of emissions from Carlsbad‘s operations and, therefore, where
policymakers will need to target emissions reductions activities if they are to make significant progress toward
adopted targets. For example, since the vehicle fleet was a major source of emissions from Carlsbad‘s operations, it
is possible that the City could meet near-term targets simply by implementing a few major actions within this sector.
In addition, medium-term targets could be met by focusing emissions reduction actions on the other major sources
of emissions including employee commutes and the operations of buildings, facilities, and parks. The long term
(2050) target will not be achievable without major reductions in all of those sectors.
Given the results of the inventory, ICLEI recommends that Carlsbad focus on the following tasks in order to
significantly reduce emissions from its government operations:
Reduce the vehicle fleet size and replace vehicles with alternative fueled vehicles.
Replace non-road vehicles and equipment with low or zero emission technologies.
Offer transportation benefits and alternatives to employees.
Coordinate land use planning and greenhouse gas (GHG) accountability with regional transportation
infrastructure investments.
Continue to promote energy efficiency and renewable energy in public facilities.
Expand recycling program and ensure recycling containers are provided at each park and facility.
In addition to the types of actions described above, which reduce emissions from government operations, ICLEI
recommends developing policies and actions that will help to reduce emissions throughout the community.
Examples include:
Promoting growth through redevelopment and infill that maintains or improves the quality of life for
existing neighborhoods.
Adopting local parking standards that encourage reduced single-occupancy vehicle travel.
Adopting building codes that exceed Title 24 energy requirements, on either a mandatory or voluntary
basis.
Establish water conservation guidelines and standards for existing development, new development and
City facilities
Provide public education programs on waste prevention, source reduction, recycling, yard waste, wood
waste, and hazardous waste
By identifying and implementing a set of these types of strategies, Carlsbad should be able to reduce and reverse its
impact upon global warming. In the process, it may also be able to improve the quality of its services, reduce costs,
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 40
stimulate local economic development, and inspire local residents and businesses to redouble their own efforts to
combat climate change.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory 41
2005 City of Carlsbad Greenhouse Gas Emissions Inventory I
Appendix A:
The Local Government
Operations Protocol
This inventory follows the standard outlined in the Local Government Operations Protocol, which was adopted in
2008 by the California Air Resources Board (CARB) and serves as the national standard for quantifying and
reporting greenhouse emissions from local government operations. This and the other inventories conducted for the
San Diego Regional Climate Protection Initiative are among the first to follow LGOP, representing a strong step
toward standardizing how inventories are conducted and reported.
A.1 Local Government Operations Protocol
A.1.1 Background
In 2008, ICLEI, CARB, and the California Climate Action Registry (CCAR) released LGOP to serve as a U.S.
supplement to the International Emissions Analysis Protocol. The purpose of LGOP is to provide the principles,
approach, methodology, and procedures needed to develop a local government operations greenhouse gas emissions
inventory. It leads participants through the process of accurately quantifying and reporting emissions, including
providing calculation methodologies and reporting guidance. LGOP guidance is divided into three main parts:
identifying emissions to be included in the inventory, quantifying emissions using best available estimation
methods, and reporting emissions.
The overarching goal of LGOP is to allow local governments to develop emissions inventories using standards that
are consistent, comparable, transparent, and recognized nationally, ultimately enabling the measurement of
emissions over time. LGOP adopted five overarching accounting and reporting principles toward this end:
relevance, completeness, consistency, transparency and accuracy. Methodologies that did not adhere to these
principles were either left out of LGOP or included as Scope 3 emissions. LGOP was created solely to standardize
how emissions inventories are conducted and reported; as such it represents a currently accepted standard for
inventorying emissions but does not contain any legislative or program-specific requirements. Mandates by the
State of California or any other legislative body, while possibly using LGOP as a standard, do not currently exist,
and California local governments are not currently required to inventory their emissions. Program-specific
2005 City of Carlsbad Greenhouse Gas Emissions Inventory II
requirements, such as ICLEI‘s Milestones or CCAR‘s reporting protocol, are addressed in LGOP but should not be
confused with LGOP itself.
Also, while LGOP standardizes inventories from government operations, it does not seek to be a wholly accurate
inventory of all emissions sources, as certain sources are currently excluded or otherwise impossible to accurately
estimate. This and all emissions inventories therefore represent a best estimate of emissions using best available
data and calculation methodologies; it does not provide a complete picture of all emissions resulting from
Carlsbad‘s operations, and emissions estimates are subject to change as better data and calculation methodologies
become available in the future.
A.1.2 Organizational Boundaries
Setting an organizational boundary for greenhouse gas emissions accounting and reporting is an important first step
in the inventory process. The organizational boundary for the inventory determines which aspects of operations are
included in the emissions inventory, and which are not. Under LGOP, two control approaches are used for reporting
emissions: operational control or financial control. A local government has operational control over an operation if
it has full authority to introduce and implement its operating policies at the operation. A local government has
financial control if the operation is fully consolidated in financial accounts. If a local government has joint control
over an operation, the contractual agreement will have to be examined to see who has authority over operating
policies and implementation, and thus the responsibility to report emissions under operational control.23 Local
governments must choose which approach is the most applicable and apply this approach consistently throughout
the inventory.
While both control approaches are acceptable, there may be some instances in which the choice may determine
whether a source falls inside or outside of a local government‘s boundary. LGOP strongly encourages local
governments to utilize operational control as the organization boundary for a government operations emissions
inventory. Operational control is believed to most accurately represent the emissions sources that local governments
can most directly influence, and this boundary is consistent with other environmental and air quality reporting
program requirements. For this reason, all inventories in the San Diego Regional Climate Protection Initiative are
being conducted according to the operational control framework.
23 Please see Local Government Operations Protocol for more detail on defining your organizational boundary: http://www.icleiusa.org/programs/climate/ghg-protocol
2005 City of Carlsbad Greenhouse Gas Emissions Inventory III
A.1.3 Types of Emissions
The greenhouse gases inventoried in this report are described in Section 2.1 As described in LGOP, emissions from
each of the greenhouse gases can come in a number of forms:
Stationary or mobile combustion: These are emissions resulting from on-site combustion of fuels (natural gas,
diesel, gasoline, etc.) to generate heat, electricity, or to power vehicles and mobile equipment.
Purchased electricity: These are emissions produced by the generation of power from utilities outside of the
jurisdiction.
Fugitive emissions: Emissions that result from the unintentional release of greenhouse gases into the atmosphere
(e.g., leaked refrigerants, methane from waste decomposition, etc.).
Process emissions: Emissions from physical or chemical processing of a material (e.g., wastewater treatment).
A1.4 Quantifying Emissions
Emissions can be quantified two ways:
Measurement-based methodologies refer to the direct measurement of greenhouse gas emissions (from a
monitoring system) emitted from a flue of a power plant, wastewater treatment plant, landfill, or industrial facility.
This methodology is not generally available for most types of emissions and will only apply to a few local
governments that have these monitoring systems.
The majority of the emissions recorded in the inventory can be and will be estimated using calculation-based
methodologies to calculate their emissions using activity data and emission factors. To calculate emissions, the
equation below is used:
Activity Data x Emission Factor = Emissions
Activity data refer to the relevant measurement of energy use or other greenhouse gas–generating processes such as
fuel consumption by fuel type, metered annual energy consumption, and annual vehicle mileage by vehicle type.
Emissions factors are calculated ratios relating emissions to a proxy measure of activity at an emissions source (e.g.,
CO2 generated/kWh consumed). For a list of common emissions calculations see Table 2.2.
The guidelines in LGOP are meant to provide a common method for local governments to quantify and report
greenhouse gas emissions by using comparable activity data and emissions factors. However, LGOP recognizes that
local governments differ in how they collect data concerning their operations and that many are not able to meet the
data needs of a given estimation method. Therefore, LGOP outlines both ―recommended‖ and ―alternative‖ methods
2005 City of Carlsbad Greenhouse Gas Emissions Inventory IV
to estimate emissions from a given source. In this system, recommended methods are the preferred method for
estimating emissions, as they will result in the most accurate estimate for a given emission source. Alternative
methods often require less intensive data collection, but are likely to be less accurate. This approach allows local
governments to estimate emissions based on the data currently available to them. It also allows local governments
that are unable to meet the recommended methods to begin developing internal systems to collect the data needed to
meet these methods.
This inventory has used the recommended activity data and emissions factors wherever possible, using alternative
methods where necessary. For details on the methodologies used for each sector, see Appendix B.
A.1.5 Reporting Emissions
A.1.5.1 Significance Thresholds
Within any local government‘s own operations there will be emission sources that fall within Scope 1 and Scope 2
that are minimal in magnitude and difficult to accurately measure. Within the context of local government
operations, emissions from leaked refrigerants and backup generators may be common sources of these types of
emissions. For these less significant emissions sources, LGOP specifies that up to 5 percent of total emissions can
be reported using estimation methods not outlined in LGOP.24
In this report, the following emissions fell under the significance threshold and were reported using best available
methods:
Scope 1 stationary diesel generator fuel use
A.1.5.2 Units Used in Reporting Emissions
LGOP requires reporting of individual gas emissions, and this reporting is included in Appendix B. In this narrative
report, emissions from all gases released by an emissions source (e.g., stationary combustion of natural gas in
facilities) are combined and reported in metric tons of carbon dioxide equivalent (CO2e). This standard is based on
the global warming potential (GWP) of each gas, which is a measure of the amount of warming a greenhouse gas
may cause, measured against the amount of warming caused by carbon dioxide. For the GWPs of reported
greenhouse gases, see Table 2.1.
24 In the context of registering emissions with an independent registry (such as the California Climate Action Registry), emissions that fall under the significance threshold are called de minimis. This term, however, is not used in LGOP and was not used in this inventory.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory V
A.1.5.3 Information Items
Information items are emissions sources that, for a variety of reasons, are not included as Scope 1, 2, or 3 emissions
in the inventory. In order to provide a more complete picture of emissions from Carlsbad‘s operations, however,
these emissions should be quantified and reported.
In this report, the following emissions are included as information items (emission quantities are reported in
Appendix B):
Ozone depleting chemicals used as refrigerants (R-22 in facilities and R-12 in vehicles)
A common emission that is categorized as an information item is carbon dioxide emitted in the combustion of
biogenic fuels. Local governments will often burn fuels that are of biogenic origin (wood, landfill gas, organic solid
waste, biofuels, etc.) to generate power. Common sources of biogenic emissions are the combustion of landfill gas
from landfills or biogas from wastewater treatment plants, as well as the incineration of organic municipal solid
waste at incinerators.
Carbon dioxide emissions from the combustion of biogenic fuels are not included in Scope 1 based on established
international principles. 25 These principles indicate that biogenic fuels (e.g., wood, biodiesel), if left to decompose
in the natural environment, would release CO2 into the atmosphere, where it would then enter back into the natural
carbon cycle. Therefore, when wood or another biogenic fuel is combusted, the resulting CO2 emissions are akin to
natural emissions and should therefore not be considered as human activity-generated emissions. The CH4 and N2O
emissions, however, would not have occurred naturally and are therefore included as Scope 1 emissions.
A.2 Baseline Years
Part of the local government operations emissions inventory process requires selecting a ―performance datum‖ with
which to compare current emissions, or a base year. Local governments should examine the range of data they have
over time and select a year that has the most accurate and complete data for all key emission sources. It is also
preferable to establish a base year several years in the past to be able to account for the emissions benefits of recent
actions. A local government‘s emissions inventory should comprise all greenhouse gas emissions occurring during a
selected calendar year.
For the San Diego Regional Climate Protection Initiative, 2005 was chosen as the baseline year, since this year is
increasingly becoming the standard for such inventories; the 1990 baseline year for California is usually difficult for
most local governments to meet and would not produce the most accurate inventory.
25 Methane and nitrous oxide emissions from biogenic fuels are considered Scope 1 stationary combustion emissions and are included in the stationary combustion sections for the appropriate facilities.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory VI
After setting a base year and conducting an emissions inventory for that year, local governments should make it a
practice to complete a comprehensive emissions inventory on a regular basis to compare to the baseline year. ICLEI
recommends conducting an emissions inventory at least every five years.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory VII
Appendix B:
LGOP Standard Report
1. Local Government Profile
Title: Manager- Public Works Administration and Environmental Programs
*www.ncdc.noaa.gov/oa/climate/online/ccd/nrmhdd.txt
**www.ncdc.noaa.gov/oa/climate/online/ccd/nrmcdd.txt
2. GHG Inventory Details
Reporting Year:Protocol Used:Control Approach:
Services Provided:
The City of Carlsbad is a unique coastal community located 35 miles north of the City of San Diego surrounded by mountains, lagoons and the Pacific Ocean. Although the "village" dates back more than 100 years, the City was incorporated July 16, 1952. The
2005Local Government Operations Protocol, Version 1.0 (September 2008)
Operational Control
Local Government Description:
Lead Inventory Contact Name:Linda Kermott
Email:linda.kermott@carlsbadca.gov
Phone Number:(760) 602-2753
Annual Budget:$190,416,353
Department:Public Works
Climate Zone:3B
Annual Heating Degree Days:1063*
Annual Cooling Degree Days:866**
Employees (Full Time Equivalent):794
Website Address:www.carlsbadca.gov
Size (sq. miles):42.19Population:95,146
City, State, ZIP, Country:Carlsbad, CA 92008
Local Government Operations Standard Inventory Report
Jurisdiction Name:City of CarlsbadStreet Address:1200 Carlsbad Village Dr.
Water treatment
Water distribution
Wastewater treatment
Electric utility
Fire Protection
Police
Mass transit (buses)
Mass transit (light rail)
Mass transit (ferries)
Schools (primary/secondary)
Schools (colleges/universities)
Solid waste collection
Solid waste disposal
Hospitals
Airport
Seaport/shipping terminal
Marina
Stadiums/sports venues
Convention center
Street lighting and traffic signals
Natural gas utility
Other (Specify below)
Wastewater collection
Water treatment
Water distribution
Wastewater treatment
Electric utility
Fire Protection
Police
Mass transit (buses)
Mass transit (light rail)
Mass transit (ferries)
Schools (primary/secondary)
Schools (colleges/universities)
Solid waste collection
Solid waste disposal
Hospitals
Airport
Seaport/shipping terminal
Marina
Stadiums/sports venues
Convention center
Street lighting and traffic signals
Natural gas utility
Other (Specify below)
Wastewater collection
□ 0
□ 0 □ 0 0
□ □ □ □ □ □ □
□ □ □ □ □ □ 0
□
r
I CL EI L ""'' C:o\·c-mm"nl" for Sui;l,1hubillly
2005 City of Carlsbad Greenhouse Gas Emissions Inventory VIII
Note: CO2e totals listed here are summed totals of the estimated emissions of each inventoried gas based upon their global warming potentials
(Appendix E of LGOP)
SCOPE 1 CO2e CO2 CH4 N2O HFCs PFCs SF6543.984 542.567 0.052 0.001
543.984 542.567 0.052 0.001 0.000 0.000 0.000
SCOPE 2 CO2e CO2 CH4 N2O
1,721.852 1,709.281 0.091 0.034
Total Indirect Emissions from Buildings & Facilities 1,721.852 1,709.281 0.091 0.034
SCOPE 2 CO2e CO2 CH4 N2O1,354.387 1,344.498 0.071 0.0271,354.387 1,344.498 0.071 0.027
SCOPE 1 CO2e CO2 CH4 N2O HFCs PFCs SF63.652 3.632 0.001 0.000
3.652 3.632 0.001 0.000 0.000 0.000 0.000
SCOPE 2 CO2e CO2 CH4 N2O457.265 453.927 0.024 0.009
457.265 453.927 0.024 0.009
SCOPE 1 CO2e CO2 CH4 N2O HFCs PFCs
Mobile Combustion 2,407.444 2,378.995 0.070 0.087Fugitive Emissions 67.002Total Direct Emissions from Vehicle Fleet 2,474.446 2,378.995 0.070 0.087 0.000 0.000
INDICATORS Number of Vehicles
Vehicle Miles TraveledNumber of Pieces of Equipment
SCOPE 3 CO2eWaste All Facilities 143.803
INDICATORS Short tons of solid waste accepted for disposal
SCOPE 3 CO2eMobile Combustion 2,417.227
INDICATORS Vehicle Miles Traveled
CO2e
R12 16.228R22398.660Total Information Items 414.888
CO2e CO2 CH4 N2O HFCs PFCs SF6SCOPE 1 3,022.083 2,925.194 0.122 0.088 0.000 0.000 0.000
SCOPE 2 3,533.504 3,507.707 0.186 0.071 0.000 0.000 0.000SCOPE 3 2,561.030
INFORMATION ITEMS 414.888
POSSIBLE INFORMATION ITEMS
Biogenic C02 from Combustion
Carbon Offsets PurchasedCarbon Offsets SoldRenewable Energy Credits (Green Power) Purchased
Renewable Energy Credits Sold (GreenPower)Ozone-depleting Refrigerants/Fire Suppressants not in LGOP
Other Information Items
Other Scope 3
Employee Commute
Employee Business TravelEmissions From Contracted Services
Upstream Production of Materials and FuelsUpstream and Downstream Transportation of Materials and Fuels
Waste Related Scope 3 Emissions
VEHICLE FLEET
278
INFORMATION ITEMS
Total Emissions
Purchase of Electricity Sold to an End UserTransmission and Distribution Losses from Consumed Electricity
2,865,18345
WASTE GENERATION
567.000
EMPLOYEE COMMUTE
4,584,643
POSSIBLE SOURCES OF OPTIONAL SCOPE 3 EMISSIONS
Total Indirect Emissions from Water Delivery Facilities
STREETLIGHTS AND TRAFFIC SIGNALS
Purchased Electricity
Total Indirect Emissions from Streetlights and Traffic Signals
WATER DELIVERY FACILITIES
Stationary CombustionTotal Direct Emissions from Water Delivery Facilities
Purchased Electricity
GHG Emissions Summary (All Units in Metric Tons Unless Stated Otherwise)
BUILDINGS & OTHER FACILITIES
Stationary CombustionFugitive Emissions
Purchased Steam
District Heating & Cooling
Total Direct Emissions from Buildings & Facilities
Purchased Electricity
I I I I I I I I
I I I I
I
I I I I I I I I
I I I I I
I I I I I I I
I I
I I
I I
I I
I I
I I
I I
I I
2005 City of Carlsbad Greenhouse Gas Emissions Inventory IX
Local Government Operations Standard Inventory Report
3. Activity Data Disclosure
BUILDINGS & OTHER FACILITIES (Chapter 6)
SCOPE 1Stationary CombustionEmissions Source Name GHG Methodology Type Methodology Name and Description Resource Quantity Fuel Unit Data Sources and ReferencesCO2e
CO2 Primary Known fuel use 69,852 therms
Karen Brown, SDG&E, (858) 650-4132, kwbrown@semprautilities.com
CH4 Primary Known fuel use 69,852 therms
Karen Brown, SDG&E, (858) 650-4132, kwbrown@semprautilities.com
N2O Primary Known fuel use 69,852 therms
Karen Brown, SDG&E, (858) 650-4132,
kwbrown@semprautilities.comHFCsPFCsSF6
CO2e
CO2 Alternate Known and estimated fuel use from Aug '05-Apr '06 125 gallons Bob Richardson, bob.richardson@carlsbadca.gov, (760) 434-2944
CH4 Alternate Known and estimated fuel use from Aug '05-
Apr '07 125 gallons
Bob Richardson,
bob.richardson@carlsbadca.gov, (760) 434-2944
N2O Alternate Known and estimated fuel use from Aug '05-Apr '08 125 gallons Bob Richardson, bob.richardson@carlsbadca.gov, (760) 434-2944
HFCsPFCsSF6
CO2e
CO2 Primary Approximate Yearly Fuel Use 960 gallons
Bonnie Elliott, (760) 602-7515, bonnie.elliott@carlsbadca.gov
CH4 Primary Approximate Yearly Fuel Use 960 gallons
Bonnie Elliott, (760) 602-7515, bonnie.elliott@carlsbadca.
gov
N2O Primary Approximate Yearly Fuel Use 960 gallons
Bonnie Elliott, (760) 602-7515, bonnie.elliott@carlsbadca.govHFCs
PFCsSF6
SCOPE 2Purchased ElectricityEmissions Source Name GHG Methodology Type Methodology Name and Description Resource Quantity Fuel Unit Data Sources and ReferencesCO2e
CO2 Primary Known Electricity Use 6,693,356 kWh
Karen Brown, SDG&E,
(858) 650-4132, kwbrown@semprautilities.com
CH4 Primary Known Electricity Use 6,693,356 kWh
Karen Brown, SDG&E, (858) 650-4132, kwbrown@semprautilities.com
N2O Primary Known Electricity Use 6,693,356 kWh
Karen Brown, SDG&E, (858) 650-4132, kwbrown@semprautilities.com
HFCsPFCsSF6
STREETLIGHTS AND TRAFFIC SIGNALS (Chapter 6.2)SCOPE 2
Purchased ElectricityEmissions Source Name GHG Methodology Type Methodology Name and Description Resource Quantity Fuel Unit Data Sources and ReferencesCO2e
CO2 Primary Known Electricity Use 5,424,206 kWh
Karen Brown, SDG&E, (858) 650-4132, kwbrown@semprautilities.com
CH4 Primary Known Electricity Use 5,424,206 kWh
Karen Brown, SDG&E,
(858) 650-4132, kwbrown@semprautilities.com
N2O Primary Known Electricity Use 5,424,206 kWh
Karen Brown, SDG&E, (858) 650-4132, kwbrown@semprautilities.
comHFCsPFCsSF6
WATER DELIVERY FACILITIES (Chapter 6)SCOPE 1Stationary CombustionEmissions Source Name GHG Methodology Type Methodology Name and Description Resource Quantity Fuel Unit Data Sources and ReferencesCO2e
CO2 Alternate Approximate Annual Fuel Use 358 gallons Don Wasco, don.wasco@carlsbadca.gov, (760) 438-2722 x7138
CH4 Alternate Approximate Annual Fuel Use 358 gallons Don Wasco, don.wasco@carlsbadca.g
ov, (760) 438-2722 x7139
N2O Alternate Approximate Annual Fuel Use 358 gallons Don Wasco, don.wasco@carlsbadca.gov, (760) 438-2722 x7140
HFCs
PFCsSF6
SCOPE 2Purchased ElectricityEmissions Source Name GHG Methodology Type Methodology Name and Description Resource Quantity Fuel Unit Data Sources and ReferencesCO2e
CO2 Primary Known Electricity Use 1,831,309 kWh
Karen Brown, SDG&E,
(858) 650-4132, kwbrown@semprautilities.com
CH4 Primary Known Electricity Use 1,831,309 kWh
Karen Brown, SDG&E, (858) 650-4132, kwbrown@semprautilities.com
N2O Primary Known Electricity Use 1,831,309 kWh
Karen Brown, SDG&E, (858) 650-4132, kwbrown@semprautilities.comHFCs
PFCsSF6
VEHICLE FLEET (Chapter 7)SCOPE 1
Mobile CombustionEmissions Source Name GHG Methodology Type Methodology Name and Description Resource Quantity Fuel Unit Data Sources and ReferencesCO2e
CO2 Primary Known Fuel Use 204,551 gallons
Dale Schuck, Public Works Superintendent, (760) 434-2949,
dale.schuck@carlsbadca.gov
CH4 Primary
Annual Mileage by vehicle type, model year, and fuel type; fuel use by vehicle type, model year, and fuel type; annual mileage by vehicle type and fuel type; proxy year data
204,551 miles
Dale Schuck, Public Works Superintendent, (760) 434-2949, dale.schuck@carlsbadca.gov
N2O Primary
Annual Mileage by vehicle type, model year, and fuel type; fuel use by vehicle type, model year, and fuel type; annual mileage by vehicle type and fuel type; proxy year data
204,551 miles
Dale Schuck, Public Works Superintendent, (760) 434-2949, dale.schuck@carlsbadca.govHFCs
PFCsSF6
CO2e
CO2 Primary Known Fuel Use 42,580 gallons
Dale Schuck, Public Works Superintendent, (760) 434-2949,
dale.schuck@carlsbadca.gov
CH4 Primary
Annual Mileage by vehicle type, model year, and fuel type; fuel use by vehicle type, model year, and fuel type; annual mileage by vehicle type and fuel type;
proxy year data
42,580 miles
Dale Schuck, Public Works Superintendent, (760) 434-2949, dale.schuck@carlsbadca.
gov
N2O Primary
Annual Mileage by vehicle type, model year, and fuel type; fuel use by vehicle type, model year, and fuel type; annual mileage by vehicle type and fuel type; proxy year data
42,580 miles
Dale Schuck, Public Works Superintendent, (760) 434-2949, dale.schuck@carlsbadca.govHFCs
PFCsSF6
Fugitive EmissionsEmissions Source Name GHG Methodology Type Methodology Name and Description Resource Quantity Fuel Unit Data Sources and References
Refrigerants R134A Alternate Based on Fleet Inventory and Capacities Available Online. Defaults used for Unknown Capacities 52 kg
Dale Schuck, Public
Works Superintendent, (760) 434-2949, dale.schuck@carlsbadca.gov. NAPA AC System Refrigerant and Oil Capacity Guide
Gasoline
Diesel
Electricity
Electricity
Diesel Generators
Electricity
Every emission source must be accompanied by a reference for the activity data. This worksheet is meant to assist in recording activity data and the methods used to gather those data for government operations. Activity data represent the magnitude of human activity resulting in emissions; data on energy use, fuel consumtion, vehicle miles traveled, and waste generation are
all examples of activity data that are used to compute GHGs. Detailed disclosure should be made of the activity data used and at what quantities. This disclosure should also cite the source(s) of the data and the methodology used, including whether that methodology is a recommended method or an alternate method.
Deviations from the primary methodology should be explained in detail. All assumptions and estimations should be cited as such. Local governments may also use this space in the reporting
format to discuss the rationale for the inclusion or exclusion of optional inventory components. It is good practice to include appropriate citations (such as website URL, report title, etc) and all contact information that is necessary to verify the source and accuracy of the activity data.
Natural Gas
Generators
Propane
I
I
2005 City of Carlsbad Greenhouse Gas Emissions Inventory X
WATER DELIVERY FACILITIES (Chapter 6)
SCOPE 1Stationary CombustionEmissions Source Name GHG Methodology Type Methodology Name and Description Resource Quantity Fuel Unit Data Sources and ReferencesCO2e
CO2 Alternate Approximate Annual Fuel Use 358 gallons Don Wasco, don.wasco@carlsbadca.gov, (760) 438-2722 x7138
CH4 Alternate Approximate Annual Fuel Use 358 gallons
Don Wasco,
don.wasco@carlsbadca.gov, (760) 438-2722 x7139
N2O Alternate Approximate Annual Fuel Use 358 gallons Don Wasco, don.wasco@carlsbadca.gov, (760) 438-2722 x7140
HFCsPFCs
SF6
SCOPE 2Purchased ElectricityEmissions Source Name GHG Methodology Type Methodology Name and Description Resource Quantity Fuel Unit Data Sources and ReferencesCO2e
CO2 Primary Known Electricity Use 1,831,309 kWh
Karen Brown, SDG&E, (858) 650-4132, kwbrown@semprautilities.com
CH4 Primary Known Electricity Use 1,831,309 kWh
Karen Brown, SDG&E,
(858) 650-4132,
kwbrown@semprautilities.com
N2O Primary Known Electricity Use 1,831,309 kWh
Karen Brown, SDG&E, (858) 650-4132, kwbrown@semprautilities.com
HFCs
PFCsSF6
VEHICLE FLEET (Chapter 7)SCOPE 1Mobile Combustion
Emissions Source Name GHG Methodology Type Methodology Name and Description Resource Quantity Fuel Unit Data Sources and ReferencesCO2e
CO2 Primary Known Fuel Use 204,551 gallons
Dale Schuck, Public Works Superintendent, (760) 434-2949, dale.schuck@carlsbadca.
gov
CH4 Primary
Annual Mileage by vehicle type, model year, and fuel type; fuel use by vehicle type, model year, and fuel type; annual mileage by vehicle type and fuel type; proxy year data
204,551 miles
Dale Schuck, Public Works Superintendent, (760) 434-2949, dale.schuck@carlsbadca.gov
N2O Primary
Annual Mileage by vehicle type, model
year, and fuel type; fuel use by vehicle type, model year, and fuel type; annual mileage by vehicle type and fuel type; proxy year data
204,551 miles
Dale Schuck, Public
Works Superintendent, (760) 434-2949, dale.schuck@carlsbadca.govHFCs
PFCsSF6
CO2e
CO2 Primary Known Fuel Use 42,580 gallons
Dale Schuck, Public Works Superintendent, (760) 434-2949,
dale.schuck@carlsbadca.gov
CH4 Primary
Annual Mileage by vehicle type, model year, and fuel type; fuel use by vehicle type, model year, and fuel type; annual mileage by vehicle type and fuel type;
proxy year data
42,580 miles
Dale Schuck, Public Works Superintendent, (760) 434-2949, dale.schuck@carlsbadca.
gov
N2O Primary
Annual Mileage by vehicle type, model year, and fuel type; fuel use by vehicle type, model year, and fuel type; annual mileage by vehicle type and fuel type; proxy year data
42,580 miles
Dale Schuck, Public Works Superintendent, (760) 434-2949, dale.schuck@carlsbadca.gov
HFCs
PFCsSF6
Fugitive EmissionsEmissions Source Name GHG Methodology Type Methodology Name and Description Resource Quantity Fuel Unit Data Sources and References
Refrigerants R134A Alternate Based on Fleet Inventory and Capacities Available Online. Defaults used for Unknown Capacities 52 kg
Dale Schuck, Public
Works Superintendent, (760) 434-2949, dale.schuck@carlsbadca.gov. NAPA AC System Refrigerant and Oil Capacity Guide
Gasoline
Diesel
Diesel Generators
Electricity
I
I
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XI
WASTE GENERATION (Scope 3)SCOPE 3Emissions Source Name GHG Methodology Type Methodology Name and Description Resource Quantity Fuel Unit Data Sources and References
Generated Waste CH4 Alternate Estimated waste weight based upon volume and number of containers 573 tons
Lori Somers, Waste Management, Community
and Municipal Relations Representative, (760) 754-4122, lsomers1@wm.com
EMPLOYEE COMMUTE (Scope 3)SCOPE 3
Stationary CombustionEmissions Source Name GHG Methodology Type Methodology Name and Description Resource Quantity Fuel Unit Data Sources and ReferencesCO2e
CO2 Alternate
Proxy Year Estimated Fuel Use-based upon
daily vehicle miles traveled for all repspondents extrapolated to represent all local government employees
251,075 gallons
Online and paper surveys of all employees; see Appendix C of Narrative report for examples; Data
in posession of Linda Kermott, Environmental Services Director
CH4 Alternate
Proxy Year Estimated Fuel Use-based upon daily vehicle miles traveled for all repspondents extrapolated to represent all
local government employees
251,075 gallons
Online and paper surveys of all employees; see
Appendix C of Narrative report for examples; Data in posession of Linda Kermott, Environmental
Services Director
N2O Alternate
Proxy Year Estimated Fuel Use-based upon daily vehicle miles traveled for all
repspondents extrapolated to represent all local government employees
251,075 gallons
Online and paper surveys of all employees; see
Appendix C of Narrative report for examples; Data in posession of Linda
Kermott, Environmental Services DirectorHFCsPFCsSF6
CO2e
CO2 Alternate
Proxy Year Estimated Fuel Use-based upon
daily vehicle miles traveled for all repspondents extrapolated to represent all local government employees
13,102 gallons
Online and paper surveys of all employees; see Appendix C of Narrative report for examples; Data
in posession of Linda Kermott, Environmental Services Director
CH4 Alternate
Proxy Year Estimated Fuel Use-based upon daily vehicle miles traveled for all
repspondents extrapolated to represent all local government employees
13,102 gallons
Online and paper surveys
of all employees; see Appendix C of Narrative report for examples; Data in posession of Linda
Kermott, Environmental Services Director
N2O Alternate
Proxy Year Estimated Fuel Use-based upon daily vehicle miles traveled for all
repspondents extrapolated to represent all local government employees
13,102 gallons
Online and paper surveys of all employees; see
Appendix C of Narrative report for examples; Data in posession of Linda Kermott, Environmental
Services Director
HFCs
PFCsSF6
INFORMATION ITEMS
Stationary CombustionEmissions Source Name GHG Methodology Type Methodology Name and Description Resource Quantity Fuel Unit Data Sources and References
R12 Alternate
Based on Fleet Inventory and Capacities
Available Online. Defaults used for Unknown Capacities 2 kg
Dale Schuck, Public Works Superintendent, (760) 434-2949,
dale.schuck@carlsbadca.gov. NAPA AC System Refrigerant and Oil Capacity Guide
R22 Primary Actual leakage. Based on invoices from
contractor 235 kg Charlie, Seaside Heating & Air Conditioning, Inc., 760-643-1100,
POSSIBLE SOURCES OF OPTIONAL SCOPE 3 EMISSIONS POSSIBLE INFORMATION ITEMS
Biogenic C02 from Combustion
Carbon Offsets PurchasedCarbon Offsets SoldRenewable Energy Credits (Green Power) PurchasedRenewable Energy Credits Sold (GreenPower)
Ozone-depleting Refrigerants/Fire Suppressants not in LGOPOther Information ItemsTransmission and Distribution Losses from Consumed Electricity
Other Scope 3
Upstream Production of Materials and Fuels
Upstream and Downstream Transportation of Materials and FuelsWaste Related Scope 3 EmissionsPurchase of Electricity Sold to an End User
Ozone Depleting Refrigerants
Employee Commute
Employee Business TravelEmissions From Contracted Services
Gasoline
Diesel
I
I
I I I I I I I I
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XII
SCOPE 1Stationary CombustionEmissions Source NameGHG Default/Alternate Emission Factor Emission Factor Sources and References
CO2e
CO2 Default 53.06 Kg /MMBtu LGOP, Table G.1
CH4 Default 5 g /MMBtu LGOP, Table G.3
N2O Default 0.01 g /MMBtu LGOP, Table G.3
HFCsPFCs
SF6
CO2e
CO2 Default 73.15 Kg /MMBtu LGOP, Table G.1
CH4 Default 11 g /MMBtu LGOP, Table G.3
N2O Default 0.6 g /MMBtu LGOP, Table G.3
HFCsPFCs
SF6
CO2e
CO2 Default 5.74 kg CO2/gal LGOP, Table G.1
CH4
N2O
HFCsPFCs
SF6
SCOPE 2Purchased ElectricityEmissions Source NameGHG Default/Alternate Emission Factor Emission Factor Sources and References
CO2e
CO2 Default 546.46 lbs /MWh LGOP, Table G.5
CH4 Default 0.029 lbs/ MWh LGOP, Table G.6
N2O Default 0.011 lbs /MWh LGOP, Table G.6
HFCsPFCs
SF6
STREETLIGHTS AND TRAFFIC SIGNALS (Chapter 6.2)SCOPE 2Purchased ElectricityEmissions Source Name GHG Default/Alternate Emission Factor Emission Factor Sources and References
CO2e
CO2 Default 546.46 lbs /MWh LGOP, Table G.5
CH4 Default 0.029 lbs/ MWh LGOP, Table G.6
N2O Default 0.011 lbs /MWh LGOP, Table G.6
HFCs
PFCs
SF6
SCOPE 1
Stationary Combustion
Emissions Source Name GHG Default/Alternate Emission Factor Emission Factor Sources and ReferencesCO2e
CO2 Default 73.15 Kg /MMBtu LGOP, Table G.1
CH4 Default 11 g /MMBtu LGOP, Table G.3
N2O Default 0.6 g /MMBtu LGOP, Table G.3
HFCsPFCsSF6
SCOPE 2Purchased ElectricityEmissions Source Name GHG Default/Alternate Emission Factor Emission Factor Sources and ReferencesCO2e
CO2 Default 546.46 lbs /MWh LGOP, Table G.5
CH4 Default 0.029 lbs/ MWh LGOP, Table G.6
N2O Default 0.011 lbs /MWh LGOP, Table G.6
HFCsPFCs
SF6
Diesel Generators
Electricity
Propane
Electricity
Electricity
WATER DELIVERY FACILITIES (Chapter 6)
In addition to activity data, every emission source must be accompanied by the emission factor used, a reference for each emission factor, and the calculation
BUILDINGS & OTHER FACILITIES (Chapter 6)
Natural Gas
Diesel Generators
Local Government Operations Standard Inventory Report
4. Calculation Methodology Disclosure
I I I I
I I I I
I I I I
I I I I I I
I I I I
I I I I I I
I I I I I I
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XIII
SCOPE 1Mobile Combustion
Emissions Source Name GHG Default/Alternate Emission Factor Emission Factor Sources and References
CO2e
CO2 Default 8.81 kg CO2 / gallon LGOP, Table G.9
CH4 Default Varies by Model Year LGOP, Table G.10
N2O Default Varies by Model Year LGOP, Table G.10
HFCs
PFCs
SF6
CO2e
CO2 Default 10.15 kg /gallon LGOP, Table G.9
CH4 Default Varies by Model Year LGOP, Table G.10
N2O Default Varies by Model Year LGOP, Table G.10
HFCs
PFCs
SF6
Fugitive EmissionsEmissions Source Name GHG Default/Alternate Emission Factor Emission Factor Sources and References
Refrigerants R134A None GWP-1300 LGOP v1 Table
E.1&E.2
SCOPE 3
Emissions Source NameGHG Default/Alternate Emission Factor Emission Factor Sources and References
Generated Waste CH4 Alternate Varies by waste type
EPA Waste
Reduction Model http://www.epa.gov/climatechange/wycd/waste/calculators/Warm_home.html; Public
Administration waste charaterization provided by CIWMB
SCOPE 3
Stationary CombustionEmissions Source NameGHG Default/Alternate Emission Factor Emission Factor Sources and References
CO2e
CO2 Default 8.81 kg CO2 / gallon LGOP, Table G.9
CH4 Default .03451 g/mi (light trucks)LGOP, Table G.13
N2O Default .04935 g/mi (light trucks)LGOP, Table G.13
HFCsPFCs
SF6
CO2e
CO2 Default 10.15 kg/gallon LGOP, Table G.9
CH4 Default .00098 g/mi (light trucks)LGOP, Table G.13
N2O Default .00148 g/mi (light trucks)LGOP, Table G.13
HFCsPFCs
SF6
Stationary CombustionEmissions Source NameGHG Default/Alternate Emission Factor Emission Factor Sources and References
R12 None GWP- 10600 http://www.epa.gov/ozone/science/ods/cla
ssone.html
R22 None GWP- 1700 http://www.epa.gov/ozone/science/ods/classone.html
POSSIBLE SOURCES OF OPTIONAL SCOPE 3 EMISSIONS
Biogenic C02 from Combustion
Carbon Offsets Purchased
Carbon Offsets SoldRenewable Energy Credits (Green Power) PurchasedRenewable Energy Credits Sold (GreenPower)Ozone-depleting Refrigerants/Fire Suppressants not in LGOP
Other Information Items
Other Scope 3
Upstream and Downstream Transportation of Materials and FuelsWaste Related Scope 3 EmissionsPurchase of Electricity Sold to an End User
Transmission and Distribution Losses from Consumed Electricity
Employee Commute
Employee Business TravelEmissions From Contracted Services
Upstream Production of Materials and Fuels
Diesel
INFORMATION ITEMS
Ozone Depleting Refrigerants
POSSIBLE INFORMATION ITEMS
Diesel
WASTE GENERATION (Scope 3)
EMPLOYEE COMMUTE (Scope 3)
Gasoline
VEHICLE FLEET (Chapter 7)
Gasoline
I I
I I
I I
I I
I I I I I I
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XIV
Appendix C
Reporting on Scope 3 Emissions from
Government Operations
This appendix presents 2005 emissions from Scope 3 government operations sources, reporting on which is
considered optional in the LGOP. The two Scope 3 sectors reported here are emissions from government-generated
solid waste and from employee commutes.
C.1 Government-Generated Solid Waste
Many local government operations generate solid waste, much of which is eventually sent to a landfill. Typical
sources of waste in local government operations include paper and food waste from offices and facilities,
construction waste from public works, and plant debris from parks departments. Organic materials in government-
generated solid waste (including paper, food scraps, plant debris, textiles, wood waste, etc.) generate methane as
they decay in the anaerobic environment of a landfill. An estimated 75 percent of this methane is routinely captured
via landfill gas collection systems;26 however, a portion escapes into the atmosphere, contributing to the greenhouse
effect. As such, estimating emissions from waste generated by government operations is an important component of
a comprehensive emissions inventory.
Inventorying emissions from government-generated solid waste is considered optional by LGOP for two reasons.
First, the emissions do not result at the point of waste generation (as with fuel combustion), but in a landfill located
outside of Carlsbad‘s jurisdictional boundaries. In addition, the emissions are not generated in the same year that the
waste is disposed, but over a lengthy decomposition period. Since inventorying these emissions is considered
optional, LGOP does not provide guidance on recommended methods for quantifying these types of emissions.
ICLEI therefore devised data collection and calculation methods based upon previous experience and national
standards. See Appendix D for more information for more detail on quantifying emissions from government-
generated solid waste.
26 This is a default methane collection rate per LGOP. This rate can vary from 0 to 99 percent based upon the presence and extent of a landfill
gas collection system at the landfill/s where the waste is disposed. Most commonly, captured methane gas is flared into the atmosphere, which converts the methane gas to CO2 and effectively negates the human-caused global warming impact of the methane. Increasingly, landfill methane is being used to power gas-fired turbines as a carbon-neutral means of generating electricity.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XV
It is estimated that the waste disposed by Carlsbad‘s government facilities in 2009 will cumulatively produce 6.8
metric tons of methane gas, or 144 metric tons CO2e. More recent data from 2009 was used as a proxy as 2005
waste disposal data was not available. Please see Table 3.8 for a breakdown of emissions per facility.
C.2 Employee Commute
Fuel combustion from employees commuting to work is another important emissions source from Carlsbad‘s
operations. Similar to the City‘s vehicle fleet, personal employee vehicles use gasoline and other fuels which, when
burned, generate greenhouse gas emissions. Emissions from employee commutes are considered optional to
inventory by LGOP because the vehicles are owned and operated privately by the employees. However, LGOP
encourages reporting these emissions because local governments can influence how their employees commute to
work through incentives and commuting programs. For this reason, employee commute emissions were included in
this appendix as an area where Carlsbad could achieve significant reductions in greenhouse gases.
To calculate emissions, Carlsbad administered a survey to all of its employees regarding their commute patterns and
preferences. ICLEI then extrapolated the results of the survey to represent emissions from all employees. See
Appendix C for a detailed description of the survey and methods used to calculate emissions.
In 2009, employees commuting in vehicles to and from their jobs at Carlsbad emitted an estimated 2,417 metric tons
of CO2e. Table 3.9 shows estimated emissions and vehicle miles traveled for all the City‘s employees.
Table C.1: Emissions from Government-Generated Solid Waste
Source
Greenhouse Gas Emissions
(metric tons CO2e)
Estimated Landfilled
Waste (Tons)
Parks and Recreation 75 297
Maintenance Yards 13 52
Libraries 13 52
Safety Center 8 31
City Administration 8 31
Fire Stations 7 26
Senior Center 5 21
CMWD M&O 5 21
Other 5 21
City Hall 3 10
Swim Complex 1 5
TOTAL 144 567
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XVI
Table C.2: Emissions from Employee Commutes
Greenhouse Gas
Emissions (metric tons
CO2e)
Estimated Vehicle
Miles Traveled to
Work
Average Estimated
Vehicle Miles
Traveled to Work
All Employees
(Estimated) 2,417 4,584,643 5,781
C.2.1 Employee Commute Indicators
In addition to estimating greenhouse gas emissions from employee commutes, ICLEI examined other policy-
relevant information that was extracted from the employee commute survey—in this way City staff can develop the
most effective policies to reduce emissions from employee commutes. These measures often have co-benefits
including increased productivity, reduced commute times and costs, and improvement in the quality of life for
employees. No extrapolation was done with the following data; analyses were done using data from survey
respondents only.
Commute Modes
In 2009, the majority (94 percent) of respondents commuted to work in single occupancy vehicles. Six percent of all
respondents used some form of alternative transportation (bicycle, public transit, carpool, etc) to commute to work
with carpooling being the most used form of alternative transportation (4 percent of total respondents), followed by
split modes (2 percent of total respondents), likely including a combination of driving alone and carpooling. See
Figure 3.6 for an analysis of the most common commute mode for employees who responded to the survey.
Figure C.1: Employee Commute Modes
Drive Alone
94%
Carpool/ Vanpool
4%
Split Modes
2%
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XVII
Commute Time and Costs
Table 3.10 shows the median time, cost (weekly), and distance of Carlsbad‘s employees‘ commutes. In addition to
reducing the City‘s greenhouse gas emissions, commuting alternatives may reduce commuting costs, time spent in
traffic, and overall employee satisfaction.
Table C.3: Distance and Time to Work and Cost of Employee Commutes
Median Time to Work
(minutes) Median Cost of
Commute Median Distance To Work
(Miles)
15 $20 8
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XVIII
Appendix D:
Employee Commute
Methodology
Emissions from employee commutes make up an important optional source of emissions from any local
government‘s operations. The scale of emissions from employee commutes is often large in comparison with many
other facets of local government operations, and local governments can affect how their employees get to and from
work through a variety of incentives. For this reason, ICLEI recommends estimating emissions from employee
commutes as part of a complete government operations greenhouse gas emissions inventory.
To assist in the data collection process, ICLEI provided the jurisdictions with both an online and a paper copy of an
employee commute survey. The questions in the survey were aimed at finding three categories of information:
Activity data to calculate emissions from employee commute (vehicles miles traveled, vehicle type,
vehicle model year) both current and in 2005.
Indicator data to help Carlsbad understand how much time and money employees spend as they
commute, as well as how many employees use alternative modes of transportation to get to work.
Policy data that will serve as guidance for Carlsbad as it adopts policies aimed at reducing emissions
from employee commutes. These questions asked employees for their interest in alternative modes of
transportation as well as what policies would be most effective in allowing them to switch modes of
transportation away from driving alone.
This section provides the emissions estimation methodology and both surveys. Individual survey results are in the
possession of Carlsbad staff.
D.1 Methodology Summary
The methodology for estimating the employee commute emissions portion of the inventory is similar to the mobile
emissions methodology outlined in the mobile emissions section of Appendix B. Carlsbad administered the
employee commute survey to 793 current employees working for the City, and 249 employees responded to the
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XIX
survey (a response rate of 31 percent). The survey was administered in 2009 and current data was used as a proxy
for 2005 data. Both full time and part-time employee data were included.
To calculate emissions, the survey collected the following information:
The number of days and number of miles employees drive alone to work (one-way) in an average week
The number of days they carpooled and how often they drove the carpool in an average week
The vehicle type of their vehicle and the type of fuel consumed
These weekly data were then converted into annual VMT estimates by the following equation:
Number of days driven to work/week x to-work commute distance x 2 x 48 weeks worked/year
Actual CO2e emissions from respondents‘ vehicles were calculated by converting vehicle miles traveled per week
by responding employees into annual fuel consumption by fuel type (gasoline, diesel). The VMT data collected
were converted to fuel consumption estimates using fuel economy of each vehicle type.27
ICLEI then extrapolated estimated fuel consumption to represent all 793 of Carlsbad‘s employees in 2005. This was
a simple extrapolation, multiplying the estimated fuel consumption number by the appropriate factor to represent all
current employees. For example, if 33.3 percent of employees responded, fuel consumption numbers were tripled to
estimate fuel consumption for all employees. This is not a statistical analysis and no uncertainty has been calculated
as there is uncertainty not only at the extrapolation point but also in the calculation of actual emissions. Therefore,
the resulting calculated emissions should be seen as directional and not as statistically valid.
27 Fuel efficiency estimates from www.fueleconomy.gov, EPA Green Fleets Guide and other national sources.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XX
D.2 Employee Commute Survey
1. Introduction The purpose of this survey is to gather information on your commute to work so your employer can offer the best
transportation options to you while reducing the jurisdiction's impact on the environment. The survey should take no more than 15 minutes.
Unless otherwise indicated, all questions refer to a ONE-WAY commute TO WORK only. Please do not include any traveling
you do during work hours (meetings, site visits, etc). Any question with an asterisk (*) next to it requires an answer in order to proceed.
Please note that this survey is completely anonymous. We will not collect or report data on any individuals who respond to the
survey.
Thank you very much.
2. Workplace Please provide the following information regarding your workplace. Click "Next" at the bottom when finished or click "Prev"
to go back.
*1. What local government do you currently work for? Carlsbad
County of San Diego Encinitas
Imperial Beach La Mesa
National City Poway
Solana Beach San Marcos
Vista
*2. What department do you work in?
3. Commuter Background Information Please provide the following information regarding your background. Click "Next" at the bottom when finished or click "Prev"
to go back.
*1. What city/town do you live in?
*2. How many miles do you live from your place of work? (please enter a whole number)
3. How many minutes does your commute to work typically take?
(please enter a whole number)
4. In a typical week, how much money do you spend on your ROUND TRIP commute? (transit fees, gas, tolls, etc-please enter a number)
5. If you drive to work, what type of vehicle do you usually drive?
Full-size auto Mid-size auto
Compact/hybrid Light truck/SUV/Pickup
Van
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XXI
Heavy Truck Motorcycle/scooter
6. What year is your vehicle?
(please enter a four digit year)
7. What type of fuel does your vehicle use? Gas
Diesel Biodiesel (B20)
Biodiesel (B99 or B100) Electric
Other (please specify-if Ethanol please indicate grade)
4. Employment Information Please provide the following information regarding your employment. Click "Next" at the bottom when finished or click
"Prev" to go back.
1. Do you typically travel to work between 6-9 am Monday-Friday? Yes
No If No, please specify what time of day you commute:
2. Does your position allow you to have flexible hours or to telecommute?
Yes No
*3. Are you a full time employee or part time employee?
Full Part
5. Part Time Employees Please provide the following information regarding your part time employment. Click "Next" at the bottom when finished or click "Prev" to go back.
*1. What is the average number of days you work per week?
(please enter a number)
6. Temporary Employees
Are you a temporary employee? Yes
No
7. Temporary Employees
How many weeks is your temporary assignment? (please enter a number)
8. Current Daily Commute Please provide the following information regarding your current daily commute. Click "Next" at the bottom when finished or
click "Prev" to go back.
*1. In a typical week, do you drive to work alone at least once?
Yes No
9. Drive Alone
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XXII
Click "Next" at the bottom when finished or click "Prev" to go back.
*1. How many DAYS a week do you drive alone to work? (please enter a number)
*2. How many MILES PER DAY do you drive TO WORK ONLY?
(please enter a number)
10. Carpool Click "Next" at the bottom when finished or click "Prev" to go back.
*1. In a typical week, do you carpool to work at least once?
Yes No
11. Carpool *1. How many DAYS a week do you carpool? (please enter a number)
*2. How many MILES do you drive TO WORK ONLY when you carpool?
(please enter a number)
3. How many PEOPLE are in your carpool? (please enter a number)
*4. How many DAYS a week are you the driver of the carpool?
(please enter a number)
12. Public Transit *1. In a typical week, do you take public transit to work at least once?
Yes No
13. Public Transit *1. How many DAYS a week do you take public transit TO WORK? (please enter a number)
2. What type of public transit do you take TO WORK?
Bus Ferry
Light Rail Train
Other (please specify)
14. Bike/Walk *1. In a typical week, do you bike or walk to work at least once?
Yes No
15. Bike/Walk 1. How many DAYS a week do you bike to work? (please enter a number)
2. How many DAYS a week do you walk to work?
(please enter a number)
16. Telecommute
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XXIII
1. If you telecommute: How many DAYS do you telecommute in a typical week?
(please enter a number) If you do not telecommute, leave this question blank.
17. Commute Preference Information Please answer the following questions regarding your CURRENT commute.
1. Why have you chosen your current commute mode?
2. Would you consider taking any of the following transportation modes? (check all that apply): Public Transportation
Carpooling Vanpooling
Bicycling Walking
Other (please specify)
*3. Is there a transit route that you would use to commute by public transit?
Yes No
4. If no to question 3, please explain why not.
5. If you drive alone, which, if any, of the following benefits would encourage you to take alternative forms of transportation?
(check all that apply) Vanpool/carpool incentives
Pre-tax transit checks Parking cash-out (reimbursement to give up your parking spot)
Improved transit options Improved walking routes/conditions
Telecommuting option Free/inexpensive shuttle
Free public transit benefit Subsidizing bicycle purchase
Improved bike routes/conditions Better information about my commute options
None of the above Other (please specify)
28. Comments 1. If you have other concerns or issues related to your commute, or if something we should know about was not captured in any
survey questions, please describe below.
29. Thank You Thank you for responding to this survey!
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XXIV
Appendix E:
Government-Generated
Solid Waste Methodology
Emissions from the waste sector are an estimate of methane generation that will result from the anaerobic
decomposition of all organic waste sent to landfill in the base year. It is important to note that although these
emissions are attributed to the inventory year in which the waste is generated, the emissions themselves will occur
over the 100+ year timeframe that the waste will decompose. This frontloading of emissions is the approach taken
by EPA‘s Waste Reduction Model (WARM). Attributing all future emissions to the year in which the waste was
generated incorporates all emissions from actions taken during the inventory year into that year‘s greenhouse gas
release. This facilitates comparisons of the impacts of actions taken between inventory years and between
jurisdictions. It also simplifies the analysis of the impact of actions taken to reduce waste generation or divert it
from landfills.
E.1 Estimating Waste Tonnages from Carlsbad’s Operations
Like most local governments, Carlsbad does not directly track the amount of waste generated from its operations.
Therefore, to estimate the amount of waste generated, ICLEI worked with Waste Management, the hauler of waste
for Carlsbad in 2005. The amount of waste was estimated by compiling pick-up accounts owned by the City.
Garbage trucks do not weigh waste at each pick-up, therefore, it is not possible to directly track disposal figures in
mass per facility. Mass of waste generation was estimated using volumetric container size (gallons, yards, etc.) data,
along with pick-up frequency and average fill of containers. These data produced a comprehensive annual
volumetric figure, which was then converted to mass using standard conversion factors supplied by the California
Integrated Waste Management Board (CIWMB). Estimated waste generation was converted to final disposal
(quantity sent to landfill) by applying average waste diversion percentages for each account. Where applicable, self-
haul waste (waste brought directly from the local government to landfills) was included as part of this total.
E.2 Emissions Calculation Methods
As some types of waste (e.g., paper, plant debris, food scraps, etc.) generate methane within the anaerobic
environment of a landfill and others do not (e.g., metal, glass, etc.), it is important to characterize the various
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XXV
components of the waste stream. Waste characterization for government-generated solid waste was estimated using
the CIWMB‘s 2004 statewide waste characterization study.28
Most landfills in the San Diego region capture methane emissions either for energy generation or for flaring. EPA
estimates that 60 percent to 80 percent29 of total methane emissions are recovered at the landfills to which Carlsbad
sends its waste. Following the recommendation of LGOP, ICLEI adopted a 75 percent methane recovery factor.
Recycling and composting programs are reflected in the emissions calculations as reduced total tonnage of waste
going to the landfills. The model, however, does not capture the associated emissions reductions in ―upstream‖
energy use from recycling as part of the inventory.30 This is in-line with the ―end-user‖ or ―tailpipe‖ approach taken
throughout the development of this inventory. It is important to note that, recycling and composting programs can
have a significant impact on greenhouse gas emissions when a full lifecycle approach is taken. Manufacturing
products with recycled materials avoids emissions from the energy that would have been used during extraction,
transporting and processing of virgin material.
E.2.1 Methane Commitment Method
CO2e emissions from waste disposal were calculated using the methane commitment method outlined in the EPA
WARM model. This model has the following general formula:
CO2e = Wt * (1-R)A
Where:
Wt is the quantify of waste type ―t‖
R is the methane recovery factor,
A is the CO2e emissions of methane per metric ton of waste at the disposal site (the methane factor)
While the WARM model often calculates upstream emissions, as well as carbon sequestration in the landfill, these
dimensions of the model were omitted for this particular study for two reasons:
This inventory functions on an end-use analysis, rather than a life-cycle analysis, which would calculate upstream
emissions), and this inventory solely identifies emissions sources, and no potential sequestration ―sinks.‖
28 CIWMB Waste Characterization Study-Public Administration Group available at http://www.ciwmb.ca.gov/WasteChar/BizGrpCp.asps.
29 AP 42, section 2.4 Municipal Solid Waste, 2.4-6, http://www.epa.gov/ttn/chief/ap42/index.html 30 ―Upstream‖ emissions include emissions that may not occur in your jurisdiction resulting from manufacturing or harvesting virgin materials and transportation of them.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XXVI
Appendix F:
Community Inventory
Methodology
This appendix expands on the description of methodology provided in Section 2, describing in more detail the data
sources and processes used to calculate emissions in the community inventory.
F.1 Overview of Inventory Contents and Approach
The community inventory describes emissions of the major greenhouse gases from the residential, commercial /
industrial, transportation, solid waste, and wastewater sectors. As explained in Section 2, emissions are calculated
by multiplying activity data—such as kilowatt hours or gallons of gasoline consumed—by emissions factors, which
provide the quantity of emissions per unit of activity. Activity data is typically available from electric and gas
utilities, planning and transportation agencies and air quality regulatory agencies. Emissions factors are drawn from
a variety of sources, including the California Climate Action Registry, the Local Governments Operations Protocol,
and air quality models produced by the California Air Resources Board (CARB).
In this inventory, all GHG emissions are converted into carbon dioxide equivalent units, or CO2e, per guidance in
the Local Government Operations Protocol (LGOP). The LGOP provides standard factors to convert various
greenhouse gases into carbon dioxide equivalent units; these factors are known as Global Warming Potential
factors, representing the ratio of the heat-trapping ability of each greenhouse gas relative to that of carbon dioxide.
The community inventory methodology is based on guidance from ICLEI‘s draft International Local Government
GHG Emissions Analysis Protocol (IEAP), as well as methods utilized in the San Diego County Greenhouse Gas
Inventory produced by the University of San Diego‘s Energy Policy Initiatives Center (EPIC), and in ongoing
climate change planning work at SANDAG.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XXVII
F.1.1 Emissions Sources Included and Excluded
In general, local jurisdictions should seek to measure all emissions of the six Kyoto Protocol greenhouse gases31
occurring within the jurisdictional boundaries. In practice, this level of detail may not be feasible for the local
jurisdiction. The table below describes sources included in this community inventory, followed by sources that
were excluded:
Sector Emissions Source Sector Emissions Source
Residential
Bundled Electricity
Transportation
On-Road Transportation
Direct Access Electricity Travel on Local/Regional Roads
Bundled Natural Gas Travel on State Highways
Direct Access Natural Gas
Commercial
/ Industrial
Bundled Electricity Off-Road Sources
Direct Access Electricity Lawn and Garden Equipment
Bundled Natural Gas Construction Equipment
Direct Access Natural Gas Industrial Equipment
Solid Waste
Community-generated Solid Waste Light Commercial Equipment
Landfill Waste-in-Place Wastewater Community-generated Wastewater
Local governments will often choose to exclude emissions sources that meet the following criteria:
Below the significance threshold. In the ICLEI reporting standard, emissions sources can be excluded
from the analysis (e.g. are ―de minimis‖) if, when combined, the excluded emissions total less than 5%
of the total of the emissions from the Community or Government Inventory.32
Insufficient data or accepted standard methodology. The science is still evolving in many sectors,
and accurate records or standards for measuring emissions are not always available. Examples include
non-combustion industrial emissions sources or emissions from composting activities.
Emissions largely located outside the jurisdiction’s boundaries. These types of emissions could
include such sources as aviation departing from local airports or regional transit emissions.
31 CO2, CH4, N2O, SF6, perfluorocarbons (PFCs) and hydrofluorocarbons (HFCs) 32 Note: an inventory should include at least 95% of the emissions released by the government and community as a whole. Therefore, if a large number of small emissions sources occur within the jurisdiction, they cannot all be ignored.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XXVIII
In this inventory, the following emissions were below the significance threshold and were not included:
SF6, perfluorocarbons (PFCs), and hydrofluorocarbon (HFCs) emissions
N2O emissions from transportation
Mobile emissions from alternative fuels
Emissions of minor off-road sources (those not included in the table above)
Stationary emissions from propane and diesel fuels
Non-combustion industrial emissions sources
The following sources were excluded because they occurred in a largely regional context:
Aviation
Rail
Regional public transit
Emissions from the Encina electricity generation facility and Encina wastewater treatment
facility
F.2 Emissions Forecast
This inventory includes a ―business-as-usual‖ forecast to 2020, estimating emissions that will occur if no new
emissions reduction policies are implemented. The forecast is based on household, population, and job projections
from SANDAG‘s 2030 Regional Growth Forecast Update. As a business-as-usual projection, the forecast does not
take into account legislation or regulation currently under development, and relies on demographic data as the basis
for estimating growth in each sector. The forecasting approach varies for each sector:
Residential emissions are based on projected growth in local jurisdiction households.
Commercial / industrial sector emissions are correlated with forecasted job growth in the local
jurisdiction.
Transportation emissions are based on projected growth rates in regional vehicle miles
traveled associated with SANDAG’s Regional Transportation Plan 2030.
Solid waste and wastewater emissions are correlated with forecasted population growth in the
local jurisdiction.
F.3 The Built Environment: Residential, Commercial, and Industrial Sectors
Electricity and natural gas sold to San Diego Gas & Electric customers as bundled service (both energy generation
and transmission/distribution) was provided by Benjamin Lopez at SDG&E. Direct access electricity and natural
gas was also provided by SDG&E, which records the direct access resources that are distributed through its grid.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XXIX
Bundled SDG&E electricity emissions were calculated in ICLEI‘s CACP software using SDG&E-specific
emissions factors provided by the California Climate Action Registry. Direct access electricity consumption was
calculated in CACP using EPA eGrid emissions factors for the WECC California eGrid subregion. All natural gas
emissions were calculated in CACP with default emissions factors from the Local Government Operations
Protocol.
F.4 On-road Transportation and Off-road Mobile Sources
F.4.1 On-road Transportation
On-road transportation emissions were derived from local jurisdiction vehicle miles traveled (VMT) data and
regional vehicle and travel characteristics. Observed 2005 VMT on non-State facilities (referred to in the inventory
as ―local roads‖) was obtained from Caltrans‘ Highway Performance Monitoring System reports. VMT on state
highways in the local jurisdiction was derived from a GIS shapefile output from the SANDAG transportation
model, which is the basis of air quality reporting associated with the Regional Transportation Plan. For state
highway segments that crossed jurisdictional boundaries, the segments were clipped in GIS and only the portion
within the boundaries was accounted for.
The EMFAC2007 model developed by CARB was used to calculate emissions from these VMT figures. EMFAC
defaults for San Diego County include regionally-specific information on the mix of vehicle classes and model
years, as well as ambient conditions and travel speeds, that determine fuel efficiency. The model estimates carbon
dioxide and methane emissions from these factors and inputted vehicle activity data.
Because inputting local VMT without changing regional defaults for vehicle population and vehicle trips would
result in an over-estimation of emissions, regionally-specific ratios of VMT to vehicle population and trips were
held constant.
EMFAC outputs are reported in short tons per day. Results were converted to metric tons per year. Because state
highway VMT and associated emissions were based on average weekday traffic volumes, a 5-day to 7-day
conversion factor was obtained from Caltrans and applied to the output to allow for annualizing.33 Methane
emissions were converted to carbon dioxide equivalent units based on the Global Warming Potential factor from
LGOP.
33 Provided by Kim Sturmer, Caltrans. The 2008 5-day to 7-day factor (only available) for state highways is 0.94.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XXX
F.4.2 Off-road Mobile Sources
Off-road emissions were obtained from the CARB OFFROAD2007 model. The model was run using default
equipment population, usage, and efficiency data for San Diego County. Emissions outputs were scaled to the local
jurisdiction level by population share. Results were converted from short tons per day to metric tons per year.
Methane and nitrous oxide emissions were converted to carbon dioxide equivalent units based on the Global
Warming Potential factors from LGOP.
F.5 Solid Waste
Emissions from solid waste were captured in two ways: emissions from landfills located in the jurisdiction in the
base year (―landfill waste-in-place‖), and future emissions from decomposition of waste generated in the local
jurisdiction in the base year (―community-generated solid waste‖).
F.5.1 Landfill Waste-in-Place
Methane emissions were obtained from CARB, which utilized a First Order Decay Model (FOD) to estimate
emissions from County waste disposal facilities.34 The FOD incorporates data on waste disposal and facility
conditions extending back several decades to calculate methane and carbon dioxide equivalent emissions.
F.5.2 Community-Generated Solid Waste
Community-generated solid waste emissions were calculated in CACP using waste disposal data obtained from the
California Integrated Waste Management Board Disposal Reporting System, which records tonnages of municipal
solid waste and alternative daily cover by local jurisdiction. Emissions were calculated using the same
methodology as described in Appendix D for government-generated solid waste.
F.6 Wastewater
This inventory utilizes wastewater emissions estimates from the EPIC San Diego County inventory. EPIC obtained
a per capita wastewater emissions estimate from CARB for 2005. This figure was reduced to account for biogas
capture at regional wastewater facilities using gas capture data provided by the San Diego County Air Pollution
Control District. For the purposes of this inventory, this per capita County-wide emissions rate was scaled to the
local jurisdiction level by population share.
34 Provided by Larry Hunsaker, CARB, on November 27, 2007. This data is embedded in the community master data file provided to the local jurisdiction with this report.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XXXI
Appendix G:
Conducting a Monitoring
Inventory
The purpose of this appendix is to assist the City of Carlsbad‘s staff in conducting a monitoring inventory to
measure progress against the baseline established in this inventory report. Conducting such an inventory represents
milestone five of the Five- Milestone Process, and allows a local government to assess how well it is progressing
toward achieving its emissions reduction targets.
This inventory was conducted by ICLEI in conjunction with Linda Kermott, Manager of Public Works
Administration and Environmental Programs in Carlsbad, who served as the lead data gathering coordinator for the
inventory. To facilitate a monitoring inventory, ICLEI has documented all of the raw data, data sources, and
calculation methods used in this inventory. Future inventories should seek to replicate or improve upon the data and
methods used in this inventory. Wherever possible, however, ICLEI strongly recommends institutionalizing internal
data collection in order to be able to meet the recommended methods outlined in LGOP.
G.1 ICLEI Tools for Local Governments
ICLEI has created a number of tools for Carlsbad to use to assist them in future monitoring inventories. These tools
are designed to work in conjunction with LGOP, which is, and will remain, the primary reference document for
conducting an emissions inventory. These tools include:
A ―master data sheet‖ that contains most or all of the raw data (including emails), data sources,
emissions calculations, data templates, notes on inclusions and exclusions, and reporting tools (charts
and graphs and the excel version of LGOP reporting tool).
A copy of all electronic raw data, such as finance records or Excel spreadsheets.
LGOP reporting tool (included in the master data sheet and in Appendix B) that has all activity data,
emissions factors, and methods used to calculate emissions for this inventory.
Sector-specific instructions that discuss the types of emissions, emissions calculations methods, and
data required to calculate emissions from each sector, as well as instructions for using the data
collection tools and calculators in the master data sheet.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XXXII
The appendices in this report include detailed methodologies for calculating emissions from Scope 3
employee commute and government-generated solid waste, as well as two versions of the employee
commute survey.
It is also important to note that all ICLEI members receive on-demand technical assistance from their ICLEI liaison,
which local staff should feel free to contact at any point during this process.
G.2 Relationship to Other San Diego Regional Climate Protection Initiative Inventories
While the emissions inventories for the 10 participating local governments were conducted simultaneously using the
same tools, a local government operations inventory is based on data specific to each local government‘s operations.
For this reason, data must be collected internally within each local government, and the availability of data (and thus
emissions estimation methods) will vary between local governments.
That said, local governments in the San Diego Regional Climate Protection Initiative may benefit by cooperating
during the re-inventorying process. For example, by coordinating inventories, they may be able to hire a team of
interns to collectively perform the inventories – saving money in the process. In addition, local staff may be able to
learn from each other during the process or conduct group training sessions if necessary. As a whole, the Climate
Protection Initiative provides the basis for a continuing regional platform for climate actions, and ICLEI
recommends taking advantage of this opportunity during all climate actions, including conducting future greenhouse
gas emissions inventories.
G.3 Improving Emissions Estimates
One of the benefits of a local government operations inventory is that local government staff can identify areas in
their current data collection systems where data collection can be improved. For example, a local government may
not directly track fuel consumption by each vehicle and instead will rely upon estimates based upon VMT or
purchased fuel to calculate emissions. This affects both the accuracy of the emissions estimate and may have other
implications for government operations as a whole.
During the inventory process, ICLEI and local government staff identified the following gaps in data that, if
resolved, would allow Carlsbad to meet the recommended methods outlined in LGOP in future inventories.
Direct tracking of fire suppressants recharged into fire suppression equipment
Odometer readings of individual vehicles
Fuel consumption by mobile equipment
Fuel consumption by diesel and other generators (propane)
Direct tracking of refrigerants recharged into vehicles in the vehicle fleet
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XXXIII
Waste generated from government facilities
ICLEI encourages staff to review the areas of missing data and establish data collection systems for this data as part
of normal operations. In this way, when staff are ready to re-inventory for a future year, they will have the proper
data to make a more accurate emissions estimate.
G.4 Conducting the Inventory
ICLEI recommends the following approach for San Diego Regional Climate Protection Initiative local governments
that wish to conduct a monitoring inventory:
Step 1: Identify a Climate Steward
This steward will be responsible for the jurisdiction‘s climate actions as a whole and could serve as an ICLEI liaison
in all future climate work. In the context of a monitoring inventory, the steward will be responsible for initiating
discussions on a new inventory.
Step 2: Determine which Sectors to Inventory
There are many ways to determine which sectors apply to a local government‘s operations, but the easiest to review
will be LGOP Standard Report, which is located both in Appendix B and in the master data sheet. This document
clearly delineates which sectors will need to be inventoried within a local government‘s operations and which
LGOP sectors do not apply to a jurisdiction.
Step 3: Gather Support: Identify Data Gathering Team and Leads
Coordination and acceptance among all participating departments is an important factor in coordinating a successful
inventory. To that end, the inventory coordinator should work with the city/town/county administrator to identify all
staff who will need to be part of the inventory. To facilitate this process, ICLEI has documented all people
associated with the inventory in the master data sheet—these names are located in the final completed data form for
each sector. Once this team has been identified, the inventory coordinator should hold a kickoff meeting with the
administrator, all necessary staff, and relevant department heads which clearly communicates the priority of the
inventory in relationship to competing demands. At this meeting, the roles of each person, including the inventory
coordinator, should be established.
Step 4: Review Types of Emissions and Available Methodologies for Applicable Sectors
Local staff should then review LGOP and the instructions documents provided through this inventory to better
understand the types of emissions for each sector (for example, within Mobile Emissions, CO2 emissions and
CH4/N2O emissions represent two different data requirements and emissions calculations methodologies). Each
emissions type may have more than one possible estimation methodology, and it is important that the inventory
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XXXIV
coordinator understands all possible methodologies and be able to communicate this to all parties assisting in the
data gathering.
Step 5: Review Methodologies Used for the 2005 Inventory to Determine Data to Collect
In order to duplicate or improve upon the methods used in this inventory, local staff should again review the
methods used for this inventory—these methods are again located in Appendix B—and within the master data sheet.
These methods reflect the data limitations for each local government (as many local governments could not obtain
data necessary to meet the recommended methods in LGOP). Wherever possible, these methods should be
duplicated or, if it is possible, replaced with the recommended methods outlined in LGOP. Using these
methodologies, staff will determine what data needs to be collected and communicate this effectively to the data
gathering team.
Step 6: Begin Data Collection
With the exception of electricity and natural gas for stationary sources, all data collection will be internal. To obtain
stationary source energy consumption data, staff will need to contact the ICLEI representative to determine who the
contact is for PG&E data (other utilities will need to be contacted directly).
Step 7: Use the Data Forms as a Resource During Data Gathering
A number of questions will come up during the data gathering process that may be difficult to answer. ICLEI has
attempted to capture all of the questions that arose during the 2005 inventory and how they were addressed through
the master data sheet. Within the master data sheet, staff should review the raw data, working data, and completed
data forms to review how raw data was converted to final data, and also to review any notes taken by ICLEI staff
during the 2005 inventory process.
For example, reviewing the stationary sources PG&E data within the master data sheet will allow local staff to
review how individual accounts were separated into each category and which counts may have been excluded from
the inventory.
Step 8: Use Emissions Software to Calculate Emissions
ICLEI has provided the staff lead on the 2005 inventory with a backup of the software used to calculate many of the
emissions included in this report. Staff should use this (or more current ICLEI software) to calculate emissions by
inputting the activity data into the software. ICLEI staff and ICLEI trainings are available to assist local government
staff in calculating emissions.
2005 City of Carlsbad Greenhouse Gas Emissions Inventory XXXV
Step 9: Report Emissions
The master data sheet also contains the LGOP Standard Reporting Template, which is the template adopted by
CARB as the official reporting template for government operations emissions inventory. This tool, as well as the
charts and graphs tool provided by ICLEI can be used to report emissions from government operations. Also, local
government staff should utilize this narrative report as guide for a narrative report if they so choose.
Step 10: Standardize and Compare to Base Year
Conducting a monitoring inventory is meant to serve as a measuring point against the baseline year represented in
this report. In order to make a more accurate comparison, it is necessary to standardize emissions from stationary
sources based upon heating and cooling degree days (staff can use a ratio of heating /cooling degree days to
standardize across years).
In addition, it is important, when comparing emissions across years, to clearly understand where emissions levels
may have changed due to a change in methodology or due to excluding an emissions source. For example, if the
default method was used to estimate refrigerant leakage in 2005 (this method highly overestimates these emissions),
and the recommended method was available in a monitoring year, this would appear as a dramatic reduction in these
emissions even though actual leaked refrigerants may be similar to the base year. Changes such as these should not
be seen as progress toward or away from an emissions reduction target, but emissions estimates should be adjusted
to create as much of an apples-to-apples comparison as possible. If such an adjustment is not possible, staff should
clearly note the change in methodology between years when comparing emissions.
Appendix B-2
2011 Carlsbad Community
and Local Government
Operations Greenhouse
Gas Inventory Updates
MEMORANDUM
To: David de Cordova
From: Chris Ford, Josh Pollak
Re: Carlsbad Community Greenhouse Gas Inventory Update – 2011
Date: August 26, 2013
This memo highlights the approach taken to update the City’s 2005 Greenhouse Gas (GHG)
Emissions Inventory with 2011 data and compares the inputs and outputs. A separate memo will
cover local government operations. The content of these memos will then contribute to the
summary of Carlsbad’s GHG emissions in the forthcoming Climate Action Plan (CAP); the
memos may be placed in an appendix to the CAP.
This memo reviews the assumptions employed, the quantitative inputs and methodology of
estimating the emissions by sector, and the outputs.
Technical terms and acronyms that appear in this memo are listed in Table 1.
Table 1: Technical Terms and Acronyms
CACP Clean Air and Climate Protection software, a model developed by ICLEI to inventory and
forecast GHG emissions
CAP Climate Action Plan
CARB California Air Resources Board, the agency responsible for setting statewide GHG emission
reduction targets. CARB also maintains several GHG emission calculation models.
CO2e Carbon dioxide equivalents, a measure of GHGs that converts non-CO2 emissions to the
same impact as carbon dioxide
EMFAC The EMissions FACtors model developed by CARB to measure various emissions from
vehicles. There are multiple versions of EMFAC which focus on different vehicle types.
EPA US Environmental Protection Agency
GHG Greenhouse gases, mainly carbon dioxide (CO2), carbon dioxide, nitrous oxide (N2O), and
methane (CH4)
ICLEI An organization that provides standards and models for measuring and forecasting GHG
emissions
SDG&E San Diego Gas and Electric, the energy utility for Carlsbad
Service
Population
Residents + employees, a rough measure of how many people may be generating emissions
within a defined area.
VMT Vehicle Miles Traveled, a measure of the annual amount of driving within an area, used to
calculate GHG emissions from vehicles
DYETT & BHATIA
Urban and Regional Planners
755 Sansome St, Suite 400 I T 415 956 4300
San Francisco, CA 9411 I F 415 956 7315
www.dyettandbhati~.com
Page 2 of 10
ASSUMPTIONS
As with the 2005 inventory, ICLEI’s CACP1 model was used to estimate emissions from
residential, commercial, and industrial consumption of energy and solid waste disposal; CARB’s
EMFAC models were used to calculate transportation emissions; and other sources were used for
wastewater and Palomar landfill emissions.
Between 2005 and 2011, the population and jobs of Carlsbad increased by an estimated 12
percent as did the service population of Carlsbad—the number of residents plus number of jobs,
reflecting the number of people who may generate GHG emissions. Since 2005, Carlsbad’s share
of the county population has increased from 3.13 percent to 3.41 percent, due to a faster rate of
growth than the overall county. Table 2 summarizes these changes.
Table 2: Population and Jobs, 2005 and 2011
2005 2011 % Change
San Diego County Population1 3,034,388 3,115,810 2.7%
Carlsbad Population1, 2 94,961 106,403 12.0%
Carlsbad - % of County Population 3.13% 3.41% 8.9%
Carlsbad - # of Jobs3 59,309 66,417 12.0%
Carlsbad – Service Population 154,270 172,820 12.0%
1. The 2011 populations for the county and Carlsbad come from the California Department of Finance, Table E-5.
2. The 2005 Inventory used different populations for the community and local government analyses. This is the
population used for the community inventory.
3. Numbers from SANDAG.
Electricity Coefficients
Electricity coefficients measure how much GHG emission and air pollution is created by various
sources of electricity generation. They are measured as pounds of emission per megawatt hour
(lb/MWh). The CACP model includes “back end” settings and assumptions that can be adjusted
from defaults:
• Bundled customers purchase electricity from SDG&E. The CACP model has built-in
values for SDG&E, although the most recent data is from 2007. Dudek provided 2010
numbers from SDG&E from the Climate Registry, which are the most recent available;
these 2010 numbers were substituted in for the 2007 data.
• CACP also allows the manual entry of coefficients. This is used for direct electricity
consumers, who purchase power from elsewhere, with SDG&E handling delivery to the
customer. The power is purchased from across the region. We used the regional energy
coefficients from the EPA’s 2009 eGRID tables, which are the most recent available.
Table 3 compares the coefficients used for the 2005 and 2011 inventories. The table shows that
since 2005, the pounds of GHG emissions (carbon dioxide, nitrous oxide, and methane) produced
1 The 2011 update utilized the CACP 2009 Version 3.0 software.
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per megawatt hour of electricity fell for both SDG&E and regional power generation—except for
CO2 emissions from SDG&E power, which rose significantly (35%). The reason for this
difference is unknown; SDG&E would not respond to our questions. The coefficients for SDG&E
in 2005 were notably lower than in all other recent years, however, with a major decline from
2004 to 2005, followed by large increases between 2005 and 2007, and thereafter. This pattern
suggests that SDG&E’s low energy coefficients for 2005 were abnormal, with the 2010
coefficients (used for the 2011 Inventory) more in line with recent trends.
A second issue shown by Table 3 is that in 2005, SDG&E power was significantly cleaner than
power purchased from elsewhere (about 24% less CO2), but by 2009-2010 SDG&E power
produced more GHG emissions than other regional power (12% more CO2).
Table 3: Electricity Coefficients (lb/MWh)
Year CO2 N2O CH4
Bundled Service (SDG&E)
20051 546.50 0.011 0.030
20102* 739.05 0.0081 0.0302
% Increase +35% -26% +1%
Direct Access Electricity (eGRID)
2005 724.12 0.00808 0.03024
20093* 658.68 0.00617 0.02894
% Change -9% -24% -4%
*Data used for Carlsbad 2011 inventory update.
1. Data from CACP model.
2. Data from www.climateregistry.org
3. 2009 eGRID coefficients for N2O and CH4 converted from
lb/GWh by dividing by 1,000. All 2009 coefficients are the
“subregion annual total output emission rate.”
Natural Gas Coefficients
The default values in the CACP model were used; they are the same as those used in 2005.
Transportation
We used the default assumptions for San Diego County within CARB’s GHG emissions models,
EMFAC2007 and OFFROAD2007 (from 2007) and EMFAC2011 (from 2011).
Solid Waste
The default values in the CACP model were used; they are the same as those used in 2005.
INPUTS AND METHODOLOGY
This section describes the data used to calculate 2011 emissions and the manner in which the data
was acquired, transformed, and used. The 2005 emissions measurement process was organized
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around source sector; this structure was maintained for the 2011 effort. The table at the end of this
section compares the 2005 and 2011 inputs.
Residential / Commercial / Industrial (RCI)
The inputs for these three sectors are the same: inputs are electricity and natural gas consumed,
broken into bundled and direct access, and entered into CACP. All of the data is from SDG&E.
• Bundled electricity is produced for SDG&E and transmitted by SDG&E. The electricity
coefficients for SDG&E, based on the utility’s mix of power sources and technology,
determine the CO2e produced.
• Direct access electricity is produced elsewhere in the region but ultimately transmitted to
the consumer by SDG&E. Given the wide mix of possible producers, regional electricity
coefficients are applied to determine CO2e.
• Natural gas produces the same CO2e regardless of source.
Table 4 shows the 2011 RCI inputs compared to the 2005 inputs. There were some changes
between bundled and direct access service—see the data file for those details. Most energy
consumption increased between 1.4 and 2.5 percent per year. The exceptionally high industrial
natural gas consumption in 2005 appears to include use by the Encina Power Station, which was
removed from the final numbers of that inventory; the 2011 Inventory data does not include the
station.
Table 4: RCI Inputs
2005 2011 Change Avg Annual
Residential Electric (kWh) 249,286,797 275,033,189 10% 1.7%
Natural Gas (therms) 13,861,471 15,769,481 14% 2.2%
Commercial Electric (kWh) 379,244,330 411,249,580 8% 1.4%
Natural Gas (therms) 6,779,454 7,844,336 16% 2.5%
Industrial Electric (kWh) 114,639,521 116,341,521 1% 0.2%
Natural Gas (therms) 234,647,345* 1,536,470 - -
*Includes use by Encina Power Station
Table 5 summarizes the communitywide consumption of electricity and natural gas. Electricity
consumption grew at the rate of job creation and below the rate of population growth, but natural
gas consumption grew faster than the city.
Table 5: Communitywide Summary of Electricity and Gas Consumption
2005 2011 Change Avg Annual
Electric (kWh) 743,170,648 802,624,290 8% 1.3%
Natural Gas (therms)* 20,640,925 23,613,817 14% 2.3%
*Excludes industrial
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Transportation – Vehicles
The 2005 inventory used the EMFAC2007 model created by CARB due to its “regionally-
specific information on the mix of vehicle classes and model years, as well as ambient conditions
and travel speeds, that determine fuel efficiency.” As inputs, emissions from local roadway VMT
and freeway VMT were determined separately.
• Local roadway VMT was taken from the Caltrans HPMS (Highway Performance
Monitoring System), which provides a citywide daily VMT for all local roadways except
federal and state highways (i.e., I-5).
• Daily VMT for I-5 was acquired from SANDAG regional GIS files and clipped to the
city limits.
• EMFAC2007 apparently produced CO2 and CH4 outputs in short tons (2,000 pounds) for
each VMT, broken down by gasoline and diesel.
• CH4 was converted into CO2e by multiplying it by 21.
• Daily CO2e was multiplied by 365 days and converted to metric tons, which are 1,000
kilograms, but multiplying “short tons” by 0.9072.
• The State highway CO2e was also multiplied by 0.94 to convert weekday only data into
average 7-day data.
For the 2011 inventory update, SANDAG provided 2008 and 2011 VMT data for two scenarios:
the first which captures all VMT within the City of Carlsbad, the second excluding pass-through
trips, or trips neither originating nor ending within the City of Carlsbad. Examples of pass-
through trips are trips on the I-5 freeway and other major streets where drivers do not begin or
end within the City of Carlsbad. Table 6 shows a comparison of VMT from 2005 and 2011 both
including and excluding pass-through trips. In both 2005 and 2011, the VMT excluding pass-
through trips was less than one-half of the total VMT.
Table 6: Annual Vehicle Miles Travelled within City of Carlsbad Including and
Excluding Pass-Through Trips
2005* % of
Total
2011 % of
Total
VMT including pass-through trips 1,077,348,687 - 1,203,623,632 -
VMT excluding pass-through trips 505,241,237 47% 510,973,969 42%
*Estimated by linear interpolation of 2008 SANDAG data
The 2011 Inventory uses VMT excluding pass-through trips to capture transportation emissions
from trips originating or ending within the City of Carlsbad. Residents, commuters and the City
have a limited ability or are unable to influence pass-through trips, which contribute a substantial
amount to VMT totals. Therefore, pass-through trips were excluded from this inventory.
Table 7 compares the 2005 annual VMT to 2011 VMT. The VMT in Carlsbad grew at a slower
rate than population growth. The low rate of growth in VMT could have been caused by regional
economic slowdown.
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Table 7: Annual Vehicle Miles Travelled within City of Carlsbad Excluding Pass-
Through Trips
2005* 2011 Change Avg Annual
VMT 505,241,237 510,973,969 1% 0.2%
*Estimated by linear interpolation from 2008 SANDAG data
The inventory update uses CARB’s latest model, EMFAC2011, which 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.
• Carbon dioxide emissions were calculated using the SG module. The model was set to
San Diego County, CY 2011, Annual, using the citywide annual VMT for 2011. We used
the CO2 emissions output that assumes Pavley I and low carbon fuel standard (LCFS).
• Methane emissions are not calculated by the SG module, so the LDV module was used to
calculate CH4 from light duty vehicles, with emissions from heavy duty vehicles
calculated using a formula. We used the following process:
o The SG module automatically distributes overall VMT into different vehicle
types using a regionally-specific mix.
o These SG vehicle types were compared to the vehicle models in the LDV module
and manually categorized into light and heavy duty.
o The VMT for light duty vehicles was then entered into the LDV module, which
calculated CH4 for light duty vehicles.
o For heavy duty vehicles, we summed the Total TOG Emissions and multiplied by
0.0408 to get CH4. Calculation is from CARB:
http://www.arb.ca.gov/msei/emfac2011-faq.htm#emfac2011_web_db_qstn07
Transportation – Off Road
As with the 2005 inventory, CARB’s OFFROAD2007 model was used. It was run with the
settings: 2011 CY, Mon-Sun (all days), Annual, HC emissions as TOG, Area = San Diego
County; all equipment, fuel, and horsepowers.
The model generates emission outputs for 16 categories across San Diego County. The 2005
inventory used 4 categories that generate the most emissions: lawn and garden equipment,
construction equipment, industrial equipment, and light commercial equipment.
The CO2, N2O, and CH4 emissions are 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.
Solid Waste
For methane emissions from the one landfill in the city limits, the closed Palomar Airport
Landfill, we used the same data from 2005 – it is unlikely to have changed much, if at all.
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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
As in 2005, the EPIC estimate of GHG emissions from countywide wastewater treatment was
used and pro-rated to Carlsbad’s share of the county population. For unknown reasons,
countywide GHG emissions from wastewater treatment went up significantly from 2005 to 2011,
increasing by 32 percent. While this emissions increase was not caused by Carlsbad per se, the
community is considered responsible for it. That said, these emissions from wastewater make up
a very small proportion of Carlsbad’s overall GHG emissions.
OUTPUTS
The majority of emissions growth came from commercial and residential electricity and natural
gas consumption, although this was highly influenced by the large increase in emissions from
SDG&E electricity generation since 2005. Transportation emissions decreased by 5 percent,
though VMT rose by 1 percent, likely a sign that cleaner vehicles are making an impact.
Emissions from solid waste decreased along with the decline in the tonnage of waste disposed,
possibly due to the economic recession, while emissions from wastewater treatment went up
regionally but are a relatively small number. Table 8 summarizes the sources and amounts of
communitywide emissions.
Table 8: GHG Emissions 2005 vs. 2011 (metric tons CO2e)
Sector Subsector
2005
Emissions
2011
Emissions
%
Growth
Avg Annual
Rate
Residential Bundled Electricity 62,105 92,500
Bundled Natural Gas 74,137 83,698
Direct Access Electricity 185 81
Direct Access Natural
Gas - 126
Total Residential 136,427 176,405 29% 4.38%
Commercial Bundled Electricity 83,303 125,314
Bundled Natural Gas 35,843 37,731
Direct Access Electricity 15,049 11,701
Direct Access Natural
Gas 416 3,966
Total Commercial 134,611 178,712 33% 4.84%
Industrial Bundled Electricity 16,812 29,329
Bundled Natural Gas 3,013 -
Direct Access Electricity 15,605 8,765
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Direct Access Natural
Gas - 8,154
Total Industrial 35,430 46,248 31% 4.54%
Transportation On-Road Total 260,467 239,467 -8% -1.39%
Lawn and Garden
Equipment 2,099 2,449 17% 2.60%
Construction Equipment 19,861 23,830 20% 3.08%
Industrial Equipment 4,349 4,943 14% 2.16%
Light Commercial
Equipment 2,654 3,056 15% 2.38%
Off-Road Subtotal 28,963 34,279 18% 2.85%
Total Transportation 289,430 273,745 -5% -0.9%
Solid Waste
Community-generated
solid waste 27,417 21,719 -21% -3.81%
Landfill Waste-in-Place 2,598 2,598 0% 0.00%
Total Solid Waste 30,015 24,317 -19% -3.45%
Wastewater
Total Community-
generated Wastewater 4,397 6,317 44% 6.23%
GRAND TOTALS 630,310 705,744 12% 1.90%
The RCI numbers in the above table can be hard to compare, due to growth in energy
consumption being mixed with switches between bundled service and direct access. Table 9
summarizes emissions by power source and sector. From this table, it is clear that the relative and
absolute increase in emissions from electricity is a major contributor to the communitywide
growth in emissions.
Table 9: Emissions from Electricity and Natural Gas Summarized
Category 2005 CO2e 2011 CO2e % Growth AARG
Residential-Electric 62,290 92,581 49% 6.8%
Residential-NG 74,137 83,824 13% 2.1%
Commercial-Electric 98,352 137,015 39% 5.7%
Commercial-NG 36,259 41,697 15% 2.4%
Industrial-Electric 32,417 38,094 18% 2.7%
Industrial-NG 3,013 8,154 171% 18.0%
OVERALL RCI 306,468 401,365 31% 4.6%
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CONCLUSIONS
Overall the communitywide GHG emissions from Carlsbad increased by 12 percent between
2005 and 2011, equivalent to the rate of population and job household growth during that time.
As a result, the GHG emissions per service population held steady since 2005, as shown in Table
10.
Table 10: Emissions per Service Population
2005 2011 % Change
GHG Emissions (MTCO2e) 630,310 705,745 12.0%
Service Population 154,270 172,820 12.0%
Emissions per Service Population 4.09 4.08 -0.1%
Table 11 shows where the growth in emissions came from. The largest contributors to additional
emissions came from commercial electricity usage (37%), followed by residential electricity
usage (29%). All other emissions increased lower 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, this increase is largely fueled by the large 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 switched from cleaner direct access electricity to
“dirtier” sources.
Table 11: 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%
TOTALS 630,310 705,744 75,434
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Table 12 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
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 12: 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
DYETT & BHATIA
Urban and Regional Planners
MEMORANDUM
To: David de Cordova
From: Chris Ford
Re: Carlsbad Government Operations Greenhouse Gas Inventory Update – 2011
Date: June 18, 2013
This memo summarizes the approach taken to update the 2005 Greenhouse Gas (GHG)
Emissions Inventory from City of Carlsbad government operations with 2011 data and
compares the inputs and outputs. A separate memo covers community emissions, updated
with 2011 data. That memo is referenced in this one to minimize repetition of information.
The content of these memos will contribute to the summary of Carlsbad’s GHG emissions in
the forthcoming Climate Action Plan (CAP); the memos may be placed in an appendix to the
CAP.
Technical terms and acronyms that appear in this memo are listed in Table 1.
Table 1: Technical Terms and Acronyms
CACP Clean Air and Climate Protection software, a model developed by ICLEI to inventory and
forecast GHG emissions
CAP Climate Action Plan
CARB California Air Resources Board, the agency responsible for setting statewide GHG emission
reduction targets. CARB also maintains several GHG emission calculation models.
CO2e Carbon dioxide equivalents, a measure of GHGs that converts non-CO2 emissions to the
same impact as carbon dioxide
EPA US Environmental Protection Agency
FTE Full-Time Equivalent employees
GHG Greenhouse gases, mainly carbon dioxide (CO2), carbon dioxide, nitrous oxide (N2O), and
methane (CH4)
ICLEI An organization that provides standards and models for measuring and forecasting GHG
emissions
SDG&E San Diego Gas and Electric, the energy utility for Carlsbad
VMT Vehicle Miles Traveled, a measure of the annual amount of driving within an area, used to
calculate GHG emissions from vehicles
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ASSUMPTIONS
As with the 2005 inventory, ICLEI’s CACP1 model was used to estimate emissions from local
government operations across all sectors. Unlike with community emissions, CACP was the
only model employed.
Three sectors analyzed— employee commute, stationary refrigerants, and solid waste—are
“Scope 3” emissions. These emissions are not part of the government operations emissions
inventory as they are indirectly caused by the City, but this memo reports on their impact.
Employees
Between 2005 and 2011, the number of full-time equivalent (FTE) employees at the City of
Carlsbad increased by 4.2 percent, growing from 793 to 826 FTE. This percent change is used
to estimate pro-rated increases in certain emissions since 2005.
Electricity Coefficients
Electricity coefficients measure how much GHG emission and air pollution is created by
various sources of electricity generation. The government operations inventory uses the same
electricity coefficients as the community inventory; see that other memo for a discussion on
the increase in GHG emissions per megawatt hour from SDG&E electricity since 2005.
Natural Gas Coefficients
The default values in the CACP model were used; they are the same as those used in 2005.
Transportation
Local government emissions from vehicles were estimated using the CACP model. For NO2
and CH4 emissions, CACP only includes emissions factors through model year 2005. The
CACP instructions include additional factors that can be manually entered for model years
2006-2008; we also got newer information from the latest US EPA Inventory of US GHG
Emissions and Sinks report, the source used by ICLEI. This 2013 version of the EPA report2
includes newer emissions factors, although the applicable date is not specified; the factors for
gasoline are similar to the 2008 factors, therefore they were applied for model years 2009
onwards. Table 2 shows the emissions factors we entered into CACP for gasoline vehicles
with model years of 2006 and later.
Table 2: Emissions Factors from Gasoline Fueled Vehicles, Model Years 2006 On
Fuel Vehicle Type Model Year NO2 factor CH4 factor
Gasoline Passenger car 2006 0.0057 0.0161
Gasoline Passenger car 2007 0.0041 0.0170
Gasoline Passenger car 2008 0.0038 0.0172
1 The 2011 update utilized the CACP 2009 Version 3.0 software.
2 We found the 2013 report, which includes newer factors in Annex 3 of the report, although the applicable
date is not specified. http://www.epa.gov/climatechange/ghgemissions/usinventoryreport.html
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Table 2: Emissions Factors from Gasoline Fueled Vehicles, Model Years 2006 On
Fuel Vehicle Type Model Year NO2 factor CH4 factor
Gasoline Passenger car 2009+ 0.0036 0.0173
Gasoline Light trucks 2006 0.0089 0.0159
Gasoline Light trucks 2007 0.0079 0.0161
Gasoline Light trucks 2008 0.0066 0.0163
Gasoline Light trucks 2009+ 0.0066 0.0163
Gasoline Heavy trucks 2006 0.0175 0.0326
Gasoline Heavy trucks 2007 0.0173 0.0327
Gasoline Heavy trucks 2008 0.0171 0.0327
Gasoline Heavy trucks 2009+ 0.0134 0.0333
Sources: 2006-08 model years from ICLEI Local Government Operations Inventory Instructions, referencing
LGO Protocol table G.12: Based on U.S. EPA Inventory of U.S. Greenhouse Gas Emissions and Sinks: 1990-
2008 (2010). 2009+ model years from EPA Inventory of U.S. Greenhouse Gas Emissions and Sinks: 1990-
2011 (2013), Annex 3.
The 2013 EPA report’s emissions factors for diesel are the same as for model years 1996-2004,
so diesel vehicles were handled through the regular CACP calculation.
Solid Waste
The default values in the CACP model were used.
INPUTS AND METHODOLOGY
This section describes the data used to calculate 2011 emissions and the manner in which the
data was acquired, transformed, and used. The table at the end of this section compares the
2005 and 2011 inputs.
Buildings and Other Facilities
The inputs for this sector are electricity and natural gas. Data was entered by individual
facility with departmental information also entered. Since the 2005 inventory through 2011, a
number of new or expanded facilities have been added to the City’s operations: Fire Station
No. 6, Senior Center expansion, Recycled Water Facility, Aviara Community Park, Hidden
Canyon Park, Pine Avenue Park, The Crossings golf course, and the Hawthorne Equipment
Building. During the same period, the Library Learning Center replaced the Adult Learning
Center and Centro de Informacion. These additional facilities account for the majority of the
change in electricity and natural gas consumption.
Table 3 lists all of the buildings and facilities operated by the city, comparing electricity and
natural gas inputs between 2005 and 2011. Overall, the City’s facilities consumed 21 percent
more electricity and 10 percent more natural gas in 2011 compared to 2005.
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Table 3: Building and Facilities Inputs
2005 2011 % Change
Department Building Electricity
(kWh)
Natural gas
(therms)
Electricity
(kWh)
Natural gas
(therms)
Electricity
(kWh)
Natural gas
(therms)
City City Administration 1,099,520 1,430 1,203,726 1,738 9% 22%
City City Hall 294,080 8,552 233,680 5,313 -21% -38%
City Farmers Insurance
Bldgs
167,055 71 112,057 - -33% -100%
City Hawthorne
Equipment Bldg
N/A N/A 10,040 - N/A
City Total 1,560,655 10,053 1,559,503 7,051 0% -30%
Community
Development
Hiring Center 6,299 - 6,972 - 11%
Community
Development
Las Palmas 22,720 - 55,570 - 145%
Community Development Total 29,019 62,542 116% -
Fire Fire Station No. 1 85,720 900 63,600 1,358 -26% 51%
Fire Fire Station No. 2 29,847 676 32,643 1,069 9% 58%
Fire Fire Station No. 3 33,713 525 33,972 675 1% 29%
Fire Fire Station No. 4 31,434 544 28,867 1,062 -8% 95%
Fire Fire Station No. 5 108,560 2,231 98,720 2,061 -9% -8%
Fire Fire Station No. 6 N/A N/A 55,180 1,464 - N/A
Fire Total 289,274 4,876 312,982 7,689 8% 58%
Golf Course The Crossings 1,056,015 18,019 - -
Library Adult Learning
Center
9,078 - - - - -
Library Cole Library 454,560 3,835 430,160 2,119 -5% -45%
Library Cultural Arts
Department
17,506 381 14,444 321 -17% -16%
Library Dove Library 1,288,533 15,487 1,432,492 11,200 11% -28%
Library Library Learning
Center
32,960 766 192,000 421 483% -45%
Library Total 1,802,637 20,469 2,069,096 14,061 15% -31%
PD/Fire Safety Center 1,163,336 20,845 988,001 19,816 -15% -5%
Public Works City Yard 100,861 474 88,335 729 -12% 54%
Public Works CMWD M&O 197,920 754 189,440 86 -4% -89%
Public Works Fleet Yard 72,640 1,158 72,320 456 0% -61%
Public Works Parks Maintenance 29,474 117 39,694 149 35% 27%
Public Works Total 400,895 2,503 389,789 1,420 -3% -43%
Recreation Calavera Community
Center
70,318 - 54,970 - -22% -
Recreation Carrillo Ranch 58,320 - 58,080 - 0% -
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Table 3: Building and Facilities Inputs
2005 2011 % Change
Department Building Electricity
(kWh)
Natural gas
(therms)
Electricity
(kWh)
Natural gas
(therms)
Electricity
(kWh)
Natural gas
(therms)
Recreation Harding Community
Center
76,040 1,063 60,120 952 -21% -10%
Recreation Parks Total 773,551 2,122 914,888 3,006 18% 42%
Recreation Senior Center 224,100 6,319 308,318 3,349 38% -47%
Recreation Stagecoach
Community Center
215,360 1,602 195,920 1,424 -9% -11%
Recreation Swim Complex 202,520 31,116 247,240 34,266 22% 10%
Recreation Trails 7,115 - 65,929 - 827% -
Recreation Total 1,627,324 42,222 1,905,465 42,997 17% 2%
Housing and Neighborhood
Services
22,736 - 31,277 - 38% -
TOTALS 6,895,876 100,968 8,374,670 111,053 21% 10%
Public Lighting
This sector covers electricity consumed from three sources: traffic signals, streetlights, and
other outdoor lighting. As shown in Table 4, streetlights make up the great majority of
electricity consumption in this sector. Between 2005 and 2011, this sector consumed 4
percent less electricity, with the small increase in traffic signal and controller use more than
offset by the declines in streetlight and outdoor lighting consumption. During this period, the
city retrofitted its existing streetlights with more energy-efficient lamps.
Table 4: Public Lighting Inputs (kWh)
2005 % of Total 2011 % of Total % Change
Streetlights 4,652,801 86% 4,403,265 85% -5%
Traffic Signals/Controllers 750,417 14% 768,784 15% 2%
Outdoor Lighting 20,988 0% 17,740 0% -15%
TOTALS 5,424,206 5,189,789 -4%
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 5 shows the electricity consumed by the City’s water and wastewater transport systems
in 2005 and 2011. During that time, electricity used by these systems increased by 29 percent.
Much of that change can be attributed to a major increase in electricity used by recycle pump
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stations, as the city’s recycled water facility came online in late 2005. Sewage pumps also used
significantly more electricity (22% increase), as did sprinklers and irrigation (72% increase)
although the amount was comparatively small. Water delivery pumps actually decreased in
electricity consumption by 21 percent.
Table 5: Waste and Wastewater Transport Inputs (kWh)
2005 % of Total 2011 % of Total % Change
Recycle Pump Stations 418,980 23% 791,732 34% 89%
Sewage Pumps 1,038,941 57% 1,262,824 53% 22%
Water Delivery Pumps 360,237 20% 285,345 12% -21%
Sprinklers/Irrigation 13,151 1% 22,554 1% 72%
TOTALS 1,831,309 2,362,455 29%
Vehicle Fleet
The inputs for this sector are all the 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 6 summarizes the inputs in 2005 and 2011 by vehicle and fuel type. There likely was
some different categorization in terms of vehicle types in 2005, especially between light and
heavy trucks, but overall fuel consumed and VMT by fuel type should be comparable. While
there was a notable increase in diesel consumption and VMT, this was more than offset by a
sharp decline in gasoline consumption and VMT.
Table 6: Vehicle Fleet Inputs
2005 2011 % Change
Fuel (gal) VMT Fuel (gal) VMT Fuel (gal) VMT
Diesel 54,589 284,526 62,407 407,826 14% 43%
Light Truck/SUV/Pickup 8,443 87,570 31,162 298,388
Heavy Truck 46,146 196,956 31,245 109,438
Gasoline 207,286 2,580,657 167,345 1,965,416 -18% -24%
Passenger Car 99,396 1,487,843 85,874 931,979
Motorcycle 2,374 N/A 1,787 74,024
Light Truck/SUV/Pickup 88,329 982,401 76,663 938,733
Heavy Truck 17,187 110,413 3,021 20,680
Hybrid - - 3,581 137,096
Passenger Car 2,478 108,136
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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.
Mobile Refrigerants
Refrigerants come from stationary and mobile sources. Stationary sources are described
under Scope 3 emissions.
Mobile source refrigerants come from estimated leakage from the vehicle fleet. The 2005
inventory undertook a very complex and thorough analysis based on attributes of each
vehicle in the fleet, using the make, model, year, and time in service to determine refrigerant
type and capacity and calculate estimated emissions. Ultimately, the GHG emissions from
mobile refrigerants made up less than one percent of government operations emissions in
2005.
Given the small impact of these mobile refrigerants and the time already invested in the 2005
analysis, we used the 2005 output and pro-rated it for 2011 based on the relative sizes of the
vehicle fleet. The 2005 fleet had 264 vehicles compared to 291 vehicles in the 2011 fleet, a 10
percent increase. Therefore, we estimated a 10 percent increase in GHG emissions from
mobile sources for 2011.
Scope 3 Emissions
These emissions are not part of the government operations inventory as they are indirectly
caused by the City.
Employee Commute
The City conducted an employee commute survey in 2009 which was applied to the 2005
inventory. Given that only two years elapsed between the survey and the year of this GHG
emissions inventory update, it was assumed that the mode split, fuel consumption, and VMT
data from the survey were still applicable. As with the 2005 inventory, the results from usable
survey responses were extrapolated to apply to all City FTE. Since the 2011 FTE is 4.2 percent
higher than the 2005 FTE, the fuel usage and VMT inputs for 2011 were 4.2 percent higher
than in 2005.
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Stationary Refrigerants
Stationary sources come from equipment installed in facilities. The 2005 inventory identified
refrigerants used to service equipment in five buildings: Las Palmas, Harding Community
Center, City Administration, the Safety Center, and the Senior Center. The 2011 inventory
identified refrigerant use in four buildings: City Administration, City Hall, Dove Library, and
the Senior Center. Refrigerants use was less in 2011 than in 2005, by around half (117.50 kg
compared to 234.51 kg).
Solid Waste
The City undertook a thorough evaluation of solid waste generated by City facilities in 2005.
Given that solid waste generation is typically correlated to number of people, we pro-rated
the amount of solid waste based on the increase in FTE between 2005 and 2011, which was
4.2 percent.
Sectors Not Considered
The City does not operate port, airport, wastewater, or solid waste facilities, provide transit
services, or generate electric power.
CONCLUSIONS
City operations in 2011 generated an estimated 8,205 metric tons CO2e in GHG emissions,
compared to an estimated 6,556 metric tons CO2e in 2005, an increase of 25 percent, as
shown in Table 7. City operations still accounted for a very small proportion of the GHG
emissions from Carlsbad in 2011, making up 0.8 percent of emissions, the same as in 2005.
Table 7: Government Operations Emissions – 2005 vs. 2011 (metric tons CO2e)
2005 2011 % Change
Total emissions 6,556 8,205 25.2%
Carlsbad - Service Population 154,270 172,820 12.0%
Community emissions 925,248 1,030,353 11.4%
Government operations as
proportion of community emissions 0.7% 0.8% 13.1%
The rate of growth in government emissions between 2005 and 2011 was higher than the
rates of increase in Carlsbad’s service population (12.0%) and communitywide GHG
emissions (11.4%). The main reasons for the increase in government operations emissions
appear to be twofold:
• A sharp increase in electricity consumed by water and wastewater transport services,
especially recycled water pumps; and
• More emissions from electricity per megawatt hour, an issue that also affected
communitywide emissions and further discussed in that memo.
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Emissions by Sector
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%), as shown in Table 8.
Compared to 2005, the proportion of city government emissions from buildings and facilities
increased from 35 percent to 42 percent, increasing by 50 percent and making up more than
two-thirds of the growth in emissions. As explained above, this is largely due to the opening
of new buildings and recreation facilities since 2005.
Meanwhile, compared to 2005, the proportion of emissions from lighting and
water/wastewater transport stayed largely the same, but the actual emissions from these
sectors grew by 29 percent and 72 percent, respectively. Note that public lighting emissions
increased by despite that sector consuming 4 percent less electricity in 2011 compared to
2005. This outcome is a result of the much greater amount of emissions produced per
megawatt hour of electricity in 2011 compared to 2005.
Meanwhile, vehicle fleet emissions decreased by 9 percent during the same period, due to
major decreases in the miles driven and gallons of gasoline consumed.
Table 8: Emissions by Sector (metric tons CO2e)
Source 2005
% of
Total 2011
% of
Total
2005 to 2011
Increase
% Growth % of
Growth
Buildings and Facilities 2,266 35% 3,410 42% 1,144 50% 69%
Vehicle Fleet 2,474 38% 2,253 27% -221 -9% -13%
Public Lighting 1,354 21% 1,747 21% 393 29% 24%
Water and Wastewater
Transport 461 7% 795 10% 334 72% 20%
TOTALS 6,556 8,205 1,650 25%
Emissions by Source
Most of the government operations emissions in 2011 came from electricity consumption,
accounting for 65 percent of emissions, an increase from 59 percent in 2005. GHG emissions
from electricity increased by 52 percent between 2005 and 2011, as shown in Table 9.
Electricity was the source of almost all of the increase in emissions—more than the total
increase, in fact, but offset by the decline in emissions from gasoline. Emissions from gasoline
dropped by 17 percent, which caused gasoline to decline from 31 to less than 19 percent of
government operation emissions between 2005 and 2011. Emissions from diesel grew by 13
percent and from natural gas and mobile refrigerants by 10 percent each, although all from
relatively small bases.
Table 9: Emissions by Source (metric tons CO2e)
Source 2005 % of 2011 % of 2005 to 2011 % Growth % of
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Total Total Increase Growth
Electricity 3,534 58.7% 5,362 65.4% 1,828 52% 111%
Gasoline 1,853 30.8% 1,538 18.7% -315 -17% -19%
Diesel / Propane 566 9.4% 641 7.8% 75 13% 5%
Natural Gas 537 8.9% 590 7.2% 53 10% 3%
Mobile Refrigerants 67 1.1% 74 0.9% 7 10% 0%
TOTALS 6,557 8,205 1,648 25%
Sector 3 Emissions
Employee commute and solid waste emissions were estimated for 2011 based on pro-rating
various indicators and loading them into the CACP model for calculation. See the
Assumptions section above for more details.
• Employee commute emissions were estimated at 2,567 metric tons CO2e in 2011,
compared to 2,417 metric tons CO2e in 2005, an increase of 6.2 percent.
• Stationary refrigerant emissions were estimated at 173 metric tons CO2e in 2011,
compared to 399 metric tons CO2e in 2005, a decrease of 57 percent.
• Solid waste emissions were estimated at 144 metric tons CO2e in 2005, the same as in
2011.
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Urban and Regional Planners
Appendix C
References
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_00
0.pdf. Accessed on: March 5, 2014.
California Air Pollution Control Officers Association (CAPCOA). 2008. CEQA and Climate
Change, Evaluating and Addressing Greenhouse Gas Emissions from Projects Subject
to the California Environmental Quality Act (January 2008) (hereinafter, “CAPCOA
white paper”), Available:
http://www.capcoa.org/wp-content/uploads/2012/03/CAPCOA-White-Paper.pdf.
Accessed on December 5, 2014.
California Air Resources Board (CARB). 2011. Emissions Factors On-Road Motor Vehicles
(EMFAC 2011). Available: http://www.arb.ca.gov/msei/categories.htm. Accessed on:
August 26, 2013.
California Department of Justice, Office of the Attorney General. Addressing Climate Change
at the Project Level. Available:
http://ag.ca.gov/globalwarming/pdf/GW_mitigation_measures.pdf. Accessed on:
December 5, 2014.
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. Accessed on: March 5, 2014.
California Governor’s Office of Planning and Research. 2008. CEQA and Climate Change:
Addressing Climate Change Through California Environmental Quality Act (CEQA).
Available:
http://opr.ca.gov/docs/june08-ceqa.pdf. Accessed on December 5, 2014.
California Public Utilities Commission. 2010. California’s Long-Term Energy Efficiency
Strategic Plan. “Chapter 13: Lighting.” Available:
http://www.cpuc.ca.gov/NR/rdonlyres/6234FFE8-452F-45BC-A579-
A527D07D7456/0/Lighting.pdf. Accessed on: March 5, 2014.
APPENDIX C: REFERENCES
Cambridge Systematics. 2009. “Moving Cooler: An Analysis of Transportation Strategies for
Reducing Greenhouse Gas Emissions.” Technical Appendices. Prepared for the
Urban Land Institute. Accessed on: March 5, 2014.
Carlsbad Municipal Water District. 2011. 2010 Urban Water Management Plan. Available:
http://www.carlsbadca.gov/services/departments/water/Documents/2010-
UWMP.pdf. Accessed on: March 5, 2014.
Center for Clean Air Policy. 2014. Transportation Emission Guidebook. Available:
http://www.ccap.org/safe/guidebook/guide_complete.html. Accessed on: March 5,
2014.
Center for Sustainable Energy California. 2014. Self-Generation Incentive Program
Handbook. Available: https://www.selfgenca.com/documents/handbook/2014.
Accessed on: March 5, 2014.
City of Carlsbad. General Plan, September 2015.
City of San Diego. 2013. Draft Significance Thresholds for Greenhouse Gas Emissions.
Available:
http://www.sandiego.gov/planning/genplan/cap/pdf/ghg_significance_thresholds_03
2213.pdf. Accessed on: March 5, 2014.
Energy Star. 2014. “Light Bulbs.” Available:
http://www.energystar.gov/index.cfm?fuseaction=find_a_product.showProductGrou
p&pgw_code=LB. Accessed on: March 5, 2014.
Gordon, Clark; Silva-Send, Nilmini; and Anders, Scott J. 2013. Energy Policy Initiatives
Center: Community-Scale Greenhouse Gas Emissions Model: San Diego Region.
Technical Documentation and Methodology. Version 1.0. Available:
http://www.sandiego.edu/climate/documents/TechnicalDocumentationandMethodol
ogy.pdf. Accessed on: January 28, 2015.
ICLEI. 2009. Clean Air and Climate Protection (CACP). Available:
http://www.icleiusa.org/tools/cacp-2009. Accessed on: August 26, 2013.
J. Loux, R. Winer-Skonovd, and 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. Available:
http://www.jwsponline.com/uploadpic/Magazine/pp%2055-77%20JWS-A-12-
002%20New.pdf. Accessed on: March 5, 2014.
National Oceanic and Atmospheric Administration (NOAA). 2014. “Trends in Atmospheric
Carbon Dioxide.” Available: http://www.esrl.noaa.gov/gmd/ccgg/trends/. Accessed
on: March 5, 2014.
SANDAG. 2012. Integrating Transportation Demand Management Into the Planning and
Development Process: a reference for cities. Available:
http://www.icommutesd.com/documents/tdmstudy_may2012_webversion_000.pdf.
Accessed on: March 5, 2014.
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CARLSBAD CLIMATE ACTION PLAN
C-3
SANDAG. 2014. Draft Climate Change Mitigation and Adaptation White Paper. 2014.
Available:
http://sdforward.com/sites/sandag/files/Climate%20Change%20White%20Paper%20-
%20Draft_fwe.pdf. Accessed on December 5, 2014.
SANDAG. 2014. “Energy Roadmap for Local Governments.” Available:
http://www.sandag.org/index.asp?classid=17&projectid=373&fuseaction=projects.det
ail . Accessed: February 25, 2014.
U.S. Census Bureau. 2012. American Community Survey. Selected Economic Characteristics
for Carlsbad, California. Available: http://factfinder2.census.gov/. Accessed on:
March 5, 2014.
U.S. Energy Information Administration. 2013. “How much electricity is used for lighting in
the United States?” Available: http://www.eia.gov/tools/faqs/faq.cfm?id=99&t=3.
Accessed on: March 5, 2014.
United States Census Bureau. 2011. “Census Bureau Releases 2010 Census Demographic
Profiles for Alaska, Arizona, California, Connecticut, Georgia, Idaho, Minnesota,
Montana, New Hampshire, New York, Ohio, Puerto Rico and Wisconsin.” Available:
http://www.census.gov/newsroom/releases/archives/2010_census/cb11-cn137.html.
Accessed on: March 5, 2014.
United States Department of Energy. 2011. 2010 California Energy Use. Available:
http://www.eia.gov/state/?sid=CA/. Accessed on: March 5, 2014.
United States Environmental Protection Agency (EPA). 2013. “Sources of Greenhouse Gas
Emissions.” Available:
http://www.epa.gov/climatechange/ghgemissions/sources/transportation.html.
Accessed on: March 5, 2014.
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. Available: http://aquanovallc.com/wp-
content/uploads/2010/09/URBAN-WATER-AND-ENERGY-USE.pdf. Accessed on:
March 5, 2014.
APPENDIX C: REFERENCES
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Appendix D
Applicable General
Plan Policies
Chapter 2: Land Use and Community Design
2-P.24 Build and operate commercial uses in such a way as to complement but not
conflict with adjoining residential areas. This shall be accomplished by:
a. Controlling lights, signage, and hours of operation to avoid adversely
impacting surrounding uses.
b. Requiring adequate landscaped buffers between commercial and residential
uses.
c. Providing bicycle and pedestrian links between commercial centers and
surrounding residential uses, and providing bicycle-parking racks.
d. Ensuring building mass does not adversely impact surrounding residences.
2-P.25 Ensure that commercial development is designed to include:
a. Integrated landscaping, parking, signs, and site and building design
b. Common ingress and egress, safe and convenient access and internal
circulation, adequate off-street parking and loading facilities. Each
commercial site should be easily accessible by pedestrians, bicyclists, and
automobiles to nearby residential development.
c. Architecture that emphasizes establishing community identity while
presenting tasteful, dignified and visually appealing designs compatible with
their surroundings.
d. A variety of courtyards and pedestrian ways, bicycle facilities, landscaped
parking lots, and the use of harmonious architecture in the construction of
buildings
2-P.45 Evaluate each discretionary application for development of property with regard
to the following specific criteria:
a. Site design and layout of the proposed buildings in terms of size, height and
location, to foster harmony with landscape and adjacent development.
b. Site design and landscaping to provide buffers and screening where
appropriate, conserve water, and reduce erosion and runoff.
c. Building design that enhances neighborhood quality, and incorporates
considerations of visual quality from key vantage points, such as major
transportation corridors and intersections, and scenic vistas.
APPENDIX D: APPLICABLE GENERAL PLAN POLICIES
D-2
d. Site and/or building design features that will reduce greenhouse gas emissions
over the life of the project, as outlined in the Climate Action Plan.
e. Provision of public and/or private usable open space and/or pathways
designated in the Open Space, Conservation, and Recreation Element.
f. Contributions to and extensions of existing systems of streets, foot or bicycle
paths, trails, and the greenbelts provided for in the Mobility, and Open Space,
Conservation, and Recreation elements of the General Plan.
g. Compliance with the performance standards of the Growth Management
Plan.
h. Development proposals which are designed to provide safe, easy pedestrian
and bicycle linkages to nearby transportation corridors.
i. Provision of housing affordable to lower and/or moderate-income
households.
j. Policies and programs outlined in Local Coastal Program where applicable.
k. Consistency with applicable provisions of the Airport Land Use Compatibility
Plan for McClellan-Palomar Airport.
2-P.46 Require new residential development to provide pedestrian and bicycle linkages,
when feasible, which connect with nearby shopping centers, community centers,
parks, schools, points of interest, major transportation corridors and the Carlsbad
Trail System.
2-P.47 At the time existing shopping centers are renovated or redeveloped, where
feasible, require connections to existing residential neighborhoods through new
pedestrian pathways and entrances, mid-block crossings, new or wider sidewalks,
and pedestrian-scaled street lighting.
2-P.48 Enhance walkability on a citywide scale by installing benches and transit shelters
and adding landscaping, wayfinding signage, public art, and pedestrian-scaled
lighting. Consider ways to improve rail and freeway overpass/ underpass areas,
with lighting, sidewalk improvements and public art.
2-P.50 Improve beach access through a variety of mechanisms, including:
a. In the Village and adjacent areas, identify the primary pedestrian connections
and entrances to the beach through signage, a consistent landscaping scheme,
change in paving materials, wider sidewalks and preservation of view
corridors. Identify opportunities for additional access points as improved
connectivity and facilities are provided, particularly if new beachfront activity
areas are established.
b. In the Barrio neighborhood, provide a pedestrian crossing under or over the
rail corridor at Chestnut Avenue.
c. Identify and implement more frequent pedestrian crossings along Carlsbad
Boulevard. Identify and prioritize crossings from residential neighborhoods
and existing bicycle and pedestrian trails.
For more detailed policies on pedestrian and bicycle movement, see Chapter 3: Mobility.
2-P.53 Plan and design Carlsbad Boulevard and adjacent public land (Carlsbad
Boulevard coastal corridor) according to the following guiding principles:
CARLSBAD CLIMATE ACTION PLAN
D-3
a. Carlsbad Boulevard shall become more than a road. This transportation
corridor shall provide for recreational, aesthetic and community gathering
opportunities that equal the remarkable character of the land.
b. Community safety shall be a high priority. Create destination that provides a
safe public environment to recreate.
c. Strategic public access and parking is a key to success. Development shall
capitalize on opportunities to add/enhance multiple public access points and
public parking for the beach and related recreational amenities.
d. Open views are desirable and important to maintaining the character of the
area. Preservation and enhancement of views of ocean, lagoons, and other
water bodies and beaches shall be a high priority in road, landscaping, and
amenity design and development.
e. Enhance the area’s vitality through diversity of recreational land uses.
Carlsbad Boulevard development shall provide for amenities, services and
goods that attract a diversity of residents and visitors.
f. Create vibrant and sustainable public spaces. Development shall provide for
unique and vibrant coastal gathering spaces where people of all age groups
and interests can gather to enjoy recreational and environmental amenities
and supporting commercial uses.
g. Connect community, place and spirit. Design shall complement and enhance
connectivity between existing community and regional land uses.
h. Environmentally sensitive design is a key objective. Environmentally sensitive
development that respects existing coastal resources is of utmost importance.
i. A signature scenic corridor shall be created through design that honors the
coastline’s natural beauty. The resulting improvements will capture the
‘essence’ of Carlsbad; making it a special place for people from throughout the
region with its natural beauty and vibrant public spaces. Properly carried out,
the realigned boulevard will maximize public views and encourage everyone
to slow down and enjoy the scenery.
j. Reimagining of Carlsbad Boulevard shall be visionary. The reimagined
Carlsbad Boulevard corridor will incorporate core community values
articulated in the Carlsbad Community Vision by providing: a) physical
connectivity through multi-modal mobility improvements including
bikeways, pedestrian trails, and a traffic-calmed street; b) social connectivity
through creation of memorable public spaces; and c) economic vitality
through a combination of visitor and local-serving commercial, civic, and
recreational uses and services.
2-P.72 Enhance the walkability and pedestrian orientation of the Village, including along
Carlsbad Village Drive, to enhance the small, beach town atmosphere and
improve access to and utilization of transit.
2-P.75 Address parking demand by finding additional areas to provide parking for the
Village and beach areas, and by developing creative parking management
strategies, such as shared parking, maximum parking standards, “smart”
metering, utilizing on-street parking for re-use of existing buildings, etc.
2-P.79 Create a cohesive, pedestrian-scale streetscape that includes improved sidewalks,
streetscape, signage and way-finding, and which celebrates the Barrio’s heritage
and provides better connections between the Barrio and Village and across the
railroad at Chestnut Avenue.
APPENDIX D: APPLICABLE GENERAL PLAN POLICIES
D-4
2-P.83 West of the railroad tracks:
Decommission, demolish, remove and remediate the Encina Power Station
site, including the associated structures, the black start unit and exhaust stack
according to the provisions of a settlement agreement dated January 14, 2014,
between and among the City of Carlsbad and the Carlsbad Municipal Water
District (CMWD), Cabrillo Power I LLC and Carlsbad Energy Center LLC,
and San Diego Gas and Electric Company (SDG&E). The desalination plant shall remain on approximately 11 acres (six acres for
the desalination plant and approximately five acres of non-exclusive
easements) west of the railroad tracks. Redevelop the Encina Power Station site, along with the SDG&E North Coast
Service Center site, with a mix of visitor-serving commercial uses, such as
retail and hotel uses, and with new community-accessible open spaces along
Agua Hedionda Lagoon and the waterfront (Carlsbad Boulevard). Encourage
community gathering spaces, outdoor dining, and other features to maximize
potential views of the ocean and the lagoon. Encourage shared parking
arrangements so that a greater proportion of development can be active space
rather than parking. Determine specific uses, development standards, infrastructure, public
improvements, site planning and amenities through a comprehensive
planning process (e.g., specific plan, master plan, etc.) resulting in a
redevelopment plan approved by the City Council. The redevelopment plan
boundaries should include the Encina Power Station and the SDG&E North
Coast Service Center sites. Work with SDG&E to identify a mutually acceptable alternative location for
Its North Coast Service Center. Work with SDG&E, as part of a long-term
plan, to identify and ultimately permit an alternate site for its Encina
substation.
Chapter 3: Mobility
3-P.8 Utilize transportation demand management strategies, non-automotive
enhancements (bicycle, pedestrian, transit, train, trails, and connectivity), and
traffic signal management techniques as long-term transportation solutions and
traffic mitigation measures to carry out the Carlsbad Community Vision.
3-P.15 Evaluate methods and transportation facility improvements to promote biking,
walking, safer street crossings, and attractive streetscapes. The City Council shall
have the sole discretion to approve any such road diet or vehicle traffic calming
improvements that would reduce vehicle capacity to or below a LOS D; this also
applies to streets where the vehicle is not subject to the MMLOS standard as
specified in Table 3-1.
3-P.16 Design new streets, and explore funding opportunities for existing streets, to
minimize traffic volumes and/or speed, as appropriate, within residential
neighborhoods without compromising connectivity for emergency first
responders, bicycles, and pedestrians consistent with the city’s Carlsbad Active
Transportation Strategies. This should be accomplished through management
and implementation of livable streets strategies and such programs like the
Carlsbad Residential Traffic Management Plan.
CARLSBAD CLIMATE ACTION PLAN
D-5
3-P.17 Consider innovative design and program solutions to improve the mobility,
efficiency, connectivity, and safety of the transportation system. Innovative design
solutions include, but are not limited to, traffic calming devices, roundabouts,
traffic circles, curb extensions, separated bicycle infrastructure, pedestrian
scramble intersections, high visibility pedestrian treatments and infrastructure,
and traffic signal coordination. Innovative program solutions include, but are not
limited to, webpages with travel demand and traffic signal management
information, car and bike share programs, active transportation campaigns, and
intergenerational programs around schools to enhance safe routes to schools.
Other innovative solutions include bicycle friendly business districts, electric and
solar power energy transportation systems, intelligent transportation systems,
semi- or full autonomous vehicles, trams, and shuttles.
3-P.19 Encourage Caltrans, SANDAG, NCTD, and adjacent cities to improve regional
connectivity and service consistent with regional planning efforts. This includes
expansion of Interstate-5 with two HOV lanes in each direction, auxiliary lanes,
and associated enhancements, a Bus Rapid Transit (BRT) route along Palomar
Airport Road, shuttle bus services from COASTER stations, and other
enhancements to improve services in the area.
3-P.20 Engage Caltrans, the Public Utilities Commission, transit agencies, the Coastal
Commission, and railroad agency(s) regarding opportunities for improved
connections within the city, including:
Improved connections across the railroad tracks at Chestnut Avenue and
other locations A grade separated rail corridor that includes grade separated street crossings
at Grand Avenue, Carlsbad Village Drive, Tamarack Avenue and Cannon
Road, as well as new pedestrian and bicycle crossings Completion and enhancements to the Coastal Rail Trail and/or equivalent
trail along the coastline Improved connectivity along Carlsbad Boulevard for pedestrians and
bicyclists, such as a trail Improved access to the beach and coastal recreational opportunities Improved crossings for pedestrians across and along Carlsbad Boulevard
3-P.21 Implement connections and improvements identified in this Mobility Element,
including those identified in policy 3-P.19, as well as:
Extension of College Boulevard from Cannon Road to El Camino Real Completion of the Poinsettia Lane connection near El Camino Real (Reach E) Extension of Camino Junipero to the eastern city boundary A bicycle/pedestrian trail/pathway connecting the eastern terminus of
Marron Road to the east A bicycle/pedestrian trail/pathway connecting the eastern terminus of
Cannon Road to the east, and coordination with adjacent agencies to
appropriately link to their facilities
3-P.22 Support pedestrian and bicycle facilities at all Interstate-5 and State Route 78
interchanges.
APPENDIX D: APPLICABLE GENERAL PLAN POLICIES
D-6
3-P.24 Update the pedestrian, trails and bicycle master plans, as necessary, to reflect
changes in needs, opportunities and priorities.
3-P.25 Implement the projects recommended in the pedestrian, trails and bicycle master
plans through the city’s capital improvement program, private development
conditions and other appropriate mechanisms.
3-P.26 Identify and implement necessary pedestrian improvements on streets where
pedestrians are to be accommodated per Table 3-1, with special emphasis on
providing safer access to schools, parks, community and recreation centers,
shopping districts, and other appropriate facilities.
3-P.27 Implement the Safe Routes to School and Safe Routes to Transit programs that
focus on pedestrian and bicycle safety improvements near local schools and
transit stations. Prioritize schools with access from arterial streets for receiving
Safe Routes to School projects.
3-P.28 Improve and enhance parking, connectivity, access, and utilization for
pedestrians and bicycles to COASTER stations, utility corridors, and open spaces
consistent with city planning documents.
3-P.29 Evaluate incorporating pedestrian and bicycle infrastructure within the city as
part of any planning or engineering study, private development, or capital project.
3-P.31 Engage the community in the policy setting and planning of street, bicycle,
pedestrian, transit, and connectivity studies, plans and programs.
3-P.32 Require developers to improve pedestrian and bicycle connectivity consistent
with the city’s bicycle and pedestrian master plans and trails master planning
efforts. In addition, new residential developments should demonstrate that a safe
route to school and transit is provided to nearby schools and transit stations
within a half mile walking distance.
3-P.33 Work with existing neighborhoods and businesses to improve pedestrian and
bicycle connectivity and safety consistent with the city’s pedestrian and bicycle
master plans and trails master planning efforts.
3-P.34 Actively pursue grant programs such as SANDAG’s Active Transportation Grant
Program and Smart Growth Incentive Program to improve non-automotive
connectivity throughout the city. The emphasis of grant-funded projects shall be
on implementation, which includes planning documents that guide and prioritize
implementation, programs that encourage the use of active transportation modes,
education for the use of active transportation modes, or physical improvements
themselves.
3-P.35 Partner with other agencies and/or developers to improve transit connectivity
within Carlsbad. As part of a comprehensive transportation demand management
(TDM) strategy and/or with transit oriented development (TOD), a shuttle
system could be established that connects destinations and employment centers
like LEGOLAND, hotels, the Village, McClellan-Palomar Airport, business parks,
CARLSBAD CLIMATE ACTION PLAN
D-7
the COASTER and Breeze transit stations, public activity centers (such as senior
centers, city hall, libraries, etc.) and key destinations along the coast. The system
could incorporate shuttle service in adjacent cities to maximize connectivity.
3-P.36 Encourage NCTD, SANDAG and other transit providers to provide accessibility
for all modes of travel to the McClellan-Palomar Airport area.
3-P.38 Develop flexible on-site vehicle parking requirements. Such requirements will
include implementation of innovative parking techniques, implementing effective
TDM programs to reduce parking demand, and consideration of other means to
efficiently manage parking supply and demand.
3-P.39 Require new employment development to provide secure bicycle parking on-site.
Major employers should provide shower and changing rooms for employees as
appropriate.
3-P.40 Assist Village businesses to manage parking in the Village area to maximize
parking efficiency. Any potential parking-related revenues generated in this area
should be reinvested into the Village area for implementing livable streets and
other parking, pedestrian, and bicycle enhancements, including way-finding
signage and maintenance of associated infrastructure.
3-P.41 Consider supporting new development and existing businesses with various
incentives (such as parking standards modifications) for implementing TDM
programs that minimize the reliance on single-occupant automotive travel during
peak commute hours.
Chapter 4: Open Space, Conservation, and Recreation
4-P.40 Prepare a comprehensive Trails Master Plan update, that expands the existing and
planned 61-mile trail system, with the following objectives:
Connectivity between off-road trails and major on-road pedestrian and
bicycle routes, such that future improvements in the trail system also
contribute to linkages between important sites (beaches, lagoons, schools,
commercial centers, master planned communities, and others) Design and designate trails as multi-use to be accessible for all user groups,
including walkers, bicyclists, and equestrians (as land use policy allows).
Ensure that the network provides an appropriate amount of resources for
each trail type or user group Greenway and trail linkages from major recreational/open space areas to
other land use areas or activities, including, but not limited to, residential
neighborhoods, places of employment, parks, schools, libraries, and
viewpoints Linkages/multi-use trails connecting businesses and residential
neighborhoods to the beaches
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Appendix E
Project Level Mitigation
Measures
In addition to the programmatic measures contained in this Climate Action Plan, the
following is a non-exclusive list of mitigation measures that can be applied at the project level
to reduce greenhouse gas emissions. These measures, and other measures not listed in this
Appendix which may become available, are intended to assist projects in meeting the
performance standard of reducing their greenhouse gas emissions to the level required by
federal, state and local law, including the emission reduction targets established in this
Climate Action Plan. The city and project applicants may consider these and other project-
level mitigation measures, provided that their effectiveness in reducing greenhouse gas
emissions can be demonstrated and they are otherwise consistent with all applicable policies
and ordinances (e.g., a mixed-use project that is permissible by the zoning ordinance).
Sources for additional potential mitigation measures may include those listed in: CAPCOA’s
“CEQA and Climate Change, Evaluating and Addressing Greenhouse Gas Emissions from
Projects Subject to the California Environmental Quality Act (January 2008)”; the Attorney
General’s “Addressing Climate Change at the Project Level”; OPR’s CEQA and Climate
Change: Addressing Climate Change Through California Environmental Quality Act
(CEQA)”; and SANDAG’s “Draft Climate Change Mitigation and Adaptation White Paper
(2014)”. Please see Appendix C for complete references.
Renewable Energy
Provide onsite renewable energy system(s). Nonpolluting and renewable energy
potential includes solar, wind, geothermal, low-impact hydro, biomass and bio-gas
strategies
Include in new buildings facilities to support the use of low/zero carbon fueled
vehicles, such as the charging of electric vehicles from green electricity sources
Provide solar water heaters
Green Building
Meet recognized green building and energy efficiency benchmarks such as LEED and
ENERGY STAR
APPENDIX E: PROJECT LEVEL MITIGATION MEASURES
E-2
Incorporate materials which are resource efficient, recycled, with long life cycles and
manufactured in an environmentally friendly way
Energy Efficiency
Exceed Carlsbad Green Building Code (Title 24) mandatory efficiency requirements
by 15% or more
Install light colored “cool” roofs (e.g. Energy Star roofing) or other highly reflective,
highly emissive roofing materials
Install a vegetated (“green”) roof that covers at least 50% of roof area
Design project to maximize solar orientation (i.e., 75% or more building face north or
south; include roof overhangs that block high summer sun, but not lower winter sun,
from penetrating south-facing windows
Plant trees and vegetation near structures to shade buildings and reduce energy
requirements for heating/cooling
Install energy-reducing ceiling/whole-house fans
Install energy efficient lighting (e.g., light emitting diodes (LEDs)), heating and
cooling systems, appliances, equipment, and control systems. (e.g., Energy Star)
Install energy-reducing programmable thermostats that automatically adjust
temperature settings
Transportation
Develop commute trip reduction plans that encourage employees who commute
alone to consider alternative transportation modes
Create an online ridesharing program that matches potential carpoolers immediately
through email
Provide fair-share funding of transportation improvements
Provide shuttle service or public transit incentives such as transit passes to decrease
work-related auto trips
Provide “end-of-trip” facilities including showers, lockers, and changing space
(nonresidential projects)
Incorporate public transit into project design
Incorporate bicycle lanes, routes and facilities into street systems, new subdivisions,
and large developments
Provide amenities for non-motorized transportation, such as secure and convenient
bicycle parking
CARLSBAD CLIMATE ACTION PLAN
E-3
Provide plentiful short- and long-term bicycle parking facilities (nonresidential
projects)
Provide long-term bicycle parking is provided at apartment complexes or
condominiums without garages
Create pedestrian (and/or bicycle) access network that internally links all uses and
connects to all existing/planned external streets and pedestrian (and/or bicycle)
facilities contiguous with the project site
Provide a parking lot design that includes clearly marked and shaded pedestrian
pathways between transit facilities and building entrances
Provide parking for EVs/CNG vehicles
Install EV charging facilities
Water Conservation
Install water-efficient fixtures and appliances such as low-flow fixtures, dual flush
toilets, and other water efficient appliances
Install water-efficient irrigation systems and devices, such as soil moisture-based
irrigation controls and use water-efficient irrigation methods
Implement low-impact development practices that maintain the existing hydrology of
the site to manage storm water and protect the environment
Incorporate recycled/reclaimed water for landscape irrigation and other non-potable
water use needs
Incorporate rain barrels and gray water systems for landscape irrigation
Landscaping
Install native and drought tolerant plant materials into landscapes
Incorporate into landscapes drought resistant native trees, trees with low emissions
and high carbon sequestration potential
Provide parking lot areas with 50% tree cover within 10 years of construction, in
particular low emitting, low maintenance, native drought resistant trees. Reduces
urban heat island effect
Dedicate space for neighborhood gardening
Mixed-Use
Development projects predominantly characterized by properties on which various
uses, such as office, commercial, institutional, and residential, are combined in a
single building or on a single site in an integrated development project with
APPENDIX E: PROJECT LEVEL MITIGATION MEASURES
E-4
functional interrelationships and a coherent physical design; or projects that have at
least three of the following on site and/or offsite within one-quarter mile: residential
development, retail development, office, transit, park, or open space
Provide on-site shops and services for employees, as permitted by zoning and
development standards
Solid Waste Measures
Reuse and recycle construction and demolition waste (including, but not limited to,
soil, vegetation, concrete, lumber, metal, and cardboard).
Provide interior and exterior storage areas for recyclables and green waste and
adequate recycling containers located in public areas.
Provide education and publicity about reducing waste and available recycling
services.
DYETT & BHATIA
Urban and Regional Planners
755 Sansome Street, Suite 400
San Francisco, California 94111
415 956 4300 415 956 7315