Model Policies for Greenhouse Gases in General Plans a Resource for Local Government to Incorporate General Plan Policies to Reduce Greenhouse Gas Emissions
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Model Policies for Greenhouse Gases in General Plans A Resource for Local Government to Incorporate General Plan Policies to Reduce Greenhouse Gas Emissions June 2009 Disclaimer The California Air Pollution Control Officers Association (CAPCOA) has prepared this white paper consideration of model policies for addressing greenhouse gas emissions in General Plans to provide a common platform of information and tools to support local governments. This paper is intended as a resource, not a guidance document. It is not intended, and should not be interpreted, to dictate the manner in which a city or county chooses to address greenhouse gas emissions in the context of its General Plan. This paper has been prepared at a time of flux in California law and regulation, as well as accepted practice, regarding how climate change should be addressed in government programs. There is pending litigation that may have bearing on these decisions, as well as active legislation at the federal level. And finally, our understanding of the science of climate change continues to evolve, too. In the face of this uncertainty, local governments are working to understand the new expectations, and how best to meet them. This paper is provided as a resource to local policy and decision makers to enable them to make the best decisions they can during this period of uncertainty. Finally, this white paper reviews requirements, discusses policy options, and highlights methods, tools, and resources available, but it is not intended to provide legal advice and should not be construed as such. Questions of legal interpretation, or requests for legal advice, should be directed to the jurisdiction’s counsel. i ii Acknowledgements This paper on Model Policies for Addressing Greenhouse Gas Emissions in General Plans benefited from the hard work and creative insights of many people. CAPCOA appreciates the efforts of all who contributed their time and energy to the project. In particular, the Association thanks the following individuals: Principal Authors Barbara Lee, NSCAPCD John Yu, CAPCOA Project Core Group Larry Allen, SLOAPCD Jill Whynot, SCAQMD Barbara Lee, NSCAPCD Dave Vintze, BAAQMD Tim Taylor, SMAQMD John Yu, CAPCOA CAPCOA Climate Protection Committee: External Reviewers Model Policies Review Group Pete Parkinson, County of Sonoma Larry Allen, SLOAPCD Nancy McKeever, CEC Judy Corbett, LGC Jeane Borkenhagen, SMAQMD Barbara Lee, NSCAPCD Proofing & Layout Greg Tholen BAAQMD Celia Diamond, SCAQMD Dave Warner, SJVUAPCD Jill Whynot, SCAQMD Pauline King, CAPCOA Molly Wright, SMAQMD Patricia Whiting, SCAQMD Dave Vintze, BAAQMD John Yu, CAPCOA John Yu, CAPCOA Contract Support Mel Zeldin, CAPCOA ICF Jones & Stokes, and Rimpo & Associates CAPCOA Climate Protection Committee Larry Allen, SLOAPCD, Chair Barbara Lee, NSCAPCD Alan Abbs, TCAPCD Tom Murphy, SBAPCD Bobbie Bratz, SBAPCD Don Price, VCAPCD Jeane Borkenhagen, SMAQMD Brad Poiriez, ICAPCD Karen Brooks, SLOCAPCD Violette Roberts, MDAQMD YuShuo Chang, PCAPCD Jean Roggenkamp, BAAQMD Christa Darlington, PCAPCD Greg Tholen, BAAQMD Jorge DeGuzman, SMAQMD Tim Taylor, SMAQMD Mat Ehrhardt, YSAQMD Mike Villegas, VCAPCD Adam Fieseler, SCAQMD David Vintze, BAAQMD Jean Getchell, MBUAPCD Dave Warner, SJVUAPCD Larry Greene, SMAQMD Jill Whynot, SCAQMD Henry Hilken, BAAQMD John Yu, CAPCOA Dave Jones, KCAPCD Mel Zeldin, CAPCOA …and other air district staff members who offered insight and expertise. Approved For Release by the CAPCOA Board of Directors iii Table of Contents Executive Summary .................................................................................................1 Chapter 1: Introduction ............................................................................................5 Chapter 2: Climate Change Statutes and Regulations in California ......................13 Chapter 3: Local Government’s Role in Reducing Greenhouse Gas Emissions ...29 Chapter 4: Planning for Climate Protection ...........................................................37 Chapter 5: General Plan Structure & Greenhouse Gas Reduction ........................49 Chapter 6: Model Policies to Reduce Greenhouse Gases ......................................65 Appendix A – Greenhouse Gas Emissions in California Appendix B – AB 32 Programs Appendix C – Other Programs to Reduce GHG Emissions Appendix D – Projected Climate Change Impacts to California Appendix E – Top 10 Actions by Local Governments and Communities Appendix F – Agency Responsibilities for Programs on Climate and GHGs Appendix G – Examples and Resources Appendix H – California Attorney General Guidance on General Plans iv List of Figures Figure 1 - Temperature History ..............................................................................6 Figure 2 - Temperature Projection Scenarios .........................................................6 Figure 3 Thermal Modeling .................................................................................8 Figure 4 - Projected Sea Level Rise .......................................................................8 Figure 5 - US Greenhouse Gas Emissions by Gas, 2006 .......................................9 Figure 6 - AB 32 Timeline....................................................................................14 Figure 7 - Sources of Potential Reductions ..........................................................14 Figure 8 - Baseline GHGs vs. Scoping Plan .........................................................15 Figure 9 - GHG Reductions by Sector ..................................................................16 Figure 10 - Cap and Trade Program ......................................................................17 Figure 11 - Comparing Pavley Reductions Nationwide ........................................18 Figure 12 - Block Diagram for the Various Components for a Fuel Pathway ......19 Figure 13 - California’s Primary Energy Sources .................................................20 Figure 14 - Progress Towards RPS Goals .............................................................20 Figure 15 - Potential Impacts of Land Use and Transit Strategies on GHG Emissions in California ......................................................................21 Figure 16 - 2004 STIP Process ..............................................................................23 Figure 17 - Climate Change Significance Criteria Flow Chart .............................34 Figure 18 - Example Display of Municipal & Community Emissions .................42 List of Tables Table 1 - Element Interrelationships for Greenhouse Gas Emission Reduction Strategies ..............................................................................................63 Table 2 - Worksheet for Model Policies Evaluation .........................................111 v List of Acronyms and Abbreviations Acronym/ Abbreviation Meaning AB 32 Assembly Bill 32 Global Warming Solutions Act of 2006 AFV Alternative Fuel Vehicle AG Attorney General AMI Advanced Metering Infrastructure ARB Air Resources Board APCD Air Pollution Control District APS Alternative Planning Strategy AQMD Air Quality Management District BAAQMD Bay Area Air Quality Management District BOF Board of Forestry Cal/EPA California Environmental Protection Agency Cal Fire California Department of Forestry and Fire Protection CAISO California Independent System Operator CAP Climate Action Plan CAPCOA California Air Pollution Control Officers Association CARB California Air Resource Board CAS Climate Adaptation Strategy CAT Climate Action Team CCA Community Choice Aggregation CCAP Climate Change Action Plan CCAR California Climate Action Registry CCC California Conservation Corps CEC California Energy Commission CEQA California Environmental Quality Act CDFA California Department of Food and Agriculture CH4 Methane CIWMB California Integrated Waste Management Board CO2 Carbon Dioxide CO2e Carbon Dioxide Equivalent CPUC California Public Utilities Commission DOC Department of Conservation DFG Department of Fish and Game DGS Department of General Services DPC Delta Protection Committee DTSC Department of Toxics Substances Control DWR Department of Water Resources EIR Environmental Impact Report EO Executive Order EPA U.S. Environmental Protection Agency EPIC Environmental Protection Indicators for California EPS Emissions Performance Standard vi List of Acronyms and Abbreviations Acronym/ Abbreviation Meaning ESP Energy Service Provider FAR Floor Area Ratio GHG Greenhouse Gas GWP Global Warming Potential HFC Hydrochlorofluorocarbons HSR High Speed Rail HOV High Occupancy Vehicle Lanes ICLEI International Council for Local Environmental Initiatives (now known as Local Governments for Sustainability) IOU Investor Owned Utility IPCC International Panel on Climate Change LAFCO Local Area Formation Commission LEED Leadership in Energy and Environmental Design LCFS Low Carbon Fuel Standard LNG Liquefied Natural Gas LUSCAT Land Use Subgroup of the Climate Action Team MMTCO2e Million Metric Tons Carbon Dioxide Equivalent MPO Metropolitan Planning Organizations MWh Megawatt hour MVAC Motor Vehicle Air Conditioning NAS National Academy of Sciences NAST National Assessment Synthesis Team N2O Nitrous Oxide NOX Oxides of Nitrogen ODS Ozone Depleting Substances OFA Office of Fleet Administration OPAR Caltrans Office of Policy Analysis and Research OPC California Ocean Protection Council OPR State Office of Planning Research PIER Public Interest Energy Research Program PFC Perfluorocarbon PHEV Plug-In Electric Hybrid Vehicles