Title
Public Workshop to review and comment on: 1) a Draft Resolution Containing Findings of Local Climatic, Geological, Topographical, and Environmental Conditions as Required to Adopt Alameda Local Amendments to the 2019 California Energy Code; 2) A Draft Ordinance Amending the Alameda Municipal Code by Amending: (1) Article I (Uniform Codes Relating to Building, Housing and Technical Codes) of Chapter XIII (Building and Housing) to Adopt Alameda Local Amendments to the 2022 Edition of the California Green Building Standards Code to Require Newly Constructed Buildings to be All-Electric
Body
To: Chair Sanchez and
Members of the Historical Advisory Board
From: Andrew Thomas, Planning, Building and Transportation Director
EXECUTIVE SUMMARY
Staff is recommending that the Historical Advisory Board review and comment on a draft City Council resolution containing findings of local climatic, geological, and topographical conditions as required by applicable law, and an ordinance adopting Alameda local amendments to the 2022 edition of the California Green Building Standards Code (contained in the 2022 California Building Standards Code) to require newly constructed buildings, as defined, to be all-electric (Exhibit 1).
The all-electric reach code was first adopted in 2021 and implements a key recommendation in Alameda’s Climate Action and Resiliency Plan (CARP). Adoption of a new reach code is required to ensure alignment with the 2022 California Buildings Standards Code which will become effective January 1, 2023 (Exhibit 2). Electrification of existing buildings, as required by the proposed reach code, are focused on the building’s mechanical systems and are not anticipated to impact the exterior of the buildings. Staff does not believe the electrification requirements will negatively impact historic buildings but rather it may enhance the value of older buildings.
BACKGROUND
In September 2019, the City Council adopted Alameda’s Climate Action and Resiliency Plan (CARP), which included actions directing staff to prepare ordinances requiring all new residential construction to be 100% electric-powered with no gas hookups and to require fuel switching from natural gas-powered appliances to electric-powered appliances when existing buildings are being substantially expanded. On December 6, 2022, the Equitable Building Decarbonization Plan <www.alamedaca.gov/buildingdecarb <http://www.alamedaca.gov/buildingdecarb>> will also be presented to the City Council for adoption, providing a framework for transitioning natural gas use to electric for HVAC, water heating, cooking and clothes drying appliances in existing buildings over time.
With Alameda Municipal Power (AMP) providing 100% clean electricity citywide, Alameda’s greenhouse gas (GHG) emissions from buildings comes primarily from natural gas consumption, accounting for 27% of Alameda’s total GHG emissions linked to climate change. The only source sector with more local GHG emissions is transportation (70%).
In 2021, the City Council extended the all-electric requirement citywide and included development other than residential through adoption of a “reach code”. The reach code required that all new construction citywide to be all-electric with no natural gas or propane infrastructure installed and electric appliances for space heating, water heating, clothes-drying, and cooking, with certain exceptions.
Every three years, the State of California adopts new building standards that are organized in Title 24 of the California Code of Regulations, referred to as the California Building Standards Code. This regular update is referred to as a “code cycle.” The previous code cycle was adopted in 2019 and became effective on January 1, 2020. The current code cycle will be adopted in 2022 and become effective on January 1, 2023. Cities and counties can adopt reach codes that require items that are above the minimum state code requirements by making express findings that local amendments are reasonably necessary because of local climatic, geological, or topographical conditions. Reach codes must be updated with every code cycle. Staff has worked with the Building Official to review the 2022 building code and recommend commiserate updates and modifications to the all-electric reach code.
Proposed 2022 All-Electric Reach Code
The proposed 2022 reach code would continue to require that all new residential and non-residential buildings citywide be all electric or are ready to facilitate installation of future electric appliances. As such, no natural gas or propane plumbing would be installed in new buildings citywide, and electric appliances would be required for space heating, water heating, clothes-drying, and cooking.
Staff is also proposing to expand the definition of new construction to include substantial alterations that essentially result in a new building, further fulfilling CARP objectives. Alterations that include replacement or addition of over 50 percent of the existing foundation for purposes other than a repair or reinforcement as defined in California Existing Building Code Section 202; or where over 50 percent of the existing building footprint is being remodeled, including unfinished spaces, shall be all-electric buildings. If either of these criteria are met within a three-year period, measured from the date of the most recent previously obtained permit final date, the project shall be subject to the all-electric new construction requirements. Tenant improvements would not be considered new construction.
Proposed Exceptions
Similar to the 2021 reach code, several exceptions to the reach code have been proposed. The proposed exceptions include:
• Commercial kitchen cooking appliances in nonresidential buildings located in a place of public accommodation.
• Space and water heating process equipment for laboratories, manufacturing, or R&D uses.
• Newly constructed buildings with a valid planning entitlement or development agreement approved prior to July 1, 2021.
• Existing appliances that are not included in the scope of the qualifying alteration.
• The building official has the authority to grant a modification for certain energy compliance pathways.
If natural gas heating appliances are used in any of the above exceptions, pre-wiring and physical space must be provided for future installation of electric heating appliances.
Benefits of All-Electric Buildings
In addition to costing less to construct that mixed fuel buildings, all-electric buildings also offer a number of health, safety and climate benefits:
Electrification is safer
• Removing gas infrastructure reduces the risk of fires in the event of an earthquake.
• Induction cooktops reduce burn risk, and many automatically turn off when not in use, eliminating a leading cause of house fires.
Electrification is healthier
• Gas appliances emit pollutants and increase risk of respiratory illness, cardiovascular disease, and other long-term illnesses.
• Children living in homes with gas stoves are 40% more likely to develop asthma.
Electrification helps us reduce emissions and fight climate change
• Switching gas appliance to electric will reduce climate emissions from natural gas use in buildings.
• Methane in natural gas is more than 86 times stronger than carbon dioxide as a greenhouse gas, having more significant impacts on climate.
• Electrification taps into 100% clean power and supports green jobs in our community
DISCUSSION
Historic Buildings and Electrification
Buildings covered by the State Historic Building Code (SHBC) will also be required to comply with the electrification reach code at such time that they are undergoing a qualified alteration or addition. The SHBC recognizes unique construction problems inherent in historical buildings and offers alternative code provisions to deal with these issues. Where there is conflict between the SHBC and the reach code, the SHBC will govern. In Alameda, all buildings built before 1942 qualify for use of the SHBC. Electrification of existing buildings, as required by the proposed reach code, are focused on the building’s mechanical systems and are not anticipated to impact the exterior of the buildings. Mechanical upgrades are covered by the Mechanical Code and not subject to Design Review by the Planning Board or a Certificate of Approval by the HAB. Staff does not anticipate any negative impacts on historic buildings as a result of electrification, and rather staff believes this will enhances older buildings, allowing them to accommodate modern lifestyle needs thereby prolonging their lifespan.
The California Air Resources Board (CARB) has banned the sale of natural gas furnaces and water heaters starting in 2030 <<https://ww2.arb.ca.gov/sites/default/files/2022-08/2022_State_SIP_Strategy.pdf>>. This measure would not mandate retrofits in existing buildings, but some buildings would require retrofits to be able to use electric heat pump technology that this measure would require when an existing appliance reaches its end of life. This reach code will help existing buildings to prepare for the transition at the time of a building remodel or addition, when the costs will be less and the process is easier.
Community Input
This process has included extensive public input. In addition to this Historical Advisory Board study session, study sessions will be conducted with the Planning Board on November 14. The Public Utilities Board will be notified of the Planning Board study session at its November 14 meeting. Staff conducted further outreach during the development of this ordinance in the following ways:
• Public workshops held on April 27th and May 4th to provide input on the initial direction of the reach code update
• Public workshops held on October 18th and 20th to review the final draft reach code.
Notifications about the workshops were distributed through the City’s Sustainability and Resilience mailing list (1,200 subscribers), the citywide bi-weekly newsletter (30,000 subscribers), as well as CASA’s mailing list. All the attendees and invitees to the info session for the 2021 reach code were also invited to the workshops for the 2022 update.
ENVIRONMENTAL REVIEW
This action is exempt from CEQA pursuant to CEQA Guidelines section 15061(b)(3) in that the standards set forth in the ordinance are more protective of the environment than the California Energy Code standards, and there is no possibility that the activity in question may have a significant effect on the environment. As a separate and independent basis, this action is exempt from CEQA pursuant to CEQA Guidelines section 15308 in that the standards set forth in the ordinance assure the maintenance, restoration, enhancement or protection of natural resources and the environment. In addition, CEQA Guidelines section 15183 (Projects Consistent with a Community Plan, General Plan, or Zoning) applies to the project in that the standards set forth in the Ordinance are consistent with the General Plan and the Climate Action and Resiliency Plan.
CLIMATE IMPACTS
The all-electric reach code will help implement the City’s Climate Action and Resiliency Plan and its goal of reducing greenhouse gas emissions 50% below 2005 levels by 2030. Natural gas and the infrastructure needed to transport it to City homes and businesses is a leading source of GHG emissions in the City, and responsible for 27% of the total GHGs released in the City. To reduce these emissions, the CARP recommends requiring new development to be all-electric and to require fuel switching from natural gas-powered appliances to electric-powered appliances when existing buildings are being substantially expanded.
RECOMMENDATION
Review and comment on the Draft 2022 All-Electric New Construction and Substantial Alterations Reach Code and Findings of Local Climatic, Geological, Topographical, and Environmental Conditions.
Respectfully submitted,
Danielle Mieler
Sustainability and Resilience Manager
Reviewed by,
Allen Tai
City Planner
Exhibits:
1. Draft City Council Resolution of Local and Climatic Findings
2. Draft 2022 All Electric Ordinance