HomeMy WebLinkAboutStaff Report 2303-1158 City Council
Staff Report
From: City Manager
Report Type: ACTION ITEMS
Lead Department: Public Works
Meeting Date: June 5, 2023
Report #:2303-1158
TITLE
Adoption of a Resolution Approving an Addendum to the 2017 Comprehensive Plan
Environmental Impact Report and Adopting the Sustainability and Climate Action Plan (S/CAP);
Approval of the 2023-2025 S/CAP Workplan; and Review of the 2023 Earth Day Report
RECOMMENDATION
Staff and the Council Sustainability and Climate Action Plan (S/CAP) Ad Hoc Committee
recommend that Council:
1. Certify the Comprehensive Plan Environmental Impact Report Addendum: Update to the
Sustainability and Climate Action Plan
2. Adopt a Resolution Approving an Addendum to the Comprehensive Plan Environmental
Impact Report and Adopting the Sustainability and Climate Action Plan (Attachment C)
3. Approve the 2023-2025 S/CAP Work Plan (Attachment D)
4. Review the 2023 Earth Day Report (Attachment E)
EXECUTIVE SUMMARY
Consistent with Council’s adoption of “Climate Change & Natural Environment: Protection and
Adaptation” as one of the four priorities for calendar year 2023, staff updated the Sustainability
and Climate Action Plan (S/CAP) to help the City meet its sustainability goals, including its goals
of reducing greenhouse gas (GHG) emissions 80 percent below 1990 levels by 2030 (the “80 x 30”
goal) and achieving carbon neutrality by 2030.
On October 3, 2022, City Council accepted Goals and Key Actions for the Sustainability and
Climate Action Plan (S/CAP)1. Staff commenced California Environmental Quality Act (CEQA)
evaluation of the S/CAP, including the Work Plan elements described in this staff report, shortly
1 City Council, October 3, 2022; Agenda Item #9; SR #14720
https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-reports/agendas-minutes/city-council-
agendas-minutes/2022/20221003/20221003accsm-amended-presentations.pdf#page=131
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thereafter. Attachment A provides a detailed history of the S/CAP development to date. The
S/CAP is an ambitious plan to reduce the City and community’s GHG emissions, while also guiding
how we use our land and natural resources in ways that ensure quality of life for future
generations. The full S/CAP report can be found in Attachment B. The Resolution Approving an
Addendum to the Comprehensive Plan Environmental Impact Report and Adopting the
Sustainability and Climate Action Plan can be found in Attachment C.
The S/CAP lists the detailed actions needed to achieve the City’s 80x30 goal,2 but does not
provide guidance on task prioritization or implementation timeline. The 2023-2025 S/CAP Work
Plan is meant to guide staff efforts on the S/CAP over the next three years by prioritizing and
providing more detail on implementation of the Key Actions accepted by Council on October 3,
2022.
The 2023-2025 S/CAP Work Plan is split between a Climate Action section, which focuses on work
items that achieve the City’s 80x30 goal, and a Sustainability section, which focuses on improving
the City’s environmental impact in ways that are not primarily focused on reducing greenhouse
gas emissions but focus on critically important co-benefits that contribute to overall climate
action. The 2023-2025 S/CAP Work Plan can be found in Attachment D.
Cities represent the single greatest opportunity for tackling climate change, as they are
responsible for 75 percent of global energy-related carbon dioxide emissions3. In 2021, Palo Alto
emitted an estimated 359,312 metric tons (MT) of carbon dioxide equivalent (CO2e) from the
residential, commercial, industrial, transportation, waste, water, and municipal sectors.4 In
comparison to the 1990 base year emissions (which were about 780,000 metric tons), that is a
53.9 percent decrease in total community emissions, despite a population increase of 19.5
percent during that same time period. For our progress towards carbon neutrality, if we include
natural gas (methane) carbon offsets, then we are at 71.3% emissions reductions.
The full 2021 GHG inventory can be found in Attachment E. A comparison between the 1990
and 2021 inventories can be found in Attachment F.
BACKGROUND
In April 2016, City Council adopted the goal of reducing GHG emissions 80 percent below 1990
levels by 20305 (the “80 x 30” goal), and in October 2022 Council adopted the ambitious goal of
2 Achieving 80% reductions in greenhouse gas emissions from 1990 levels by 2030.
3 UN Environment Programme, Cities and Climate Change; https://www.unep.org/explore-topics/resource-
efficiency/what-we-do/cities/cities-and-climate-change
4 Carbon dioxide equivalent is a unit of measure that normalizes the varying climate warming potencies of all six
GHG emissions, which are carbon dioxide (CO2), methane (CH4), nitrous oxide (N2O), hydrofluorocarbons (HFCs),
perfluorocarbons (PFCs), and sulfur hexafluoride (SF6). For example, one metric ton of nitrous oxide is 210 metric
tons of CO2e.
5 City Council, April 18, 2016; Agenda Item #10; SR #6754,
https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-reports/reports/city-manager-reports-
cmrs/year-archive/2016/id-6754.pdf
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achieving carbon neutrality by 20306. In November 2016, Council adopted the S/CAP
Framework7, which has served as the road map for achieving Palo Alto’s sustainability goals. In
December 2017, Council accepted the 2018-2020 Sustainability Implementation Plan “Key
Actions” as a summary of the City’s work program8.
In early 2020, the City launched an S/CAP update to determine the goals and key actions needed
to meet its sustainability targets, including the 80 x 30 goal. While GHG emissions reduction is
not the only goal of the S/CAP, it is the major one. Attachment A provides a detailed history of
the S/CAP to date.
Staff began California Environmental Quality Act (CEQA) review of the S/CAP upon Council’s
October 3, 2022 acceptance of the S/CAP Goals and Key Actions. In parallel, the 2023-2025 Work
Plan was reviewed by the Council Ad Hoc S/CAP Committee and Working Group and will guide
staff work after adoption.
As a result of various City-led initiatives, programs, and activities focused on climate change and
sustainability, by the end of 2021 Palo Alto reduced GHG emissions an estimated 53.9 percent
from the 1990 baseline, despite a population increase of 19.5 percent during that same time.
ANALYSIS
The City is fully committed to a sustainable future. The City owns, operates, and maintains a full-
service utilities portfolio that provides electric, natural gas, fiber, water, refuse, and wastewater
services to residents and businesses in Palo Alto. Palo Alto’s continued leadership in advancing
sustainability commitments has succeeded mainly because of the continued collaboration of
community stakeholders, City departments, and the leadership of the City Council.
CEQA evaluation of the S/CAP
Staff commenced CEQA evaluation of the Sustainability and Climate Action Plan (S/CAP),
including the Work Plan elements described in this staff report, upon Council’s October 3, 2022
acceptance of the proposed S/CAP Goals and Key Actions. Due to the wide-reaching potential for
some S/CAP elements, the City’s consultant, AECOM, prepared an Addendum to the City of Palo
Alto Comprehensive Plan Final Environmental Impact Report (EIR)9 in order to evaluate the
6 City Council, October 3, 2022; Agenda Item #9; SR #14720
https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-reports/agendas-minutes/city-council-
agendas-minutes/2022/20221003/20221003accsm-amended-presentations.pdf#page=131
7 City Council, November 28, 2016; Agenda Item #9; SR 7304
https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-reports/reports/city-manager-reports-
cmrs/year-archive/2016/id-7304.pdf
8 2018-2020 Sustainability Implementation Plan, 2017;
https://www.cityofpaloalto.org/files/assets/public/sustainability/policies-and-plans/2018-2020-sustainability-
implementation-plan-with-council-amendments.pdf
9 Comprehensive Plan Environmental Impact Report Addendum: Update to the SCAP, May 2023;
https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-reports/agendas-minutes/city-council-
agendas-minutes/2023/2023comprehensive-plan-environmental-impact-report-addendum-update-to-the-
scap.pdf
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impacts of the proposed S/CAP. The Comprehensive Plan EIR considered the environmental
impacts of implementing the Comprehensive Plan by 2030 and can serve as the CEQA document
for future projects that align with the Comprehensive Plan. As the Comprehensive Plan EIR has
been certified, the environmental impacts of subsequent activities proposed under the
Comprehensive Plan, including the S/CAP, which is an implementation program of the
Comprehensive Plan, must be examined in light of the impact analysis in the certified
Comprehensive Plan EIR to determine whether additional CEQA documentation must be
prepared. AECOM found that the S/CAP meets the substantive and procedural recommendations
for a GHG reduction plan per CEQA guidelines. By incorporating the goals and measures of the
S/CAP into the Comprehensive Plan EIR through the EIR Addendum, the City is ensuring future
development and planning activities within the city conform to the objectives of the S/CAP and
climate change legislation adopted by the State of California.
The EIR Addendum evaluated the potential changes to environmental impacts since the adoption
of Comprehensive Plan EIR and confirms that the proposed S/CAP would not alter the conclusions
of the Comprehensive Plan EIR. Additionally, no new information of significant importance was
identified that suggests the potential for the proposed S/CAP to result in any significant or
substantially more severe effects beyond what was previously analyzed in the Comprehensive
Plan EIR. Instead, the EIR Addendum finds that the changes would provide beneficial actions
promoting green building practices such as increasing the use of renewable energy sources,
promoting energy efficiency, reducing vehicle miles traveled, and promoting sustainable
development. In addition, the Addendum permits CEQA streamlining of future projects that
conform to the S/CAP.
Sustainability and Climate Action Plan (S/CAP)
Consistent with Council’s adoption of “Climate Change & Natural Environment: Protection and
Adaptation” as one of the four priorities for calendar year 2023, staff updated the Sustainability
and Climate Action Plan (S/CAP) to help the City meet its sustainability goals, including its goals
of reducing greenhouse gas (GHG) emissions 80 percent below 1990 levels by 2030 (the “80 x 30”
goal) and achieving carbon neutrality by 2030. The S/CAP is a comprehensive document laying
out the City's strategy to achieve these ambitious carbon reduction goals, while improving our
natural environment, adapting to climate impacts, and increasing livability for Palo Alto residents.
While reducing emissions is a priority for the City, Palo Alto believes in a comprehensive view of
sustainability. Full implementation of the S/CAP will not only drastically reduce carbon emissions,
but will also improve the health, safety, and quality of life for the community. Attachment A
provides a detailed history of the S/CAP development to date. The full S/CAP report can be found
in Attachment B. Council authorization is needed to certify the Comprehensive Plan
Environmental Impact Report Addendum Update to the S/CAP and to adopt the S/CAP. The
Resolution Approving an Addendum to the Comprehensive Plan Environmental Impact Report
and Adopting the S/CAP can be found in Attachment C.
2023-2025 S/CAP Work Plan
There are two sections to the draft 2023-2025 S/CAP Work Plan: Climate Action and
Sustainability. The 2023-2025 S/CAP Work Plan can be found in Attachment D.
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The Climate Action section focuses on launching higher potential, lower cost emissions reduction
programs, building community confidence in the S/CAP, and laying the foundation for post-2025
work. The Sustainability section focuses on reducing waste, creating a sustainable and holistically
managed water system, adapting to a changing climate, and enhancing the City’s thriving urban
canopy. The climate action section has five priorities:
Climate Action
P1. Complete grid modernization plan and begin construction to increase reliability and
transformer capacity for electrification
P2. Launch effective programs for emissions reductions with highest impact and lowest
cost: single-family electrification, strategic promotion of EVs, commercial rooftop HVAC,
and expanded transportation alternatives
P3. Build community awareness and confidence in electrification through engagement,
addressing concerns, and program results
P4. Identify an additional 9% in emissions reduction opportunities to achieve the 80x30 goal
P5. By 2024 identify funding needed and potential funding sources for full scale
implementation of highest impact emissions reductions
Table 1 below summarizes how these priorities are implemented in 2023-2025. Staff will focus
on increasing electric grid capacity while launching high potential, lower cost programs focused
on residential heat pump water heaters (HPWH), commercial packaged rooftop heating,
ventilation, and air conditioning (HVAC), and previously funded transportation programs.
Funding needs and sources for these high potential programs will be evaluated. Studies on
accelerating EV charger penetration in multi-family buildings (including affordable housing) and
providing EV chargers in workplaces and business districts will be completed. Publicly-owned EV
charging may also be part of the solution; and the Bicycle/Pedestrian Plan will be updated. A
study of potential multi-family and non-residential electrification opportunities will be
completed. This work will be performed with the intent of building community confidence in the
City’s emissions reduction efforts, which will require results, engagement, and some focus on
electric system reliability and resiliency.
Table 1: Climate Action Priorities: Summary of Work Items and Timeline
Priority 2023 2024 2025
P1 (Modernize
grid)
•Grid modernization
study completion, hire
contractor
•Reliability/Resiliency
Strategic Plan
•Begin a 5-7 year construction effort to increase
reliability and transformer capacity
•Implement Reliability and Resiliency Strategic Plan
Design and launch programs:P2 (Launch
programs)•Full-scale HPWH
program
•Pilot commercial HVAC
•Single-family whole home
•Full-scale commercial
HVAC
Design and launch
additional programs based
on the 2024 studies (See
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Priority 2023 2024 2025
•Municipal
electrification
•Downtown parking
management program
•On-demand transit
pilot
•Full-scale multi-family EV
charger program
(tentative)
Studies to guide program launches:
•EV Strategic Plan
•Multi-family and
income-qualified EV
work plan
•Bicycle Plan update
•Work plan for commuter
and visitor EV charging
and EV promotion
•Vision Zero program
(tentative)
P4 for other studies that
may result in new
programs) and the EV
Strategic Plan
Build awareness of the need for climate action and the City’s services and
achievements. Drive community actions to achieve S/CAP goals. Build confidence in
the City’s electric infrastructure. Report results from new and existing programs:
P3 (Build
awareness and
confidence)
•New program: HPWH
pilot
•Existing programs:
•Existing Mobility
programs
•Multi-family EV
charger
•New programs: Full-scale
HPWH program, commercial
HVAC pilot
•Continuation of existing
programs
•New programs; Full-
scale HVAC, multi-
family EV charger
•Continuation of
programs
•Evaluate new
programs based on
studies
P4 (Additional
emissions
reductions)
•Seek ideas from
community members
and other experts
•Monitor technologies
and medium term
opportunities
•Multi-family and non-
residential electrification
study
•Study highest potential
community
ideas/technologies
P5 (Funding
needs and
sources)
•Evaluate
implementation cost
for full scale high
impact / lower cost
programs
•Preliminary
evaluations of
potential funding
sources
•Decisions on how to fund
priority electrification areas
•Develop financial and
operational plan for gas
utility
•Implement follow up
from prior-year
studies
During the Finance Committee’s May 9, 2023 meeting, Committee members inquired about the
potential to waive or reduce permit fees for electrification projects to further incentivize climate
action. Multiple work items in the 2023-2025 S/CAP Work Plan include the potential for waived
or reduced fees. Staff will evaluate waiving or reducing fees through development of pilot
programs for whole home electrification, affordable housing EV charging and electrification, and
commercial rooftop HVAC electrification. Additionally, the work item for single-family
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electrification rebates implicitly includes permit fees, as rebates and fee waivers are both options
for using other funding sources to reduce the cost of electrification projects for permittees. As a
first step, staff will contact other cities that have implemented electrification fee waivers to learn
about the structure of their programs.
Sustainability
The Sustainability section of the draft work plan implements the S/CAP goals for a sustainable
natural environment (including reducing waste, creating a sustainable and holistically managed
water system, and a thriving urban canopy) by:
•Reducing water consumption while exploring ways to capture and store water, and
increase the availability and use of recycled water
•Developing and adopting a multi-year Sea Level Rise Adaptation Plan
•Minimizing wildland fire hazards through Foothills Fire Management Plan
implementation, zoning, and collaborating with Fire agencies
•Increasing Palo Alto’s Tree Canopy and reducing pesticide usage in parks and open space
preserves
•Supporting the Green Stormwater Infrastructure (GSI) Plan and incorporating it in
municipal projects
•Encouraging food waste reduction, prevention, and recovery and providing waste
prevention technical assistance
•Eliminating single-use disposable containers and prioritizing domestic processing of
recyclable materials
The Sustainability section Key Actions were prioritized based on the co-benefits analysis
conducted by the City’s consultant, AECOM.
The draft 2023-2025 S/CAP Work Plan implements the direction of the S/CAP Ad Hoc Committee
as put forth in the October 3rd City Council Motion (October 3 Action Minutes, page 410) to refer
to S/CAP Ad Hoc committee to begin work on the following and present to the City Council by
year end an outline of:
1. Identification of community partner organizations and how they can help support the
S/CAP moving forward
2. Preliminary committee review of a prospective commercial HVAC electrification program
(E2)
3. An EV strategic plan (EV1-10)
It does this by creating a work plan and timeline for taking action on the items listed above.
10 October 3 Action Minutes, Page 4 https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-
reports/agendas-minutes/city-council-agendas-minutes/2022/20221003/20221003amccsm.pdf#page=4
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Palo Alto’s 2021 Greenhouse Gas Emissions Inventory
Cities represent the single greatest opportunity for tackling climate change, as they are
responsible for 75 percent of global energy-related carbon dioxide emissions, with transportation
and buildings among the largest contributors11. The first step for cities to realize their potential
is to identify and measure where their emissions come from.
In 2021, Palo Alto emitted an estimated 359,312 metric tons (MT) of carbon dioxide equivalent
(CO2e) from the residential, commercial, industrial, transportation, waste, water, and municipal
sectors.12 In comparison to the 1990 base year emissions (which were about 780,000 metric
tons), that is a 53.9 percent decrease in total community emissions, despite a population increase
of 19.5 percent during that same time period. Of that 53.9 percent reduction to-date, 44.2
percent came from achieving carbon neutrality for the City’s electricity portfolio, 28.6 percent
from declines in transportation emissions, 13.9 percent from reduction in natural gas
(methane13) consumption, 11.5 percent from declines in solid waste emissions, and 1.7 percent
from declines in wastewater-related emissions. In comparison to 2020, that is a 6.7 percent
decrease in total community emissions.
A comparison of 1990, 2019, 2020, and 2021 GHG emissions is shown in Figure 1. The full 2021
GHG inventory can be found in Attachment E. The full comparison between the 1990 and 2021
inventories can be found in Attachment F.
11 UN Environment Programme, ”Cities and Climate Change,” https://www.unep.org/explore-topics/resource-
efficiency/what-we-do/cities/cities-and-climate-change
12 Carbon dioxide equivalent is a unit of measure that normalizes the varying climate warming potencies of all six
GHG emissions, which are carbon dioxide (CO2), methane (CH4), nitrous oxide (N2O), hydrofluorocarbons (HFCs),
perfluorocarbons (PFCs), and sulfur hexafluoride (SF6). For example, one metric ton of nitrous oxide is 210 metric
tons of CO2e.
13 Methane, which is the primary component of natural gas, is a very potent greenhouse gas, with a global
warming potential that is 25 times higher than CO2 over a 100-year period.
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Figure 1: 1990 vs 2021 GHG Emissions by Sector
As shown in Figure 2, the two largest categories of emissions are transportation and mobile
sources (including on-road transportation, airport emissions, off-road vehicles, and Caltrain
commuter rail) and natural gas use (including residential, commercial, and industrial). For the
emissions sources in 2021, 51.7 percent are from on-road transportation, 37.8 percent are from
natural gas (methane) use, and the remainder are from other sources.
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Figure 2: 2021 GHG Emissions by Sector
Palo Alto’s Progress Towards Carbon Neutrality
Carbon neutrality focuses on balancing the amount of GHGs emitted against the amount of GHGs
removed from the atmosphere. In Palo Alto, we strive for net zero emissions – reducing GHG
emissions as close to zero as possible, then “offsetting” remaining emissions. It’s like trying to
balance a scale. If there are GHG emissions remaining after reduction strategies have been
exhausted, “offsets” are used to balance out or get to zero. Offsets are actions, such as carbon
sequestration, taken to reduce – or “offset” - the amount of GHGs emitted. Carbon sequestration
is the process of capturing and storing atmospheric carbon dioxide. For example, buying into new
forest growth to store carbon in trees in one geographic area can offset GHGs emitted in another
area.
Palo Alto currently purchases carbon offsets to balance emissions from natural gas (methane)
use. However, we do not include these offsets in our GHG inventory. We do, however, include
these offsets for the purposes of estimating our progress towards achieving carbon neutrality. As
shown in Figure 3, if we include natural gas (methane) carbon offsets, then we are at 71.3%
emissions reductions.
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Figure 3: 2021 Progress Towards Carbon Neutrality
Progress in S/CAP Areas
In addition to our overall emissions reductions progress, we are tracking key performance
indicators in all S/CAP Areas. Highlights include:
•Climate Action: City Council passed the 2022 updates to the Green Building Ordinance14
(also referred to as "2022 Reach Codes"). These carry over the requirements of the 2019
Reach Codes, with additional requirements in the areas of building electrification, EV
infrastructure, water efficiency, and embodied carbon in building materials. The 2022
Reach Codes went into effect in January 2023, and collectively will avoid over 3,420 MT
CO2e per year.
•Energy: The Full-Service Heat Pump Water Heater (HPWH) Pilot Program15 launched after
receiving Council Approval in September 2022. The program will make it easier and more
affordable for residents to switch to a HPWH, with a goal of replacing 1,000 gas water
heaters by the end of 2023. If fully subscribed, the program will reduce emissions by about
14 Green Building Ordinance and Energy Reach Codes; https://www.cityofpaloalto.org/City-
Hall/Sustainability/Green-Building-Code-Requirements
15 Full Service Heat Pump Water Heater Pilot Program; https://www.cityofpaloalto.org/SwitchYourWaterHeater
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800 MT CO2e per year. At the end of 2022, there were 208 all electric homes in Palo Alto,
compared to 135 at the end of 2016.
•Electric Vehicles: One in five households in Palo Alto now drives an EV. In 2022, there
were an estimated 6,500 electric vehicles (EVs) registered in Palo Alto – 6 times more than
in 2014 – collectively avoiding approximately 15,600 MT CO2e per year.
•Mobility: In 2021, Palo Alto received the League of American Bicyclists’ Gold-Level Bicycle
Friendly Community (BFC) Award16 in recognition of the years of work our transportation
professionals, bike advocates, and residents have put in to creating transportation and
recreational resources that benefit residents of all ages and abilities while encouraging
healthier and more sustainable transportation choices. Palo Alto is one of 34 Gold Level
BFCs out of a total of 487 BFCs nationwide. In 2022, Palo Alto made significant progress
on the City’s 6th Cycle 2023-2031 Housing Element. The draft Housing Element17
identifies potential sites for the construction of new housing units over the next eight
years, which would assist in further reducing transportation emissions and vehicle miles
traveled.
•Water: In July 2022, the City kicked off a One Water planning process in collaboration with
Carollo Engineering. The 20-year One Water Plan18 will address future uncertainties such
as imported water supply reliability, droughts, and climate change. Staff is working to
engage the public via stakeholder meetings, web updates, and more. The plan is
scheduled to be completed later this year.
•Climate Adaptation and Sea Level Rise: In 2022 the Sea Level Rise Vulnerability
Assessment19 was completed. The Vulnerability Assessment will inform the development
of a Sea Level Rise Adaptation Plan.
•Natural Environment: In June 2022, City Council adopted an updated Tree Ordinance20
that expands tree protection to include additional protected tree species, roughly tripling
the number of trees that would be classified as "protected" and imposes new
requirements for developers seeking to remove these trees. The updated Tree Ordinance
went into effect on July 21, 2022. In 2022, there were approximately 35,576 trees in the
public right-of-way and City-owned property, collectively avoiding 1,463 MT CO2e per
year, sequestering 2,375 MT CO2e per year, and providing $18.5 million in yearly eco
benefits. (Note: some trees are missing data points necessary for these calculations, so
this is undercounting by over 1,000 trees)
16 Palo Alto named Gold-Level Bicycle Friendly Community, June 2021; https://www.cityofpaloalto.org/News-
Articles/City-Manager/City-of-Palo-Alto-named-a-Gold-Level-Bicycle-Friendly-Community-by-the-League-of-
American-Bicyclists
17 2023-2031 Palo Alto Draft Housing Element; https://paloaltohousingelement.com/
18 One Water Plan; https://www.cityofpaloalto.org/Departments/Utilities/Sustainability/Water-Conservation-and-
Drought-Updates/One-Water-Plan
19 Sea Level Rise Vulnerability Assessment, 2022; https://www.cityofpaloalto.org/Departments/Public-
Works/Watershed-Protection/Sea-Level-Rise
20 Tree Ordinance, 2022; https://www.cityofpaloalto.org/Departments/Public-Works/Public-Services/Palo-Altos-
Urban-Forest/Tree-Ordinance-Update-2022/Tree-Ordinance-Information
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•Zero Waste: In December 2022 the City extended a successful pilot program21 through
2026 which will keep more plastic and paper recyclables in the U.S. Recent Council action
keeps 100 percent of the City's mixed paper and mixed rigid plastics to be recycled within
the United States. New contract changes with GreenWaste of Palo Alto, the City's refuse
hauler, reduce the recyclables sent to be processed internationally from 59 to 39 percent.
In 2022, Palo Alto earned a spot on environmental impact non-profit, CDP's 2022 Cities A List22.
Palo Alto was recognized as one of 122 cities taking bold leadership on environmental impact and
transparency. Of the over 1,000 local governments scored by CDP in 2022, only 12% received an
A.
Also in 2022, Palo Alto received an Honorable Mention in the “Small City Category” of the 2022
Climate Protection Awards from the U.S. Conference of Mayors23. The award winners are the
16th class of mayors to be honored for successful local climate action, changing how energy is
used and produced in cities resulting in reduced carbon use and emissions. The City was
recognized for the Multifamily Gas Furnace to Heat Pump Retrofit Pilot24.
FISCAL/RESOURCE IMPACT
Initiatives will be managed and funded across various departments and funds. Staff is working
with the Office of Management and Budget and the City Manager’s Office to bring forward
recommendations related to S/CAP needs as part of the Fiscal Year 2024 Proposed Budget, but
most will need to be prioritized in consideration of competing priorities. Funding and resources
will be discussed in greater detail with the S/CAP Ad Hoc Committee.
The Fiscal Year 2023 work items in the 2023-2025 draft S/CAP Work Plan can proceed with the
actions approved in the Fiscal Year 2023 Adopted Budget. Staff expects to submit additional
resource requests as part of the annual budget process in subsequent years as the work plan
proceeds for the following areas:
•Funding for newly launched programs: As new programs are proposed for launch, funding
for third-party program operators, rebates, and other expenses may be recommended to
manage the programs.
•Program sales and marketing: Additional resources (consultants and/or staffing) may be
needed for sales and marketing of future programs. Council partially approved these
resources along with its October 3, 2022 approval of the Advanced Heat Pump Water
21 Palo Alto is Now Keeping More Recyclables in the United States, Dec 2022;
https://www.cityofpaloalto.org/News-Articles/City-Manager/Palo-Alto-is-Now-Keeping-More-Recyclables-in-the-
United-States
22 CDP A List, 2022; https://www.cdp.net/en/cities/cities-scores
23 Climate Protection Awards from the U.S. Conference of Mayors, 2022; https://www.usmayors.org/wp-
content/uploads/2022/05/2022-Climate-Winning-Programs.pdf
24 Multifamily Gas Furnace to Heat Pump Retrofit Pilot, 2022;
https://www.cityofpaloalto.org/files/assets/public/sustainability/reports/palo-alto-multifamily-heat-pump-pilot-
report_final_3-4-22-with-appendices.pdf
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Heater pilot program25.
•Permit review: Permit activity associated with new programs will create a need for permit
review staff and/or consultants. Council approved permit review resources for the
Advanced Heat Pump Water Heater Pilot Program26, but not for future programs. These
resource requests will be recommended to be funded by increased permit revenue.
•Capital budgets for grid modernization: Additional engineering staffing has already been
approved for grid modernization work, but capital budgets for design and construction
work have not yet been proposed. Staff will recommend projects as part of the
development of the 2024-2028 five-year Capital Improvement Plan.
•Consulting budgets: Consulting budgets for calendar year 2023 and 2024 studies will be
considered through the FY 2024 budget process or as part of a separate budget
amendment where needed.
Some items in other work plans are also relevant to the S/CAP Work Plan. The Utilities Strategic
Plan, for example, includes workforce development and advanced metering infrastructure (AMI)
work items that are directly relevant to the S/CAP. Some of these may involve future budget
requests as well.
POLICY IMPLICATIONS
The S/CAP Report, 2023-2025 S/CAP Work Plan, and Earth Day Report align with one of the top
four Council Priorities for CY 2023: “Climate Change & Natural Environment: Protection and
Adaptation”.
STAKEHOLDER ENGAGEMENT
Wide-reaching and coordinated public engagement was done as part of the S/CAP Update prior
to acceptance of the proposed S/CAP Goals and Key Actions. Feedback from these engagement
processes informed development of the draft 2023-2025 S/CAP Work Plan. For a summary,
please see the Stakeholder Engagement section of Staff Report 1460627, packet page 101.
Additional engagement on the 2023-2025 S/CAP Work Plan included a meeting with the Council
S/CAP Ad Hoc Committee’s Working Group on November 4, 2022, and a public S/CAP Ad Hoc
Committee meeting on May 24, 2023.
During development of the S/CAP Update, the S/CAP Ad Hoc Committee and associated Working
Group and Working Group teams have been the primary venue for public engagement. As the
focus of the S/CAP work shifts from development to implementation, other models for both
25 City Council, September 27, 2022; Agenda Item #10; SR #14606,
https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-reports/agendas-minutes/city-council-
agendas-minutes/2022/20220927/20220927pccsmlinked-amended-v2.pdf#page=79
26 City Council, September 27, 2022; Agenda Item #10; SR #14606,
https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-reports/agendas-minutes/city-council-
agendas-minutes/2022/20220927/20220927pccsmlinked-amended-v2.pdf#page=79
27 City Council, September 27, 2022; Agenda Item #10; SR #14606,
https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-reports/agendas-minutes/city-council-
agendas-minutes/2022/20220927/20220927pccsmlinked-amended-v2.pdf#page=101
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engagement and governance of the work may be appropriate. Staff will return to Council later in
2023 to discuss the potential options.
ENVIRONMENTAL REVIEW
Staff commenced CEQA evaluation of the S/CAP, including the Work Plan elements described in
this staff report, upon Council’s October 3, 2022 acceptance of the proposed S/CAP Goals and
Key Actions. The City’s consultant, AECOM, conducted the Environmental Impact Report (EIR)
Addendum to the City of Palo Alto Comprehensive Plan Final Environmental Impact Report, which
evaluates the impacts of the proposed S/CAP. AECOM found that the S/CAP meets the
substantive and procedural recommendations for a GHG reduction plan per CEQA guidelines. The
Resolution Approving an Addendum to the Comprehensive Plan Environmental Impact Report
and Adopting the Sustainability and Climate Action Plan can be found in Attachment C.
ATTACHMENTS
Attachment A: Background on S/CAP Development
Attachment B: 2022 S/CAP Report
Attachment C: Resolution Approving an Addendum to the Comprehensive Plan Environmental
Impact Report and Adopting the Sustainability and Climate Action Plan
Attachment D: 2023-2025 S/CAP Work Plan
Attachment E: 2021 GHG Inventory
Attachment F: 1990 vs 2021 GHG Emissions by Sector and Subsector
APPROVED BY:
Brad Eggleston, Director Public Works/City Engineer
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Attachment A: Background on Sustainability and Climate Action Plan (S/CAP) Development
•April 18, 2016: City Council adopted the ambitious goal of reducing GHG emissions to 80
percent below 1990 levels by 20301 (the “80 x 30” goal) - 20 years ahead of the State of
California 80 x 50 target, and an interim step towards California’s statewide goal of achieving
carbon neutrality by 20452.
•November 28, 2016: City Council adopted the S/CAP Framework3, which has served as the
road map for achieving Palo Alto’s sustainability goals.
•December 11, 2017: City Council accepted the 2018-2020 Sustainability Implementation Plan
“Key Actions” as a summary of the City’s work program4.
•June 16, 2020: The City launched an S/CAP update to determine the goals and key actions
needed to meet its sustainability goals, including the 80 x 30 goal.5
•April 19, 2021: Staff presented a preliminary impact analysis and Council directed the Mayor
to form an S/CAP Ad Hoc Committee.6
•August 2021 to April 2022: The S/CAP Committee held several public meetings with City
staff.7
•November 17, 2021: The S/CAP Ad Hoc Committee held the first meeting of its S/CAP
Working Group, which assembled knowledgeable members of the community to consult with
Council members and City staff on S/CAP implementation priorities.
•December 13, 2021: Staff presented a Progress Report on the Sustainability and Climate
Action Plan Update and S/CAP Ad Hoc Committee Work8 to Council.
•March 7, 2022: Council and the Utilities Advisory Commission (UAC) held a joint study
1 City Council, April 18, 2016; Agenda Item #10; SR #6754,
https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-reports/reports/city-manager-reports-
cmrs/year-archive/2016/id-6754.pdf
2 In September 2018, Governor Brown signed California Executive Order B-55-18, setting the goal of achieving
carbon neutrality as soon as possible, and no later than 2045. The state is to maintain net negative net emissions
after 2045, meaning that GHG sinks must exceed GHG sources. The Executive Order explains that the carbon
neutrality goal is layered on top of the state’s existing commitments to reduce greenhouse gas emissions 40%
below 1990 levels by 2030 (as codified in SB 32), and 80% below 1990 levels by 2050.
3 City Council, November 28, 2016; Agenda Item #9; SR 7304
https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-reports/reports/city-manager-reports-
cmrs/year-archive/2016/id-7304.pdf
4 City Council, December 11, 2017; Agenda Item 15; SR #8487,
https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-reports/reports/city-manager-reports-
cmrs/year-archive/2017/id-8487.pdf
5 City Council, June 16, 2020; Agenda Item 1; SR #11404,
https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-reports/reports/city-manager-reports-
cmrs/year-archive/2020/id-11404-climate_sustainability-and-climate-action-plan.pdf?t=59513.75
6 City Council, April 19, 2021; Agenda Item 7; SR #12009,
https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-reports/reports/city-manager-reports-
cmrs/year-archive/2021/id-12009.pdf
7 S/CAP Ad Hoc Committee Website, https://www.cityofpaloalto.org/scapadhoc
8 City Council, December 13, 2021, Agenda Item 19; SR #13765
https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-reports/reports/city-manager-reports-
cmrs/2021/id.-13765-s-cap-update.pdf
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session9 to discuss sustainability and utility related items.
•April 11, 2022: Staff presented the Earth Day Report10 to Council on April 11, 2022. The Earth
Day Report described the work of the S/CAP Ad Hoc Working Group teams.
•June 14, 2022: The S/CAP Ad Hoc Working Group Teams held a public meeting to discuss their
progress on three areas that would advance residential building electrification goals:
•Engagement. The work of this team included fine-tuning messaging on residential
building electrification and developing a strategy and timeline for engagement.
•Technology. The work of this team included reviewing current and emerging technologies
and their feasibility for meeting the demands of a typical home and developing a strategy.
The team also considered the influence of electrification technologies that are
implemented on the electrical grid improvements that are needed.
•Finance. The work of this team included prioritizing the most feasible funding strategies
and developing a strategy for financing S/CAP Implementation.
The working group teams also discussed an outline of a proposed Advanced Heat Pump
Water Heater Pilot Program at the June 14 meeting. They agreed to have staff develop the
outline into a more defined proposal.
•September 27 and October 3, 2022: Staff and the S/CAP Committee recommended, and
Council accepted, the S/CAP Goals and Key Actions that would be used for environmental
review. Staff and the S/CAP Committee recommended the creation of an Advanced Heat
Pump Water Heater Pilot program and Council took several actions to enable the program to
be launched.11
9 City Council and Utilities Advisory Commission, March 7, 2022; Agenda Item 3; SR #14076
https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-reports/agendas-minutes/city-council-
agendas-minutes/2022/20220307/20220307pccsmamendedfinal-linked.pdf#page=42
10 City Council, April 22, 2022; Agenda Item 2; SR # 14174,
https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-reports/reports/city-manager-reports-
cmrs/2022/id.-14174-earth-day-report-2022-edr22.pdf
11 City Council, October 3, 2022; Agenda Item #9; SR # 14720
https://www.cityofpaloalto.org/files/assets/public/agendas-minutes-reports/agendas-minutes/city-council-
agendas-minutes/2022/20221003/20221003accsm-amended-presentations.pdf#page=131
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2022 SUSTAINABILITY AND
CLIMATE ACTION PLAN
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ACKNOWLEDGEMENTS
City staff worked tirelessly and enthusiastically to develop the City of Palo Alto Sustainability and
Climate Action Plan (S/CAP). Thanks to all City staff, City Council, the S/CAP Ad Hoc Committee, the
S/CAP Working Group, the S/CAP Working Group Teams, the Utilities Advisory Commission, the
Planning and Transportation Commission, the Parks and Recreation Commission, the City
Manager, partner organizations, and members of the public who contributed their expertise,
guidance, ideas, and feedback; conducted thorough document reviews; and participated in various
meetings. Staff looks forward to working together on implementation of this Plan.
CORE TEAM
Brad Eggleston Director, Department of Public Works
Christine Luong Sustainability Manager, Department of Public Works
Phil Bobel Former Assistant Director, Department of Public Works
Jonathan Abendschein Assistant Director, Resource Management, City of Palo Alto Utilities
Karin North Assistant Director, Department of Public Works
Heather Dauler Utilities Compliance Manager, City of Palo Alto Utilities
SUSTAINABILITY TEAM
City of Palo Alto Sustainability Team Leads
Christine Tam Senior Resources Planner, City of Palo Alto Utilities
Evon Ballash Assistant Building Official (retired), Planning and Development Services
David Chung Assistant Building Official, Planning and Development Services
Sylvia Star-Lack Manager, Office of Transportation
Rebecca Atkinson Planner, Planning and Development Services Department
Shiva Swaminathan Senior Resources Planner, City of Palo Alto Utilities
Mike Nafziger Senior Engineer (retired), Department of Public Works
Hiromi Kelty Acting Utilities Programs Services Manager, City of Palo Alto Utilities
Karla Dailey Assistant Director, Resources Management, City of Palo Alto Utilities
Lisa Bilir Senior Resource Planner, City of Palo Alto Utilities
Julie Weiss Watershed Protection Program Manager, Department of Public Works
Nathaniel Rainey Emergency Services Coordinator, Office of Emergency Services
Walter Passmore Urban Forester (no longer at the City), Department of Public Works
Peter Gollinger Urban Forester, Department of Public Works
Pam Boyle Rodriguez Manager, Stormwater Compliance Program, Department of Public Works
Paula Borges Fujimoto Manager, Solid Waste, Department of Public Works
Maybo AuYeung Manager, Environmental Control Program, Department of Public Works
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City of Palo Alto Sustainability Team
Danitra Bahlman Fleet Manager, Department of Public Works
Lisa Benatar Manager Utilities Program Services, City of Palo Alto Utilities
Catherine Elvert Communications Manager, City of Palo Alto Utilities
Cameron Grannis Sustainability Environmental Specialist, Department of Public Works
Wendy Hediger Environmental Specialist (retired), Department of Public Works
Makeila Kamelamela Climate Fellow, Department of Public Works
Shrupath Patel Associate Planner, Office of Transportation
Lena Perkins Senior Resources Planner, City of Palo Alto Utilities
Megan Schmiesing Program Assistant II, Department of Public Works
CONTRIBUTORS
City of Palo Alto
Amy Bartell Assistant City Attorney, Office of the City Attorney
Joanna Chan Senior Transportation Planner, Office of Transportation
Amanda De Jesus Senior Communications Strategist, City Manager’s Office
Kenneth Dueker Director, Office of Emergency Services
Sarah Fitzgerald Environmental Specialist, Department of Public Works
Meghan Horrigan-Taylor Chief Communications Officer, City Manager’s Office
Eric Keniston Senior Resource Planner, City of Palo Alto Utilities
Michael Luetgens Manager of Airport Operations, Department of Public Works
Scott Mellberg Program Manager, City of Palo Alto Utilities
Claire Raybould Senior Planner, Planning and Development Services Department
Roland Rivera Senior Business Analyst, Planning and Development Services Department
Jessica Ruppert Administrative Associate, Department of Public Works
Tim Shimizu Deputy City Attorney, Office of the City Attorney
James Stack Senior Resources Planner, City of Palo Alto Utilities
Andrew Swanson Airport Manager, Department of Public Works
Joanna Tran Executive Assistant to the City Manager, City Manager's Office
Eric Wong Associate Resource Planner, City of Palo Alto Utilities
Tim Wong Senior Planner, Planning and Development Services Department
Albert Yang Assistant City Attorney, Office of the City Attorney
Isabel Zacharczuk Senior Industrial Waste Investigator, Department of Public Works
CONSULTANTS
Bing Huo, Data Scientist
AECOM
Fehr and Peers
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TABLE OF CONTENTS
EXECUTIVE SUMMARY.................................................................................................................6
1. INTRODUCTION........................................................................................................................9
Why a Sustainability and Climate Action Plan?............................................................................10
Benefits of Climate Action............................................................................................................11
2. SUSTAINABILITY AND CLIMATE ACTION PLAN (S/CAP) OVERVIEW..........................................15
The 80 x 30 Goal: An introduction................................................................................................16
The Carbon Neutral by 2030 Goal ................................................................................................17
What’s New in This S/CAP ............................................................................................................18
S/CAP Goals ..................................................................................................................................18
The Role of Equity.........................................................................................................................19
Community Engagement..............................................................................................................19
Guiding Principles.........................................................................................................................20
3. IMPACTS OF CLIMATE CHANGE ..............................................................................................22
Climate Science 101......................................................................................................................23
What We Are Seeing Already .......................................................................................................24
Future Projections ........................................................................................................................24
Financial Impact of Climate Change .............................................................................................25
4. GREENHOUSE GAS EMISSIONS ...............................................................................................26
Greenhouse Gas (GHG) Inventory Framework.............................................................................27
Palo Alto’s 2021 GHG Emissions Inventory...................................................................................28
5. GOALS AND KEY ACTIONS ......................................................................................................39
Introduction..................................................................................................................................40
Climate Action ..............................................................................................................................45
Energy...........................................................................................................................................47
Transportation..............................................................................................................................49
Electric Vehicles............................................................................................................................51
Mobility ........................................................................................................................................53
Water............................................................................................................................................55
Climate Adaptation and Sea Level Rise ........................................................................................57
Natural Environment....................................................................................................................60
Zero Waste ...................................................................................................................................62
6. GETTING TO 80 X 30: COSTS AND IMPACTS ............................................................................65
Assessing the Impacts of Co-Benefits of achieving 80 x 30 ..........................................................66
Outcomes Needed to Achieve 80 Percent Reduction from 1990 Levels......................................67
Strategies to Achieve Building and Transportation Emissions Reductions...................................71
Total Cost to Achieve 80 Percent Reduction from 1990 Levels....................................................72
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7. NEXT STEPS - FURTHER EXPLORATION....................................................................................76
Principles for Going to Scale.........................................................................................................77
Implementation............................................................................................................................78
Funding Opportunities..................................................................................................................79
Community Engagement..............................................................................................................79
Leaving Room for new Strategies.................................................................................................80
Conclusion ....................................................................................................................................81
8. APPENDIX ..............................................................................................................................82
A. Glossary....................................................................................................................................83
B. Climate Change.........................................................................................................................86
C. Policy ........................................................................................................................................95
D. Methodology..........................................................................................................................107
LIST OF FIGURES
Figure 1: 1990 vs 2021 GHG Emissions by Sector..............................................................................29
Figure 2: 2021 GHG Emissions by Sector...........................................................................................30
Figure 3: Annual Diversion Rate Percentage.....................................................................................35
Figure 4: RWQCP Historical Total Greenhouse Gas Emissions..........................................................37
Figure 5: Spectrum of Tools for Achieving Climate Goals .................................................................40
Figure 6: Contributions of Various Emissions Reduction Measures to Achieving Emissions Goals...68
Figure 7: Key Actions by Cost per Metric Ton of Carbon Dioxide Equivalent Reduced.....................69
Figure 8: Cost per Metric Ton for Various Types of Emissions Reduction Actions............................70
Figure 9: Costs for Various Groups in the Palo Alto Community without Tax / Incentive System*..74
Figure 11: Gross U.S. GHG Emissions by Gas: 1990-2018..................................................................87
Figure 12: U.S. GHG Emissions by Economic Sector..........................................................................88
Figure 13: California GHG Emissions by Sector: 2000-2017..............................................................89
Figure 14: California 2017 GHG Emissions by Sector ........................................................................89
LIST OF TABLES
Table 1: 1990 vs 2021 GHG Emissions by Sector...............................................................................30
Table 2: 2021 Transportation and Mobile Sources ...........................................................................31
Table 3: 2021 Natural Gas (Methane) Use........................................................................................33
Table 4: 1990 vs 2021 Solid Waste Emissions by Subsector..............................................................35
Table 5: 1990 vs 2021 Wastewater-Related Emissions by Subsector ...............................................36
Table 6: S/CAP Co-Benefits................................................................................................................66
Table 7: Emissions by Source and Milestone ....................................................................................68
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EXECUTIVE
SUMMARY
EXECUTIVE SUMMARY
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Cities bear a unique responsibility when it comes to climate change. While occupying only 2
percent of the land on earth, cities consume 78 percent of the world’s energy1, accounting for up
75 percent of global emissions2, and are home to 55 percent of the global population3. Global
emissions need to halve by 2030 and reduce to net zero by 2050 to avoid catastrophic climate
change, according to the Intergovernmental Panel on Climate Change, the UN-backed body that
collates the science needed to inform policy. By 2050, two-thirds of the global population will live
in cities4, meaning that urban climate action is only going to become more urgent as growing
populations need safe and secure places to live and work. By taking actions to cut emissions and
reduce vulnerabilities, cities can gain multiple co-benefits from climate action.
The City of Palo Alto’s Sustainability and Climate Action Plan (S/CAP) establishes the goals of
reducing carbon emissions 80 percent below 1990 levels by 2030 (the “80 x 30” goal) and
achieving carbon neutrality by 2030. Importantly, the specific goals and key actions listed in the
S/CAP for each domain require, at a minimum, City Council approval and sufficient, timely
resources. The S/CAP does not convey that the City has the necessary approval or resources;
rather, it sets out what is needed to achieve the City’s targets.
Palo Alto has already made significant progress in its sustainability and climate action efforts,
decreasing its community emissions by 53.9 percent compared to 1990 levels. In 2021, Palo Alto
emitted an estimated 359,312 metric tons (MT) of carbon dioxide equivalent (CO2e)5, reduced
from 780,119 MT CO2e in the 1990 base year, despite a population increase of 19.5 percent during
that same time period. This equates to 5.4 metric tons of carbon dioxide equivalent (MT CO2e) per
Palo Alto resident in 2021 compared to 14 MT CO2e per Palo Alto resident in 1990. The California
Air Resources Board’s 2017 Scoping Plan Update recommends a goal for local governments of 6
MT C02e per capita by 2030.
However, to achieve the 80 x 30 and carbon neutrality goals, Palo Alto must meet a GHG emissions
target of 156,024 MT CO2e, or 2 MT CO2e per Palo Alto resident by 2030. Palo Alto will need to
reduce total emissions by about 203,288 MT CO2e, requiring a significant increase in the scale and
speed of reductions. To meet the 80 x 30 and carbon neutrality goals, this S/CAP provides goals,
strategies and key actions in eight areas: Climate Action, Energy, Mobility, Electric Vehicles, Water,
Climate Adaptation and Sea Level Rise, Natural Environment, and Zero Waste.
In 2022, the Intergovernmental Panel on Climate Change (IPCC) produced the Sixth Assessment
Report6 (AR6). This report identified the actions needed to have a reasonable chance of holding
average global temperature rise to 1.5 degrees Celsius (2.7 degrees Fahrenheit), the point at
which systemic impacts to global climate will have significant impacts to human societies and
1 https://www.un.org/en/climatechange/climate-solutions/cities-pollution
2 https://www.unep.org/explore-topics/resource-efficiency/what-we-do/cities/cities-and-climate-change
3 United Nations. World Urbanization Prospects. Demographic Research vol. 12 197–236
https://population.un.org/wup/Publications/Files/WUP2018-Report.pdf (2018).
4 United Nations Department of Economic and Social Affairs. World Urbanization Prospects. Demographic Research
vol. 12 197–236 https://population.un.org/wup/Publications/Files/WUP2018-Report.pdf (2018)
5 See section 4: Greenhouse Gas Emissions to learn more about how Palo Alto’s emissions are calculated.
6 IPCC 2022 Sixth Assessment Report. https://www.ipcc.ch/report/ar6/wg2/
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ecosystems. The Paris Agreement's7 long-term temperature goal is to keep the increase in global
average temperature to well below 2 °C (3.6 °F) above pre-industrial levels and to pursue efforts to
limit the increase to 1.5 °C (2.7 °F). It is worth noting that average global temperature rise has
already reached 1.1 °C, meaning that great urgency is required to achieve these goals.
Because of this rise in average global temperature, even if all global emissions were eliminated
today, we will see climate change impacts in the future, including sea-level rise, hotter
temperatures, and increased fire risk. Therefore, Palo Alto also understands the importance of
laying out a framework for enhancing its resilience to these impacts, while simultaneously working
to reduce the effect of climate change.
Preliminary staff and consultant modeling conservatively estimated the cost to achieve the
identified 71% reductions from 1990 levels. The modeling assumed up-front capital costs were
paid off over the life of the equipment and took into account ongoing costs and benefits. Staff
estimates the annual cost to the community in 2030, assuming all reductions are implemented
would be $53 million in costs offset by $43 million in benefits for a net $10 million in community
costs per year,8 which is less than 5% of the total amount the community spends on energy each
year. By 2033, benefits are estimated to match costs and from then forward, achieving these
emissions reductions would represent a net benefit to the community. This means achieving the
S/CAP goals could result in lower household and business expenses throughout the community in
the long term.
To ensure full implementation of the S/CAP, staff will provide annual progress reports, including
greenhouse gas (GHG) inventories, and will prepare a Work Plan for 2025 - 2030.
We will also need to explore revenue sources to fund additional solutions. The uncertainty of
global financial markets, including impacts from inflation and the possibility of a recession,
coupled with supply chain constraints are important factors to consider. With the cost of
commodities and services rising, consumers will have less to spend on discretionary areas. Federal
policies like the Inflation Reduction Act could help, although infrastructure projects such as
modernizing the electric grid require high upfront investment.
This S/CAP provides a pathway to meet our goals and build upon our past successes. It is also a call
to action to residents, community organizations, and businesses to take an active part in our
transition to a low-carbon future and clean economy. In this process, we will foster a vibrant
economy, increase our resiliency, and support Palo Alto’s vision for a livable and sustainable
community for all generations to come.
7 The Paris Agreement is a legally binding international treaty on climate change, adopted on December 12, 2015.
8 All costs and benefits are in 2021 dollars.
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SECTION 1
INTRODUCTION
1. INTRODUCTION
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Why a Sustainability and Climate Action Plan?
At the heart of the region that drives the fifth largest economy in the world, what is created in
Palo Alto has influence far beyond its borders. Palo Alto has made impressive progress toward
reducing its carbon impacts, GHG emissions, and resource consumption since establishing its first
Climate Protection Plan in 2007. While cities around the world ratchet up their own sustainability
initiatives, Palo Alto will need to act boldly to maintain its leadership position—and to ensure the
wellbeing of this community in the face of the challenges ahead.
Palo Alto is poised to take the next step in climate and sustainability leadership. The Sustainability
and Climate Action Plan (S/CAP) is Palo Alto’s ambitious plan to create a prosperous, resilient city
for all residents. To support Palo Alto’s leadership position on climate protection, this S/CAP is
designed to be a roadmap for our community’s response to challenges posed by climate change. It
is a living document that reflects the ongoing efforts and challenges our community faces as the
impacts from climate change grow more frequent, severe, and urgent.
In 1987, the United Nations Brundtland Commission defined sustainability as “meeting the needs
of the present without compromising the ability of future generations to meet their own needs.” A
sustainable Palo Alto will meet the needs of today’s residents while protecting ecosystems, natural
resources, and public infrastructure for future generations. Sustainability can be thought of as a
three-legged stool, comprised of social equity (people), economic health (prosperity), and
environmental protection (planet). Collectively, these “legs” are the foundation for a strong and
healthy quality of life. For its people to thrive — today and tomorrow — Palo Alto must strengthen
all three pillars.
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Since 1991, the Palo Alto City Council, City Manager, and City of Palo Alto Departments have
adopted policies, plans, ordinances, resolutions, and principles that have helped to increase the
sustainability of Palo Alto9. In addition, sustainability principles are integrated in the 2030
Comprehensive Plan10. The 2030 Comprehensive Plan contains the City’s official policies on land
use and community design, transportation, housing, natural environment, safety, business and
economics, and community services. Several goals and policies overlap with the S/CAP, a
subsection of which can be found in Appendix C.4.: City Policy. In April 2021, City Council formed
the S/CAP Ad Hoc Committee to guide the development, implementation, communication, and
future engagement of the S/CAP.
Our city cannot solve the climate crisis alone. Palo Alto will need to collaborate with our partners
in county, state, and federal government, along with community organizations and local
businesses, to create new programs, services, and policies that will support our community in
taking actions that reduce GHG emissions and build a prosperous, resilient city for all residents.
Benefits of Climate Action
Beyond the direct benefit of a more stable climate, many climate actions generate co-benefits
such as improved local air quality, reduced cost of living, and increased productivity. Assessing co-
benefits is important, as the process provides a truer and fuller range of beneficial outcomes that
in turn, allow us to better prioritize actions. The following co-benefits were selected for the S/CAP
because they align with community priorities and apply to multiple S/CAP Issue Areas (e.g., Energy,
Electric Vehicles, Zero Waste).
9 https://www.cityofpaloalto.org/City-Hall/Sustainability/Documents
10 https://www.cityofpaloalto.org/Departments/Planning-Development-Services/Long-Range-Planning/2030-
Comprehensive-Plan
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Air Quality
Actions to mitigate climate change can improve air quality through reduced exposure (indoor and
outdoor) to particulate matter (PM2.5 and PM10), nitrous oxide (NO2), ozone (O3), sulfur dioxide
(SO2) or airborne toxins. If the U.S. reduced emissions in a way consistent with the Paris
Agreement, it could reduce premature deaths from air pollution by about 30 percent in the next
decade.11 For the purposes of the S/CAP, Air Quality is a separate co-benefit from Public Health.
Public Health
Actions to mitigate climate change can improve physical and mental health, and access to healthy
food. Research suggests that living within 50 to 200 meters (55 to 219 yards) of major roadways
can trigger asthma symptoms among adults and children and contribute to the development of
asthma in children.12 Consequently, actions aimed at reducing traffic congestion, taking vehicles
off the road, and transitioning to electric vehicles can reduce risk of cardiovascular disease, chronic
and acute respiratory illnesses, cancer, and preterm births for those located near busy roads.
Actions that encourage active modes of transportation can reduce obesity and the risk of
noncommunicable diseases, improve mental health, and diminish the cost of public health
services. Transit-oriented and 15-minute neighborhoods13 increase local access to essential
services and nutritious food sources.14 Increased intake of more climate-friendly foods, such as
whole grains and vegetables, can reduce the risk of chronic diseases. Adaptation actions that
mitigate urban heat island15 effects, such as planting shade trees, lessen potential health risks to
sensitive populations. Health benefits from climate action bring tangible healthcare savings as
well. The cost of reducing CO2 emissions is less than the medical costs of treating the health
effects of climate change.16 Furthermore, improved indoor air quality by removing gas stoves from
homes could prevent 20 percent of childhood asthma in California.17
Public Safety
Actions that address sustainability and climate change can improve public safety through reduced
traffic, reduced incidence of traffic collisions, and reduced gas leaks. Such actions can also bolster
resilience to other dangers by decreasing exposure to climate hazards, adapting assets to
withstand climate threats and decreasing the number of people, assets, and services exposed to
climate hazards. Climate actions that support public safety can also enhance community cohesion
11 Nature. Climate and health impacts of US emissions reductions consistent with 2 °C.
https://www.nature.com/articles/nclimate2935
12 McConnell, R., et al. (2010). Childhood incident asthma and traffic-related air pollution at home and school. Environ.
Health Perspect. 118, 1021–1026. https://www.ncbi.nlm.nih.gov/pmc/articles/PMC2920902/.
13 A 15-minute neighborhood is a neighborhood in which you can access all of your most basic, day-to-day needs
within a 15-minute walk of your home.
14 The Lancet. The 15-minute city offers a new framework for sustainability, liveability, and health.
https://doi.org/10.1016/S2542-5196(22)00014-6
15 Areas that experience higher temperatures than outlying areas, generally with concentrated buildings and limited
vegetation.
16 Haines, A. (2017). Health co-benefits of climate action. The Lancet Planetary Health. Volume 1, Issue 1, Pages 4-e5,
ISSN 2542-5196. https://doi.org/10.1016/S2542-5196(17)30003-7.
17 Gruenwald, T., et al. (2023). Population Attributable Fraction of Gas Stoves and Childhood Asthma in the United
States. International Journal of Environmental Research and Public Health 20, no. 1: 75.
https://doi.org/10.3390/ijerph20010075
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– the networks of formal and informal relationships among neighbors that foster a mutually
supporting community. For example, one study found that even small amounts of greenery
increased the safety of urban areas.18 A survey of residents in many different types of
neighborhoods found that the more that neighborhoods were walkable, and neighbors knew each
other, the more likely neighborhood residents were to participate politically, trust others, and be
socially engaged.19
Regional Benefit
The S/CAP is focused on sustainability and climate change actions we can take in Palo Alto. These
actions will provide benefits to adjacent communities by generating jobs, expanding the electric
vehicle charging network, reducing congestion, and flood reduction. Regional collaboration is an
essential component to the success of many of the City’s sustainability and climate actions.
Resource Conservation
Actions that address sustainability and climate change can increase resource conservation in
building energy, vehicle fuels, and water; increase natural habitat conservation and regeneration,
and decrease waste generation.
Lifecycle Emissions
Actions that address climate change can reduce emissions associated with the extraction,
manufacture, and transport of energy resources (e.g., natural gas production, distribution). This
includes fugitive emissions, which are emissions of gases or vapors from pressurized equipment
due to leaks and other unintended or irregular releases of gases, mostly from industrial activities.
Methane, which is the primary component of natural gas, is a very potent greenhouse gas, with a
global warming potential that is 25 times higher than CO2 over a 100-year period.
Cost of Living
Actions that address sustainability and climate change can reduce cost of living through utility cost
savings, travel cost savings, and other savings. For example, a study by the University of California
Transportation Center estimated that maintenance of electric vehicles (EVs) would cost only 50
percent to 75 percent of the average maintenance cost of a conventional vehicle.20
Productivity
Actions that address sustainability and climate change increase productivity through reduced
commute times and reduced traffic, prioritized housing near transit, improved thermal comfort in
buildings, and reduced economic activity losses from climate-related events (e.g., flooding, power
outages).
18 Kuo, F.E. and Sullivan, W.C. (2001). Aggression and violence in the inner city: Impacts of environment via mental
fatigue. Environment & Behavior. 33(4): 543-571.
19 Leyden K. M. (2003). Social Capital and the Built Environment: The Importance of Walkable Neighborhoods. Am. J.
Public Health. 93:1546–1551.
20 Delucchi, M., Wang, Q. and Sperlin, D. (1989) Electric Vehicles: Performance, Life-Cycle Costs, Emissions, and
Recharging Requirements. http://citeseerx.ist.psu.edu/viewdoc/download?doi=10.1.1.294.3080&rep=rep1&type=pdf.
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Equity
Climate actions can foster a more equitable and inclusive community by addressing an existing
inequity in the community, such as disproportionate poor air quality, access to housing, or flood
risk. City-driven climate action approaches have the potential to increase equity and inclusion in
both the planning process as well as in long-term outcomes.
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SECTION 2
SUSTAINABILITY AND
CLIMATE ACTION PLAN
(S/CAP) OVERVIEW
2. SUSTAINABILITY AND CLIMATE ACTION PLAN
(S/CAP) OVERVIEW
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The 80 x 30 Goal: An introduction
To put California on the path to a low-carbon future, the California Air Resources Board (CARB)
approved the Climate Change Scoping Plan in 2008. The plan directed the State to reach 1990
emissions levels by 2020. Local governments were asked to reduce their municipal and
community-wide emissions by at least 15 percent by 2020 compared with current levels (2008
levels or earlier). This prompted many cities to adopt emissions reduction targets of at least 15
percent below 2005 levels. Palo Alto had already adopted a Climate Protection Plan in 2007 - one
of the first municipal climate action plans in the U.S. – which set a short-term goal of reducing
municipal GHG emissions 5 percent from 2005 levels by 2009 and a long-term goal of reducing
municipal and community-wide GHG emissions 15 percent from 2005 levels by 2020. Palo Alto
achieved both of those goals, and by 2012 had reduced municipal GHG emissions an estimated 53
percent below 2005 levels and had reduced municipal and community-wide combined GHG
emissions an estimated 22 percent below 2005 levels.
In 2015, Governor Brown issued Executive Order B-30-15 to set the 2030 emissions target (40
percent less than 1990 levels by 2030). It was codified by California Senate Bill 32 (SB 32). CARB
followed up with an updated California’s 2017 Climate Change Scoping Plan.21
In 2016, Palo Alto City Council adopted a combined municipal and community-wide emissions
reduction target of 80 percent below 1990 levels by 2030 (the “80 x 30” goal). Council also
adopted a draft S/CAP Framework, including Guiding Principles, Decision Criteria, and Design
Principles as the road map for development of subsequent S/CAP Implementation Plans. This
21 California Air Resources Board. (2017). The 2017 Climate Change Scoping Plan Update: The Proposed Strategy for
Achieving California's 2030 Greenhouse Gas Target. https://ww3.arb.ca.gov/cc/scopingplan/2030sp_pp_final.pdf.
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S/CAP retains the 80 x 30 goal but is a comprehensive plan – not a draft or a framework – for
achieving our sustainability and climate goals. The S/CAP is an ambitious plan to reduce the City
and community’s GHG emissions, while also guiding how we use our land and natural resources in
ways that ensure quality of life for future generations.
80 x 30 is the science-based target that represents our fair share of the global emissions reduction
target required to halve emissions by 2030, to reach global net zero by 2050, and to limit global
warming to 1.5 °C above pre-industrial levels.
The Carbon Neutral by 2030 Goal
When the 80 x 30 goal was adopted by Council in 2016, California’s emissions
reduction goal was to reduce GHG emissions 80% below 1990 levels by 2050.
In September 2018, Governor Brown issued California Executive Order B-55-
18, setting the goal to achieve carbon neutrality as soon as possible (by 2045
at the latest), and achieve and maintain net negative emissions from that
point forward. In October 2022, Council adopted an ambitious carbon neutral
by 2030 goal, building on the City's existing 80 x 30 goal.
The basic definition of carbon neutrality is taking steps to achieve net zero emissions by reducing
the amount of GHGs put into the atmosphere and then “offsetting” an equivalent amount of any
remaining emissions using carbon removal methods. Common methods include new forest growth
and removing carbon from the air and storing it underground. This carbon neutrality target is
based on the Paris Agreement.22. According to the Intergovernmental Panel of Climate Change
(IPCC), holding temperature rise below 1.5°C will mean global emissions of CO2 will need to decline
45 percent from 2010 levels by 2030 and reach net zero by 2050. U.S. cities that have adopted
aggressive targets of reducing emissions by 80 to 100 percent by 2050 or sooner include Berkeley,
Menlo Park, San Francisco, Santa Monica, Boulder, Minneapolis, New York City, Portland,
Washington D.C., and Palo Alto.
U.S. cities that have adopted Carbon Neutrality Goals include: Irvine, Los Angeles, Menlo Park, Palo
Alto, and San Jose by 2030; San Luis Obispo, San Mateo County, Santa Barbara by 2035; Davis by
2040; Albany, Berkeley, Dublin, Fremont, Los Angeles County, Oakland, Redwood City, Santa Clara
County, and Santa Monica by 2045; and, Long Beach, San Francisco, and Santa Monica by 2050.
Palo Alto currently purchases carbon offsets to balance emissions from natural gas (methane) use,
but we do not include these offsets in our GHG inventory. We do, however, include these offsets for
the purposes of estimating our progress towards achieving carbon neutrality. If we include natural
gas (methane) carbon offsets, then we are at 71.3% emissions reductions.
22 Paris Agreement.
https://unfccc.int/files/essential_background/convention/application/pdf/english_paris_agreement.pdf
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What’s New in This S/CAP
Since our first Climate Protection Plan was adopted in 2007, much has changed related to climate
protection. Consequently, this S/CAP:
•Incorporates new global, state, and local policies and climate targets, including carbon
neutrality.
•Ensures that our GHG inventory complies with the Global Protocol for Community-Scale
Greenhouse Gas Emission Inventories (GPC), which is an accounting and reporting standard
for cities.
•Identifies how Palo Alto’s goals align with global carbon reduction needs, as well as the
costs of inaction.
•Includes an assessment of the co-benefits of various Key Actions.
•Includes a preliminary assessment of the various financing tools available for making the
costs of the S/CAP more manageable.
•Looks at all the goals and key actions through an equity lens to make sure everyone
benefits, especially the most vulnerable members of our community.
S/CAP Goals
While the 80 x 30 and carbon neutral by 2030 goals are the overarching sustainability and climate
and sustainability goals, we have several equally important goals in the following eight areas:
Climate Action, Energy, Mobility, Electric Vehicles, Water, Climate Adaptation and Sea Level Rise,
Natural Environment, and Zero Waste. The S/CAP goals are described in further detail in section 5.
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The Role of Equity
We cannot address climate change without also addressing equity. Commonly, climate change
disproportionately threatens those who are the least responsible for generating pollution, the
most vulnerable to its impacts, and the least able to adapt. This is true globally, and it is also true
in Palo Alto. Many climate change impacts will disproportionately affect vulnerable populations -
populations with greater vulnerability to climate impacts because of their social inequities,
physical characteristics, or baseline conditions. According to ICLEI-Local Governments for
Sustainability (ICLEI), an international organization of local and regional governments, climate
equity ensures that all people have opportunities to benefit equally from climate solutions, while
not taking on an unequal burden of climate impacts.23 Simultaneously, the S/CAP outlines ways to
assist low-income community members, renters, and small businesses in accessing carbon-free
energy and technologies. When all community members have the same ability to plan for and
shape their futures, the result is a healthier and more resilient community.
However, achieving this vision requires hard work and intention. Palo Alto recognizes the
importance of proactively including socially vulnerable groups and those who have traditionally
been underrepresented in planning processes to participate in the City’s sustainability and climate
efforts. As Palo Alto implements the programs and policies that result from this S/CAP, we will
seek support and feedback from diverse groups of community stakeholders. Moving forward, Palo
Alto will evaluate programs and policies using key performance metrics that encourage equitable
engagement and impact.
Community Engagement
Stakeholder and community engagement is an essential element of S/CAP development. Original
March 2020 outreach plans included in-person engagement, listening sessions, and community
workshops to solicit feedback on the draft S/CAP Potential Goals and Key Actions. COVID-19
disruption required City staff to switch to a virtual model for a majority of the S/CAP outreach.
S/CAP engagement efforts included:
•Eight-part, virtual, on-demand S/CAP Community Engagement Workshop (March 2020-
April 2020)
•Webinar series highlighting specific topics addressed in the S/CAP (September 2020-
December 2020)
•Virtual public meetings of the S/CAP Ad Hoc Committee, including extensive public
participation (August 2021-June 2022)
•On-line survey to help inform sustainability and climate conversations taking place with the
S/CAP Ad Hoc Committee and City Council (Launched September 2021)
•In-person community workshop focused on electrification tools and options for residents
(October 2022)
•Monthly Sustainability Newsletter
•Monthly Climate Action Blog Series
23 ICLEI: Local Governments for Sustainability. (n.d.). Climate Equity. https://icleiusa.org/programs/climate-equity/
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In addition, the S/CAP Ad Hoc Committee formed an S/CAP Ad Hoc Working Group to draw upon
the expertise of community members. Working Group members are individuals who commit to
attending multiple S/CAP Ad Hoc Committee meetings and to working on discrete projects outside
the meetings. There are currently 5 community members in the S/CAP Ad Hoc Working Group,
including a high school student who regularly engages with youth. The S/CAP Ad Hoc Committee
and S/CAP Ad Hoc Working Group participated in a Residential Building Electrification Workshop
(November 2021) and formed Working Group Teams that engaged additional community
members as well as members of the Utility Advisory Commission.
We incorporated all the extensive community feedback into the second and third iterations of the
S/CAP Goals and Key Actions. Staff incorporated guidance from the S/CAP Ad Hoc Committee, the
S/CAP Working Groups, and the S/CAP Working Group teams into the fourth and final version of
the S/CAP Goals and Key Actions. City Council accepted the final version of the S/CAP Goals and
Key Actions in October 2022. Staff brought the full S/CAP to City Council for adoption in June 2023
after considering the Addendum and the Final Comprehensive Plan Environmental Impact Report
and finding them adequate.
Guiding Principles
The Vision Statement for the 2030 Comprehensive Plan Governance Element declares that:
“Palo Alto will maintain a positive civic image and be a leader in the regional, State and
national policy discussions affecting the community. The City will work with neighboring
communities to address common concerns and pursue common interests. The public will be
actively and effectively involved in City affairs, both at the Citywide and neighborhood
levels. Where appropriate, the City Council will delegate decision-making responsibilities to
local boards and commissions. The Council will also assign advisory roles to these bodies as
well as other community groups. Residents, businesses and elected and appointed officials
will work collaboratively to address the issues facing the City in a timely manner. This
inclusive, participatory process will help build a sense of community.”24
24 https://www.cityofpaloalto.org/Departments/Planning-Development-Services/Long-Range-Planning/2030-
Comprehensive-Plan
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S/CAP builds on that vision with these guiding principles as a basis for effective and sustainable
decision-making:
•Consider “sustainability” in its broadest dimensions, including quality of life, the natural
environment and resilience, not just climate change and GHG emissions reductions.
•Address the sustainability issues most important to the community and select most cost-
effective programs and policies—recognizing that this will entail moral and political, as well
as economic, decision factors.
•Seek to improve quality of life as well as environmental quality, economic health, and social
equity.
•Foster a prosperous, robust, and inclusive economy.
•Build resilience—both physical and cultural—throughout the community.
•Include diverse perspectives from all community stakeholders, residents, and businesses.
•Recognize Palo Alto’s role as a leader and linkages with regional, national, and global
community.
Design Principles
In both evaluating this S/CAP, and in developing and evaluating future programs guided by it, Palo
Alto is guided by these design principles:
•Focus on what’s feasible - recognizing that technology and costs are shifting rapidly.
•Prioritize actions that are in the City’s control – recognizing that we can urge others to join
us, but leading by example is most effective
•Be specific about the actions and costs to achieve near-term goals, while accepting that
longer-term goals can be more aspirational
•Use ambient resources: Maximize the efficient capture and use of the energy and water
that fall on Palo Alto.
•Full cost accounting: Use total (life cycle) cost of ownership and consideration of
externalities to guide financial decisions, while focusing on emission reductions that are
achievable at a point in time (i.e., not on life cycle emissions).
•Align incentives: Ensure that subsidies, if any, and other investment of public resources
encourage what we want and discourage what we don’t want.
•Flexible platforms: Take practical near-term steps that expand rather than restrict capacity
for future actions and pivots.
Decision Criteria
In selecting specific programs and policies to pursue, and in allocating public resources to support
them, Palo Alto will be guided by these decision criteria:
•Greenhouse gas reduction impact
•Quality of life impact
•Mitigation cost
•Return on investment (ROI)
•Ecosystem health
•Resilience
•Impact on future generations
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SECTION 3
IMPACTS OF
CLIMATE CHANGE
3. IMPACTS OF CLIMATE CHANGE
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Climate Science 10125
Climate change presents one of the most significant challenges of our time. Increasing
atmospheric levels of GHG emissions destabilize the Earth’s climate system. GHG emissions are
invisible, and include carbon dioxide (CO2), methane (CH4), nitrous oxide (N2O), and three man-
made gasses: hydrofluorocarbons (HFCs), perfluorocarbons (PFCs), and sulfur hexafluoride (SF6).
As more GHGs are trapped inside the Earth’s atmosphere, more of the sun’s energy is trapped as
heat, which means temperatures keep getting hotter. In fact, the world has already become nearly
1°F warmer since 1880, and we’re seeing extreme consequences because of it, including more
intense storms, greater wildfire risk, and rising sea levels.
Although we’re already seeing impacts of climate change, there’s a range of how relatively mild or
devastating the future impacts might be, depending on how aggressively we act to address climate
change. Scientists have laid out four pathways, or scenarios, based on future levels of GHG
emissions. The pathways range from the very optimistic to the highly pessimistic. The strategies
laid out in this S/CAP are in alignment with the most optimistic pathway. For more information
about climate change, its impacts, and the four pathways, see Appendix B: Climate Change, in
Section 8.
The Earth Has a Fever
Atmospheric scientist Dr. Katharine Hayhoe, Professor and Director at the Texas Tech University
Climate Science Center, has a simple way to explain the impact of rising global temperatures:
“When we say the planet is warming by one or two or three degrees Celsius, often we think, ‘Well,
that's nothing.’ But if our body’s temperature goes up one and a half to three or even four degrees
Fahrenheit, we are running a fever. We go to the doctor. If it was three or four degrees, we go to
the hospital. And that's what's happening to our planet. It is running a fever. And that fever is
affecting us.”
25 This section was adapted from the Regionally Integrated Climate Action Planning Suite (RICAPS) Climate Action Plan
(CAP) Template Version 9.4. The CAP Template was developed in partnership with the City/County Association of
Governments of San Mateo County (C/CAG) and the County of San Mateo Office of Sustainability through the San
Mateo County Energy Watch program and its RICAPS initiative. RICAPS is co-funded by C/CAG and PG&E.
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What We Are Seeing Already
Climate change will have many different effects on society and on the natural world. Plant and
animal species are adapting to changing environments by migrating to new areas. As species
move, they bring diseases with them to farms and human populations. Some species become
extinct due to either human-caused climate change or to human activities such as habitat
destruction or toxic pollution.
The region’s annual maximum temperature increased 1.7°F from 1950-2005.
Coastal fog, which is critical to the region’s climate and ecosystems, is less frequent
than ever before.
Sea level has risen over 8 inches in the last century.
The forceful 2015-2016 El Niño weather pattern, which was one of the three largest
in history, resulted in unprecedented outer coast beach erosion due to winter wave
energy that was more than 50 percent greater than a typical winter.
The 2012-2016 statewide drought led to the most drastic moisture shortages in the
last 1,200 years, resulting in a 1-in-500-year low in Sierra snowpack, $2.1 billion in
economic losses, 21,000 jobs lost statewide in agricultural and recreational sectors,
and a continuing exhaustion of groundwater sources.
California has seen larger, hotter, and more intense wildfires in recent years, driven
by extended drought and climate change. Of the 20 largest fires in California’s
history, eight occurred between 2017- 201926.
Future Projections
Even if considerable efforts to reduce GHG emissions are conducted, Palo Alto will likely see
substantial temperature increases by 2050. By 2100, temperature rise will be dependent on
the emissions scenario. (For more information about the four emissions scenarios, see
Appendix B.4)
Precipitation in Palo Alto will continue to vary each year. The differences between wet and
dry years are projected to become more extreme and damaging in the coming decades. If
26 CARB’s fire emission modeling results indicate that wildfires transferred an average of 15 million metric tons of CO2
(MMTCO2) per year from plants into the atmosphere during 2000-2019. When including 2020 and 2021, the annual
average is 22 MMTCO2 per year. To put things into perspective, 22 MMTCO2 is equivalent to the amount of carbon
contained in the structural lumber of 1.2 million average California single-family homes, or about 15 percent of all
single-family homes in California.
https://ww2.arb.ca.gov/sites/default/files/classic/cc/inventory/Wildfire%20Emissions%20FAQ%202022.pdf
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no action is taken to combat climate change, the Sierra snowpack, a critical source of water
for the State, will decrease by an average of 64 percent by the end of the century.27
As temperature continues to increase, it is anticipated to cause longer and more intense
California droughts, posing major problems for government operations, water supplies,
ecosystems, agriculture, and recreation.
Studies suggest that even with significant emissions reductions, it is inevitable that there
will be at least 6 feet of sea level rise over the next several centuries due to the delayed
effects of climate change.
Climate change could have broad impacts to communities and people – hitting those most
vulnerable first and worst. High levels of socioeconomic inequity in the Bay Area create
large differences in the ability of individuals to prepare for and recover from heat waves,
floods, and wildfires.
Financial Impact of Climate Change
As climate-related natural disasters become more frequent and intense, costs for disaster
response and relief are anticipated to increase. With flooding, storms, droughts, wildfires, and
other climate-related natural disasters becoming more common, flood insurance and flood
prevention costs will grow.28
Climate change is anticipated to impact public buildings, storm water infrastructure,
transportation infrastructure, community services, and land-use planning and development.
Climate damage to homes and businesses could negatively impact the economy and reduce Palo
Alto’s income from property and sales taxes, not to mention damage the quality of life for all
community members.
If Palo Alto allocates resources and invests in climate-protecting strategies now, it will be
insurance against some of the costliest effects of a hotter planet in the future.
27 UCLA Center for Climate Science. (2018). Climate Change in the Sierra Nevada. https://www.ioes.ucla.edu/wp-
content/uploads/UCLA-CCS-Climate-Change-Sierra-Nevada.pdf
28 American Meteorological Society. (2018). Explaining Extreme Events from a Climate Perspective.
https://www.ametsoc.org/ams/index.cfm/publications/bulletin-of-the-american-meteorological-society-
bams/explaining-extreme-events-from-a-climate-perspective/.
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SECTION 4
GREENHOUSE GAS
EMISSIONS
4. GREENHOUSE GAS EMISSIONS
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Greenhouse Gas (GHG) Inventory Framework
Cities represent the single greatest opportunity for tackling climate change, as they are
responsible for 75 percent of global energy-related carbon dioxide emissions, with transportation
and buildings among the largest contributors29. The first step for cities to realize their potential is
to identify and measure the sources of their emissions. Best practices for identifying these sources
and quantifying emissions is to utilize a standardized GHG inventory.
There are two types of Greenhouse Gas (GHG) emissions inventories:
1.Generation-based GHG inventory – This measurement method helps a community
understand its level of emissions based on community energy use. It includes 1) direct
consumption of energy, 2) consumption of energy via the electrical grid, and 3) emissions
from the treatment/decomposition of waste. This is the industry-accepted methodology
for quantifying community GHG emissions, with emissions reported by emission source
category30.
2.Consumption-based GHG inventory – This measurement method helps a community
understand its level of emissions based on consumption. It offers an alternative, more
holistic, approach for quantifying emissions within a community, quantifying consumption
of goods and services (including food, clothing, electronic equipment, etc.) by residents of a
city, with emissions reported by consumption category.
In 2014, World Resources Institute, C40 Cities Climate Leadership Group (C40) and ICLEI – Local
Governments for Sustainability (ICLEI)31 partnered to create a global standard protocol for the first
type: generation-based GHG inventories. The GHG Protocol standard for Cities32 provides a robust
framework for accounting and reporting city-wide GHG emissions for a generation-based
inventory. The GPC Protocol is the official protocol specified by the Global Covenant of Mayors and
defines what emissions must be reported and how. In addition, this inventory draws on methods
from the U.S. Community Protocol33, which provides more detailed methodology specific to U.S.
Communities. The GPC Protocol seeks to:
•Help cities develop a comprehensive and robust GHG inventory to support climate action
planning
•Help cities establish a base year emissions inventory, set reduction targets, and track their
performance
•Ensure consistent and transparent measurement and reporting of GHG emissions between
cities, following internationally recognized GHG accounting and reporting principles
•Enable city inventories to be aggregated at subnational and national levels
29 See UN Environment Programme, ”Cities and Climate Change,” https://www.unep.org/explore-topics/resource-
efficiency/what-we-do/cities/cities-and-climate-change
30 There are two reporting frameworks commonly used by cities: the U.S. Community Protocol and the Global Protocol
for Communities (GPC). Palo Alto uses the GPC framework.
31 Formerly the International Council for Local Environmental Initiatives, renamed in 2003 to ICLEI – Local
Governments for Sustainability.
32 The GPC is the official protocol specified by the Global Covenant of Mayors and defines what emissions must be
reported and how.
33 U.S. Community Protocol; https://icleiusa.org/us-community-protocol/
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•Demonstrate the important role that cities play in tackling climate change, and facilitate
insight through benchmarking – and aggregation – of comparable data
Palo Alto’s 2021 GHG Emissions Inventory
The 2021 Palo Alto GHG inventory, completed by AECOM, uses the approach and methods
provided by the GPC. Inventory calculations were performed using the ClearPath34 tool, a software
platform designed for creating GHG inventories. The City’s GHG inventory conforms to the GPC
Basic protocol for a generation-based GHG inventory. Staff did not complete a consumption-based
GHG inventory as there is no State guidance yet, though staff believes this inventory type is
valuable. CARB has been tasked with developing an implementation framework and accounting to
track consumption-based emissions over time.35 In particular, this framework needs to address
how to account for the embodied emissions in the food, goods, and services the community
purchases that are not covered by generation-based GHG inventories. While Palo Alto awaits State
guidance on how to account for these consumption-based emissions reductions, the community
can work to reduce these emissions in the meantime.
Palo Alto’s first generation-based inventory was completed for 2005 and then extrapolated for
1990 (the baseline year). Beginning in 2010, new community GHG inventories were completed
annually, enabling Palo Alto to track progress over time.
The GPC Basic protocol describes three emissions scopes for community emissions:
•Scope 1: GHG emissions from sources located within the city boundary, such as stationary
fuel consumption.
•Scope 2: GHG emissions occurring because of the use of grid-supplied electricity, heat,
steam, and/or cooling within the city boundary
•Scope 3: All other GHG emissions that occur outside the city boundary as a result of
activities taking place within the city boundary
This generation-based inventory follows the city-inducted framework in the GPC protocol, which
totals GHG emissions attributable to activities taking place within the geographic boundary of the
city36. Under the Basic reporting level as defined by the GPC protocol, the inventory requirements
cover scope 1 and scope 2 emissions from stationary energy and transportation, as well as all
emissions resulting from waste generating within the city boundary.
In 2021, Palo Alto emitted an estimated 359,312 metric tons (MT) of carbon dioxide equivalent
(CO2e) from the residential, commercial, industrial, transportation, waste, water, and municipal
sectors.37 In comparison to the 1990 base year emissions (which were about 780,000 metric tons),
34 https://icleiusa.org/clearpath/
35 Executive Department State of California. (2019). Executive Order B-55-18 to Achieve Carbon Neutrality.
https://www.ca.gov/archive/gov39/wp-content/uploads/2018/09/9.10.18-Executive-Order.pdf.
36 https://ghgprotocol.org/sites/default/files/standards/GHGP_GPC_0.pdf
37 Carbon dioxide equivalent is a unit of measure that normalizes the varying climate warming potencies of all six GHG
emissions, which are carbon dioxide (CO2), methane (CH4), nitrous oxide (N2O), hydrofluorocarbons (HFCs),
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that is a 53.9 percent decrease in total community emissions, despite a population increase of 19.5
percent during that same time period. This equates to 5.4 metric tons of carbon dioxide equivalent
(MT CO2e) per Palo Alto resident in 2021 compared to 14 MT CO2e per Palo Alto resident in 1990.
The California Air Resources Board’s 2017 Scoping Plan Update recommends a goal for local
governments of 6 MT C02e per capita by 2030.
Of that 53.9 percent reduction to-date, 44.2 percent came from achieving carbon neutrality for the
City’s electricity portfolio, 28.6 percent from declines in transportation emissions, 13.9 percent
from reduction in natural gas (methane38) consumption, 11.5 percent from declines in solid waste
emissions, and 1.7 percent from declines in wastewater-related emissions. In comparison to 2020,
that is a 6.7 percent decrease in total community emissions.
For the emissions sources in 2021, 51.7 percent are from on-road transportation, 37.8 percent are
from natural gas (methane) use, and the remainder are from other sources. A comparison of 1990,
2019, 2020, and 2021 GHG emissions is shown in Figure 1 and Table 1. The full comparison
between the inventories can be found in Appendix D.1. 1990 vs. 2020 Greenhouse Gas Emissions
by Sector and Subsector. Additional existing emissions sources that were missing from the 1990
GHG inventory were included in the 2021 GHG inventory to comply with the GPC Basic protocol
(Airport Emissions, Off-road Vehicles, Caltrain Commuter Rail, Composting, and Palo Alto Landfill
Gas Flaring).
Figure 1: 1990 vs 2021 GHG Emissions by Sector
perfluorocarbons (PFCs), and sulfur hexafluoride (SF6). For example, one metric ton of nitrous oxide is 210 metric tons
of CO2e.
38 Methane, which is the primary component of natural gas, is a very potent greenhouse gas, with a global warming
potential that is 25 times higher than CO2 over a 100-year period.
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Table 1: 1990 vs 2021 GHG Emissions by Sector
Sector 1990 GHG
emissions
(MT CO2e)
2019 GHG
emissions
(MT CO2e)
2020 GHG
emissions
(MT CO2e)
2021 GHG
emissions
(MT CO2e)
Percent
Change in
2021
from 1990
On-Road Transportation 331,840 293,413 217,279 185,925 -44.0%
Additional Transportation Sources 21,668 21,244 25,478 n/a
Natural Gas (Methane) Use 194,000 153,509 134,365 135,697 -30.1%
Natural Gas (Methane) Fugitive
Emissions
4,718 5,009 4,384 4,427 -6.2%
Wastewater-Related Emissions 8,504 2,197 1,388 1,262 -85.2%
Solid Waste 55,057 6,531 6,660 6,522 -88.2%
Brown Power Supply (Electricity) 186,000 - 100%
Total GHG Emissions (MT CO2e) 780,119 482,237 385,320 359,312 -53.9%
As shown in Figure 2, the two largest categories of emissions are (a) transportation and mobile
sources and (b) natural gas (methane) use.
Figure 2: 2021 GHG Emissions by Sector
Transportation and mobile sources include emissions from private, commercial, and fleet vehicles
driven within the City’s geographical boundaries, as well as the emissions from public transit
vehicles and the City-owned fleet. Off-road vehicles include airport ground support, construction
and mining, industrial, light commercial, portable equipment, and transportation refrigeration.
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Natural gas (methane) use includes emissions that result from natural gas (methane) consumption
in both private and public sector buildings and facilities, and residential, commercial, and industrial
sources. Fugitive emissions (methane gas that escapes during the drilling, extraction, and
transportation processes) related to natural gas (methane) consumption are calculated separately
and are discussed below. The City’s electricity supply has been carbon neutral since 2013, when
Council approved a Carbon Neutral Electric Resource Plan, committing Palo Alto to pursuing only
carbon-neutral electric resources and effectively eliminating all GHG emissions from the City's
electric portfolio.
Transportation and Mobile Sources
In 2021, transportation and mobile sources accounted for 58.8 percent of total GHG emissions in
Palo Alto, a 11.4 percent decrease from 2020. As shown in Table 2, transportation and mobile
sources consist of:
•On-Road Transportation – This includes all daily vehicular trips made entirely within the
Palo Alto city limits, one-half of daily vehicular trips with an origin within Palo Alto city
limits and a destination outside of Palo Alto city limits (this assumes that Palo Alto shares
half the responsibility for trips traveling from other jurisdictions), and one-half of daily
vehicular trips with an origin outside Palo Alto city limits and a destination within Palo Alto
city limits (this assumes that Palo Alto shares the responsibility of trips traveling to other
jurisdictions). Vehicular trips through Palo Alto are not included because Palo Alto cannot
solely implement policies that influence the trip-making behavior. Rather, through trips are
assigned to other jurisdictions that can influence either the origin or destination side of the
trip-making behavior.
•Airport Emissions – This includes emissions from take-offs and landings from trips that start
and end at Palo Alto Airport. This includes emergency services helicopters, sightseeing
helicopters, and training flights. Flights that take-off from Palo Alto Airport but land
elsewhere, and flights that land in Palo Alto Airport but take-off from elsewhere are not
included per GPC Basic Protocol.
•Off-road Vehicles - This includes airport ground support (based on take-offs and landings),
construction and mining, industrial (based on employment data), light commercial (based
on employment data), portable equipment (e.g. back-pack leaf blower, based on service
population), and transportation refrigeration units (based on service population).
•Caltrain Commuter Rail – This includes emissions from Caltrain travel within Palo Alto.
Table 2: 2021 Transportation and Mobile Sources
Subsector 2019 GHG
emissions
(MT CO2e)
2020 GHG
emissions
(MT CO2e)
2021 GHG
emissions
(MT CO2e)
Percent of
Total 2021
Emissions (%)
On-Road Transportation 293,413 217,279 185,925 51.7%
Airport Emissions 2,192 1,664 2,641 0.7%
Off-road Vehicles 14,634 15,029 18,961 5.3%
Caltrain Commuter Rail 4,842 4,552 3,876 1.1%
Total Transportation &
Mobile Sources
315,081 238,523 211,403 58.8%
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Estimating vehicles miles traveled (VMT) is a complicated process and is one of the few emissions
sources that the City does not estimate annually. Forecasts of on-road transportation emissions
are typically based on outputs from a travel forecasting model, other accounting-type method
(sketch models), or Big Data (vehicle navigation data from built-in GPS and location-based services
data from cell phones). Previously, Fehr & Peers provided VMT estimates for 2019, 2030, and
2040, with AECOM using the VMT estimates for 2019 to estimate the VMT for 2020. The VTA
model used to calculate Palo Alto’s 2019 annual VMT is only updated every few years and has not
yet been updated to better reflect changes in VMT due to the pandemic. For 2021, AECOM used
the VMT estimates from the Google Environmental Insights Explorer.
The Google Environmental Insights Explorer (EIE) uses aggregated data to derive local data,
including distance driven by mode, then applies regional assumptions from the Climate Action for
Urban Sustainability (CURB) tool — an internationally recognized third-party data source — to
estimate the mix of vehicle and fuel types. This reflects actual trips from geospatial data based on
continuous observation. Total distance traveled for all trips is aggregated and modeled to the
entire city using aggregated location information from Google Location History and other
sources. Google EIE is now GPC compliant, which is why staff opted to use the Google EIE data
instead of the VTA model, which has not been updated since before the pandemic. In addition,
ICLEI recommends cities use Google EIE data to estimate VMT.
On-road transportation accounts for approximately 51.7 percent of Palo Alto’s total emissions, a
14.4 percent decrease from 2020. Because the 2021 GHG inventory uses Google EIE to calculate
VMT and not the VTA model, it is possible that the emissions reductions in on-road
transportation were because of the change in methodology and not from actual reductions in
VMT. Using the VTA model, Fehr and Peers estimated VMT to be 729,969,567 total annual miles
in 2020 compared to 518,286,844 total annual miles in 2021 using Google EIE. In addition,
Google EIE does not use speed bin analysis39, whereas Fehr and Peers did. However, moving
forward, future GHG inventories will continue to use Google EIE to calculate VMT, so the 2022
GHG inventory will be a better comparison.
Off-road transportation accounts for approximately 5.3 percent of Palo Alto’s total emissions, a
26.2 percent increase from 2020, mainly from transportation refrigeration units and light
commercial (outdoor power equipment such as compressors and generators). Off-road
transportation emissions were not calculated in 1990. It is important to note that most of the off-
road transportation emissions are based on models at the County level that were not adjusted to
reflect any pandemic-induced activity changes and do not reflect Palo Alto-specific variation.
Caltrain commuter rail emissions account for approximately 1.1 percent of Palo Alto’s total
emissions, a 14.9 percent decrease from 2020. Caltrain electrification is a key component of the
39 GHG emissions are commonly calculated using forecasts of VMT that are grouped according to the average speed of
the traveling vehicles, which is called speed bin analysis. Slower-moving vehicles generate more pollutants, while
travel speeds between 40-50 miles per hour (mph) tend to represent the most fuel-efficient operating conditions for
internal combustion engines.
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Caltrain Modernization program40, with Caltrain scheduled to be electrified by the end of 2023 or
early 2024. Once the Caltrain Modernization program is complete, most of the Caltrain commuter
rail emissions will be eliminated.
Airport emissions account for approximately 0.7% of Palo Alto’s total emissions, a 58.7% increase
from 2020. Intracity flights fuel use is estimated by the City and not reflective of actual fuel
consumption.
Natural Gas (Methane) Use
In 2021, natural gas (methane) emissions accounted for 37.8 percent of total 2021 GHG emissions
in Palo Alto, a 1 percent increase from 2020 and a 30.1 percent decrease from 1990. As shown in
Table 3, Palo Alto’s total natural gas (methane) consumption in 2021 was 25,518,320 therms.
Residential energy accounts for 18.9 percent of total emissions, commercial energy accounts for
15.5 percent of total emissions, and industrial energy accounts for 3.4 percent of total emissions.
The pandemic drastically affected natural gas (methane) consumption. The temporary shelter-in
place order, as well as changes in how and where people worked, resulted in major changes in the
commercial and industrial sectors, with fewer people staying in hotels, going to restaurants, and
going to retail establishments in 2020. In 2021, as the commercial and industrial sectors began to
rebound, natural gas (methane) use increased 4 percent in the commercial sector and 1.8 percent
in the industrial sector. Natural gas (methane) use decreased 1.5% in the residential sector.
City Council unanimously approved Palo Alto’s Carbon Neutral Natural Gas Plan on December 5,
2016. The Natural Gas Plan, implemented on July 1, 2017, achieves carbon neutrality for the gas
supply portfolio by 1) purchasing high-quality carbon offsets equivalent to our City and community
natural gas (methane) emissions; 2) pursuing efficiency strategies to reduce natural gas (methane)
use, and 3) seeking opportunities to fund local offsets that finance actual emissions reductions in
Palo Alto and the surrounding region. As a bridging strategy, carbon offsets are being purchased in
an amount equal to the GHG emissions caused by natural gas (methane) use within the City.
However, offsets are not included in this GHG inventory.
Table 3: 2021 Natural Gas (Methane) Use
Subsector 2019
Consumption
(Therms)
2020
Consumption
(Therms)
2021
Consumption
(Therms)
Percent of Total
2021 Emissions
(%)
Residential Energy 13,565,360 12,952,262 12,756,160 18.9%
Industrial Energy 2,707,034 2,253,641 2,294,119 3.4%
Commercial Energy 12,954,768 10,061,842 10,468,041 15.5%
Total Natural Gas
(Methane) Use
28,867,162 25,267,739 25,518,320 37.8%
40 Caltrain Modernization Program; https://calmod.org/
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Natural Gas (Methane) Fugitive Emissions
Natural gas is mainly methane (CH4), some of which escapes during the drilling, extraction, and
transportation processes. Such releases are known as fugitive emissions. The primary sources of
these emissions may include equipment leaks, evaporation losses, venting, flaring and accidental
releases. Methane is a potent greenhouse gas – approximately 25 times more powerful than
carbon dioxide over a 100-year timescale.
In 2021, natural gas (methane) fugitive emissions accounted for 1.2 percent of total GHG
emissions in Palo Alto, an increase of 1 percent from 2019 and a decrease of 6.2 percent from
1990. Per the GPC, fugitive emissions from natural gas (methane) are based on overall community
consumption and a leakage rate of 0.03 percent.
As mentioned previously, the GPC Basic methodology includes GHG emissions attributable to
activities taking place within the geographic boundary of the city. As such, the 2021 GHG inventory
does not include a category of emissions that are called “upstream emissions,” which includes
emissions from extraction of natural gas (methane) and its transportation across the western
United States through California to Palo Alto. Leaks during gas extraction and transportation can
be very significant, so the actual impacts of natural gas (methane) use can be much more
significant than is represented in a formal greenhouse gas inventory.
Solid Waste
In 2021, Palo Alto's solid waste diversion rate was 84 percent, far exceeding the 50 percent
mandate for local jurisdictions. “Diversion” includes all waste prevention, reuse, recycling, and
composting activities that “divert” materials from landfills. The City uses the diversion rate to
measure progress on waste reduction and resource conservation goals. As shown in Figure 1
Figure 3, the diversion rate of 84 percent is an improvement from the 62 percent rate in 2007 but
has remained relatively flat the last few years. As part of the 2016 S/CAP Framework, Council
adopted a goal of 95 percent diversion of materials from landfills by 203041.
41 Sustainability and Climate Action Plan Framework, November 2016;
https://www.cityofpaloalto.org/civicax/filebank/documents/64814
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Figure 3: Annual Diversion Rate Percentage
Solid waste emissions accounted for 1.8 percent of total 2021 GHG emissions in Palo Alto, a 2
percent increase from 2020 and an 88.2 percent decrease from 1990. As shown inIn 2021,
emissions from the closed landfills located within the community accounted for 1.4 percent of
total waste emissions.
Table 4, the 1990 inventory included Palo Alto Landfill Gas Fugitive emissions, whereas the 2021
inventory did not, and the 2021 inventory included composting emissions at the ZeroWaste Energy
Development Company’s (ZWED) Dry Fermentation Anaerobic Digestion (AD) Facility in San Jose,
CA, composting emissions at the Synagro El Nido Central Valley Composting (CVC) facility in Dos
Palos, as well as Palo Alto Landfill Gas Flaring Emissions. The increase in solid waste emissions from
2020 is due largely to the increase in emissions from the closed landfills within the community.
In 2021, emissions from the closed landfills located within the community accounted for 1.4
percent of total waste emissions.
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Table 4: 1990 vs 2021 Solid Waste Emissions by Subsector
Subsector 1990 GHG
emissions
(MT CO2e)
2019 GHG
emissions
(MT CO2e)
2020 GHG
emissions
(MT CO2e)
2021 GHG
emissions
(MT CO2e)
Percent of
Total 2021
Emissions
(%)
Composting Not included 731 1,623 1,256 0.3%
Palo Alto Landfill
Gas Flaring
Not included 281 316 237 0.1%
Palo Alto Landfill
Gas Fugitive
24,325 n/a42 n/a n/a n/a
Landfill Waste 30,732 5,519 4,721 5,029 1.4%
Total 55,057 6,531 6,660 6,522 1.8%
Waste emissions result from organic material decomposing in the anaerobic conditions present in
a landfill and releasing methane (CH4) – a greenhouse gas much more potent than CO2. Organic
materials (e.g., paper, plant debris, food waste, etc.) generate methane within the anaerobic
environment of a landfill while non-organic materials (e.g., metal, glass, etc.) do not.
In 2016, Governor Brown signed Senate Bill 1383 (SB 1383) to reduce GHG emissions from a
variety of short-lived climate pollutants, including methane from organic materials disposed in
landfills. SB 1383 is the largest and most prescriptive waste management legislation in California
since the California Integrated Waste Management Act of 1989 (AB 939). SB 1383 sets several
statewide goals, including:
•Reduce statewide disposal of organic waste by 50% by January 1, 2020 and 75% by 2025.
•Recover at least 20% of the currently disposed edible food for human consumption by 2025.
Wastewater Treatment
As shown in Table 5, in 2021 the City of Palo Alto Regional Water Quality Control Plant (RWQCP)
wastewater-related emissions accounted for 0.4 percent of total 2021 GHG emissions in Palo Alto
– a 9.1 percent decrease from 2020 and an 85.2 percent decrease from 1990. RWQCP GHG
emissions originate from electricity, natural gas (methane), and landfill gas usage required to treat
the wastewater, as well as GHGs that are emitted from the wastewater itself either during
treatment or after (effluent). The nitrogen within wastewater is subject to transformation to
nitrous oxide at varying stages in the treatment process as well as after being discharged to a
receiving water (effluent). These emissions are included in the RWQCP totals. The RWQCP
operations achieved significant GHG reductions in 2019 when the facility’s sewage sludge
incinerators were replaced with the more environmentally-friendly Sludge Dewatering and Truck
Loadout Facility. Previously, the RWQCP incinerators were the City’s largest facility-related GHG
source. The updated biosolids treatment process has and will continue to reduce climate-warming
GHG emissions by approximately 15,000 MT of CO2e per year when compared to the emissions
from incineration. This approximates the carbon dioxide emissions of 3,000 passenger cars. The
dewatered sludge is used as agricultural soil supplements.
42 Not included because the landfill was closed
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Table 5: 1990 vs 2021 Wastewater-Related Emissions by Subsector
Subsector 1990 GHG
emissions
(MT CO2e)
2019 GHG
emissions
(MT CO2e)
2020 GHG
emissions
(MT CO2e)
2021 GHG
emissions
(MT CO2e)
Percent of
Total 2021
Emissions
(%)
Wastewater
Biosolid
Treatment43
n/a 812 0 0 0%
Wastewater
Treatment and
Effluent
8,504 1,385 1,388 1,262 0.4%
Total 8,504 2,197 1,388 1,262 0.4%
Figure 4: RWQCP Historical Total Greenhouse Gas Emissions
The Impact of Remote Work
The pandemic created the need, perhaps temporarily, for people who can work from home to do
so. It has also shown that remote work or telework - working either full- or part-time from home,
from a 'telecenter' located close to home, or from other locations – is possible. In December 2020,
the Bay Area Council Economic Institute, in partnership with the Bay Area Regional Collaborative,
released a study on Remote Work in the Bay Area44. The study does not represent the number of
people working remotely today or that have in the past or will in the future. It instead focuses on
the occupations that could be completed remotely, offering an upper bound for potential remote
work adoption. The analysis revealed several key findings, including:
•In the Bay Area, the share of people who reported primarily working from home grew from
3.4 percent in 1990 to 6.4 percent in 2018.
43 Includes biosolid composting, anaerobic digestion, and incineration
44 http://www.bayareaeconomy.org/wp-content/uploads/2020/12/BACEI_RemoteWork_12.21.20.pdf
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•51 percent (569,941) of the jobs in Santa Clara County are eligible for remote work.
•Among remote eligible workers in Santa Clara County, 6 percent (or 34,196 of all remote
eligible workers) take transit to work, while 75 percent (or 427,456 workers) drive alone.
The remaining 19 percent (or 108,289 remote eligible workers) commute via carpool, on
bike, walking, or they already work from home.
•Reduced demand for commute trips will ease congestion for those that do travel, creating
emissions benefits.
•Remote work could also reduce transit ridership.
•The overall impact of remote work on GHG emissions is inconclusive. Some studies that
account for factors such as increased non-work travel and home energy use have found
remote work to have a neutral or negative impact on overall energy use.
•If households relocate to more dispersed locations in the region because they only need to
be in the office a few days per week, more drivers could take to the roads for longer
commutes between locations that are not currently connected by transit.
•If many households relocate to less transit and pedestrian-friendly locations, there could
be a localized impact on the environment as people become more reliant on cars as a
primary mode. Shifting travel behavior could also call for a re-prioritization of
transportation investments away from commute trips to urban centers and toward local
transit, bicycle, and pedestrian infrastructure.
In Palo Alto, if we assume that 50 percent of employees are eligible for remote work and that (if
supported by city policies and programs) they opt for 2 days a week of remote work, then
commute VMT could be reduced by 8 percent to 11 percent45 compared to 2019 levels.
45 While permanent increases in work-from-home behavior will lead to decreased commute VMT, this reduction is off-
set by additional travel for non-commute reasons, such as increased VMT from driving to run errands and getting
more deliveries at home. Studies show that the degree of this added non-commute VMT ranges from 15% of the total
saved, to more than 100% of the total saved.
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SECTION 5
GOALS AND
KEY ACTIONS
5. GOALS AND KEY ACTIONS
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Introduction
This Sustainability and Climate Action Plan (S/CAP) outlines Goals and Key Actions in eight areas:
Climate Action, Energy, Electric Vehicles, Mobility, Water, Climate Adaptation and Sea Level Rise,
Natural Environment, and Zero Waste. The City’s consultant, AECOM, performed an impact
analysis that estimated the GHG reduction potential of the proposed actions, estimated costs, and
additional sustainability co-benefits, as well as the outcomes needed to meet the “80 x 30” goal to
reduce GHGs 80% below 1990 levels by 2030. The Impact Analysis can be found in Appendix D.3 in
Section 8.
The Key Actions do not capture the full breadth and depth of the sustainability and climate action
programs and projects across the City. Rather, they are the Key Actions that we are prioritizing,
based on the outcomes needed and sustainability co-benefits that were identified in the impact
analysis to achieve the 80 x 30 goal. The City is developing and implementing additional
Supplemental Actions that contribute towards the City’s sustainability and climate goals but are
not highlighted here. Many of the Supplemental Actions are included in the Climate Change –
Protection and Adaptation Work Plan and will be included in future Work Plans.
Each of the S/CAP Key Actions falls along a Spectrum of Tools for Achieving Climate Goals, as
shown in
Figure 5. The Spectrum ranges from market driven solutions that require low intervention with a
corresponding low certainty of achievement, such as voluntary programs, to government driven
solutions that require higher intervention but yield high certainty of achievement, such as city-
wide voter-approved mandates.
Figure 5: Spectrum of Tools for Achieving Climate Goals
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The Goals and Key Actions proposed in this document will work together towards achieving Palo
Alto’s goals to reduce GHG’s 80 percent by 2030, relative to a 1990 baseline and achieve carbon
neutrality by 2030. The proposed S/CAP Goals and Key Actions are meant to be a high-level road
map to achieving the community’s 80 x 30 and carbon neutrality goals. More details and specifics
will be provided in the S/CAP Workplan.
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SUSTAINABILITY AND CLIMATE ACTION PLAN GOALS
CLIMATE ACTION Reduce GHG emissions 80% below 1990 levels by 2030
•Reduce GHG emissions from the direct use of natural gas in Palo Alto’s building sector by
at least 60% below 1990 levels (116,400 MT CO2e reduction)
•Modernize the electric grid to support increased electric demand and to accommodate
state-of-the-art technology
•Reduce transportation related GHG emissions at least 65% below 1990 levels (215,696
MT CO2e reduction)
•Develop a public and private charging network to support EV adoption
•Reduce total vehicle miles traveled 12% by 2030, compared to a 2019 baseline, by
reducing commute vehicle miles traveled 20%, visitor vehicles miles traveled 10%, and
resident vehicle miles traveled 6%
•Increase the mode share for active transportation (walking, biking) and transit from
19% to 40% of local work trips by 2030
•Reduce Palo Alto’s potable water consumption 30% compared to a 1990 baseline
(subject to refinement based on forthcoming California water efficiency standards
expected in 2024)
•Develop a water supply portfolio which is resilient to droughts, changes in climate, and
water demand and regulations, that supports our urban canopy
•Develop and adopt a multi-year Sea Level Rise Adaptation Plan including a Sea Level Rise
Vulnerability Assessment and adaptation plan
•Minimize wildland fire hazards by ensuring adequate provisions for vegetation
management, emergency access and communications, inter-agency firefighting, and
standards for design and development within wildland areas
•Restore and enhance resilience and biodiversity of our natural environment throughout
the City
•Increase tree canopy to 40% city-wide coverage by 2030
•By 2030, achieve a 10% increase in land area that uses green stormwater infrastructure
to treat urban water runoff, compared to a 2020 baseline
•Divert 95% of waste from landfills by 2030, leading to zero waste
•Implement short- and medium-term initiatives identified in the 2018 Zero Waste Plan
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SUSTAINABILITY AND CLIMATE ACTION PLAN KEY ACTIONS SUMMARY
Climate Action (page 45-46)
C1.Provide Building and Transportation Emissions Consultations for Residents
C2.Develop Major Employer Custom Emissions Reduction Plans
C3.Study Additional Key Actions Needed for 80 x 30
C4. Study Staffing and Budgetary Needs
C5. Study Funding Alternatives
C6. Conduct an Electrification Affordability Study
C7. Study Carbon Neutrality Options
C8. Accelerate GHG reductions through Mandates or Price Signals
Energy (pages 47-48)
E1. Reduce GHG emissions in Single-Family Appliances and Equipment
E2. Reduce GHG emissions in Non-Residential Equipment
E3. Reduce Gas Use in Major Facilities
E4. Reduce Natural Gas Use at City facilities
E5. Support Income-Qualified Residents and Vulnerable Businesses with Electrification
E6. Develop Electric Rate Options
E7. Use Codes and Ordinances to Facilitate Electrification
E8. Electric Grid Modernization Plan
E9. Additional Electrification Opportunities in Commercial and Multi-Family Buildings
Electric Vehicles (pages 49-50, 51-52)
EV1. Raise Awareness of Alternative Transportation Modes, Micromobility, and EVs
EV2. Collaborate to Promote EV Adoption Regionally
EV3. Promote EV Adoption and Alternative Commutes for Commuters
EV4. Facilitate the Adoption of EVs, E-bikes and other Light EVs
EV5. Promote Alternative Transportation Modes and Infrastructure to Support Adoption
EV6. Expand EV Charging Access for Multi-Family Residents
EV7. Improve EV Charging Access for Income-Qualified residents
EV8. Ensure EV Charging Capacity Supports EV Growth
EV9. Electrify Municipal Vehicle Fleet
EV10. Support Policy to Electrify Fleet Vehicles
Mobility (pages 49-50, 53-54)
M1. Increase Active Transportation and Transit for Local Work Trips
M2. Expand Availability of Transit and Shared Mobility Services
M3. Implement the Bicycle and Pedestrian Transportation Plan
M4. Improve Transportation Demand Management for Employees and Residents
M5. Implement Smart Parking Infrastructure in Public Garages and Parking Fees in Business
Districts
M6. Study Land Use and Transportation
M7. Continue to Implement the City’s Housing Element
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M8. Improve Transit and Traffic Flow
M9. Create Housing Density and Land Use Mix that Supports Transit and Non-SOV
Transportation
M10. Encourage Reductions in GHGs and VMT
Water (pages 55-56)
W1. Maximize Water Conservation and Efficiency
W2. Build a Salt Removal Facility
W3. Implement One Water Portfolio Projects
W4. Develop a Dynamic Water Planning Tool
Climate Adaptation and Sea Level Rise (pages 57-59)
S1. Complete a Sea Level Rise Vulnerability Assessment
S2. Implement a Sea Level Rise Adaptation Plan
S3. Begin Design Process for a Levee Project
S4. Complete Bridge Improvements and Identify Protection Strategies from Flood Events
S5. Implement the Foothills Fire Management Plan
S6. Minimize Fire Hazards Through Zoning
S7. Collaborate on Reducing Wildfire Hazards
S8. Implement CAL FIRE Public Education Programs
Natural Environment (pages 60-61)
N1. Increase Palo Alto's Tree Canopy
N2. Ensure No Net Tree Canopy Loss for all Projects
N3. Reduce Pesticide Use in Parks and Open Space Preserves
N4. Enhance Pollinator Habitat
N5. Establish a Carbon Storage of Tree Canopy Baseline and KPI
N6. Maximize Biodiversity and Soil Health
N7. Coordinate Implementation of City Natural Environment-Related Plans
N8. Expand Water Efficient Landscape Ordinance (WELO) Requirements
N9. Phase out Gas-Powered Lawn and Garden Equipment
N10. Support the Green Stormwater Infrastructure Plan
N11. Incorporate Green Stormwater Infrastructure in Municipal Projects
Zero Waste (pages 62-63)
ZW1. Encourage Food Waste Prevention and Require Food Recovery from Commercial Food
Generators
ZW2. Promote Residential Food Waste Reduction
ZW3. Champion Waste Prevention, Reduction, Reusables, and the Sharing Economy
ZW4. Provide Waste Prevention Technical Assistance to the Commercial Sector
ZW5. Prioritize Domestic Processing of Recyclable Materials
ZW6. Eliminate Single-Use Disposable Containers
ZW7. Expand the Deconstruction and Construction Materials Management Ordinance
ZW8. Implement Reach Code standard for Low Carbon Construction Materials
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Climate Action
The eight areas of the S/CAP (Climate Action, Energy, Electric Vehicles, Mobility,
Water, Climate Adaptation and Sea Level Rise, Natural Environment, and Zero
Waste) are all equally important. However, three areas – Energy, Electric Vehicles,
and Mobility – have the highest potential for the largest greenhouse gas (GHG)
emissions reductions. Each of these three areas has Goals and Key Actions that are
specific to each area, but the overarching 80 x 30 goal and several Key Actions
encompass all three.
Palo Alto has already made significant progress in its sustainability and climate action efforts,
decreasing its community emissions by 53.9 percent compared to 1990 levels. However, to
achieve the 80 x 30 and carbon neutrality goals, Palo Alto must meet a GHG emissions target of
156,024 MT CO2e, or 2 MT CO2e per Palo Alto resident by 2030. Achieving these ambitious
emissions reduction goals requires steadily transitioning toward a more electrified infrastructure
to meet building and transportation needs. And it requires an inclusive approach: the City will
focus on funding mechanisms that will leverage resources and approaches that reduce the costs
associated with this transition for all community members: residents, businesses, and City.
There are many supporting investments to make in the City’s electric infrastructure and in
management and retirement of the City’s gas infrastructure as electrification progresses. System-
wide City investments in expansion and modernization of the in-city electricity infrastructure will
assure the community’s electric capacity, reliability, and resiliency. The community will approach
its electrification goals with efficiency in mind, encouraging best practices for deployment to
reduce costs and impacts to the electric and gas systems. And to ensure new electrified systems
have the least emissions possible, the City will continue to pursue a carbon-free electricity
portfolio that evolves to reflect customer needs and the broader evolution of the electric system
in the Western United States to which it is connected.
GOAL
Reduce GHG emissions 80% below 1990 levels by 2030
KEY ACTIONS
Community assistance
C1.Enable any resident to receive guidance on reducing their building and transportation
emissions via phone consultations, interactive web applications, or communications platforms.
C2.Work with major employers, including Stanford entities, to develop custom emissions
reduction plans that address commute, building, and other emissions on an employer-by-
employer basis.
Staff Analysis
C3.Complete study to identify any additional Energy, EV, or Mobility key actions needed to
achieve 80% reduction in greenhouse gas emissions from 1990 levels by 2030, such as
electrification of additional multifamily or commercial end uses, greater electrification of
vehicles, or other emissions reduction actions not already identified in this Plan.
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C4.Complete a technical and legal study of the staffing and other resources needed to
operate programs, services, and related City processes at a high enough capacity to
accommodate all necessary emissions reduction activities through 2030.
C5.Complete a technical and legal study of funding alternatives, such as a carbon tax, parcel
taxes, or other community funding mechanisms.
C6.Complete an affordability study to identify vulnerable populations and businesses who
may need help with electrification and the scale of subsidy needed. Develop a Council-
approved affordability policy to guide incentive and program funding design.
C7.Complete a study of carbon neutrality options, including the potential contribution of
expansion of the Palo Alto urban canopy in achieving carbon neutrality goals.
Staff and Council action
C8.Present options for Council consideration to accelerate EV, Mobility, and Energy
emissions reduction activities identified in this Plan through mandates or price signals,
such as building emissions performance standards, carbon pricing, on-sale or replace-on-
burnout ordinances, parking rules in public and private spaces, and withdrawal of gas by
a date certain.
KEY PERFORMANCE INDICATORS
•GHG reductions
•Community awareness
•Participation in Climate Pledge
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Energy
Building efficiency and electrification are key to achieving Palo Alto’s - and
California’s – GHG reduction goals. Overcoming building electrification barriers at
both the local and regional level will be necessary to increase market adoption in
existing buildings. It is critical to modernize the City’s electric grid to accommodate
the technologies that will enable this transformation.
In California, buildings account for 70 percent of total electricity use46 and 20 percent of total GHG
emissions47. In 2021, buildings in the residential and commercial/industrial sectors accounted for
37.8 percent of total emissions in Palo Alto, with 18.9 percent from residential, 15.5 percent from
commercial, and 3.4 percent from industrial. To reach Palo Alto’s 2030 emissions reduction target,
natural gas (methane) consumption will need to decline significantly through a combination of
energy efficiency and electrification. Energy efficiency is simply using less energy to perform the
same task; for example, replacing a low-efficiency gas furnace with a high-efficiency gas furnace.
Electrification is the practice of replacing gas equipment in buildings, including gas furnaces and
gas water heaters, with very efficient electric equipment primarily based on heat pump
technology, such as air source heat pumps and heat pump water heaters. In Palo Alto, this all-
electric lifestyle is cleaner and healthier than using fossil fuels and can also be more affordable.
Achieving the City’s goals requires promoting the replacement of fossil fuel equipment with
efficient electric equipment in all buildings, residential and commercial, aiming wherever possible
to avoid the installation of new fossil equipment that would be hard and costly to replace.
Preventing the installation of any new fossil fuel device in all buildings - residential and commercial
46 California Energy Commission. (2018). Energy Consumption Database Management System. Retrieved from
http://www.ecdms.energy.ca.gov/elecbyutil.aspx
47 California Air Resources Board. (2019) California Greenhouse Gas Emissions for 2000 to 2017. Retrieved from
https://ww3.arb.ca.gov/cc/inventory/pubs/reports/2000_2017/ghg_inventory_trends_00-17.pdf
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– is a common sense strategy, easy to communicate and needed, but is not sufficient to meet the
City’s 80 x 30 goal alone. It is a gradual process that will not overstress the grid, while avoiding the
installation of long-lived devices that would be difficult to replace in the future, avoiding stranded
assets.
GOAL
Reduce GHG emissions from the direct use of natural gas in Palo Alto’s building sector by at
least 60% below 1990 levels (116,400 MT CO2e reduction)
Modernize the electric grid to support increased electric demand and to accommodate state-
of-the-art technology
KEY ACTIONS
Reduce greenhouse gas emissions in appliances and equipment
E1.Reduce all or nearly all greenhouse gas emissions in single-family appliances and
equipment, including water heating, space heating, cooking, clothes drying, and other
appliances that use natural gas.
E2.Reduce greenhouse gas emissions in non-residential equipment, including mixed-fuel
rooftop packaged HVAC units, cooking equipment, and small nonresidential gas
appliances.
Reduce natural gas use in buildings
E3.Partner with major facility owners to reduce gas use in major facilities by at least 20%.
E4.Reduce natural gas use at City facilities.
Make it affordable
E5.Support income-qualified residents and vulnerable businesses with electrification efforts
while ensuring affordability of on-going utility bills.
E6.Develop electric rate options for electrified homes, EV charging, and solar + storage
microgrid customers.
Paving the road to electrification
E7.Use codes and ordinances - such as the energy reach code, green building ordinance,
zoning code, or other mandates - to facilitate electrification in both existing buildings and
new-construction projects where feasible.
E8.Develop and implement an electric grid modernization plan to increase capacity and
resilience.
E9.Seek additional electrification opportunities in commercial and multi-family buildings to
contribute as much as possible towards achieving an additional 8% city-wide emissions
reduction below 1990 levels.
KEY PERFORMANCE INDICATORS
•GHG emissions from natural gas use in buildings (single-family, multifamily, nonresidential)
•Percentage of single-family households with no gas connections
•Percentage of gas use reduction in major facilities and City facilities
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Transportation
In California, more than 50 percent of total GHG emissions stem from transportation. The primary
driver of emissions is from cars and trucks. In Palo Alto, 58.8 percent of emissions come from
transportation, with 51.7 percent from on-road vehicles.
Carbon Intensity of Fuels, Vehicle Efficiency, and Vehicle Miles Traveled
Reducing emissions from the transportation sector requires addressing three areas: 1) reducing
the carbon intensity of fuels, 2) increasing vehicle efficiency, and 3) reducing VMT. Palo Alto can
impact the first and third spheres because vehicle efficiency improvements are largely
accomplished via federal and state regulations placed on car makers to increasingly green the
fleets they produce.
Reducing the Carbon Intensity of Fuels and Electrifying Vehicles
The two main fuels used to power vehicles across the state - gasoline and diesel - have a very high
carbon intensity. Transitioning to lower carbon intensity fuels, especially electricity, is key to
reducing emissions in the transportation sector. Similar to electrification of fossil fuel equipment in
buildings, as the electric grid continues to rely more heavily on renewable energy sources for
electricity generation, the emissions reduction potential of replacing gasoline and diesel vehicles
with electric vehicles continues to increase. The S/CAP section on Electric Vehicles (EVs) below
details work to be done to support increased EV use, including increasing access to EV charging
equipment and encouraging best practices for EV charging.
Reducing VMT
State and other analyses accounting for the time to transition to cleaner passenger vehicles such
as EVs show that adoption of this automobile technology alone will not be fast enough to reach
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our climate goals. It takes 15 – 20 years to replace a car fleet48, which is longer than the 2030
target. The California Air Resources Board (CARB) has stated that even under full implementation
of state regulations requiring cleaner engines on our roads and with Governor Newsom’s
Executive Order N-79-20 requiring 100 percent of zero-emission vehicle sales in the light-duty
vehicle sector by 2035, “a significant portion of passenger vehicles will still rely on ICE [internal
combustion engine] technology….Accordingly, VMT reductions will play an indispensable role in
reducing overall transportation energy demand and achieving the state’s climate, air quality, and
equity goals.”49
One way to reduce transportation emissions relatively quickly is by reducing VMT, or the demand
for driving. This can be accomplished through efficient land use by siting housing, employment,
and essential services closer together and through improving other transportation modes such as
cycling, e-biking, walking, and transit. The benefits of integrated planning and sustainable
development go far beyond simply reducing the GHG emissions that contribute to climate change
and its damaging effects. Communities that are well designed provide housing options for all
income and age groups and enable community members to use a range of transportation options
that reduce congestion, improve air quality, and increase economic development. One way to
think about how to make improvements in this area is to consider the percent of Palo Altans who
live within a 10- or 15-minute walk of essential retail or other supportive land uses such as parks,
educational or health facilities, and transit.
Reducing the demand for driving by improving transportation options so that commuters can
access Palo Alto without driving would benefit the 115,000 people who come to Palo Alto for
employment. Fortunately, moves to improve walking, biking, and transit are some of the most
cost-effective in the City’s climate change toolkit. The Mobility section below describes how Palo
Alto can reduce VMT.
For the purposes of the S/CAP, transportation-related Goals and Key Actions are grouped into two
areas: Electric Vehicles and Mobility. The Electric Vehicle (EV) and Mobility plans work in synch to
jointly reduce GHG emissions and VMT.
In additional to the emissions reductions benefits, encouraging wide-scale adoption of EVs and
electrification of all types of transportation, as well as encouraging alternative transit modes that
include walking, biking, mass transit, and shared transportation, are essential to achieving local,
state, and federal reduction targets for criteria pollutants to improve regional air quality.
48 David R. Keith et al Environmental Research Letters. (2019). Vehicle fleet turnover and the future of fuel economy,
February 15, 2019, p.2. Retrieved from https://iopscience.iop.org/article/10.1088/1748-9326/aaf4d2
49 California Air Resources Board. (2022). 2022 Scoping Plan for Achieving Carbon Neutrality, November 16, 2022, p.
192. Retrieved from https://ww2.arb.ca.gov/sites/default/files/2022-12/2022-sp.pdf
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Electric Vehicles
More than half of Palo Alto’s emissions come from transportation, making adoption of
Electric Vehicles (EVs) a crucial component to reaching our carbon reduction goals.
Compared to fossil fuel vehicles, EVs are cheaper to drive, have lower maintenance
costs, and produce no emissions. Driving and charging an EV in Palo Alto especially
makes sense given the City’s carbon neutral electricity supply and low electric retail
rates. GHG emissions are a function of two factors: the carbon intensity (GHG/VMT) of
fuels, addressed here, and Vehicle Miles Traveled (VMT), addressed in the next section.
The EV and Mobility plans work in synch to jointly reduce GHG emissions and VMT.
In order to reach Palo Alto’s 2030 emissions reduction target, we must implement strategies to
reduce the carbon intensity of fuels.
GOALS
Reduce transportation related GHG emissions at least 65% below 1990 levels (215,696 MT
CO2e reduction)
Develop a public and private charging network to support EV adoption
KEY ACTIONS
Education, awareness, and collaboration
EV1.Raise awareness of financial and emission savings of alternative transportation modes,
micro-mobility (such as e-bikes and e-scooters), EVs, the economics of these
transportation modes compared to gasoline vehicles, and available incentives.
EV2.Collaborate with regional partners, other agencies, and local nonprofit partners to
promote EV adoption regionally to reduce commuter and visitor emissions.
EV3.Partner with employers and business districts to promote commuter EV adoption and
EV charging access as well as alternative commute promotion.
EV4.Facilitate the adoption of EVs, e-bikes and other light EVs.
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EV5.When offering programs to facilitate EV adoption, EV charger installation, or building
electrification, promote alternative transportation modes and infrastructure to support
adoption (such as bicycle or micro-mobility infrastructure) as well where feasible.
Expand EV infrastructure
EV6.Expand access to on-site EV charging for multi-family residents.
EV7.Improve access to EV charging for income-qualified residents.
EV8.Evaluate mandates or other mechanisms to ensure EV charging capacity is available to
support EV growth.
Electrify fleet vehicles
EV9.Convert all Palo Alto municipal vehicles to EVs when feasible and when the
replacement is operationally acceptable.
EV10.Support state policy efforts to electrify fleet vehicles, including delivery trucks
KEY PERFORMANCE INDICATORS
•GHG emissions from vehicle travel
•Percentage of registered EV vehicles in Palo Alto
•Percentage of new vehicle sales that are EVs
•Percentage of multifamily residents with access to overnight EV charging
•Gasoline sales in Palo Alto
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Mobility
Road transportation represents the largest percentage of Palo Alto’s existing carbon
footprint – and a congestion headache. One way to reduce transportation-related
emissions relatively quickly is by reducing VMT. VMT reduction can be influenced by
local programs and policies, including roadway engineering, land use, and zoning,
since these elements affect travel mode choice.
In order to reach Palo Alto’s 2030 emissions reduction target, we must implement strategies to
reduce VMT.
GOALS
Reduce total vehicle miles traveled 12% by 2030, compared to a 2019 baseline, by reducing
commute vehicle miles traveled 20%, visitor vehicles miles traveled 10%, and resident
vehicle miles traveled 6%
Increase the mode share for active transportation (walking, biking) and transit from 19% to
40% of local work trips by 2030
KEY ACTIONS
Promote alternatives to single occupancy car trips
M1.Implement transportation and land use infrastructure investments, programs, policies, and
incentives to increase the mode share for active transportation (walking, biking) and
transit for local work trips.
M2.Expand the availability of transit and shared mobility services from 61% of residents to
100% of all residents, including a bike/scooter shared micro-mobility service to provide
last-mile connections, an on-demand shuttle / transit service pilot, and Neighborhood
Mobility Hubs.
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M3.Update and implement the Bicycle and Pedestrian Transportation Plan to expand bicycle
and pedestrian infrastructure and establish a Vision Zero data collection and analysis
program to target safety improvements.
M4.Improve Transportation Demand Management for employees and residents, including
adopting a TDM Ordinance, allocating funding to scale up TDM programming, establishing
a Safe Routes for Older Adults/Aging in Place program, and continuing the Safe Routes to
School program.
Change the way we think about parking cars
M5.Implement smart parking infrastructure in public garages and proposals for Council to
price parking in business districts, including implementing an optional Healthy Climate Fee,
ideally on gas vehicles, to partially offset GHG emissions from driving to support
alternative modes in Palo Alto.
Learn how we can grow without increasing GHG emissions
M6.Conduct a land use and transportation study to identify scenarios, changes, services, and
programs that would reduce greenhouse gas emissions and accommodate projected
housing growth without increasing transportation sector emissions. Include mobility
equity needs analysis.
M7.Continue to implement the City’s Housing Element of the Comprehensive Plan to improve
jobs - housing balance and reduce vehicle miles traveled (VMT).
M8.Improve transit and traffic flow through programs to install transit signal priority
equipment, implement traffic signal equipment improvements, and improve transit times.
Leverage current tools to foster mobility related GHG reductions
M9.Utilize development regulations and standards to continue creating a housing density and
land use mix that supports transit and non-SOV (Single Occupancy Vehicle) transportation
modes.
M10.Utilize pricing, fees, and other program and policy tools to encourage reductions in GHGs
and VMT.
KEY PERFORMANCE INDICATORS
•Total VMT
•Commute mode share for all modes
•Commute Benefits participation by City employees
•Transit ridership, the proportion of residents within a quarter-mile walkshed of frequent
transit, and the proportion of residents covered by on-demand transit services (data may
not be available every year)
•Number and proportion of residents within a 10-minute walk of retail or other essential
services/land uses (data may not be available every year)
•Number of businesses participating in TDM programs (when regional TDM Program data
becomes available)
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Water
Water is a limited resource in California, and its availability will be further impacted
by climate change and new environmental regulations. Both potable water supplies
and hydroelectric needs could be challenged by long-term shifts in California’s
precipitation regime. With shifting climate patterns, and significant long-term water
supply uncertainty, it would be prudent to reduce water consumption while
exploring ways to capture and store water, as well as to increase the availability and
use of recycled water.
Water reuse will increase in importance as California’s population expands and climate change and
new environmental regulations pose uncertainties in imported water supply availability. Whether
a water supply shortage exists or not, “Making Water Conservation a California Way of Life” is a
concept embraced by the City.
In 2021, wastewater treatment accounted for 0.4 percent of Palo Alto’s GHG emissions. While the
Goals and Key Actions for water don’t explicitly address GHG reduction, energy and water use are
linked. Energy is needed to transport and to treat water, treat wastewater, and heat domestic hot
water in homes and businesses across California. Approximately 20 percent of California’s
electricity and approximately 30 percent of natural gas (methane) used by homes and businesses
across the state is dedicated to pumping, treating, and heating water.
GOALS
Reduce Palo Alto’s potable water consumption 30% compared to a 1990 baseline (subject to
refinement based on forthcoming California water efficiency standards expected in 202450)
50 The California Water Action Plan, first released in 2014 and updated in 2016, is a roadmap to water resilience and
reliability. Ten principles define California’s Water Action Plan, including “Make Conservation a California Way of Life.”
Executive Order (B-37-16) instructed State agencies to help Californians adopt permanent changes to use water more
wisely. In 2018 the legislature enacted SB 606 and AB 1668 that provide new requirements for water conservation and
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Develop a water supply portfolio which is resilient to droughts, changes in climate, and
water demand and regulations, that supports our urban canopy
KEY ACTIONS
W1.Maximize cost-effective water conservation and efficiency through incentives,
outreach/education, and other programs.
W2.Design and build a salt removal facility for the Regional Water Quality Control Plant.
W3.Develop and implement projects that result from a "One Water" Portfolio for Palo Alto51,
including but not limited to: stormwater, recycled water, on-site reuse, conservation,
groundwater.
W4.Develop a tool for dynamic water planning in the future.
KEY PERFORMANCE INDICATORS
•Estimated indoor per capita residential water consumption
•Estimated outdoor residential water consumption for irrigation
•Water consumption of commercial customers with irrigation meters
•Amount of recycled water used in Palo Alto
•Volume of stormwater that is captured and reused
drought. Resulting new regulations will establish water budgets for urban water suppliers based upon state adopted
water use efficiency standards for residential indoor and outdoor water use, outdoor irrigation of landscape areas,
water loss, and local service area characteristics.
51 A “One Water” approach envisions managing all water in an integrated, inclusive, and sustainable manner that is
more resilient to the impacts of climate change. The One Water approach recognizes that water must be managed in
ways that respect and respond to the natural flows of watersheds and the natural ecosystem, geology, and hydrology
of an area. projects and programs focus on achieving multiple benefits—economic, environmental, and social.
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Climate Adaptation and Sea Level Rise
Climate adaptation refers to the actions taken to improve a community’s resilience
to climate change. Climate adaptation planning is most effective at the local level
but must be done in concert with regional efforts. Effective adaptation entails
planning with uncertainties. It is a long-term process that should allow for phased
plans and projects that can be adapted to changing conditions and new knowledge.
One focus of climate adaption is sea level rise. The State of California anticipates that relative sea
level rise projections stemming from GHG emissions and related climate change pose significant
economic, environmental, and social risks to communities along the San Francisco Bay Shoreline,
including the City of Palo Alto. Sea level rise in San Francisco Bay is anticipated to range between
three feet to more than ten feet by 2100 with rising tides likely thereafter. In Palo Alto, many City
services and infrastructure that are essential to the City’s public health, safety, and economy are
located within areas that are predicted to be inundated by Bay water if adaptation measures are
not implemented.
Another focus of climate adaption is preparation for and protection from wildfires. Climate change
is expected to increase the frequency, intensity, and duration of wildfire events, especially here in
California. On the West Coast, it is projected that an average 1 °C temperature increase could
increase the median burned area per year as much as 600 percent in some forests.52 GHG
emissions from wildfires are not currently included in community GHG inventories. From 2000 –
2019, wildfire-related GHG emissions in California averaged approximately 14 million metric tons
52 US Department of Agriculture. (2012). Effects of Climatic Variability and Change on Forest Ecosystems: A
Comprehensive Science Synthesis for the U.S. Forest Sector.
https://www.fs.fed.us/pnw/pubs/pnw_gtr870/pnw_gtr870.pdf
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(MMT) of CO2. The California Air Resources Board (CARB) projects that CA wildfire emissions in
2020 were about 112 MMT CO2.53
While the goals and key actions for Climate Adaptation and Sea Level Rise focus primarily on sea
level rise and secondarily on wildfire protection, many City programs, initiatives, and systems
already in place play a role in protecting Palo Alto from the effects of climate change. For example,
the City plans for and responds to extreme weather and natural disasters such as fluvial floods,
storms, and earthquakes, and protects Palo Alto residents, businesses and infrastructure in the
case of such emergencies.
GOALS
Develop and adopt a multi-year Sea Level Rise Adaptation Plan including a Sea Level Rise
Vulnerability Assessment and adaptation plan
Minimize wildland fire hazards by ensuring adequate provisions for vegetation
management, emergency access and communications, inter-agency firefighting, and
standards for design and development within wildland areas
KEY ACTIONS
Minimize the impacts of sea level rise
S1.Complete a Sea Level Rise Vulnerability Assessment to identify risks and hazards to the
Palo Alto Baylands, City infrastructure, and residential and business property, considering
high tide, 100-year coastal storm event scenarios and rising shallow groundwater
impacts.54
S2.Develop and implement a Sea Level Rise Adaptation Plan with goals to 1) Preserve and
Expand Habitat, and 2) Protect City and Community Assets, and Private Property.
S3.Determine levee alignment and begin design process for a levee project that protects the
Palo Alto community from sea level rise, and incorporates other related priorities
including habitat restoration, recreation, transportation, City facilities, and community
properties.
S4.Complete bridge improvements and identify protection strategies from significant flood
events.
Minimize the impacts of wildland fire hazards
S5.Implement the Foothills Fire Management Plan to balance conservation of natural
resources with reduction of fire hazards especially in open space areas.
S6.Minimize fire hazards by maintaining low density zoning in wildland fire hazard areas and
enforcing building codes for fire resistant construction.
53 California Air Resources Board (2020). Greenhouse Gas Emissions of Contemporary Wildfire, Prescribed Fire, and
Forest Management Activities. https://ww3.arb.ca.gov/cc/inventory/pubs/ca_ghg_wildfire_forestmanagement.pdf
54 The completed Sea Level Rise Vulnerability Assessment can be found at
https://www.cityofpaloalto.org/files/assets/public/public-works/environmental-compliance/sea-level-rise/palo-alto-
sea-level-rise-vulnerability-assessment-june-2022-062822-linked-final.pdf or
https://www.cityofpaloalto.org/sealevelrise
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S7.Work collaboratively with other jurisdictions and agencies to reduce wildfire hazards in
and around Palo Alto, with an emphasis on effective vegetation management and mutual
aid agreements.
S8.Implement CAL FIRE recommended programs in educating and involving the local
community to diminish potential loss caused by wildfire and identify prevention
measures to reduce those risks.
KEY PERFORMANCE INDICATORS
•Percent of vulnerable locations protected from three feet of sea level rise
•Percent of properties protected from San Francisquito Creek flooding
•Progress towards sea level rise levee alignments
•Implementation of Foothills Fire Management Plan mitigation measures
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Natural Environment
Sustainability is not only about mitigation, adaptation, and resilience, but also
regeneration – identifying opportunities for renewal, restoration, carbon
sequestration, and growth of our natural environment. Palo Alto will continue to
build and restore the natural environment and its supporting ecosystem services
and bio-capacity, including soils, tree canopy, biodiversity, and other components.
Enhancing and maintaining green stormwater infrastructure55 will use natural areas
and systems to provide habitat, flood protection, stormwater management, cleaner
air, cleaner water, and human health enhancement.
Many actions that address climate vulnerability and risk also reverse GHG emissions. Shade trees
absorb, or sequester, carbon dioxide from the atmosphere. Studies show that a young tree sapling
can sequester anywhere from 1.0 to 1.3 pounds of carbon each year, while a 50-year-old tree can
sequester over 100 pounds annually.56 Restoration of wetlands can both sequester carbon and
protect shoreline communities and habitats from sea-level rise and storm surge. Healthy soils on
farmland also play an important role in absorbing carbon.
Actions to sequester carbon in trees, soils, and native and drought-tolerant vegetation can
increase biodiversity of plants and animals and minimize stormwater runoff by mitigating impacts
from impervious surfaces and providing opportunities to capture and use rain while also treating
runoff pollutants. Biodiversity is critical to the health of City parks and other open spaces. Natural
area conservation and retrofit of impervious areas protect natural resources and environmental
55 Green stormwater infrastructure (GSI) is infrastructure built into our urban environment to collect, slow, and clean
stormwater runoff through the use of natural processes. GSI examples include stormwater “biotreatment” using soil
and plants ranging in size from grasses to trees; pervious paving systems (e.g., interlocking concrete pavers, porous
asphalt, and pervious concrete); tree trenches that capture sidewalk and street stormwater runoff; and other methods
to capture and use stormwater as a resource.
56 U.S. Department of Energy Energy Information Administration. (1998). Method for Calculating Carbon Sequestration
by Trees in Urban and Suburban Settings. https://www3.epa.gov/climatechange/Downloads/method-calculating-
carbon-sequestration-trees-urban-and-suburban-settings.pdf
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features that sequester carbon, reduce stormwater runoff, promote infiltration, prevent soil
erosion, and increase ecosystem biodiversity.
GOALS
Restore and enhance resilience and biodiversity of our natural environment throughout the City
Increase tree canopy to 40% city-wide coverage by 2030
By 2030, achieve a 10% increase in land area that uses green stormwater infrastructure to
treat urban water runoff, compared to a 2020 baseline57
KEY ACTIONS
Maintain and protect tree canopy
N1.Develop programs to plant trees to increase tree canopy – that will be integrated with
traditional tree planting programs and green stormwater infrastructure programs – and
provide carbon sequestration, improve water quality, capture stormwater when feasible,
and reduce the urban heat island effect.
N2.Ensure No Net Tree Canopy Loss for all projects.
N3.Continue to review the use of pesticides in all parks and open space preserves to identify
opportunities to further reduce and eliminate the use of pesticides.
N4.Enhance pollinator habitat by including native plants and pollinator-friendly plant
landscaping with all park improvement projects when feasible.
N5.Establish a baseline and Key Performance Indicator for carbon storage of tree canopy in
the public right-of-way and City-owned property.
Restore and enhance biodiversity
N6.Evaluate and modify plant palette selection in project plans to maximize biodiversity and
soil health to adapt to the changing climate and incorporate buffers for existing natural
ecosystems.
N7.Coordinate implementation of the Urban Forest Master Plan, Parks Master Plan, and
other city-wide planning efforts through interdepartmental collaboration.
N8.Expand the requirements of the Water Efficient Landscape Ordinance (WELO) to increase
native and drought-tolerant species composition.
N9.Phase out gas-powered lawn and garden equipment, in compliance with California’s AB
1346.
Reduce pollutants entering the Bay
N10.Establish policies and ordinance changes as needed to support the Green Stormwater
Infrastructure Plan.
N11.Incorporate green stormwater infrastructure in future municipal projects, including
public right-of-way.
KEY PERFORMANCE INDICATORS
•City-wide Tree Canopy coverage
•Native species on City property and in new landscape projects (to measure biodiversity)
•Land area that uses green stormwater infrastructure to treat urban water runoff
57 Green stormwater infrastructure (GSI) goals will be finalized once additional quantification work is conducted over
the next two years to provide accurate, realistic and publicly vetted metrics.
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Zero Waste
Zero Waste is a holistic approach to managing materials in a closed loop system
(circular economy), where all discarded materials are designed to become resources.
Reducing waste is an important strategy for both GHG emissions reductions and
overall sustainability. Approximately 42 percent of GHG emissions in the U.S. are
associated with the flow of materials through the economy, from extraction or
harvest of materials and food, production and transport of goods, provision of
services, reuse of materials, recycling, composting, and disposal.
Palo Alto’s current diversion rate is 84 percent. Diversion includes all waste prevention, reuse,
recycling, and composting activities that divert materials from landfills. Getting to the 95 percent
diversion goal will require refinement and enforcement of existing programs, the addition of new
policies and programs, fostering producer and consumer responsibility and building community
collaboration on waste prevention.
In 2021, solid waste accounted for 1.8 percent of Palo Alto’s GHG emissions, which can be lowered
through key actions that reduce waste, conserve resources, and prevent pollution.
GOALS
Divert 95% of waste from landfills by 2030, leading to zero waste
Implement short- and medium-term initiatives identified in the 2018 Zero Waste Plan
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KEY ACTIONS
Education and outreach
ZW1.Encourage food waste58 prevention and require edible food recovery for human
consumption from commercial food generators.
ZW2.Promote residential food waste reduction.
ZW3.Champion waste prevention, reduction, reusables, and the sharing economy (e.g.,
promote adoption of a “Zero Waste lifestyle”, stimulate value of reuse, repair, and
access to sharing goods over ownership).
ZW4.Provide waste prevention technical assistance to the commercial sector.
Collaborate on and expand policies
ZW5.Prioritize domestic processing of recyclable materials and collaborate with stakeholders
on legislation to spur domestic recycling and require traceability of materials processing.
ZW6.Eliminate single-use disposable containers by expanding the Disposable Foodware Ordinance.
ZW7.Expand the Deconstruction and Construction Materials Management Ordinance.
ZW8.Implement Reach Code standard for low carbon construction materials.
KEY PERFORMANCE INDICATORS
•Diversion rate
•Number of Zero Waste Plan59 initiatives implemented
58 “Food waste” refers to edible food that is not eaten, goes bad and is thrown away. It does not include food scraps
such as banana peels, apple cores, and bones – they should be composted.
59 www.cityofpaloalto.org/zwplan
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Spotlight on Equity
As discussed in Section 2, we cannot address climate change without also addressing equity. While
all of the Goals and Key Actions were developed with an equity lens and will be evaluated using key
performance metrics that encourage equitable engagement and impact, there are some Key Actions
that more explicitly address equity issues. These include:
C1.Provide Building and Transportation Emissions Consultations for Residents
C5. Study Funding Alternatives
C6. Conduct an Electrification Affordability Study
E5. Support Income-Qualified Residents and Vulnerable Businesses with Electrification
E6. Develop Electric Rate Options
EV1. Raise Awareness of Alternative Transportation Modes, Micromobility, and EVs
EV4. Facilitate the Adoption of EVs, E-bikes and other Light EVs
EV5. Promote Alternative Transportation Modes and Infrastructure to Support Adoption
EV6. Expand EV Charging Access for Multi-Family Residents
EV7. Improve EV Charging Access for Income-Qualified residents
M1. Increase Active Transportation and Transit for Local Work Trips
M2. Expand Availability of Transit and Shared Mobility Services
M3. Implement the Bicycle and Pedestrian Transportation Plan
M4. Improve Transportation Demand Management for Employees and Residents
M6. Study Land Use and Transportation
M7. Continue to Implement the City’s Housing Element
M9. Create Housing Density and Land Use Mix that Supports Transit and Non-SOV
Transportation
W4. Develop a Dynamic Water Planning Tool
S1. Complete a Sea Level Rise Vulnerability Assessment
S2. Implement a Sea Level Rise Adaptation Plan
N1. Increase Palo Alto's Tree Canopy
ZW3. Champion Waste Prevention, Reduction, Reusables, and the Sharing Economy
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SECTION 6
GETTING TO 80 X 30:
COSTS
AND IMPACTS
6. GETTING TO 80 X 30: COSTS AND IMPACTS
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The preceding sections describe the principal sources of Palo Alto’s GHG emissions and related
goals and actions for achieving the community’s targets of reducing emissions 80 percent below
1990 levels by 2030. This section outlines the outcomes needed to achieve the 80 x 30 goal and
the impact analysis of the GHG reduction potential, costs, and sustainability co-benefits of the Key
Actions.
Assessing the Impacts of Co-Benefits of achieving 80 x 30
As discussed in Section 1, many climate actions generate additional benefits beyond GHG
reductions. The co-benefits shown in Table 6 were selected for the S/CAP because they align with
community priorities and apply to multiple S/CAP Issue Areas (e.g., Energy, Electric Vehicles, Zero
Waste). As a result of implementing some of the climate actions, there will be the following
positive outcomes in addition to emissions reductions.
Table 6: S/CAP Co-Benefits
Evaluation Criteria Definition
Air Quality Improve air quality through reduced exposure (indoor and outdoor) to
particulate matter (PM2.5 and PM10), nitrous oxide (NO2), ozone (O3), sulfur
dioxide (SO2) or airborne toxins.
Public Health Improve public health through reduced incidents of diseases/death attributed
to pollution, increased use of active transportation options (e.g., walking,
biking), etc.
Public Safety Improve public safety through reduced traffic, reduced incidents of traffic
accidents, reduced gas leaks, decreased exposure to climate hazards, assets
adapted to withstand climate hazards, decreased number of
people/assets/services exposed to climate hazards, etc.
Regional Benefit Provide benefits that extend beyond the city, such as generating jobs,
expanding the electric vehicle charging network, implementing flood
reduction projects, etc.
Resource Conservation Increase resource conservation in building energy, vehicle fuels, and water;
increase natural habitat conservation and regeneration; and decrease waste
generation
Lifecycle Emissions Reduce emissions associated with the extraction, manufacture, and transport
of energy resources (e.g., natural gas production, distribution).
Cost of Living Reduce cost of living through utility cost savings, travel cost savings, etc.
Productivity Increase productivity through reduced commute times and reduced traffic,
prioritized housing near transit, improved thermal comfort in buildings,
reduced economic activity losses from climate-related events (e.g., flooding,
power outages), etc.
Equity Address an existing inequity in the community, such as disproportionate poor
air quality, access to transit, flood risk, etc.
The methodology used to evaluate the co-benefits and the full results of the co-benefits analysis
can be found in Appendix D.4 in Section 8. The results of the co-benefits analysis were used to
prioritize and further refine the Key Actions. The co-benefits analysis was not updated after the
Key Actions were further refined and uses version three of the Goals and Key Actions. The order
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and titles of the Key Actions used in the co-benefits analysis may differ from the final version of
the S/CAP Goals and Key Actions.
Outcomes Needed to Achieve 80 Percent Reduction from 1990
Levels
Staff modeled the outcomes needed to achieve the 80 x 30 goal, keeping in mind updated climate
science and the global impacts of climate change, as well as the need for increased community
awareness. While there are multiple strategies to reduce Palo Alto’s emissions, the scenario
described below represents the most technically feasible and cost-effective pathway staff and its
consultant could identify.
Table 7 and Figure 6 below show more detail on the sources of the City’s various types of
emissions. Table 7 shows the 1990, 2019, and 2030 target emissions for each source. The table
breaks down transportation and building emissions among various sectors that contribute to total
emissions. Transportation emissions from residential and fleet vehicles registered in Palo Alto as
well as commuter and visitor vehicle emissions are included. In the buildings category, emissions
are broken down between single-family residential, multi-family residential, and non-residential
emissions.
There are different challenges associated with reducing emissions among each of these sectors.
Some are more expensive than others to electrify and some are technically more challenging.
Reducing transportation emissions is the lowest cost emissions reduction alternative, but in the
short term60, the City has fewer policy levers to affect reductions in transportation emissions,
particularly for visitors. As a result, the City is unable to rely solely on vehicle electrification to
achieve its goals and must focus efforts in the buildings sector as well.
In this area, emissions-reducing technologies are readily available to electrify all gas appliances
and systems in single-family homes and to electrify most gas appliances in multi-family and
commercial buildings. However, electrification of multi-family and commercial builidings may be
more expensive because it is more technically complicated. And for some types of uses, staff and
AECOM were unable to identify electric heat pump alternatives to gas equipment in existing
buildings. With more time and research, staff may be able to identify alternatives. As a result, staff
has had to rely heavily on single-family building electrification to get close to achieving the 80 x 30
goal. Still, staff’s preliminary analysis only achieves 71 percent reductions below 1990 levels,
leaving a 9 percent gap to be closed through some combination of deeper vehicle electrification,
multi-family and commercial building electrification, carbon dioxide removal, and funding
emissions reductions outside of Palo Alto.
60 Land use changes can reduce driving significantly over the long term by locating housing closer to services and
employment. The land use assumptions in the BAU analysis reflect the 2017 Comprehensive Plan. Different land use
scenarios were not modeled as part of this analysis due to budget constraints. Future S/CAP work should include
resources to model how growth can be accommodated in a way that does not increase GHG emissions.
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Table 7: Emissions by Source and Milestone
Source 1990 Levels 2019
Emissions
2030 Target
Emissions
% Reduction
from 1990
levels
Residential / Fleet Transportation 84,100 19,200
Commuter Transportation 101,600 11,000
Visitor Transportation
331,840
107,700 85,000
65%
Single-Family Building Gas Use 49,500 0
Multi-Family Building Gas Use 22,600 18,400
Non-Residential Building Gas Use
194,000
81,400 57,100
61%
Electricity 186,000 0 0 100%
Other emissions sources 68,279 35,400 30,700 55%
SUBTOTAL, Key Actions Analyzed To-Date 780,119 482,300 221,400 71%
Additional Emissions Reductions TBD 65,200 9%
TOTAL 780,119 482,300 156,000 80%
Figure 6: Contributions of Various Emissions Reduction Measures to Achieving Emissions Goals
Figure 7 summarizes the cost per metric ton of carbon dioxide equivalent (MT CO2e) reduced for
various emissions reductions technologies, while Figure 8 shows the costs in more detail. To
provide some context for the costs in the chart, the current cost of building renewable energy in
California as a way to reduce carbon is $30 per MT CO2-e to $60 per MT CO2-e,61 though the
61 Calculated based on current Renewable Energy Credit prices ($/MWh) converted to $/ton CO2-e
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California Public Utilities Commission (CPUC) projects that will rise to around $200 per MT CO2-e
by 2030.62 The cost of renewable natural gas is $270 per MT CO2-e to $450 per MT CO2-e.63
Figure 7: Key Actions by Cost per Metric Ton of Carbon Dioxide Equivalent Reduced64
62 Extracted from CPUC RESOLVE model by a City consultant, E3
63 Forecast by E3 using PATHWAYS models developed for forecasting RNG prices in California Energy Commission
study titled Deep Decarbonization in a High Renewables Future.
64 Cost per metric ton shown as a range from a low-cost scenario to a high-cost scenario
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Figure 8: Cost per Metric Ton for Various Types of Emissions Reduction Actions
In summary, staff and AECOM have identified the following outcomes in 2030 as necessary to
achieve the 80 percent reduction:
•Commute travel is reduced 20 percent
•VMT are reduced 12 percent
•By 2030, 85 percent of all Palo Alto new vehicle purchases are EVs, up from 30 percent
now, which results in a vehicle fleet that is 44 percent EVs (50 percent in single-family
households, 33 percent in multi-family)
•40 percent of commuter trips into Palo Alto and 30 percent of visitor trips are made in EVs
(35 percent overall). This is up from 3 percent right now.
•Virtually all single-family gas appliances and virtually all commercial rooftop HVAC units are
electrified
•Significant additional multi-family and commercial building electrification and other
emissions reductions to be determined
•An additional 65,0000 MT CO2e of emissions reductions are achieved through other
measures.
Table 7 and Figure 6 only represent the direct emissions reductions associated with electrifying
vehicles and buildings; that is, the emissions associated with burning fuel in a gas tank or natural
gas appliance. However, there are also emissions associated with producing and transporting
gasoline or natural gas (methane) to the home, gas pump, or commercial building due to leakage
occurring during transportation. These fuels, when released directly to the atmosphere, have
significantly higher global warming potentials than the carbon dioxide released when they are
burned. Even more significantly, natural gas (methane) has a very high short-term global warming
potential.
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Consideration of these upstream emissions further emphasizes the importance of reducing natural
gas (methane) use in buildings, rather than pursuing strategies with even greater emphasis on
vehicle electrification. While these upstream emissions are worth examining to understand the
additional potential impacts of fossil fuel use, they are not included in industry standard GHG
inventories. The true impact of upstream emissions outside of Palo Alto city boundaries would be
more accurately reflected in a consumption based GHG inventory.
The momentum created by these strategies will continue past 2030, and staff forecasts achieving
78 percent reductions by 2035 and 80 percent by 2036 or 2037, even without an additional 65,000
MT CO2e of emissions reductions through other measures. It is also worth noting that some of the
effects of these proposed strategies will generate emissions reductions that are not counted in the
City’s GHG inventory. For example, if a Palo Alto resident converts to an EV as part of one of our
programs, only their driving within Palo Alto counts towards reducing emissions counted in the
City’s GHG inventory. If they commute out of Palo Alto, for example, the community can only
count part of that vehicle trip towards its emissions savings, but of course they are reducing
emissions for the entire journey. Those unclaimed emissions are very large, equal to another 6 to 7
percent reduction in emissions if they could be claimed.
Strategies to Achieve Building and Transportation Emissions
Reductions
Achieving the emissions reductions listed above will require bold action by the City and
unprecedented participation from the community. It will require education and engagement of
the entire community, from residents to real estate managers to employers to commuters. Also
required to meet our goals are programs to facilitate participation and streamlined business and
permitting processes that ensure a positive customer experience.
Staff considered a range of policy tools that involved different levels of government intervention in
electrification activity, as illustrated previously in Figure 5. Low intervention policy tools include
outreach efforts or voluntary programs. Medium intervention actions could include ordinances
requiring electrification of appliances when they need to be replaced, and low-level carbon
pricing. Higher intervention actions include mandating electrification by a date certain or imposing
carbon pricing, and other actions which could present legal challenges and/or where the City must
either comply with or secure changes to state and federal laws that would otherwise constrain
some promising approaches. Local community support and voter approval may be an important
next step on several of these actions. Direct advocacy at the state level, for some if not all of the
medium and high intervention actions, may also be necessary.
Staff expects that high-intervention actions will be needed to achieve the outcomes required to
achieve the 80 x 30 goals. However, rapid and effective implementation of low intervention
actions (such as simple, effective voluntary electrification programs and simplified permitting
processes) is needed to give the community confidence that higher intervention actions can be
implemented without excessive cost or other impact to community members.
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Total Cost to Achieve 80 Percent Reduction from 1990 Levels
Preliminary staff and consultant modeling conservatively estimated the cost to achieve the
identified 71% reductions from 1990 levels. The modeling assumed up-front capital costs were
paid off over the life of the equipment and took into account ongoing costs and benefits. Staff
estimates the annual cost to the community in 2030, assuming all reductions are implemented
would be $53 million in costs offset by $43 million in benefits for a net $10 million in community
costs per year,65 which is less than 5% of the total amount the community spends on energy each
year. By 2033, benefits are estimated to match costs and from then forward, achieving these
emissions reductions would represent a net benefit to the community. This means achieving the
S/CAP goals would likely result in lower household and business expenses throughout the
community in the long term.
These estimated annual costs are based on an estimated community capital investment of $740
million through 2030. This includes the up-front capital cost for the necessary vehicle and mobility
investments, investments in charging infrastructure, and investments in appliances and building
infrastructure. It also includes a preliminary estimate of the utility improvements needed to
support the transformation.
These cost estimates are preliminary and do not include the cost to achieve the remaining 9
percent gap in GHG emissions reductions discussed on page 64. They do not incorporate potential
decreases in the cost of equipment and improvements in installation strategies that will come with
increased adoption of these types of equipment. They also do not include Federal and State
incentives adopted after April 2020, such as the Inflation Reduction Act. Some cost estimates from
the preliminary analysis have already been shown to be low, however, particularly the cost of
modernizing the electric system to accommodate electrification. The S/CAP Goals and Key Actions
include actions focused on refining the community cost of electrification, identifying additional
outside funding sources (such as Inflation Reduction Act provisions) and benefits, and identifying
potential funding sources for any residual costs not covered by these outside funding sources and
benefits.
65 All costs and benefits are in 2021 dollars.
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Potential funding tools
As noted above, financing these costs over a long period (10-30 years, depending on the measure)
can make the cost of electrification more manageable. Various financing mechanisms could be
explored, ranging from publicly managed financing through municipal or green bonds or public-
private financing partnerships to financing more focused on individual borrowers, such as energy
loans or on-bill financing, where customers take a loan to finance home sustainability
improvements, and pay off part of the loan each month through their utility bill. The viability of
some of these measures requires exploration. For example, municipal debt is typically issued to
fund public improvements, rather than improvements to private property, which is a significant
element of the key actions. Further analysis is required to assess which financing approaches can
support different S/CAP program elements. Sources of funds for repayment would need to be
identified. Sources to consider include taxes (such as carbon taxes or parcel taxes), customer
payments via their utility bill, or payments from utility revenue. Each of these sources has its own
legal limitations and upon further analysis, may not be viable for funding S/CAP activities.
Costs and savings are spread unequally through the community
Unfortunately, the costs and savings are not spread evenly across the community, and this creates
a variety of issues. For example, in 2030, a homeowner who owns an EV is projected to save, over
time and on average, $116/month in household expenses when compared to a non-EV owner. This
is due to vehicle fuel and maintenance savings. But a homeowner who electrifies their home is
projected to see a $107/month increase. Figure 9 shows the costs associated with electrification
for single-family residents and multi-family residents with and without electrified buildings,
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illustrating this issue. Similarly, a business choosing to electrify may not see significant savings
from vehicle electrification, meaning they are only exposed to the costs of electrification with far
less associated benefit. Careful design of the funding sources for electrification could help by
aligning the costs of electrification with those who benefit most.
Figure 9: Costs for Various Groups in the Palo Alto Community without Tax / Incentive System*
*Non-electrified homes are assumed to own an EV, which illustrates the incentive to own an EV
contrasted with the lack of incentive to electrify a home.
Cost of Delaying Action
Achieving the 80 percent reduction target over a longer period of time could reduce the total cost
to electrify homes. This is because if the community waits longer, it will provide time for
appliances to age until the point where they need replacement. Replacing appliances after they
have reached their end of life, rather than when some are still usable, allows owners to receive the
full value of their appliance, even though it delays the benefits of an electric appliance. Also,
pushing the 80x30 target out until after 2030 probably means the City will experience more new
all-electric construction and major renovations, which are cheaper than retrofitting existing homes
for electric appliances. In addition, the slower pace of implementation would reduce the maximum
annual financing cost incurred by the community.
However, the cost of delaying emissions reductions is high. While carbon offsets can mitigate
carbon emissions impacts, they cannot be considered a replacement for direct emissions
reductions. The IPCC 2018 Special Report stated that deep emissions reductions, carbon neutrality,
and negative emissions are all required to keep global warming to 1.5°C. Achieving carbon
neutrality and negative emissions both require the removal of carbon dioxide from the
atmosphere through new forest growth and processes to remove carbon dioxide from the air and
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store it underground. The faster the direct emissions reductions achieved, the less carbon dioxide
removal is required.
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SECTION 7
NEXT STEPS -
FURTHER
EXPLORATION
7. NEXT STEPS - FURTHER EXPLORATION
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As noted in the Executive Summary, achieving the emissions reductions detailed in this plan
requires that the strategies are implemented in a timely, coordinated, and sustained way, with
appropriate resources for successful implementation. Although significant GHG reduction policies
and initiatives are already in place, the actions proposed in this S/CAP, by necessity, far surpass the
scale of existing efforts. Implementing the S/CAP and ensuring that it results in real GHG emissions
reductions will require increased funding, additional coordination across sectors, and enhanced
institutionalized climate protection efforts across the community. Currently, all sustainability
efforts are coordinated by the Office of Sustainability and other Department of Public Works
Divisions, with robust inter-departmental collaboration, especially with City of Palo Alto Utilities.
However, many of the strategies outlined in this plan will require additional resources for
successful implementation.
Principles for Going to Scale
Implementation of the S/CAP requires diligent planning, with a possible two-phase approach. In
Phase 1, the City could devote resources to roll out voluntary programs and prepare to go to scale
– developing staffing plans, resourcing plans, and performing reliability and resiliency analyses.
The goal could be to launch programs and achieve early successes that give Palo Altans confidence
in advance of suggesting increased funding. This includes implementing pilot projects and
providing demonstrations to show what is possible. Building awareness is also a critical goal, as is
strategic planning. In Phase 2, the S/CAP will be at scale, and ramping up implementation. This will
require far more resources than we have available to us and will likely require a robust financing
plan.
Principles for Going to Scale include:
•Engage and raise awareness. Extensive awareness, engagement, and outreach will be
needed – Palo Altans must be aware of both the urgency and reasons for action, and the
programs available for them to respond. We also need to engage people for whom
sustainability may not be the top priority to provide information about the benefits of
acting, such as the health benefits of indoor and outdoor air quality improvements, and
address any sensitivities, like resiliency.
•Activate early adopters and ensure positive customer experiences to create success
stories. Palo Alto must provide confidence to the community so that they can count on us
to run an electrified system. We need clear plans to preserve and enhance electric
reliability and resiliency – outages will be on peoples’ minds. We need more detailed plans
about how to best manage the gas system as electrification increases, and manage rates
for those who do not convert. We need streamlined and simplified permitting processes
and appropriate resources to proactively communicate and reactively respond. All of this
will require additional staffing throughout the City.
•Reward neighborhood-level action (e.g. undergrounding for block-level electrification).
Taking actions at the neighborhood-level allows for better planning, economies of scale,
and easier coordination with the City. For example, if all the homes in a neighborhood
decide to electrify their appliances at the same time, then the City can better plan overall
electric capacity and infrastructure needs.
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•Demonstrate care for small businesses, renters, and low-income groups. In implementing
this S/CAP, the City plans to foster relationships and deepen involvement with small
businesses, renters, and low-income populations regarding the challenges of and solutions
to climate change. Engagement strategies will consider equity, inclusion, existing barriers
and how to mitigate challenges.
•Collaborate with diverse stakeholders. Climate change is an issue that crosses geographic
and sector boundaries. Palo Alto recognizes the value of collaborating with other public
agencies, businesses, and community-based organizations to accelerate climate action.
Everyone has a part to play, and Palo Alto cannot do it alone.
•Partner with major employers to maximize impact. For Palo Alto to succeed in achieving
its S/CAP goals, we need support from the private sector. Markets need to shift. The goods
and services available to our community should support our efforts to build a sustainable,
resilient economy that doesn’t threaten the stability of the climate.
•Seek ways to increase funding for greater impact (e.g. on-bill financing, outside funding).
For implementation of the S/CAP, Palo Alto will evaluate strategies for financing climate
protection actions and provide adequate, reliable, and consistent long-term program
funding.
•Clear, documented strategies before going to scale. The success of any plan depends on a
clear roadmap for successful implementation. Some of the strategies in this S/CAP will
require detailed, specific, and carefully vetted plans for implementation.
•When the community is ready, fully scale up. Support of the community is a critical
component of successfully scaling up to achieve the 80 x 30 goal.
Implementation
Staff is evaluating the resource impacts across City departments and identified resources needed
to implement this S/CAP.
Some of the actions will be absorbed and integrated into existing departmental operating or
projects budgets. Additional resources needed include consultant services, temporary staffing,
infrastructure needs, and ongoing costs, which includes additional staff positions and augmenting
the City’s ongoing budget for S/CAP implementation. Resources allocated to implementing the
S/CAP will be refined and finalized as part of the annual process for budget development and
approval by the City Council.
The City will monitor the effectiveness of the emissions reductions actions in this S/CAP, as well as
progress towards achieving S/CAP goals, through annual GHG emissions inventories and progress
reports to City Council. The S/CAP is considered a living document that may need to be revised in
order to achieve 80 x 30.
The City’s strategy to finance implementation of current and future actions will evolve over time.
Strategies the City may consider could include:
•Leveraging partnerships and collaborative projects
•Charging carbon impact fees for development projects
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•Implementing user fees for selected activities and services
•Implementing paid parking in selected locations
•Adding transportation impact fees to requirements for new construction projects
•Establishing a Climate Action Fund
•Seeking one-time or short-term grant funding for S/CAP-related projects
Funding Opportunities
At both the state and federal level, several newly adopted climate bills have the potential to
accelerate efforts to reduce emissions towards achieving carbon neutrality. The federal Inflation
Reduction Act of 2022 (IRA) will invest $369 billion for energy security and climate change
programs over the next ten years. This includes $14,000 in rebates for consumers to buy heat
pumps or other energy efficient home appliances, $7,500 in tax credits for new electric vehicles
(and $4,000 for used electric vehicles), and funding to support 950 million solar panels, 120,000
wind turbines and 2,300 grid-scale battery plants66. In California, the California Climate
Commitment will invest $54 billion towards climate action, including $6.1 billion for electric
vehicles, $8.1 billion to support energy reliability, and $13.8 billion for clean public
transportation67. Government budgets ebb and flow year over year; staff will continuously monitor
the status of federal and state budgets and potential funding for S/CAP-related programs.
Community Engagement
66 https://www.whitehouse.gov/briefing-room/statements-releases/2022/08/15/by-the-numbers-the-inflation-
reduction-act/
67 https://www.gov.ca.gov/wp-content/uploads/2022/09/Fact-Sheet-California-Climate-Commitment.pdf
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The support and buy-in of the community are critical to the successful implementation of the
S/CAP. The City is planning an extensive community engagement strategy to inform the
community about the issues outlined in the S/CAP, raise awareness about the magnitude of the
challenge and why action is needed, provide education about the strategies outlined in the S/CAP,
and widely distribute information on programs and funding opportunities for residents and local
businesses. Palo Alto will look for opportunities to partner with other organizations, including
youth groups and Palo Alto Unified School District, and bring workshops and trainings to the
community. Overall, the goal is to increase community awareness about climate change to
influence everyday consumer behavior and purchasing decisions. Palo Alto’s messaging can
encourage community members to take action not just at home, but also at work, and with
community organizations of which they’re members.
Leaving Room for new Strategies
Palo Alto envisions that the core strategies of the S/CAP will remain constant as we move forward.
As we live in an age and place of abundant technological innovation, more advanced technologies
and creative innovations may be integrated into the S/CAP in the future. The City will continually
monitor the progress of S/CAP efforts and explore additional strategies as opportunities arise. For
example, carbon sequestration is a potential strategy to explore as the S/CAP moves forward.
Carbon Sequestration
Our forests and oceans are natural carbon sinks, each absorbing 25 percent68 of the carbon dioxide
that is released into the atmosphere.69 The process of capturing and storing this atmospheric
carbon is known as carbon sequestration, and is a strategy that – when combined with other
efforts – can help combat climate change.
There are several processes that can capture and store carbon, ranging from biochar to geologic
sequestration, and more.
•Biological Sequestration: The process of planting trees and other vegetation in forests,
grasslands, and rangelands. Reforestation is one of the cheapest sequestration processes
and helps support biodiversity. In our cities, encouraging residents, businesses, and parks
to maintain or plant new trees can help to pull carbon dioxide from the atmosphere.
•Biochar: This process involves the burning of organic materials to create biochar, a
compound that can hold carbon for long periods, rather than releasing it into the
atmosphere as it degrades. Research shows that biochar will not break down for at least
100 years and possibly up to 1,000 years. This type of carbon sequestration may be a
solution for landfill and wastewater treatment applications.
68 NOAA. (n.d.). Ocean-Atmosphere Co2 Exchange. Retrieved from https://sos.noaa.gov/datasets/ocean-atmosphere-
co2-exchange/.
69 A healthy ocean has what is known as positive and negative “flux;” the former when CO2 from the ocean is released
into the atmosphere, and the latter when CO2 is absorbed. Today, in large part due to human activity, the oceans
absorb more CO2 than they release. It is projected that by 2100, the oceans will be a CO2 sink. The increase of CO2
from fossil fuels is significantly impacting the acidity of the ocean, ultimately affecting not only the sea life, but also
the air we breathe.
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•Biogas: A methane and carbon dioxide gas produced from anaerobic digestion of
agriculture waste products, landfills, and wastewater systems. Biogas can be used for
heating, electricity, or transportation fuel; it is currently widely used in wastewater
treatment plants in California.
•Carbon Capture and Storage (CCS): CCS is a three-part process that involves capturing
carbon dioxide, transporting the carbon dioxide, and storing it underground typically
through geologic sequestration.
•Geologic Sequestration: Carbon is captured and injected into underground rock formations
for long-term or permanent storage.
•Technological Sequestration: Scientists are working to develop new and innovative ways
to capture carbon. Some technologies are looking at capturing carbon directly from the air.
Other potential technologies include repurposing carbon for use in other technologies.
•Trees End of Life Sequestration: A portion of the carbon dioxide trapped in trees during
growth is released after they are cut down during the decomposition process. In order to
avoid releasing this carbon dioxide, carbon can be stored for longer timeframes by locking
carbon into wood products, such as lumber or furniture, or creating biochar. When urban
trees fall down or are purposefully removed, residents and local municipalities should
consider these end-of-life use cases to prevent the carbon dioxide from being re-emitted
into the atmosphere.
It’s not yet clear what role carbon sequestration will have in Palo Alto’s sustainability and climate
action strategy, but it’s something the City will evaluate moving forward.
Conclusion
The challenge of preparing for and mitigating the effects of climate change is unprecedented in its
scale and potential disruption to our way of living. Recent climate disasters have given us a
preview of what could become the “new abnormal.”
This S/CAP provides an overarching, strategic framework for Palo Alto to achieve the goal of
reducing GHG emissions by 80 percent by 2030, an important step towards our goal of achieving
carbon neutrality by 2030. While developing and publishing this S/CAP is an important step, it’s
even more critical that this S/CAP remain a living document, to be updated as technology and
policies progress.
This S/CAP not only supports the City’s efforts to manage its own GHG emissions, it’s also a call-to-
action to residents, community institutions, and businesses to take an active part in our transition
to a low-carbon future and clean economy. In this process, Palo Alto will foster a vibrant economy,
increase its resiliency, and support a collective vision for a livable and sustainable community for
generations to come.
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SECTION 8
APPENDIX
8. APPENDIX
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A. Glossary
A.1 Glossary of Definitions
California Environmental Quality Act (CEQA) A state law requiring state and local agencies to assess
the environmental impacts of a proposed private or
public project they undertake or permit. If a proposed
activity has the potential for a significant adverse
environmental impact, an environmental impact report
must be prepared and certified as to its adequacy
before action can be taken on the proposed project.
Carbon Neutrality Taking action towards the goal of achieving net zero
emissions
Climate Action Plan A climate action plan is a planning document that
identifies ways in which the community and county can
reduce greenhouse gas emissions.
Climate change Any significant change in measures of climate (such as
temperature, precipitation, or wind) lasting for an
extended period (decades or longer). There is
international concern that increasing concentrations of
greenhouse gases (GHGs) in the atmosphere are
changing the climate in ways detrimental to our social
and economic well-being.
Climate Equity Addressing historical inequities suffered by people of
color, allowing everyone to fairly share the same
benefits and burdens from climate solutions and attain
full and equal access to opportunities regardless of
one’s background and identity
Community-wide Emissions Emissions based on energy use that are released from
activities taking place within a defined geographic area
(i.e. the City of Palo Alto)
Decarbonization Moving away from energy systems that produce carbon
dioxide (CO2) and other greenhouse gas emissions
Green Building Sustainable or "green" building is a holistic approach to
design, construction, and demolition that minimizes the
building’s impact on the environment, the occupants,
and the community.
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Greenhouse Effect The trapping and build-up of heat in the atmosphere
near the Earth’s surface is often called the “greenhouse
effect”. Some of the heat flowing back toward space
from the Earth's surface is absorbed by greenhouse
gasses in the atmosphere and then reradiated back
toward the Earth’s surface. As the atmospheric
concentrations of these gases rise, the amount of heat
reradiating back to the Earth’s surface increases as well,
resulting in global temperature increases.
Greenhouse Gases Gases, including water vapor, carbon dioxide (CO2),
methane (CH4), nitrous oxide (N2O), that trap heat in
the atmosphere are often called greenhouse gases.
Some greenhouse gases such as carbon dioxide occur
naturally and are emitted to the atmosphere through
natural processes and human activities. Other
greenhouse gases (e.g., fluorinated gases) are created
and emitted solely through human activities. GHGs
influence climate change though the greenhouse effect.
Greenhouse Gas Inventory Looks at greenhouse gas emissions caused by all
activities within a city's geographic boundary. Typical
sectors include residential, commercial, and industrial
energy use, transportation, off-road equipment, waste
generation, and energy associated with water delivery
and treatment.
Mobility The potential for movement and the ability to get from
one place to another using one or more modes of
transport to meet daily needs.
Mode Shift A change from one form of transportation to another.
Municipal Emissions Emissions based on energy use related to municipal
operations (i.e. natural gas use in City owned facilities,
transportation related emissions from City vehicle fleet,
etc.)
Net Zero Emissions Reducing greenhouse gas emissions to as close to zero
as possible, with any remaining emissions re-absorbed
from the atmosphere.
Sea Level Rise An increase in the level of the world’s oceans due to the
effects of global warming.
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Vehicle Miles Traveled (VMT) The number of miles traveled by a motor vehicle for
commute trips.
A.2 Glossary of Abbreviations
AB 32 Assembly Bill 32, The California Global Warming Solutions Act of 2006
BAAQMD Bay Area Air Quality Management District
BAU Business as Usual
CARB California Air Resources Board
CEC California Energy Commission
CEQA California Environmental Quality Act
The City City of Palo Alto
CO2 Carbon dioxide
CO2e Carbon dioxide equivalent
CPAU City of Palo Alto Utilities
CPUC California Public Utilities Commission
EV Electric vehicle
GHG Greenhouse gas
ICLEI Local Governments for Sustainability
IPCC Intergovernmental Panel on Climate Change
KPI Key performance indicator
kWh kilowatt hour
MT Metric ton
MMT Million metric tons
RPS Renewable portfolio standard
S/CAP Sustainability and Climate Action Plan
SOV Single Occupancy Vehicle
TNC Transportation Network Company
TOD Transit-oriented development
U.S. EPA United States Environmental Protection Agency
VMT Vehicle miles traveled
WRI World Resources Institute
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B. Climate Change70
B.1 Global Goal to Limit Warming to 1.5°C
The Intergovernmental Panel on Climate Change (IPCC), the leading international scientific body on
climate change, released a report71 in mid-2018 shifting the threshold at which significant and
potentially irreversible climate change impacts occur from 2°C to 1.5°C of average global temperature
increase above pre-industrial levels. The IPCC report promotes immediate actions to meet the 1.5°C
threshold to prevent or slow these impacts. Many of the impacts of warming up to and beyond 1.5°C,
and some potential impacts of mitigation actions required to limit warming to 1.5°C, fall
disproportionately on low income and socially vulnerable people.
Substantial changes in regional climate occur between 1.5°C and 2°C of global average temperature
increase. For example, the number of people exposed to severe heat waves triples. Keeping
temperatures at 1.5°C as compared to a 2°C warming would result in global reductions in risk,
including:
•Sea level rise: Decreasing global rate of rise by approximately 3.9 inches
•Heat waves: Decreasing the number of people being frequently exposed by 420 million
worldwide
•Heavy precipitation and drought: Reducing intensity and frequency worldwide
•Drinking water: Lowering the number of people without access to drinking water by 50
percent
Limiting warming to 1.5°C will require changes by 2050, including:
•Eliminating GHG emissions in our cities
•Deep reductions in global emissions of non-CO2 climate pollutants, particularly methane
•Reducing oil use by 32-74 percent
•Reducing natural gas use by 13-60 percent
•Leveraging renewables to supply 36-97 percent of energy
•Making buildings and transportation energy efficient
•Implementing adaptation options, including coastal defense and hardening, efficient
irrigation, green infrastructure, and disaster risk management
B.2 State and Local Goals and Targets
California has some of the most aggressive climate action goals in the United States. The State has set
a goal of emissions reductions to 40 percent below 1990 levels by 2030 (or 49 percent below 2005
levels). To achieve this, California has created the following strategies:
•Increase renewable electricity production to 50 percent
70 This section was adapted from the Regionally Integrated Climate Action Planning Suite (RICAPS) Climate Action Plan
(CAP) Template Version 9.4. The CAP Template was developed in partnership with the City/County Association of
Governments of San Mateo County (C/CAG) and the County of San Mateo Office of Sustainability through the San Mateo
County Energy Watch program and its RICAPS initiative. RICAPS is co-funded by C/CAG and PG&E.
71 Intergovernmental Panel on Climate Change (IPCC).(n.d.). Intergovernmental Panel on Climate Change Special Report:
Global Warming of 1.5ºC. https://www.ipcc.ch/sr15/.
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•Reduce petroleum use by 50 percent in vehicles
•Double energy efficiency savings at existing buildings
•Reduce GHG emissions from natural and working lands
•Reduce short-lived climate pollutants such as black carbon, methane, tropospheric ozone, and
fluorinated gases
•Make California more resilient to climate change in accordance with California’s 2018
Safeguarding California Plan
B.3 Trends in National and State Emissions
National Emissions
According to the U.S. EPA, gross total U.S. GHG emissions in 2017 were 6,456.7 million metric tons
(MMT) of CO2 equivalent (CO2e), representing a 12 percent decrease below 2005 levels.72 Emissions
have also decreased 4.5 percent since 2014, largely driven by transitioning power plants from using
coal to natural gas, as well as warmer winter conditions. CO2, the largest component of man-made
GHGs, made up 81.6 percent of total U.S. GHG emissions in 2017, followed by methane at 10.2
percent, nitrous oxide at 5.6 percent, and fluorinated gases at 2.6 percent.
Figure 10: Gross U.S. GHG Emissions by Gas: 1990-201873
In 2018, the industrial sector contributed the largest share of GHG emissions (29.1 percent), followed
by transportation (27.9 percent), commercial (16.2 percent), residential (15.6 percent), and
agriculture (10.5 percent). Land use and forestry offset 11 percent of total gross emissions. Of the five
main sectors, transportation has seen the largest increase in emissions since 1990 (22 percent
increase), while industrial emissions have seen the largest decrease (15.5 percent decrease).
72 U.S. Environmental Protection Agency. (2018). Inventory of U.S. Greenhouse Gas Emissions and Sinks: 1990-2018.
https://www.epa.gov/sites/production/files/2020-02/documents/us-ghg-inventory-2020-chapter-2-trends.pdf.
73 Ibid.
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Figure 11: U.S. GHG Emissions by Economic Sector74
California Emissions
Similar to the national trend, total GHG emissions in California have decreased in recent years.
According to the California Air Resources Board (CARB), total California GHG emissions in 2017 were
424 million metric tons (MMT) of CO2e, representing a 2 percent decrease below 1990 levels and a
13 percent decrease below 2005 levels.75
California has seen an overall decrease in carbon intensity of electricity generation, driven by a large
increase in zero-GHG and renewable energy resources due in part to California’s Renewable Portfolio
Standard (RPS)76 and Cap-and-Trade Program.77 In 2017, the transportation sector contributed the
largest share of GHG emissions (41 percent), followed by industrial (24 percent), in-state electricity (9
percent), agriculture and forestry (8 percent), residential (7 percent), imported electricity (6 percent),
and commercial (5 percent).
74 Ibid.
75 California Air Resources Board. (2019). California Greenhouse Gas Emissions for 2000 to 2017.
https://ww3.arb.ca.gov/cc/inventory/pubs/reports/2000_2016/ghg_inventory_trends_00-16.pdf.
76 California Energy Commission. Renewables Portfolio Standard – RPS. (n.d.). https://www.energy.ca.gov/programs-and-
topics/programs/renewables-portfolio-standard.
77California Air Resources Board. (2020). Cap-and-Trade Program.
https://ww3.arb.ca.gov/cc/capandtrade/capandtrade.htm.
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Figure 12: California GHG Emissions by Sector: 2000-2017
Figure 13: California 2017 GHG Emissions by Sector
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B.4 IPCC Scenarios
The following is a reprint of an article that was published in Fast Company on August 26, 2014.78
Four Scenarios Show What Climate Change Will Do To The Earth, From Pretty Bad To Disaster
Climate change is going to do a lot of damage. How bad that damage will be is still under debate.
The most recent Intergovernmental Panel on Climate Change (IPCC) report left no doubt about the
future of the world if we don’t slow the rate at which we release heat-trapping gases into the
atmosphere. In a word, it’s going to get bad.
But exactly how bad is still an open question, and a lot depends not only on how we react, but how
quickly. The rate at which humans cut down on greenhouse gas (GHG) emissions–if we do choose to
cut them–will have a large bearing on how the world turns out by 2100, the forecasts reveal.
This graphic from the World Resources Institute gives a sense of the dynamics at play. It presents four
“emissions pathways,” ranging from the very optimistic to the highly pessimistic.
WE ACTUALLY DO SOMETHING ABOUT CLIMATE CHANGE
The first “Low Emissions” scenario is for a 66 percent drop in greenhouse emissions by 2050
compared to 2010 levels. It’s what we might call a soft landing, because under those conditions
scientists believe we’ll be relatively safe. The world would have warmed only by 2 degrees C over pre-
industrial levels (the level set by various international agreements). Still, almost of the quarter of the
world would suffer depleted groundwater supplies by 2080, and many more people will face extreme
flooding, the WRI says. So, life wouldn’t be peachy.
78 Schiller, B. (2014, August 26). 4 Scenarios Show What Climate Change Will Do To The Earth, From Pretty Bad to Disaster.
Fast Company. https://www.fastcompany.com/3034316/4-scenarios-show-what-climate-change-will-do-to-the-earth-
from-pretty-bad-to-disaster
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WE KEEP DOING WHAT WE’RE DOING
The “Medium Emissions” scenario sees increases in emissions until 2040 and the world exceeding its
“carbon budget”–the level at which it should stay within the 2 degrees limit–by 2056. By 2100, the
planet has warmed by 2.9 degrees, and economic productivity has fallen by 20 percent. By the 2080s,
six times as many people are experiencing catastrophic flooding as the 1980s.
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WE REV THE ENGINES
The “High Emissions” scenario doesn’t see emissions peaking until 2080, while global temperatures
jump 3.7 degrees C by 2100. The carbon budget is exhausted in 2057. The impact on agricultural
production is so heinous that adaption is no longer viable, the WRI predicts.
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WE DESTROY THE PLANET
As if that’s not bad enough, there’s one last “Highest Emissions” scenario (they should have called it
the Doomsday Scenario, really). It sees the carbon budget obliterated in 2045 and global
temperatures increasing a whopping 4.8 degrees by century’s end. Many animals have become
extinct and farming in some places, like southern Brazil, has become impossible.
But won’t we adapt to the new conditions, you might ask? Well, maybe. The scenarios here assume
flat technology development, not the leaps forward in innovation that we can hope for. We could
have drought-resistant crops and new ways of recycling and desalinating water, for instance, that
could make these predictions less forceful.
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The easier course, though, is to cut emissions. To have a fighting chance of coping with climate
disorder, we have to cut greenhouse gases quickly, not just wait until it’s convenient.
ABOUT THE AUTHOR: Ben Schiller is a New York staff writer for Fast Company. Previously, he edited a
European management magazine and was a reporter in San Francisco, Prague, and Brussels.
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C. Policy79
C.1 Global Policy
United Nations Sustainable Development Goal #13: Climate Action
The 2030 Agenda for Sustainable Development, adopted by all United Nations
Member States in 2015, provides a shared blueprint for peace and prosperity for
people and the planet, now and into the future. At its heart are the 17
Sustainable Development Goals (SDGs), which are an urgent call for action by all
countries - developed and developing – in a global partnership. Goal #13 is “Take
urgent action to combat climate change and its impacts.”80
C.2 State Policy and Regulatory Context
The State of California has been a leader in developing and implementing policies and regulations to
directly address the risk of severe climate change. Below we summarize the key statewide legislation
aimed at reducing greenhouse gas (GHG) emissions and adapt to climate impacts. There are many
supporting pieces of legislation and other related initiatives that are sector specific.
Climate Change Scoping Plan
The Climate Change Scoping Plan was approved by ARB in December 2008 and outlines the State’s
plan to achieve the GHG reductions required in AB 32. The Scoping Plan contains the primary
strategies California will implement to achieve a reduction of 169 MMT of carbon dioxide equivalent
(CO2e), or approximately 28% from the state’s projected 2020 emission level.
Assembly Bill 32 (AB 32), California Global Solutions Act, 2006
In September 2006, the California legislature passed Assembly Bill 32 (AB 32), which set the goal of
reducing GHG emissions back to 1990 levels by 2020. AB 32 finds and declares that “global warming
poses a serious threat to economic well-being, public health, natural resources and the environment
of California.” The legislation granted authority to the Air Resources Board to establish multiple
mechanisms (regulatory, reporting, voluntary, and market) to achieve quantifiable reductions in GHG
emissions to meet the statewide goal.
Senate Bill 32 (SB 32), California Global Solutions Act of 2006, 2016
Senate Bill (SB) 32 expands upon the Global Warming Solutions Act of 2006, requiring the California
Air Resources Board (CARB) to ensure that statewide GHG emissions are reduced to 40% below 1990
levels by 2030 and 80% below 1990 levels by 2050.
79 This section was adapted from the Regionally Integrated Climate Action Planning Suite (RICAPS) Climate Action Plan
(CAP) Template Version 9.4. The CAP Template was developed in partnership with the City/County Association of
Governments of San Mateo County (C/CAG) and the County of San Mateo Office of Sustainability through the San Mateo
County Energy Watch program and its RICAPS initiative. RICAPS is co-funded by C/CAG and PG&E.
80 United Nations Sustainable Development Goals. (n.d.). Sustainable Development Goal 13. Retrieved from
https://sustainabledevelopment.un.org/sdg13.
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Executive Order B-55-18 to Achieve Carbon Neutrality, 2018
Executive Order B-55-18 set a target of statewide carbon neutrality by 2045 and to maintain net
negative emissions thereafter. This goal is in addition to the existing statewide targets of reducing
greenhouse gas emissions.
Senate Bill 97, CEQA Guidelines for Addressing GHG Emissions, 2007
In August of 2007, Senate Bill (SB) 97 was signed into law, expressly recognizing the need to analyze
GHG emissions as a part of the California Environmental Quality Act (CEQA) process. SB 97 required
the Office of Planning and Research (OPR) to develop, and the California Natural Resources Agency to
adopt, amendments to CEQA Guidelines addressing the analysis and mitigation of GHG emissions.
Those amendments became effective in March of 2010. Proposed projects that must comply with
CEQA regulations include General Plans, Specific Plans and specific types of development projects.
Senate Bill 350, Clean Energy and Pollution Reduction Act, 2015
In October of 2015, Senate Bill 350 (SB 350) was signed into law, establishing new clean energy, clean
air and greenhouse gas reduction goals for 2030 and beyond. SB 350 codified Governor Jerry Brown’s
aggressive clean energy goals and established California’s 2030 greenhouse gas reduction target of 40
percent below 1990 levels. To achieve this goal, SB 350 increases California’s renewable electricity
procurement goal from 33 percent by 2020 (legislation originally enacted in 2002) to 50 percent by
2030. Renewable resources include wind, solar, geothermal, wave, and small hydroelectric power. In
addition, SB 350 requires the state to double statewide energy efficiency savings in electricity and
natural gas end uses by 2030.
Senate Bill 379, Climate Adaptation and Resiliency Strategies, 2015
SB 379 requires all cities and counties to include climate adaptation and resilience strategies in the
Safety Elements of their General Plans upon the next revision beginning January 1, 2017. The bill
requires the climate adaptation update to include a set of goals, policies, and objectives for their
communities based on the vulnerability assessment, as well as implementation measures, including
the conservation and implementation of natural infrastructure that may be used in adaptation
projects.
Senate Bill 100, The 100% Clean Energy Act, 2018
In September of 2018, Governor Brown signed Senate Bill 100 (SB 100), requiring the State’s load
serving entities (including energy utilities and community choice energy programs) to achieve 50
percent renewable resources target by December 31, 2026, to achieve a 60 percent target by
December 31, 2030 and supply 100 percent of retail sales of electricity to California end-use
customers and 100 percent of electricity procured to serve all state agencies by December 31, 2045.
At the same time, Governor Brown also signed Executive Order B-55-18, requiring California to
achieve carbon neutrality as soon as possible, and no later than 2045, and to maintain negative
emissions thereafter.
Senate Bill 1477, Low Emissions Buildings and Sources of Heat Energy, 2018
In September 2018, Governor Brown signed Senate Bill 1477 (SB 1477), that requires the California
Public Utilities Commission (CPUC) to oversee two new low-carbon heating programs, investigate
potential pilot programs to build all-electric, zero-carbon buildings in areas damaged by wildfires,
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coordinate with the California Energy Commission on updates to the State’s building (Title 24) and
appliance (Title 20) energy efficiency standards, and establish a building decarbonization policy
framework. The bill authorizes $200 million over four years to be invested in programs to advance
low-carbon space and water heating technologies in both new and existing buildings. Funding for the
programs is slated to come from natural gas utility carbon allowance proceeds from California’s cap-
and-trade program.
Assembly Bill 1493, Clean Car Standards, 2002
AB 1493 requires ARB to develop and adopt regulations to reduce GHG emissions from passenger
vehicles, light-duty trucks, and other non-commercial vehicles for personal transportation. In 2004,
ARB approved amendments to the California Code of Regulations adding GHG emissions standards to
California’s existing standards for motor vehicle emissions. In 2009, ARB adopted amendments to the
“Pavley” regulations that reduce GHG emissions in new passenger vehicles from 2009 through 2016.
Senate Bill 375, Sustainable Communities and Climate Protection Act, 2008
SB 375 aligns regional transportation planning efforts, regional GHG reduction targets, and affordable
housing allocations. Metropolitan Planning Organizations (MPOs) are required to adopt a Sustainable
Communities Strategy (SCS), which allocates land uses in the MPO’s Regional Transportation Plan.
Qualified projects consistent with an approved SCS or Alternative Planning Strategy and categorized
as “transit priority projects” receive incentives under new provisions of the California Environmental
Quality Act (CEQA).
Senate Bill 743, Vehicle Miles Traveled Policy, 2013
SB 743 was passed in 2013 and implemented in 2018 through the adoption of new CEQA regulations,
or guidelines for conducting transportation impact analysis. The updated guidelines provide a new
performance metric, vehicle miles travelled (VMT) as a basis for determining significant
transportation impacts under CEQA. VMT would replace level of service (LOS) of the primary impact
threshold under CEQA; however, cities can still retain the ability to use LOS for operational purposes.
While LOS often required wider roads as a mitigation measure, projects expected to induce
significant increases in VMT will be able to mitigate their impacts through measures such as car-
sharing services, unbundled parking, improved transit, and enhanced pedestrian and bicycle
infrastructure.
Assembly Bill 2127, Electric Vehicle Charging Infrastructure Assessment, 2018
AB 2127 requires the Energy Commission to prepare and biennially update a statewide assessment of
the electric vehicle charging infrastructure needed to support the levels of electric vehicle adoption
required for the state to meet its goals of putting at least 5 million zero-emission vehicles on
California roads by 2030 and of reducing emissions of greenhouse gases to 40% below 1990 levels by
2030.
Senate Bill 1383, Short-Lived Climate Pollutant Reduction Strategy, 2016
SB 1383 requires the state to reduce emissions of short-lived climate pollutants to achieve a
reduction in methane by 40% below 2014 levels by 2030, as specified. The bill also established
specified targets for reducing organic waste in landfills by reducing organic waste disposal 50% by
2020 and 75% by 2025 and increasing edible food recovery by 20 percent by 2025.
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Bay Area Air Quality Management District CEQA Guidelines
The Bay Area Air Quality Management District (BAAQMD) encourages local governments to adopt a
GHG Reduction Strategy that is consistent with AB 32 goals. The GHG Reduction Strategy may
streamline environmental review of community development projects. According to the BAAQMD, if
a project is consistent with a GHG Reduction Strategy, then it can be presumed that the project will
not have significant GHG impacts. This approach is consistent with the following State CEQA
Guidelines, Section 15183.5.a:
“Lead agencies may analyze and mitigate the significant impacts of greenhouse gas emissions
at a programmatic level, such as…a plan to reduce greenhouse gas emissions. Later project-
specific environmental documents may tier from and/or incorporate by reference that existing
programmatic review. Project-specific environmental documents may rely on an
[Environmental Impact Report] containing a programmatic analysis of greenhouse gas
emissions.”
This S/CAP provides a foundation for future development efforts in the community. It is expected
that environmental documents for future development projects will identify and incorporate all
applicable voluntary and mandatory actions from S/CAP for projects undergoing CEQA review.
C.3 State-Level Programs
The City isn’t expected to make all the reductions on its own. The following programs help cities meet
their climate goals.
California Advanced Clean Cars Program
In 2012, CARB adopted a set of regulations to control emissions from passenger vehicles, collectively
called Advanced Clean Cars. The program was developed in coordination with the U.S. EPA and
National Highway Traffic Safety Administration (NHTSA) and combines the control of smog-causing
pollutants and GHG emissions into a single coordinated package of regulations. ww2.arb.ca.gov/our-
work/programs/advanced-clean-cars-program
California Climate Commitment
The 2022 California Climate Commitment invests $54 billion to fight climate change and enacts new
world-leading measures that will cut pollution, deploy clean energy and new technologies, and
protect Californians from harmful oil drilling. https://www.gov.ca.gov/wp-
content/uploads/2022/09/Fact-Sheet-California-Climate-Commitment.pdf
California Long Term Energy Efficiency Strategic Plan
Published in 2008 and updated in 2011, the California Long Term Energy Efficiency Strategic Plan
outlines goals and strategies for key market sectors (i.e., commercial, residential, industrial, and
agricultural) and crosscutting initiatives (e.g., heating, ventilation and air conditioning, codes and
standards, research, and technology). While the Plan has not been updated since 2011, it is still
referenced in numerous State documents and reports. The Plan embraces four specific programmatic
goals, known as the Big Bold Energy Efficiency Strategies. These goals are:
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•All new residential construction in California will be zero net energy by 2020.
•All new commercial construction in California will be zero net energy by 2030.
•The Heating, Venting and Air Conditioning (HVAC) industry will be re-shaped to deliver
maximum performance HVAC systems.
•All eligible low-income customers will have an opportunity to participate in the LIEE program
and will be provided all cost- effective energy efficiency measures in their residences by 2020.
More information on California’s zero net energy goals can be found online at: www.cpuc.ca.gov/ZNE
California Low Carbon Fuel Standard Program
The Low Carbon Fuel Standard (LCFS) is designed to encourage the use of low-carbon fuels,
encourage the production of those fuels, and therefore, reduce GHG emissions. Currently, the LCFS
calls for a 20 percent decline in the carbon intensity of diesel fuels below 2010 levels by 2030.
ww3.arb.ca.gov/fuels/lcfs/lcfs.htm
California Renewable Portfolio Standard
The Renewable Portfolio Standard (RPS), originally established in 2002, required 20 percent of
electricity retail sales to be served by renewable sources by 2017. The program was accelerated in
2015 with SB 350, which mandated a 50 percent RPS by 2030. SB 100, enacted in 2018, accelerated
the program further, establishing renewable energy targets of 50 percent by 2026, 60 percent by
2030, and 100 percent by 2045. www.cpuc.ca.gov/rps
Caltrain Electrification
Caltrain Electrification is a key component of Caltrain Modernization Program (CalMod). The current
project will electrify the corridor from San Francisco to San Jose, including all track in San Mateo
County, and will replace 75 percent of Caltrain’s diesel service with electric. The project will lower
GHG emissions, improve regional air quality, and reduce noise. https://calmod.org
Organic/Food Waste Diversion
In 2016, Senate Bill 1383 (SB 1383) established methane emissions reduction targets in a statewide
effort to reduce emissions of short-lived climate pollutants in various sectors of California’s economy.
SB 1383 establishes target to achieve a 50 percent reduction in the level of statewide disposal of
organic waste from 2014 levels by 2020 and a 75 percent reduction by 2025. Beginning in 2022, SB
1383 requires every jurisdiction to provide organic waste collection services to all residents and
businesses. The law grants CalRecycle the regulatory authority required to achieve the organic waste
disposal reduction targets. More information about SB 1383 can be found online at:
https://www.calrecycle.ca.gov/climate/slcp
C.4. City Policy
Since 1991, the Palo Alto City Council, City Manager, and City of Palo Alto Departments have adopted
policies, plans, ordinances, resolutions, and principles that have helped to increase the sustainability
of Palo Alto81. In addition, sustainability principles are integrated in the 2030 Comprehensive Plan82.
81 https://www.cityofpaloalto.org/City-Hall/Sustainability/Documents
82 https://www.cityofpaloalto.org/Departments/Planning-Development-Services/Long-Range-Planning/2030-
Comprehensive-Plan
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The 2030 Comprehensive Plan contains the City’s official policies on land use and community design,
transportation, housing, natural environment, safety, business and economics, and community
services. Several goals and policies overlap with the S/CAP, including, but not limited to the following
from the Comprehensive Plan 2030 Implementation Plan83:
2. LAND USE ELEMENT
Goal L-2: An enhanced sense of “community” with development designed to foster public life,
meet citywide needs and embrace the principles of sustainability.
L2.4.5 Update the municipal code to include zoning changes that allow a mix of retail and
residential uses but no office uses. The intent of these changes would be to encourage a
mix of land uses that contributes to the vitality and walkability of commercial centers and
transit corridors.
L2.4.7 Explore mechanisms for increasing multi-family housing density near multimodal transit
centers.
Goal L-4: Inviting pedestrian scale centers that offer a variety of retail and commercial services and
provide focal points and community gathering places for the city’s residential neighborhoods and
employment districts.
L4.8.2 Study the feasibility of converting parts of University Avenue to a pedestrian zone.
Goal L-7: Conservation and preservation of Palo Alto’s historic buildings, sites, and districts.
L7.8.2 Create incentives to encourage salvage and reuse of discarded historic building
materials.
Goal L-10: Maintain an economically viable local airport with minimal environmental impacts.
L10.3.2 Work with the airport to pursue opportunities to enhance the open space and habitat
value of the airport. These include: Maintaining native grasses; Reconstructing levees to
protect the airport from sea level rise while enhancing public access and habitat
conservation; and Evaluating the introduction of burrowing owl habitat.
3. TRANSPORTATION ELEMENT
Goal T-1: Create a sustainable transportation system, complemented by a mix of land uses, that
emphasizes walking, bicycling, use of public transportation, and other methods to reduce
greenhouse gas emissions and the use of single occupancy motor vehicles.
T1.2.1 Create a long-term education program to change the travel habits of residents, visitors,
shoppers, and workers by informing them about transportation alternatives, incentives,
and impacts. Work with the PAUSD and with other public and private interests, such as
the Chamber of Commerce and Commuter Wallet partners, to develop and implement
this program.
83 https://www.cityofpaloalto.org/files/assets/public/planning-amp-development-services/file-migration/historic/long-
range-planning/resources/compplan_2017_09_implementation_pdf_w_links.pdf
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T1.2.3 "Formalize TDM requirements by ordinance and require new developments above a
certain size threshold to prepare and implement a TDM plan to meet specific
performance standards. Require regular monitoring/reporting and provide for
enforcement with meaningful penalties for non-compliance. The ordinance should also:
Establish a list of effective TDM measures that include transit promotion, prepaid transit
passes, commuter checks, car sharing, carpooling, parking cash-out, bicycle lockers and
showers, shuttles to Caltrain, requiring TMA membership and education and outreach to
support the use of these modes; Allow property owners to achieve reductions by
contributing to citywide or employment district shuttles or other proven transportation
programs that are not directly under the property owner’s control; Provide a system for
incorporating alternative measures as new ideas for TDM are developed; Establish a
mechanism to monitor the success of TDM measures and track the cumulative reduction
of peak hour motor vehicle trips. TDM measures should at a minimum achieve the
following reduction in peak hour motor vehicle trips, with a focus on single-occupant
vehicle trips. Reductions should be based on the rates included in the Institute of
Transportation Engineers’ Trip Generation Manual for the appropriate land use category
and size:
• 45 percent reduction in the Downtown district
• 35 percent reduction in the California Avenue area
• 30 percent reduction in the Stanford Research Park
• 30 percent reduction in the El Camino Real Corridor
• 20 percent reduction in other areas of the city
Require new development projects to pay a Transportation Impact Fee for all those peak-
hour motor vehicle trips that cannot be reduced via TDM measures. Fees collected would
be used for capital improvements aimed at reducing vehicle trips and traffic congestion;
Ensure a stable, sustained funding source to support implementation of TDM measures."
T1.2.4 Evaluate the performance of pilot programs implemented by the Palo Alto Transportation
Management Association and pursue expansion from Downtown to California Avenue and
other areas of the city when appropriate.
T1.2.5 Site City facilities near high-capacity transit and revise existing regulations, policies, and
programs to encourage telecommuting, satellite office concepts, and work-at-home
options.
T1.2.6 Pursue full participation of Palo Alto employers in the TMA.
T1.3.1 Develop an electric vehicle promotion program that identifies policy and technical issues,
barriers and opportunities to the expansion of electric vehicles.
T1.3.2 Use low-emission vehicles for the Palo Alto Free Shuttle and work with transit providers,
including SamTrans and the Santa Clara Valley Transportation Authority to encourage
the adoption of electric, fuel cell or other zero emission vehicles. Also work with
private bus and shuttle providers, delivery companies, and ride services.
T1.4.1 Update the Zoning Code to ensure compatibility with the electric vehicle infrastructure
requirements.
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T1.4.2 Periodically review requirements for electric and plug-in vehicle infrastructure in new
construction. Consider and periodically review requirements for electric and plug-in
infrastructure for remodels. Consider costs to the City, including identifying payment
options.
T1.6.1 Collaborate with transit providers, including Caltrain, bus operators and rideshare
companies, to develop first/last mile connection strategies that boost the use of transit
and shuttle service for local errands and commuting.
T1.12.3 "Work with the Santa Clara Valley Transportation Authority to study the feasibility of,
and if warranted provide, traffic signal prioritization for buses at Palo Alto intersections,
focusing first on regional transit routes. Also, advocate for bus service improvements on
El Camino Real such as queue jump lanes and curbside platforms. "
T1.12.3 "Work with the Santa Clara Valley Transportation Authority to study the feasibility of,
and if warranted provide, traffic signal prioritization for buses at Palo Alto intersections,
focusing first on regional transit routes. Also, advocate for bus service improvements on
El Camino Real such as queue jump lanes and curbside platforms. "
T1.16.2 Consider marketing strategies such as a recurring Palo Alto Open Streets program of
events, potentially in coordination with local business groups, which would include street
closures and programming.
T1.16.4 "Participate in local and regional encouragement events such as Palo Alto Walks and
Rolls, Bike to Work Day, and Bike Palo Alto! that encourages a culture of bicycling and
walking as alternatives to single occupant vehicle trips."
T1.19.2 Prioritize investments for enhanced pedestrian access and bicycle use within Palo Alto
and to/from surrounding communities, including by incorporating improvements from
related City plans, for example the 2012 Bicycle + Pedestrian Transportation Plan and the
Parks, Trails & Open Space Master Plan, as amended, into the Capital Improvements
Program.
T1.19.4 "Encourage the use of bike sharing, and the provision of required infrastructure
throughout Palo Alto, especially at transit stations and stops, job centers, community
centers, and other destinations. "
Goal T-2: Decrease delay, congestion, and vehicle miles travelled with a priority on our worst
intersections and our peak commute times, including school traffic
T2.1.1 Implement computerized traffic management systems to improve traffic flow when
feasible.
Goal T-3: Maintain an efficient roadway network for all users.
T3.10.4 Pursue extension of Quarry Road for transit, pedestrians and bicyclists to access the Palo
Alto Transit Center from El Camino Real. Also study the feasibility of another pedestrian
and bicycle underpass of Caltrain at Everett Street.
Goal T-5: Encourage attractive, convenient, efficient and innovative parking solutions for all users.
T5.1.2 Consider reducing parking requirements for retail and restaurant uses as a way to
encourage new businesses and the use of alternative modes.
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T5.1.5 Consider reducing parking requirements for multi-family uses as a way to encourage new
multi-family housing and the use of alternative modes, where reduction in parking would
not impact the neighborhood.
T5.2.2 Study and implement pricing strategies for public parking in commercial districts, taking
into consideration both employee parking demand and the needs of retailers and
customers. Use pricing to encourage short term parking on street, long term parking in
parking garages, and the use of alternative modes of transportation
T5.2.3 Implement Council-adopted recommendations from the parking management study for
the Downtown area, which address the feasibility of removing colorcoded parking zones,
and dynamic pricing and management policies to prioritize short-term parking spaces
closest to the commercial core for customers, garage parking for employees, and
neighborhood parking for residents.
T5.4.1 Explore incentives to encourage privately initiated shared parking among individual
property owners when developments have excess parking that can be available for other
businesses to use.
Goal T-6: Provide a safe environment for motorists, pedestrians, and bicyclists on Palo Alto
streets.
T6.1.1 Follow the principles of the safe routes to schools program to implement traffic safety
measures that focus on Safe Routes to work, shopping, downtown, community services,
parks, and schools, including all designated school commute corridors.
T6.1.2 Develop, distribute and aggressively promote maps and apps showing safe routes to
work, shopping, community services, parks and schools within Palo Alto in collaboration
with stakeholders, including PAUSD, major employers, TMAs, local businesses and
community organizations.
T6.4.1 Consider the Adopted School Commute Corridors Network and adopted “Walk and Roll”
maps when reviewing development applications and making land use and transportation
planning decisions. Incorporate these requirements into City code when feasible.
T6.4.3 In collaboration with PAUSD, provide adult crossing guards at school crossings that meet
established warrants.
T6.6.2 Continue to provide educational programs for children and adults, in partnership with
community-based educational organizations, to promote the safe walking and safe use of
bicycles, including the City-sponsored bicycle education programs in the public schools
and the bicycle traffic school program for juveniles
Goal T-8: Influence the shape and implementation of regional transportation policies and
technologies to reduce traffic congestion and greenhouse gas emissions.
T8.1.1 Continue to participate in regional efforts to develop technological solutions that make
alternatives to the automobile more convenient.
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T8.8.1 "Identify and improve bicycle connections to/from neighboring communities in Santa
Clara and San Mateo counties to support local trips that cross city boundaries. Also
advocate for reducing barriers to bicycling and walking at freeway interchanges,
expressway intersections, and railroad grad crossings. "
4. NATURAL ENVIRONMENT
Goal N-2: A thriving urban forest that provides public health, ecological, economic, and aesthetic
benefits for Palo Alto.
N2.1.1 Explore ways to prevent and ameliorate damage to trees and tree roots by above and
below ground infrastructure and buildings.
N2.4.1 Promote landscape design that optimizes soil volume, porosity, structure and health, as
well the location, shape and configuration of soil beds.
N2.7.1 Maintain and irrigate healthy trees in parks, open space, parking lots, and City rights-of-
way, while identifying and replacing unhealthy trees in those areas.
N2.7.2 Continue to invest in the care, irrigation and monitoring of street trees during drought
conditions.
N2.9.2 Develop a program for using the City’s Urban Forestry Fund to replace trees lost to
public improvement and infrastructure projects, with replanting occurring onsite or as
close to the original site as is ecologically appropriate.
N2.10.1 Continue to require replacement of trees, including street trees lost to new
development.
N2.12.1 Explore ways to leverage the fact that Palo Alto’s urban forest alleviates climate change
by capturing and storing carbon dioxide
N2.13.2 Provide on-going education for City staff, residents, and developers regarding
landscape, maintenance, and irrigation practices that protect the urban forest and
wildlife species.
Goal N-4: Water resources and infrastructure that are managed to sustain plant and animal life,
support urban activities, and protect public health and safety.
N4.2.1 Educate customers on efficient water use (indoor and outdoor), tree care, and
landscaping options.
N4.6.1 Encourage residents to use rain barrels or other rainwater reuse systems.
N4.7.1 Support and participate in the work of the SCVWD to prepare a high-quality
groundwater management plan that will address groundwater supply and quality
N4.13.1 Promote the use of permeable paving materials or other design solutions that allow for
natural percolation and site drainage through a Storm Water Rebate Program and other
incentives.
N4.13.2 Develop and implement a green stormwater infrastructure plan with the goal to treat
and infiltrate stormwater.
N4.17.3 Investigate ways to reuse non-traditional water sources including recycled, gray, black
and stormwater.
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Goal N-7: A clean, efficient energy supply that makes use of cost-effective renewable resources.
N7.1.1 Meet customer electricity needs with least total cost resources after careful assessment
of environmental cost and benefits.
N7.2.1 Promote the adoption of cost-effective, renewable energy technologies from diverse
renewable fuel sources by all customers.
N7.4.1 Continue timely incorporation of State and federal energy efficiency standards and
policies in relevant City codes, regulations and procedures, and higher local efficiency
standards that are cost-effective.
N7.4.2 Implement cost effective energy efficiency programs for all customers, including low
income customers.
N7.4.5 Continue to provide public education programs addressing energy conservation and
efficiency.
N7.6.1 Explore changes to building and zoning codes to incorporate solar energy, energy
storage and other energy efficiency measures into major development projects,
including City-owned projects.
N7.7.1 Evaluate the potential for a cost-effective plan for transitioning to a completely carbon-
neutral natural gas supply.
N7.7.2 Explore the transition of existing buildings from gas to electric or solar water and space
heating.
Goal N-8: Actively support regional efforts to reduce our contribution to climate change while
adapting to the effects of climate change on land uses and city services.
N8.1.1 Participate in cooperative planning with regional and local public agencies, including on
the Sustainable Communities Strategy, on issues related to climate change, such as
greenhouse gas reduction, water supply reliability, sea level rise, fire protection
services, emergency medical services, and emergency response planning.
N8.1.2 Meet or exceed State building energy standards by encouraging higher energy efficiency
and/or all-electric new construction and retrofit projects.
N8.2.1 Periodically update the S/CAP consistent with the update schedule in the approved
S/CAP; this update shall include an updated greenhouse gas inventory and updated
short, medium, and long-term emissions reduction goals.
N8.3.1 Protect the Municipal Services Center, Utility Control Center, and RWQCP from the
impacts of sea level rise.
N8.4.1 Prepare response strategies that address sea level rise, increased flooding, landslides,
soil erosion, storm events and other events related to climate change. Include strategies
to respond to the impacts of sea level rise on Palo Alto’s levee system.
5. SAFETY ELEMENT
Goal S-3: An environment free of the damaging effects of human-caused threats and hazardous
materials.
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S3.8.1 Encourage residential and commercial food waste reduction through incentives,
educational outreach and programs.
S3.9.2 Educate Palo Alto residents and developers about available incentives to use
environmentally friendly deconstruction activities to minimize our carbon footprint, and
to save natural resources, as well as space in our landfills.
S3.10.1 Support efforts to enforce extended producer responsibility for solid waste to reduce
waste produced from manufacturing, shipping, packaging and the entire life-cycle of the
product.
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D. Methodology
D.1. 1990 vs. 2021 Greenhouse Gas Emissions by Sector and Subsector
Sector and Subsector 1990 GHG
emissions
(MT CO2e)84
2019 GHG
emissions
(MT CO2e)
2020 GHG
emissions
(MT CO2e)
2021 GHG
emissions
(MT CO2e)
Percent Change
in 2021 from
1990 (%)
Percent of
Total 2021
Emissions (%)
Total Transportation & Mobile Sources 331,840 315,081 238,523 211,403 -36.3%58.8%
-On-Road Transportation 331,840 293,413 217,279 185,925 -44.0%51.7%
-Airport Emissions Not Included 2,192 1,664 2,641 n/a 0.7%
-Off-road Vehicles Not Included 14,634 15,029 18,961 n/a 5.3%
-Caltrain Commuter Rail Not Included 4,842 4,552 3,876 n/a 1.1%
Total Natural Gas (Methane) Use 194,000 153,509 134,365 135,697 -30.1%37.8%
-Commercial Energy Not calculated 66,987 53,515 55,676 n/a 15.5%
-Industrial Energy Not calculated 14,373 11,961 12,176 n/a 3.4%
-Residential Energy Not calculated 72,149 68,889 67,846 n/a 18.9%
Natural Gas (Methane) Fugitive
Emissions
4,718 5,009 4,384 4,427 -6.2%1.2%
Total Wastewater-Related Emissions 8,504 2,197 3,355 1,262 -85.2%0.4%
-Wastewater Biosolid Treatment85 n/a 812 0 0 n/a 0%
-Wastewater Treatment and Effluent 8,504 1,385 1,388 1,262 -85.2%0.4%
Total Solid Waste 55,057 6,531 6,660 6,522 -88.2%1.8%
-Composting Not Included 731 1,623 1,256 n/a 0.3%
-Palo Alto Landfill Gas Flaring86 Not Included 281 316 237 n/a 0.1%
-Palo Alto Landfill Gas Fugitive 24,325 n/a87 n/a n/a n/a n/a
-Landfill Waste 30,732 5,519 4,721 5,029 -83.6%1.4%
Brown Power Supply (Electricity)186,000 n/a n/a n/a -100.0%n/a
Total GHG Emissions (MT CO2e)780,119 482,237 385,320 359,312 -53.9%100%
84 Source: 2016 S/CAP Framework and 2016 Earth Day Report
85 Includes biosolid composting, anaerobic digestion, and incineration
86 2016 Earth Day Report labeled these emissions as biogenic
87 Not included because the landfill was closed
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D.2. Transportation Methodology and Data Sources
Memorandum
Date:August 11, 2020 (Updated November 3, 2020)
To:Josh Lathan, AECOM
From:Daniel Rubins, Bob Grandy and Teresa Whinery, Fehr & Peers
Subject:Palo Alto S/CAP – Task 2.1 Transportation Methodology and Data
Sources
SF20-1094
The purpose of this memorandum is to provide options for revising the current work scope for
Fehr & Peers in Tasks 2 through 4 for the Palo Alto Sustainability and Climate Action Plan (S/CAP).
As requested in the RFP, Fehr & Peers is currently scoped to develop Base and Future VMT
estimates, and AECOM is scoped to identify the GHG reduction levels for up to 40 proposed
actions using the ClearPath GHG calculator. Since the ClearPath GHG calculator does not address
several of the proposed actions identified during the S/CAP process to date, City staff have asked
Fehr & Peers to both identify modifications to our current scope and budget to assist in
identifying GHG reduction levels for proposed actions as well as to identify optional tasks that
would require additional budget allocations that could occur as part of the S/CAP or future
efforts to enhance VMT estimation for the desired S/CAP actions.
This memorandum summarizes the VMT calculation method options and approach for the
Palo Alto Sustainability and Climate Action Plan (S/CAP). The selected approach will result in
an estimate of baseline (1990) and reporting years (2019 and 2030) vehicle miles traveled, and
vehicle miles reduction based on S/CAP Actions. This document discussion includes:
1.VMT Metrics
2.VMT Calculation Methods
3.GHG Calculation Methods
4.VMT Reduction Analysis
This memorandum will be supported by a matrix summary (prepared by AECOM) of the pros and
cons evaluation of the data sources, qualitative assessment of the robustness of the data, ability
of the data to evaluate trends over time, and estimated cost to acquire the data for VMT, fleet
mix and greenhouse gas emissions.
160 W. Santa Clara Street | Suite 675 | San José, CA 95113 | (408) 278-1700 | Fax
(408) 278-1717 www.fehrandpeers.com
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Updates to this memorandum are shown in yellow highlight to indicate what was included in
the revised scope of work.
VMT Metrics
Daily VMT is calculated based on the number of vehicles multiplied by the average distance
traveled by each vehicle and is a key output from travel forecast models. Daily VMT can be
reported in different ways. It can be calculated for the entire roadway network, which may
extend beyond a specific geographic area such as the physical limits of a jurisdiction or study
area (referred to in this discussion as the origin-destination method); alternatively, daily VMT
can be summarized for a specific jurisdiction (referred to in this discussion as the geographic
boundary method). Two of the techniques for determining the daily VMT estimates from
jurisdictions includes the following methods:
•Geographical boundary VMT method – A geographical boundary–based estimate
captures all daily VMT on a roadway network within a specified geographic area. This
geographical boundary–based estimate includes local trips within the specified area plus
interregional travel that does not have an origin or destination within the geographic
area.
•Origin-destination (OD) VMT method88 – An OD estimate tracks all the vehicle trips
generated within a geographic area across the entire network to their ultimate
destinations and isolates the daily VMT as follows:
◦Internal-internal (II): All daily trips made entirely within the Palo Alto city limits.
◦One-half of internal-external (IX): One-half of daily trips with an origin within
the Palo Alto city limits and a destination outside of Palo Alto city limits. This
assumes that the study jurisdiction shares half the responsibility for trips
traveling from other jurisdictions.
◦One-half of external-internal (XI): One-half of daily trips with an origin outside
the Palo Alto city limits and a destination within Palo Alto city limits. Similar to
the IX trips, this assumes that Palo Alto shares the responsibility of trips
traveling to other jurisdictions.
◦External-external (XX): Trips through Palo Alto are not included because Palo
Alto cannot solely implement policies that influence the trip-making behavior.
Rather, through trips are assigned to other jurisdictions that can influence
either the origin or destination side of the trip-making behavior.
88 This VMT method is similar but not the same accounting as the total project generated VMT metric described in the SB
743 Implementation Decisions for Palo Alto white paper (June 1, 2020). The total project generated VMT metric
accounting includes the full length of each trip compared to the OD VMT method, which only includes half the length of
each trip
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The choice of the geographical boundary VMT method or the OD VMT method is influenced by
several factors. The geographical boundary VMT method is used by some air districts because
particulate air pollutants are typically measured with stationary monitoring devices that can only
register emissions from the vehicle traffic passing a location. Further, most air districts have
historically focused on criteria air pollutants. Regulations require this focus, which largely stems
from the fact that air pollutants affect the population directly within the air district, while GHG
emissions affect the entire planet; tracking the full amount of travel is more relevant than in air
pollutant analysis. The geographical boundary VMT method only considers traffic within the
physical limits of the selected study area and does not include the impact of vehicles once they
travel outside the area limits.
The OD VMT method tracks vehicle trips being generated by a geographic area (i.e., a city,
county, etc.) across the entire regional transportation network to their ultimate destinations.
Unlike the geographical boundary VMT method, the OD VMT method recognizes that any trip has
two trip ends (starting and ending points) and that both have to be considered in any attempt to
reduce daily VMT. The OD VMT method excludes trips that pass through the geographic area—
with neither an origin nor destination within the area. This approach quantifies the jurisdiction-
related daily VMT so that a jurisdiction’s staff and decision-makers can develop policies to alter
VMT and greenhouse gas emissions within their control. The OD VMT method is consistent with
the Regional Targets Advisory Committee (RTAC) recommendation to the California
Transportation Commission presented in the report Recommendations of the Regional Targets
Advisory Committee (RTAC) Pursuant to Senate Bill 375 (RTAC, 2009).
S/CAP APPROACH FOR VMT METRICS
•Base Scope Option: The S/CAP will use the OD VMT method extracted after the final
assignment of the travel forecasting model.
•Additional Scope Option for VMT Estimates to Support S/CAP and SB 743
Implementation (Selected for Revised Scope of Work): As a part of the S/CAP City staff is
considering an environmental analysis approach that would allow future projects
consistent with the S/CAP and Comprehensive Plan to benefit from CEQA streamlining.
To do this, additional VMT metrics would need to be extracted: 1) total project
generated VMT and boundary VMT (from final assignment). These VMT metrics are
additional effort but would help streamline CEQA analysis of future land use projects in
Palo Alto. To extract total VMT and report by speed-bin, these VMT metrics would be
extracted after the final assignment of the travel forecasting model.
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VMT Calculation Methods
On-road transportation is the largest source of GHG emissions in most inventories and future
forecasts, so good estimates of daily VMT are important. Forecasts of on-road transportation
emissions are typically based on outputs from a travel forecasting model, other accounting-
type method (sketch models), or Big Data. The VMT calculation method options and S/CAP
Approach are described below.
Travel Forecasting Models
A travel forecasting model uses specialized software and is designed to reflect the interactions
between different land use and roadway elements in a large area. The two travel models most
commonly used to assess projects in Santa Clara County are the Santa Clara Valley
Transportation Authority (VTA)-City/County Association of Governments of San Mateo County
(C/CAG) Bi-County Model (“VTA Travel Model”) and Travel Model One (“MTC Travel Model”),
which is maintained by the Metropolitan Transportation Commission (MTC) and used for large-
scale regional planning efforts. The reader can review the travel forecasting model comparison of
the VTA Travel Model and the MTC Travel Model presented in Appendix C of the SB 743
Implementation Decisions for Palo Alto white paper (June 1, 2020). There is also a statewide
travel model developed by Caltrans, though the level of analysis is at such a large scale that it is
typically used to evaluate interregional travel and freight movements rather than localized land
use changes.
Sketch Models
In some cases where a travel model is not available or not appropriate, VMT can be estimated
using sketch models or spreadsheet tools. VMT may also be estimated directly by multiplying
the number of trips by an average trip length. Trips can be estimated using the results of local
trip generation surveys or trip generation rate data published by the Institute of Transportation
Engineers (ITE). Trip lengths can be extracted from models or from standardized averages or
travel pattern data from the regional or sub-regional planning organization. Using trip length
averages does not consider changes to the roadway network or to traffic congestion, or the
project’s potential effects on overall travel patterns. These non-model “accounting methods”
could also be paired with a travel model and used between major model updates or to estimate
project generated VMT for small projects that would “get lost in a model.” Eleven sketch model
tools were evaluated in the SB 743 Implementation Decisions for Palo Alto white paper (June 1,
2020) – see pages 29 to 32 including Table 2 for more details.
Each of the sketch models reviewed, except for the CA Smart Growth Tool and MXD/MXD+,
provide direct estimates of project generated VMT or calculates the percent change in VMT.
None of the models are capable of producing city-wide or region-wide VMT estimates for
threshold setting, fully evaluating the project’s effect on VMT, or evaluating cumulative VMT
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impacts. Only CalEEMod, GreenTRIP Connect, TRIMMS, and TDM+ evaluate the impacts of TDM
strategies for VMT mitigation.
In addition to the eleven sketch models reviewed, there is the recently launched Santa Clara
Countywide VMT Evaluation Tool that conducts baseline VMT screening of office, industrial and
residential land uses in Santa Clara County. This web-based tool used the partial home-based
VMT per resident and partial home-based work VMT per employee. This tool does not
provide the total VMT analysis needed for the Palo Alto S/CAP.
Other Data Sources and Emerging Big Data Sources
For some Climate Action Plans, daily VMT was estimated by calculating the daily VMT by
roadway segment (calculated by multiplying roadway daily counts by the local street distance)
for major streets (using local counts) and Caltrans (using the Highway Performance Monitoring
System) facilities in the local jurisdiction and then summing all of the daily VMT on each street.
Limitations of this method are that it can only be done for Existing Conditions; it cannot reliably
be used for future conditions because future volumes cannot be observed (they must be
estimated with a model or other non-model method).
Big Data is an emerging data source that provides actual travel data by passively and
anonymously collecting archival location data from mobile devices. Big Data can also encompass
other datasets that are too large to process in spreadsheets alone, such as household travel
surveys, transit databases, and parking databases, as well as land use and employment data sets
such as infoUSA. These Big Data sources help planners answer important questions about their
communities that were previously difficult, expensive, and time consuming to answer. Sources
of this data include:
•Location Based Services (LBS): Location based services data is provided from devices,
primarily smart phones, which run applications and connect to cellular, WIFI, and/or
GPS networks. LBS data is carrier-neutral and uses multiple location technologies,
providing few gaps in coverage and high spatial precision.
•Cell Phone: Data collected via devices (phone, cars, tablets, computers, etc.) with an
active connection to the cellular phone network, Voice, or data transmission to cellular
network are triangulated between cell phone towers to identify the device location.
•Navigation Global Positioning System: GPS data is provided from devices that use
satellites to obtain z/y/z coordinate data. Some GPS devices also connect to WIFI or
cellular networks. Navigation-GPS data comes from devices that help people navigate,
such as connected cars and trucks, turn-by-turn route guidance apps, and commercial
fleet management systems.
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Big Data can increase confidence in decision-making and improve forecasting accuracy by
providing better empirical planning data. Big Data also makes it possible to answer questions
that previously were either impossible or nearly impossible to answer with limited resources.
Some key project types include:
•Origin-destination studies
•Travel time and speed studies
•Travel path and route studies
One limitation to Big Data is that it can not be used by itself to forecast future travel behavior.
Application of Big Data for this effort would require additional budget resources.
Key Take Aways
An ideal tool for a citywide Climate Action Plan VMT analysis is a travel forecasting model that
has been appropriately calibrated and validated for local project size and scale and has trip
length data that accounts for trips that extend beyond the model boundary. Many travel
forecasting models also account for travel patterns due to congestion, public transit, and non-
motorized transit (walking and biking).
Some limitations of these methods include the following:
•Statewide and regional models have limited sensitivity and accuracy for local scale
applications off the shelf.
•Regional and local models often truncate trips at model boundaries.
•Sketch, spreadsheet tools and Big Data sources do not capture the full “project effect on
VMT” and/or the ability to forecast future conditions.
The VTA Travel Model was selected for the baseline VMT screening analysis and is also the
most appropriate VMT calculation method for the Palo Alto S/CAP VMT analysis.
S/CAP Approach for VMT Calculation Method
•Base Scope Option: The S/CAP will use the VTA Travel Model as-is to extract the OD VMT
method for the model base year (2015) and future year (2040). The VMT metric
specifications will include:
o The VMT will be extracted after the final assignment using the OD accounting
method (II, ½*IX, and 1/2 *XI).
o The OD VMT will be summarized by 5-mile-per-hour speed bins
o The portion of clean vehicles will be estimated based on DMV data provided by
City staff for Existing Conditions and future will be based on projections in the
EMFAC air quality modeling.
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The S/CAP 1990 year will be extrapolated based on city provided residential and
employment data between 2015 and 1990. The 2019 and 2030 reporting years will be
interpolated between the base year and future years of the travel model. Finally, the 2015
and 2040 residents, employees, students, and visitors will be summarized and shared with
City staff.
Because there is uncertainty in future forecasting of VMT estimates, a brief discussion will
be prepared that highlights areas of uncertainty in the data and the uncertainty with the
VMT estimate derived from a regional travel model.
This base scope will also discuss potential ways to 1) improve baseline monitoring, 2)
enhance VMT calculation methods, and 3) improve estimates of VMT reductions in a
tabular form. This summary will highlight the methods used and how they can be
enhanced.
The VMT estimates will be summarized in a memorandum.
•Additional Scope Option for VMT Estimates to Support S/CAP and SB 743 Implementation
of CEQA Streamlining (Selected for Revised Scope of Work): The VTA Travel Model can be
calibrated and validated to local conditions using Big Data sources. This would help City
staff model existing and future VMT estimates with improved understanding. Also,
because Big Data is continually collected, it can also be a primary monitoring source for
future VMT reporting in Palo Alto with occasional VMT forecasting to modify future VMT
reduction goals as needed. Using the Big Data would involve a review and update of
input parameters in the travel model to reflect improvements in the travel model.
•Additional Scope Option – Land Use Updates: The 2015 and 2040 land use summary will
be provided to City staff for review. Land use updates can be made at an additional cost.
•Additional Scope Option – VMT Alternatives Analysis (Selected for Revised Scope of
Work): The base scope will extract VMT estimates from the VTA Travel Model as-is. As an
additional service, additional VMT scenarios can be tested to refine the S/CAP approach
and/or model the VMT with adopted S/CAP actions.
•Additional Scope Option – Testing Uncertainty: Using the VTA Travel Model and our
TrendLab+ tool, we can evaluate the effects of emerging technology, social and
demographic trends, or evaluating the effects of COVID19.
•Additional Scope Option for 1990 VMT Modeling: The VTA Travel Model has a base year
of 2015, it could be updated and calibrated and validated to 1990 conditions to estimate
1990 VMT estimates. This would be a major effort that would be limited by available land
use and transportation network information (i.e., roadway counts) for 1990.
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GHG Calculation Methods
With each vehicle mile traveled, a vehicle generates greenhouse gas (GHG) emissions. As a
result, transportation is a major contributor to greenhouse gas (GHG) emissions. The simplest
GHG emissions estimation method is to multiply VMT by a carbon dioxide (CO2) emissions factor
to estimate GHG emissions.89 However, types of vehicles within the vehicle fleet, the speed that
vehicles travel, and the geographic location of the vehicles affect emission rates. Thus, a variety
of methods exist to provide ever increasing precision in GHG emissions estimates because GHG
emissions vary based on:
•Region (statewide, air basin, County, etc.)
•Calendar year (2000 through 2050)
•Season (Annual, Summer, Winter)
•Vehicle Categories
•Model year
•Speed (Aggregated, All, or Individual)
•Fuel (All, Gas, Diesel, Electric, Natural Gas)
With more advanced travel forecasting models and even microsimulation models VMT can be
segmented and specific carbon dioxide (CO2) emissions factor to estimate GHG emissions.
There possible GHG emission options are listed below:
•Basic GHG Emissions Analysis: VMT by itself can be used to estimate GHG
emissions by assuming an average fuel mileage rate to estimate fuel
consumption. This coarse estimate of fuel consumption can be converted to a
CO2 equivalent using a fixed CO2 emissions factor. This approach is coarse and
best for order of magnitude estimates. Some sketch models use this approach to
estimate GHG emissions.
•Enhanced GHG Emissions Analysis: VMT and speed can be used together to
estimate GHG emissions. VMT estimates from a travel model can be
disaggregated into 5-miles per hour speed bins and multiplied by a unique CO2
emissions factor per speed bin using an air quality model such as EMission
FACtor (EMFAC) prepared by California Air Resources Board for on-road mobile
sources in California.
89 Carbon dioxide (CO2) emissions by mass represent nearly all of the greenhouse gases emitted from mobile on-
road community transportation sources. Methane (CH4), nitrous oxide (N2O), sulfur hexafluoride (SF6),
hydrofluorocarbons (HFCs), and perflurocarbons (PFCs) are other criteria pollutants that contribute to global
warming, but do not represent a significant portion of the on-road community transportation emissions by mass.
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•Advanced GHG Emissions Analysis: Fuel consumption is potentially the most accurate
options for GHG emissions. This method requires either a meso-scale or micro-scale
modeling of traffic operations to model the effects of congestion on vehicle speed and
estimate fuel consumption. This method is best for transportation infrastructure
projects and/or small cities.
S/CAP Approach for GHG Calculation Method
•Base Scope Option: AECOM will prepare the GHG emissions estimates based on the VMT
estimates provided by Fehr & Peers. The VMT input to the GHG emissions estimates will
use the OD VMT method specified earlier. AECOM will select the appropriate GHG
emissions estimate factors by speedbin – most likely using the EMission FACtors (EMFAC)
air quality model.
•Additional Scope Option – Fuel Consumption: The City of Palo Alto has expressed an
interest in modeling the effects of cleaning the vehicle fleet, more advanced methods of
estimating the fuel consumption can be developed using a meso-scale travel forecasting
model that is more sensitive to travel congestion than the VTA Travel Model.
VMT Reduction Analysis
The effectiveness of different VMT reduction strategies varies widely based on local context,
scale of intervention, and availability of non-automotive transportation. For example,
Transportation Demand Management (TDM) strategies are most effective when implemented in
a policy environment that encourages land use location efficiency and infrastructure
investments that support transit, walking, and bicycling. Measures that more typically come to
mind when considering TDM, such as building-specific subsidy and marketing programs for
transit or other non-drive-alone modes, or installation of bicycle racks, tend to be less effective
than community- wide strategies and investments. Furthermore, programs tied to individual
projects or buildings may vary in efficacy based solely on the final building tenants. The SB 743
Implementation Decisions for Palo Alto white paper (June 1, 2020) provided additional
discussion about the relative importance of transportation reduction measures associated with
transportation demand management, site design, and location efficiency, regional policies, and
regional infrastructure.
The current standard for calculating VMT reduction efficacy from TDM strategies is the
California Air Pollution Control Officer Association (CAPCOA) 2010 report, Quantifying
Greenhouse Gas Mitigation Measures (CAPCOA report). This resource evaluates the literature
behind a number of TDM program elements, and provides methods for calculating a VMT
reduction associated with each. There are several limitations in the available VMT reduction
data for suburban applications that are discussed in the SB 743 Implementation Decisions for
Palo Alto white paper (June 1, 2020).
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S/CAP Approach for VMT Reduction Analysis Calculation Method
•Base Scope Option: Fehr & Peers will assist AECOM in preparing the GHG reductions
estimates by categorizing the mobility goals/actions into 9 VMT reduction tiers as
grouped below (Fehr & Peers order of magnitude VMT reductions estimated by Fehr &
Peers indicated with an asterisk):
o Mobility 1 & 6: Land Use and Urban Fabric*
o Mobility 2: Area Parking Management and Conversion Strategy*
o Mobility 3: Active Transportation Infrastructure*
o Mobility 4: Traffic Flow (City Quantification)
o Mobility 5 & 8: Permanent Work from Home Strategy*
o Mobility 7: Community Shuttles and Public Transit*
o Mobility 9: Car Lite Lifestyle/Travel Pricing
o Mobility 10: Clean Fleet (AECOM Quantification)
o Mobility 11: Regional Policy Advocacy/Mobility Incentives and Programs
(including rideshare, carshare, employer programs, etc.)
As noted, several of these VMT reduction tiers will quantified by City staff and/or
AECOM. For the remaining tiers, Fehr & Peers will provide order of magnitude VMT
reduction estimates based on available CAPCOA research and select VMT data available
from the California Household Travel Survey and VMT extracted from the VTA Travel
Model (e.g., citywide mode split, average vehicle trip length by trip purpose, and trip
purpose distribution) for the five VMT reduction tiers indicated by an asterisk above. The
VMT reductions will be summarized in a brief memorandum.
•Additional Scope Option for Quantifying the Effects of TNCs: The VMT estimates that will
be used for the S/CAP assume historical travel patterns will persist through 2040.
However, with the emergence of transportation network companies like Uber and Lyft
and autonomous vehicles, there might be upward pressure on VMT generation rates.
•Additional Scope Option for Detailed VMT Reduction Modeling and Monitoring (Selected
for Revised Scope of Work)– Using local and big data sources to develop refined VMT
reduction estimates specific to Palo Alto. This analysis would also include extracting
additional information from the VTA Travel Model (e.g., VMT by trip purpose
percentages by II, IX and XI, and mode split by trip purpose). The local and big data
sources could also be used for citywide travel behavior monitoring, which is useful for
tracking the S/CAPs progress and for SB 743 implementation of VMT reduction strategies.
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Palo Alto S/CAP Action Impact Memo
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D.3. AECOM Action Impact Memo
Palo Alto Action Impact Memo
Revised June 7, 2021
Introduction
Palo Alto’s 2021 Sustainability and Climate Action Plan (S/CAP) sets an ambitious greenhouse gas (GHG)
reduction goal to reduce emissions 80% below the City’s 1990 levels by 2030 (the “80x30” goal). AECOM
helped the City to evaluate a draft list of key actions to understand the potential for GHG reduction
target achievement from local actions only, and to evaluate other community benefits from action
implementation (e.g., air quality, public health).
The City and AECOM collaborated on modeling key action impact results within three categories of GHG
reduction actions: Energy, Mobility, and Electric Vehicles. AECOM and Utility Department staff
collaborated on developing a customized Building action calculator to estimate emissions reductions
from various policies to support the electrification of residential and nonresidential buildings; input
assumptions to the calculator are based on utility consumption data and other locally applicable data.
The City team led development of the Mobility action calculator to understand how different actions
could reduce vehicle miles traveled within the community, and the AECOM team provided a strategic
review of the calculator’s methodology and assumptions to guide revisions. Finally, the City hired a
separate consultant to develop an electric vehicle (EV) calculator to model uptake of EV technology
resulting from a suite of S/CAP actions. AECOM reviewed the EV calculator results with the City’s
consultant to identify revisions and methods to align the results of all three modeling approaches in
support of this comprehensive action analysis.
The three modeling efforts show that a package of S/CAP actions can reduce emissions to 71% below
1990 levels by 2030, nearly achieving the City’s ambitious GHG target through local actions alone. The
results help to highlight action areas that will need further analysis or implementation support to fully
achieve the City’ GHG target through local actions, or can be reviewed to understand the amount of
external action needed to demonstrate target achievement (e.g., carbon offset purchases and strategic
land use changes).
The S/CAP’s other key action categories are Water, Climate Adaptation and Sea Level Rise, Natural
Environment, and Zero Waste, and are not primary sources of GHG reductions but do provide additional
sustainability benefits to the community. These actions were evaluated to understand their potential
community co-benefits and are discussed further in the Sustainability Actions section and in the Palo
Alto Action Evaluation Memo from February 2021.
This memo presents details on the action impact analysis process, including descriptions of the
emissions forecasts, key action analysis results, modeling approach, and detailed action results. It
concludes with recommendations for next steps and an appendix listing the titles and descriptions for
the key actions modeled in this impact analysis.
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Emissions Forecasts
The action impact analysis is based on an estimate of how the City’s emissions could change within the
S/CAP analysis period. As part of this effort, AECOM developed a “business-as-usual” (BAU) emissions
forecast to estimate how emissions could change over time if no further climate action was taken. This
scenario estimated local emissions change through 2040 if no further climate action is taken at the
federal, state, or local levels; it assumes implementation levels of current policies and programs as of
2019 would remain constant into the future (i.e., climate policies and programs would be maintained
but not enhanced in scope beyond 2019 implementation levels). This BAU forecast scenario shows that
emissions would decrease 47% below 1990 levels by 2030. This scenario analysis helps to demonstrate
the amount of additional GHG reductions needed by 2030 from local S/CAP actions to achieve the City’s
GHG target.
However, as part of the action analysis, the City hired a separate consultant to evaluate the potential
impact and costs associated with key EV actions. During that analysis, EV adoption estimates were
further revised to improve upon the initial BAU scenario to better reflect Palo Alto’s local EV adoption
rates more accurately. The BAU forecasts were based on EV uptake estimates from the California Air
Resources Board’s EMFAC tool90, which were based on 2015-17 survey data and provided at the county
level. The City’s EV consultant developed a revised BAU scenario with data showing there would be even
greater EV travel in Palo Alto than estimated in the BAU scenario. The results of the revised BAU
scenario show a 51% decrease below 1990 levels by 2030. This improvement upon the initial BAU
scenario further refined the estimate of local GHG reductions needed from key S/CAP actions and
helped to improve EV modeling result outputs to better align with Palo Alto-specific trends in EV
adoption.91
Key Action Analysis Results
After developing the forecasts and quantifying the emissions reduction gap between the forecasts and
the 2030 target, the City defined multiple policy opportunities to provide local emissions reductions.
Most City emissions come from on-road transportation (60%) and building energy use (33%), so the City
placed a greater emphasis on defining key actions to enhance building electrification (e.g., reduction in
natural gas use), promote EVs, and reduce vehicle miles traveled. The City identified viable key actions in
these sectors and developed three policy scenarios to understand effectiveness under different
implementation plans. The City with its consultant teams then developed four detailed calculation
models to understand action impacts related to residential buildings, non-residential buildings, mobility,
and electric vehicles to quantify emissions reductions and cost impacts of the key actions and policy
scenarios modeled. The final policy scenario and associated actions selected represent the most
technically feasible and cost-effective pathway to reaching the City’s 80 x 30 goal and results in a 71%
reduction compared to 1990 levels by 2030. The BAU forecast scenarios, key S/CAP action impacts, and
90 https://arb.ca.gov/emfac/
91 An original estimate of the 2019 non-residential versus residential VMT split was provided by Fehr & Peers
(75%/25%), which informed the emissions analysis presented in the City’s April 19th Staff Report. On 5/26/2021,
this VMT split was updated with the City’s Electric Vehicle consultant’s revised value of 70%/30%. Changing this
value had a minimal impact on the EV emission calculations. This change decreased total 2019 emissions by 822
MT CO2e or 0.2%. Therefore, there is a slight discrepancy between previously published 2019 inventory values
(482,327 MT CO2e) and those published after 5/26/2021 (481,505 MT CO2e).
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reduction target are compared in Figure 1 below. The gap between the yellow action impact line and the
green target line in Figure 1 illustrates the remaining emissions reductions needed to achieve the City’s
2030 GHG target.
Figure 1. Emissions Forecasts and Reduction Target
The suite of key actions represented in Figure 1 and ranked by GHG reduction impact in Table 1 below.
Note that due to modeling limitations, GHG reductions were not quantified for specific mobility and EV
actions and were instead applied to each traveler category (i.e., residents, commuters, visitors).
Therefore, the actions contributing to reductions in those categories are collectively called “Mobility
actions” or “EV actions” in Table 1.
-
100,000
200,000
300,000
400,000
500,000
600,000
700,000
800,000
900,000
1990 2030
Emissions Forecast Revised BAU Forecast S/CAP Actions Impact Reduction Target
Me
t
r
i
c
T
o
n
n
e
s
C
O
2
e
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Table 1. S/CAP GHG Reduction Actions
RANK ACTION
GHG REDUCTION
(MT CO2E/YR)
1 EV Actions – Commuter and Visitor 52,715
2a Electrify single-family homes through gas main disconnect and
all-electric mandate for single-family residential substantial
remodeling projects
49,500
2b BAU policies that are not implemented92 -6,491
3 EV actions - Residents 39,324
4 Non-residential electrification of mixed-fuel rooftop packaged
units
10,234
5 Mobility actions - Commuters 15,157
6 Mobility actions - Visitors 8,642
7 Mobility actions - Residents 4,392
8 Non-residential buildings ≥25k sq. ft. reduce GHG emissions by
20%
6,127
9 K-12 electrification of space and water heating 3,376
10 Multi-family residential mandate end-of-life in-unit space
heating and cooking electrification
1,197
Total 184,173
The actions listed above achieve a 71% reduction below 1990 levels by 2030, nearly demonstrating 2030
target achievement. These strategies include technically feasible and cost-effective local actions in the
buildings and transportation sectors. Additional key actions in sectors that have a smaller emission
impact, such as the solid waste and wastewater sectors, were developed and assessed for co-benefit
92 BAU reductions that will not occur due to implementation of City actions reflected in action 2a; these BAU
reductions are entered back into this table to avoid double counting GHG emission reduction potential from the
BAU and S/CAP actions.
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impacts but have not been included in the detailed GHG analysis (see the Sustainability Actions section
for further discussion). Other emissions sources accounted for in the BAU forecast scenarios cannot be
directly impacted by the City or reduced based on current technologies, such as aviation travel.
Additionally, there are remaining emissions within the buildings and transportation sectors as they
cannot feasibly be fully reduced by 2030.
Therefore, considering the emissions reductions from local actions only would result in a 9% gap
between the S/CAP action impact scenario and the City’s 2030 GHG target. The remaining emissions can
be balanced through some combination of enhanced action implementation, sequestration, carbon
offset purchases, and/or industrial-scale carbon removal (see Recommendations section for further
discussion).
Model Development
Following key GHG action definition, AECOM and the City collaborated to identify a method for
analyzing the GHG and cost impact of each action. AECOM first reviewed publicly available GHG
calculators, including CURB and ClearPath, and discussed the relative strengths, weaknesses, and
desired project outputs with the City team. The City ultimately decided to develop four customized GHG
models (Residential Buildings, Non-Residential Buildings, Mobility, and Electric Vehicles) that more
directly reflect the City’s specific context and opportunities and enabled the calculation of full life-cycle
costs and financing options. The City Utility Department staff and AECOM team collaborated to develop
the Residential and Non-Residential Buildings models. The City transportation staff led development of
the Mobility model, with strategic review and guidance provided by the AECOM team.93 And, the City
hired a separate consultant to develop the EV model. Each team then used the models to analyze the
GHG reduction potential, costs, and savings for the selected key actions, and collaborated through
technical review meetings to ensure model outputs were aligned with one another and with the City’s
GHG inventories and BAU forecasts.
Using the four GHG models, the City developed three policy scenarios that varied the implementation
and uptake rates of the selected actions. Due to on-road transportation modeling limitations, the
Electric Vehicle and Buildings models assessed each of the three policy scenarios separately, while the
Mobility model only evaluated one scenario; the mobility key actions and implementation rates
represent what City staff determined is both ambitious and feasible for the City to implement.
To reasonably calculate the local impact of each key action, the teams made informed assumptions on
the actions’ effectiveness and implementation uptake (or participation) rates based on the best
available local data. When local data was not available, broader regional market data was used. As the
effectiveness of the actions can also depend on other changing regional, state, or national factors, such
as policy decisions, economic growth, and cultural shifts, adjusting the assumptions to account for these
factors can increase or decrease the impact estimations.
93 Note that budget constraints prevented the use of the VTA Travel Demand Model to analyze the proposed
mobility key actions. Subsequent analyses of key actions should utilize the VTA model to simulate the
interrelationship between Palo Alto’s land use patterns and transportation infrastructure and consider scenarios
that could amplify GHG reductions.
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Each models’ methodology and output metrics vary and are presented in a consolidated table in the
following section. The City team has also developed technical memorandums for each model to
document model development, assumptions, data sources reviewed, and model use to guide future
S/CAP updates or modeling revisions based on implementation tracking information and new data
sources.
Detailed Action Results
ACTION IMPACT TABLE
Actions were grouped into one of three sectors depending on the model in which they were assessed:
Buildings, Mobility, or Electric Vehicles. Extensive research and analysis was completed to estimate the
following for each action:
•Annual GHG reductions
•Implementation metrics
•Cumulative Costs from 2020-2030
•Cumulative Savings from 2020-2030
•Co-benefits
Note: Some of the actions included in Table 2 may require further legal analysis or require legislative or
regulatory change before they can be fully implemented. The final versions of the Key Actions are
included in Section 5.
Table 2 on the following pages lists relevant metrics for all key actions (see Appendix A for detailed
action descriptions). The sub-sections following Table 2 describe each metric in the action impact table.
All metrics consider implementation from the beginning of 2020 to the end of the 2030 calendar year.
Note that Mobility actions were individually analyzed for costs and co-benefits. However, to follow the
Action Impact Table format, Mobility actions were aggregated by sector. Therefore, the individual costs
and co-benefits were also aggregated at the sector level. Finally, the co-benefits column of Table 2 uses
colored text to denote co-benefit impacts as shown in the legend below:
Co-Benefit Legend
Very Positive
Somewhat Positive
Somewhat Negative
Very Negative
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Table 2. Action Impact Table
Buildings
Sector Actions Co-Benefits
Cumulative
Costs
(2020-2030)
Cumulative
Savings
(2020-2030)Implementation by end of 2030
Annual GHG
Reductions by
2030
All-electric mandate
for residential
substantial remodeling
projects
Air Quality,
Public Safety,
Lifecycle Emissions
None $0.22 million
846 gas water heaters replaced with electric heat
pumps (6% of total gas water heaters converted)
900 gas space heaters replaced with electric heat
pumps (7% of total gas space heaters converted)
900 gas cooktops replaced with induction cooktops
(6% of total gas cooktops converted)
900 gas dryers replaced with electric
(17% of total gas dryers converted)
333 electric panel upgrades needed
(6% of panels needing upgrades)
Single
Family
Electrify single-family
homes
Air Quality,
Public Safety,
Lifecycle Emissions,
Cost of Living,
Equity
$322.34
million*$3.00 million
11,226 gas water heaters replaced with electric heat
pumps (81% of total gas water heaters converted)
9,766 gas space heaters replaced with electric heat
pumps (77% of total gas space heaters converted)
12,147 gas cooktops replaced with induction cooktops
(83% of total gas cooktops converted)
3,199 gas dyers replaced with electric
(60% of total gas dryers converted)
3,467 electric panel upgrades needed
(63% of panels needing upgrades)
43,009 MT
CO2e/yr**
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Multi-
Family
Mandate end-of-life in-
unit space heating and
cooking electrification
Air Quality,
Public Safety,
Lifecycle Emissions
$15.76
million*$0.34 million
1,755 in-unit gas furnaces replaced with electric heat
pumps (20% of total in-unit gas furnaces)
385 gas cooktops replaced with induction cooktops
(15% of total gas cooktops)
1,053 electric panel upgrades needed (17% of electric
panels that need upgrade)
1,197 MT
CO2e/yr***
K-12
K-12 electrification of
space and water
heating
Air Quality,
Public Safety,
Lifecycle Emissions
$19.00
million $1.12 million 100% of schools with gas space and water heating have
converted to electric systems
3,376 MT
CO2e/yr
Electrification of
mixed-fuel rooftop
packaged units
Air Quality,
Public Safety,
Lifecycle Emissions
$174.57
million $7.56 million 100% of commercial spaces with gas rooftop packaged
heating have converted to electric heating
10,234 MT
CO2e/yr
Non-
Residential Buildings ≥25k sq. ft.
reduce GHG emissions
by 20%
Air Quality,
Public Safety,
Lifecycle Emissions
$ 84.45
million $4.56 million
100% of commercial buildings 25k sq. ft. and larger
without gas rooftop packaged heating have reduced
GHG emissions by 20%
6,127 MT
CO2e/yr
*Includes necessary electric panel upgrade costs
** Single family GHG reductions include electrification of other natural gas sources that were not accounted for in the Buildings model as well as assumptions on all-electric
single-family new construction and voluntary electrification at end-of-useful life; this value represents the sum of actions 2a and 2b from Table 1 to avoid double counting of
reductions assumed between the BAU scenario and S/CAP actions scenario
*** Includes GHG reduction assumptions on multifamily all-electric new construction
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Mobility
Sector Actions Co-Benefits
Cumulative
Costs
(2020-2030)
Cumulative
Savings
(2020-2030)Implementation by end of 2030
Annual GHG
Reductions by 2030*
Parking and
Congestion
Eliminate free parking, adjust
parking requirements, RPP
permitting allowances,
institute paid parking, and
price commuter parking
Air Quality,
Public Health,
Public Safety,
Regional Benefit,
Resource Conservation,
Lifecycle Emissions,
Cost of Living,
Productivity
$7.09 million
Biking and
Walking
Implement Bike Master Plan,
develop Safe Routes for Adults
program, adopt a Vision Zero
Plan and install multi-use
paths, conduct feasibility study
on protected bike
infrastructure, increase bike
facilities and protected
intersections, continue Safe
Routes to Schools program,
complete Quarry Road
Extension, develop bicycle
highways
Air Quality,
Public Health,
Public Safety,
Regional Benefit,
Resource Conservation,
Equity,
Lifecycle Emissions,
Cost of Living,
Productivity,
$54.38 million
Community
Engagement
Community engagement and
policy adoption N/A $0.80 million
Transit and
Intersections
Reduce speed limits, install
transit signal priority
equipment, add bus rapid
transit lanes, provide on-
demand transit service,
enhance traffic signals,
allocate funding to TMA
Air Quality,
Public Health,
Public Safety,
Regional Benefit,
Resource Conservation,
Cost of Living,
Productivity,
Equity,
Lifecycle Emissions
$13.03 million
Residents:
$10-16 million
Commuter:
$49-58 million
Visitor:
$17-30 million
Resident:
12-18 million VMT reduced in 2030
(4-6% VMT reduction in 2030)
Commuter:
54-63 million VMT reduced in
2030 (16-19% VMT reduction in
2030)
Visitor:
22-36 million VMT reduced in 2030
(6-10% VMT reduction in 2030)
Resident:
4,392 MT CO2e/yr
Commuter:
15,157MT CO2e/yr
Visitor:
8,642MT CO2e/yr
VMT = vehicle miles traveled
*GHG estimates are for the higher VMT reduction value. These GHG reduction calculations can be found in the EV model.
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Electric Vehicles
Sector Actions Co-Benefits
Cumulative Costs
(2020-2030)
Cumulative Savings
(2020-2030)*Implementation by end of 2030
Annual GHG
Reductions by
2030*
Residential EV credit
(free charging)
Air Quality,
Lifecycle Emissions,
Public Health,
Regional Benefit,
Resource Conservation,
Cost of Living,
Equity
ICE usage fee
Air Quality,
Public Health,
Lifecycle Emissions,
Regional Benefit,
Resource Conservation,
Cost of Living
Multi-family residential
charger installation mandate
Air Quality,
Public Health,
Lifecycle Emissions,
Regional Benefit,
Resource Conservation,
Equity
Resident
Low income charger
installation incentive
Air Quality,
Lifecycle Emissions,
Equity,
Public Health,
Regional Benefit,
Resource Conservation,
Cost of Living
EV Charging Costs:
Single Family:
$11.18 million
Multi-family:
$23.84 million
Savings from Vehicle
Improvement:
$182.63 million
85% of new vehicle sales are EVs
55% of Resident VMT are from EVs
20,060 total residential EV charging ports
installed
39,324 MT
CO2e/yr
Alternative Commute
Mandate
Air Quality,
Lifecycle Emissions,
Public Health,
Regional Benefit,
Resource Conservation
Commuter
Alternative Commute
Incentive
Air Quality,
Cost of Living,
Public Health,
Regional Benefit,
Resource Conservation,
Lifecycle Emissions,
Equity
EV Charging Costs:
$96.72 million
Savings from Vehicle
Improvement:
$59.04 million**
40% of Commuter VMT are from EVs
11,057 total workplace EV charging ports
installed
52,715 MT
CO2e/yr
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Workplace EV Parking
Air Quality,
Public Health,
Regional Benefit,
Resource Conservation,
Lifecycle Emissions
Visitor Preferred Parking
Air Quality,
Public Health,
Regional Benefit,
Resource Conservation,
Lifecycle Emissions
EV Charging Costs:
$16.71 million
Savings from Vehicle
Improvement:
$49.76 million**
30% of Visitor VMT are from EVs
1,542 total public EV charging ports
installed
Local/Targeted campaigns Equity
Education Regional/Statewide
campaigns (ABAG/MTC)Equity
Mobility
Provide incentives for
purchase and usage of LEVs
and E-bikes
Air Quality,
Public Health,
Cost of Living,
Regional Benefit,
Resource Conservation,
Lifecycle Emissions,
Equity
Fleet
Electrification of municipal
fleet, buses, and delivery
trucks/vans
Air Quality,
Public Health,
Regional Benefit,
Resource Conservation,
Lifecycle Emissions
NA NA These policies support the
implementation metrics above
These policies
support the
GHG
reductions
above
*Savings and GHG reductions include both EV penetration assumptions and fossil fuel vehicle emissions and MPG improvements
**Only considering savings from miles associated with Palo Alto
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ANNUAL GHG REDUCTIONS
“Annual GHG Reductions by 2030” represent the emissions avoided in 2030 by implementing the
specific policy action. This metric represents the estimated amount of emissions reduced compared to a
business-as-usual scenario where no policy action was implemented by 2030. For reference, Table 1 lists
all actions in order of their GHG reduction potential.
Buildings
To estimate the GHG reduction from building electrification actions, assumptions were made for general
city building stock characteristics. This includes estimates for the number of single family homes with
natural gas systems, annual number of end-of-life system replacements, annual gas use per unit, annual
electric use per unit, non-residential natural gas consumption per square foot, and non-residential
electric use per square foot. Some of this information was available from Utility Department data, while
others were collected by the City and AECOM teams from various databases and building energy surveys
to help describe the local building energy use context.
Assumptions were also made for the implementation rates of individual policy actions. For example, the
implementation of the “All-electric mandate for residential substantial remodeling projects” action
includes assumptions for the percent of homes that would be substantially remodeled from 2020-2030.
This assumption was informed by historic City permit data describing building remodels. The annual
2030 GHG reduction from this action represents the emissions avoided assuming those homes still
contained natural gas systems in 2030.
Single-family actions were aggregated to estimate total GHG reductions. The Buildings model only
accounted for natural gas consumption from space heating, water heating, and stoves and did not
consider other natural gas sources such as pool heaters or barbecue grills. Therefore, the single-family
GHG reductions were aggregated to include the electrification of other sources of natural gas
consumption that weren’t accounted for in the Building models. Additionally, in order to account for
other impactful emissions reductions, both the single-family and multi-family GHG reductions include
reductions from all-electric new construction. Single-family GHG reductions also include reductions from
voluntary electrification of appliances at end of useful life. The new construction and voluntary
electrification GHG reduction values are disaggregated within the Building model.
As electricity in Palo Alto is 100% carbon neutral,94 any system that is electrified (e.g., converted from
natural gas to electricity) in the City will produce net zero emissions after the retrofit is complete.
Therefore, emissions reductions were derived from the amount of natural gas the original system would
have consumed in 2030, which would be avoided through the electrification action.
Mobility
Mobility GHG reductions could not be disaggregated by specific actions but were instead grouped by
residential, commuter, or visitor categories. All mobility actions were assumed to contribute to a
minimum and maximum percent vehicle miles traveled (VMT) reduction for each user category, as
94 “100% Carbon Neutral” means that the City “will demonstrate annual net zero greenhouse gas (GHG)
emissions…by applying the average hourly carbon emissions intensity of the electricity on the CAISO grid to the
City’s net load for each hour of the year.” See Resolution 9913, Resolution of the Council of the City of Palo Alto
Amending the Electric Supply Portfolio Carbon Neutral Plan and the Electric Utility Reserves Management Practices
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calculated in the Mobility model.95 The maximum percent VMT reduction values were then applied to
the 2030 forecasted VMT in the EV model to develop 2030 S/CAP action maximum VMT reductions.
2030 vehicle emissions factors were internally developed in the EV model using data on vehicle
ownership and sales as well as local EV actions. These factors account for vehicle fleet composition and
forecasted local EV penetration for each user category. The emission factors were applied to the
maximum 2030 S/CAP action VMT reduction amount to develop the maximum 2030 GHG reduction for
each user category, as shown in the EV model.
Electric Vehicles
GHG reductions from EV actions could not be disaggregated by specific action but were instead grouped
by residential or commuter + visitor (non-residential) categories. After Mobility action VMT reductions
were applied to the 2030 forecasted VMT, EV actions were applied to the remaining VMT. The internally
developed 2030 emissions factors used for the Mobility actions also account for higher EV penetration
due to local EV action. These emission factors were applied to the remaining 2030 S/CAP action VMT to
develop total 2030 S/CAP EV action emissions. These emissions were then compared to the original BAU
2030 emissions scenario that applied the BAU emissions factor to the remaining 2030 VMT that was
used in the EV action scenario. The BAU emissions factor was higher than the S/CAP EV action emission
factor because it does not assume the high level of local EV penetration that additional market data
suggest is occurring. The difference between the 2030 BAU emissions and the 2030 S/CAP EV action
emissions is the amount of GHG emissions reduced from Palo Alto EV actions in 2030.
IMPLEMENTATION METRICS
The “Implementation Metrics” for each action are directly related to the estimated GHG reductions and
illustrate the action uptake or technological transformation that could be achieved. Like the GHG
reduction estimations, the implementation metrics depend on the set of policy assumptions that were
used in each model. While the implementation metrics of the Building actions were generated by the
models after the policy implementation rates were entered, the implementation metrics of the Mobility
and EV actions were inputs based on extensive research for each policy. All implementation metrics are
compared to a BAU 2030 forecast year. The implementation metrics can be useful in tracking future
S/CAP action implementation progress.
CUMULATIVE COSTS AND SAVINGS
“Cumulative Costs and Savings from 2020-2030” represent the average net costs and savings to the
community. Costs and savings are presented as cumulative instead of annual as typical annual values
vary depending on when the action is enacted, the implementation rate, and how upfront costs are
considered in annual averages. Cost and savings should be considered during action prioritization
because they help demonstrate the feasibility and acceptability of GHG reduction actions. For example,
policies that result in high GHG reduction may be too costly to implement or policies may result in a net
positive financial benefit to residents due to long term fuel or energy savings.
Overall, reducing vehicle emissions through use of EVs and alternative travel (e.g., transit, biking,
walking) are the most cost-effective measures. Of the building electrification actions analyzed, single-
95 The mobility model has not factored in land-use changes. But land use choices towards more transit-supportive,
walkable, bikeable neighborhoods will multiply and accelerate the VMT reductions estimated in the model.
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family residential water heating and space heating electrification is most cost-effective, along with
electrification of commercial rooftop packaged heating, ventilation, and air conditioning (HVAC) units.
The costs and savings considered in each model are explained below.
Buildings
Building actions include costs for electrifying natural gas heating systems. The residential action costs
include costs for the necessary electric panel upgrades while the non-residential actions do not. Savings
include utility bill savings from using electricity instead of natural gas for heating. Cost estimates differ
between each action depending on the assumed number of conversions from each policy and the timing
of policy implementation.
Mobility
Mobility actions include costs for implementing each specific group of actions. Disaggregated costs by
sub-policies are also available within the Mobility model. Savings reflect reduced gasoline expenditures
and decreased vehicle maintenance and are only available at the residential, commuter, or visitor user
level, not the policy level.
Electric Vehicles
Electric Vehicle costs and savings are available at the resident, commuter, or visitor user level, not policy
level. Costs only include the price of EV charger installations that may result from action
implementation. Savings reflect reduced gasoline expenditures from purchasing EVs or from traveling in
more fuel-efficient vehicles. The commuter and visitor savings only consider the miles traveled
associated with Palo Alto.
CO-BENEFITS
Palo Alto selected nine co-benefit evaluation criteria (revised through public feedback) that align with
community priorities and apply to multiple S/CAP issue areas (e.g., Energy, Electric Vehicles, Zero
Waste). These criteria include air quality, public health, public safety, regional benefit, resource
conservation, lifecycle emissions, cost of living, productivity, and equity. For a given action, each of the
nine chosen co-benefits was rated on a qualitative ranking scale based on the degree to which
implementation of the action will positively or negatively impact the co-benefit. The Action Impact Table
shows if the action has a very positive, somewhat positive, somewhat negative, or very negative impact
on that specific community co-benefit. Any co-benefits receiving a neutral or no impact rating are not
shown. This analysis can ultimately inform the City’s final prioritization of its near-term climate actions
selected to help achieve the 2030 GHG reduction target.
Please see the Palo Alto Action Evaluation Memo for detailed discussion of this process. Between the
time the Action Evaluation Memo was compiled, and the action impact analysis was completed, some
actions were repackaged, and new actions were developed. These actions received new co-benefit
ratings and are not reflected in the original memo.
Sustainability Actions
The primary GHG reduction actions selected focus on buildings and transportation as these sectors
generate 93% of total City emissions. Actions in sectors that have a small emission impact, such as solid
waste and wastewater, have not been included in the detailed GHG reduction analysis. This is because
GHG mitigation actions in these sectors have already been implemented, such as updating wastewater
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treatment processes and collecting landfill gas. The City also developed natural environment actions
such as increasing tree coverage and green infrastructure. These actions can reduce GHGs by
sequestering carbon, but the actual emissions reductions are difficult to quantify and require further
analysis. The City is primarily focused on directly reducing emissions first before turning to sequestration
actions to address remaining emissions (see Recommendations section). Finally, the City has developed
climate adaptation and sea level rise actions. These do not reduce GHG emissions but do help protect
against the impact of climate change. Therefore, these sustainability actions have only been analyzed for
their co-benefits.
Generally, the sustainability actions scored positively for their impact on the Resource Conservation and
Regional Benefit criteria. This is because these actions were primarily focused on conserving local
resources, such as water, trees, food, and materials, while benefiting surrounding communities through
larger planning processes. A summary of action ratings for each action sector is presented below:
•Water Actions: Generally scored very positive for Resource Conservation and positive for
Regional Benefit.
•Climate Adaptation and Sea Level Rise Actions: Generally scored very positive for Regional
Benefit.
•Natural Environment Actions: All scored positively for Resource Conservation and generally
scored positively for Regional Benefit. However, the “WELO Requirements of Native and
Drought Tolerant Species” action received a somewhat negative Cost of Living score.
•Zero Waste Actions: All scored positively for Resource Conservation and generally scored
positively for both Cost of Living and Regional Benefit.
Recommendations
Implementing the building, mobility, and transportation actions will reduce emissions by 71% below
1990 levels by 2030, leaving an 9% gap between the S/CAP action impact scenario and the City’s
emissions target of 80%. Based on a review of the modeling results, the AECOM team recommends the
City address remaining emissions through a combination of the following strategies:
•Identify which of the current building and transportation actions can be accelerated or
enhanced beyond current implementation rates if additional barriers could be removed
•Evaluate local or regional carbon sequestration opportunities, understanding that fully
balancing the City’s remaining emissions may not be feasible if sequestration action is
strictly confined to the city limits. Actions that contribute to sequestration can be achieved
through many of the City’s “Natural Environment” actions.
•Evaluate and monitor industrial carbon removal technologies as this industry continues to
rapidly evolve.
•Purchase verified carbon offsets to fully balance the remaining emissions gap that cannot be
addressed through the preceding strategies.
AECOM also recommends the City establish a carbon neutrality target and definition that achieves or
exceeds the State’s timing for carbon neutrality (Note that the current California Executive Order B-55-
18 aims to reach statewide carbon neutrality no later than 2045 but has not yet been codified into law).
As inventory methodologies continually change over time, establishing a carbon neutrality target will
also help overcome challenges associated with setting targets based on historic GHG inventories;
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previous methodological changes will no longer over- or underestimate the amount of local action
needed to achieve the City’s target, because the City will be aiming to completely reduce all emissions.
Additionally, a carbon neutrality target can be easier to convey publicly than a percent-based emissions
reduction target.
To align with best practices in GHG reporting, the City has made additional methodological changes to
its GHG inventory process, beginning with the 2019 inventory, which included estimating several new
emissions sources that were not evaluated in the original 1990 inventory. AECOM recommends the City
continue to prepare GHG inventories following the GPC protocol to more fully evaluate GHGs resulting
from city activities and to support top-down S/CAP tracking based on total and sector emissions results.
The City should also monitor and evaluate individual key action successes using the customized GHG
models developed for this project or other appropriate models. Tracking progress for Mobility actions
may require creation of more sophisticated models than are currently available, which would require
additional staff and/or consultant effort. This will ensure progress monitoring is aligned with the GHG
Action Impact analysis and can help identify opportunities for new actions or modeling improvements.
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Appendix A
Note: Some of the actions included in Appendix A may require further legal analysis or require legislative or regulatory change before they can be
fully implemented. The final versions of the Key Actions are included in Section 5.
MODEL SECTOR ACTION TITLE ACTION DESCRIPTION
All-electric mandate for
residential substantial remodeling
projects
Require major alterations (remodels) of single-family homes to meet all-electric
requirements.
Single Family
Electrify single-family homes Phase out fossil fuel use in existing buildings starting with areas that have older
gas lines that need to be repaired or replaced. Explore ways to accelerate
adoption through mandates, carbon pricing, or disconnecting natural gas
distribution service to residential areas.
Residential
Buildings
Multi-Family Mandate end-of-life in-unit space
heating and cooking
electrification
Mandate end-of-life in-unit space heating and cooking electrification.
K-12 K-12 electrification of space
and water heating
Electrify water heating and space heating in all K-12 facilities.
Electrification of mixed-fuel
rooftop packaged units
Convert all rooftop gas packs on non-residential buildings to electric heat pump
systems
Non-
Residential
Buildings Non-
Residential
Buildings ≥25k sq. ft. reduce
GHG emissions by 20%
Require all commercial buildings above 25,000 sq. ft. to meet a carbon emissions
intensity target by occupancy class with a goal of reducing carbon emissions by
20%
Eliminate free parking Reduce SOV use by eliminating free parking and adjusting parking requirements
Adjust parking requirements Study parking effects on GHG/VMT in S/CAP and modify parking requirements
accordingly.
RPP permitting allowances All occupants and businesses of new office buildings that are required to provide
their own parking should not be allowed to purchase RPP permits.
Institute paid parking Institute paid public and private parking and allow for sharing of existing parking
resources.
Mobility Parking and
Congestion
Price commuter parking Price commuter parking in public garages so that transit is a competitive mode.
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MODEL SECTOR ACTION TITLE ACTION DESCRIPTION
Implement Bike Master Plan Reduce the current Palo Alto Resident transportation mode split of 64% Single
Occupancy Vehicle (SOV) use for work trips to increase active transportation
modes (walking, biking, and transit) by implementing the Bicycle + Pedestrian
Transportation Plan, the Complete Streets policy, Vision Zero, and other
programs to create safe streets for all road users, particularly vulnerable road
users
Develop Safe Routes for
Adults program
Develop a Safe Routes for Older Adults program to address transportation needs
of those 65+ years through fixed route and on-demand EV transit options,
investing in walking and bicycling infrastructure, and promoting e-bikes/adaptive
bikes/adult trikes for older adults. Aim for a 10% alternative mode share by Older
Adults.
Adopt a Vision Zero Plan and
install multi-use paths
Adopt a Vision Zero plan to reduce injuries to all road users, particularly
vulnerable road users. Reduce traffic injuries to zero.
Conduct feasibility study on
protected bike infrastructure
Conduct a feasibility study to determine candidate streets for protected bicycle
infrastructure as this facility type addresses the “interested but concerned”
population that would bike if separated from vehicular traffic.
Increase bike facilities and
protected bikeways
Increase the number of bike facilities, including bike parking and signalized
intersections with bicycle accommodations (e.g. bicycle signal heads, bicycle
detection, integrated bike/ped counters into signals, colored/buffered/protected
bicycle lanes).
Increase bike facilities and
protected bikeways
Add protected bikeways to El Camino Real.
Continue Safe Routes to
Schools program
Continue the Safe Routes to School program that has an existing 68% active and
shared mode split (bike, walk, carpool, transit), aim for 75% in 2030.
Complete Quarry Road
Extension
Complete the Quarry Road Extension to the PA Transit Center.
Biking and
Walking
Develop bicycle highways Develop regional and local bicycle highways to provide uninterrupted bike
commutes.
Community
Engagement
Community engagement and
policy adoption.
Encourage the use of bike and/or scooter sharing, and the provision of required
infrastructure throughout Palo Alto, especially at transit stations and stops, job
centers, community centers, and other destinations.
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MODEL SECTOR ACTION TITLE ACTION DESCRIPTION
Designate vehicle-free streets to encourage economic activity and recreational
uses.
Promote the use of bicycles or electric scooters for deliveries within the city.
Promote walking and biking to local-serving retail.
Work with PAUSD to reduce SOV trips by staff, students, and parents.
Promote Telecommuting
Reduce speed limits Reduce speed limits to 15mph on 25% of City streets for less bicyclist stress and
more bicyclist and pedestrian friendliness and safety.
Install transit signal priority
equipment
Support Transit Signal Priority on transit routes.
Add bus rapid transit lanes Add Rapid Bus and queue jump lanes to El Camino Real.
Provide on-demand transit
service
Provide on-demand shuttle service within Palo Alto for neighborhoods not served
by high-frequency transit.
Enhance traffic signals Enhance traffic signals to improve traffic flow and reduce idling and associated
GHG emissions.
Transit and
Intersections
Allocate funding to TMA Fund the Palo Alto Transportation Management Association (TMA) with the goal
of reducing SOV commute-trips citywide by 30%.
Residential EV credit
(free charging)
Annual electric bill discount for residential account holder who can show that an
EV is registered at their home and used by the resident; rebate available for up to
2 vehicles per service address per year. Funding will vary depending on legally
available options.
ICE usage fee Flat fee per ICE vehicle registered. Residents can opt in to submit
make/model/odometer and the fee will be adjusted based on MPG and miles
driven. Also useful as an education and communication tool. This action may be
legally infeasible without legislative or regulatory change at the State level.
Electric
Vehicles
Resident
Multi-family residential charger
installation mandate Require all MFR homes to install EV chargers that can serve all residents
(minimum one level 1 charger per unit or one level 2 charger for every two units).
Exemptions allowed. Current LCFS charger rebate made available. Funding
beyond LCFS would be required.
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MODEL SECTOR ACTION TITLE ACTION DESCRIPTION
Low income charger
installation incentive
Provide additional funding for charging installation for low income households
Alternative Commute
Mandate
Commercial building occupant annually reports the # employees, total # vehicles
parked, and # EVs parked. Place limit on single occupancy ICE commuter vehicles
Alternative Commute
Incentive
Require commercial building owner/occupant to provide an annual cash
incentive to commuters who use alternative transportation or drive EVs. They
may also choose to charge a parking fee for ICE vehicles.
Commuter
Workplace EV Parking Expand designated EV parking while capping/reducing ICE parking spaces
Visitor Preferred Parking Designate zones (e.g. entire street, entire parking garage, or floor of garage) in
high traffic areas for clean air vehicle (EV, PHEV, 40MPG+) parking
Local/Targeted campaigns Increase awareness of benefits of EVs and rebates/incentives through
local/targeted campaigns
Education
Regional/Statewide
campaigns (ABAG/MTC)
Increase awareness of benefits of EVs and rebates/incentives through
regional/statewide campaigns (ABAG/MTC)
Mobility Provide incentives for
purchase and usage of LEVs
and E-bikes
Provide incentives for purchase and usage of LEVs and E-bikes
Fleet Electrification of municipal
fleet, buses, and delivery
trucks/vans
Electrification of municipal fleet, buses, and delivery trucks/vans
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Memo
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D.4. AECOM S/CAP Action Evaluation Memo
AECOM
300 California Street, Suite 600
San Francisco, CA 94104
aecom.com
Project name:
City of Palo Alto S/CAP
Date:
February 11, 2021
To: Christine Luong, Karin North
CC: Vanessa Goh
Memo
Subject: S/CAP Action Evaluation Memo96
Introduction
The primary goal of Palo Alto’s 2020 Sustainability and Climate Action Plan (S/CAP) is to develop actions that can
reduce greenhouse gas (GHG) emissions 80% below the city’s 1990 levels by 2030. Implementation of many S/CAP
strategies will also likely provide additional co-benefits that may not be accounted for in a typical GHG analysis.
For example, actions designed to address climate change can also improve local air quality, reduce the cost of
living, or increase productivity. Assessing the impact of actions, whether positive or negative, against a selected set
of co-benefits helps provide a holistic picture of the actions’ broader impact. During the action development
process, co-benefit evaluation can help identify opportunities to refine draft actions to increase their co-benefit
impact. It can also be useful for an action prioritization process by providing various points of comparison
between actions and can also be viewed alongside action feasibility evaluations if such an analysis is performed.
The City of Palo Alto selected nine co-benefit evaluation criteria (revised through public feedback) that align with
community priorities and apply to multiple S/CAP issue areas (e.g., Energy, Electric Vehicles, Zero Waste). The
criteria were used to qualitatively evaluate the draft S/CAP actions to demonstrate each action’s impact on these
community values. The results of this analysis can ultimately inform the City’s final prioritization of its near-term
climate actions selected to help achieve the 2030 GHG reduction target.
Evaluation Criteria
As a first step, AECOM and the City team developed a draft list of co-benefit criteria that reflected both
municipal and community priorities. As the primary function of evaluation criteria is for action comparison, co-
benefits were selected that applied broadly to different action types instead of only relating to a specific kind
of action (e.g., a co-benefit of “Increased Mobility” would only apply to transportation actions, and would not
be particularly useful in evaluating the relative impact of non-transportation actions).
The draft criteria were posted on the City’s S/CAP website for review and public comment. Based on community
96 Note: The results of the co-benefits analysis were used to prioritize and further refine the Key Actions. The co-
benefits analysis was not updated after the Key Actions were further refined and uses version three of the Goals
and Key Actions. The order and titles of the Key Actions used in the co-benefits analysis may differ from the final
version of the S/CAP Goals and Key Actions.
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feedback, the City modified the draft co-benefit definitions and added a new evaluation criterion to asses action
impact on lifecycle emissions. The following table lists the final co-benefits and definitions used to evaluate the
S/CAP actions:
Co-Benefit Criteria Definition
Air Quality Improve air quality through reduced exposure (indoor and outdoor) to particulate matter (PM2.5 and PM10),
nitrous oxide (NO2), ozone (O3), sulfur dioxide (SO2) or airborne toxins.
Public Health Improve public health through reduced incidents of diseases and/or death attributed to increased active
transport, water quality, etc. (Note: air pollution-related health impacts are included under Air Quality).
Public Safety Improve public safety through reduced traffic, incidents of traffic accidents, gas leaks, and number of
people/assets/services exposed to climate hazards such as flooding, extreme heat/cold, and extreme
weather events.
Regional Benefit Provide benefits that extend beyond the city, such as generating jobs, expanding the electric vehicle
charging network, implementing flood reduction projects, etc.
Resource Conservation Increase resource conservation through water conservation, material consumption and waste reduction, and
natural environment conservation, creation, or regeneration.
Lifecycle Emissions*Reduce emissions associated with the extraction, manufacture, and transport of fossil fuel energy resources
(e.g., natural gas distribution, coal production, etc.).
Cost of Living Reduce upfront costs and provide savings (e.g., utility costs, travel costs, etc.) to residents.
Productivity Increase productivity through reduced commute times and reduced traffic, prioritized housing near transit,
improved thermal comfort in buildings, reduced economic activity losses from climate-related events (e.g.,
flooding, power outages), etc.
Equity Address an existing inequity in the community, such as disproportionate poor air quality, access to transit,
flood risk, etc.
*Added after draft criteria were posted publicly
Evaluation Process
To evaluate climate actions, AECOM used the C40 Cities Action Selection and Prioritization (ASAP) tool and
methodology available at: https://resourcecentre.c40.org/resources/action-selection-and-prioritisation. This
excel-based software tool supports the climate action decision-making process by documenting actions and
providing outputs to streamline action comparison. It is worth noting that the ASAP tool is designed to support
decision-making, not to make decisions itself, and that different stakeholders can reach different conclusions
when assessing the co-benefits of specific actions. The subjective and qualitative assessments facilitated through
the ASAP tool are not intended to be perfect, but are helpful in highlighting important action impacts to
consider during the S/CAP development process. The results from the tool can be used to further assess and
prioritize actions as well as communicate the benefits and feasibility of the actions.
The ASAP evaluation process can be used to assess the impact of actions in three separate categories, including
primary benefits (i.e., GHG emissions and/or climate risk reduction), co-benefits (e.g., public health, economic
prosperity), and feasibility (e.g., authority level, financial need). For this project, the City only used the ASAP tool
to evaluate action impacts in the co-benefit category. This provided additional action information to supplement
a separate primary benefit analysis of the actions’ GHG reduction potential.
The ASAP tool uses a Likert rating scale to quantitatively evaluate an action’s co-benefit impact. For a given
action, each of the nine chosen co-benefits was rated on a qualitative ranking scale based on the degree to
which implementation of the action will positively or negatively impact the co-benefit. Each action and co-
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benefit pair received one of the five impact ratings shown in the table below:
Rating Score Rating Definition
Very Positive 2 The action has a positive impact across the community
Somewhat Positive 1 The action has a positive impact across a small portion of the community or a slightly positive
impact across the entire community
Neutral 0 The action has no impact, the impact is unknown, or the positive and negative impacts may
negate each other
Somewhat Negative -1 The action has a negative impact across a small portion of the community or a slightly negative
impact across the entire community
Very Negative -2 The action has a negative impact across the community
AECOM and the City team clarified the definitions and ratings of each co-benefit criteria and integrated public
feedback through a series of project meetings. Once the criteria were finalized, AECOM used the ASAP tool to rate
each action for its impact on all co-benefit criteria, except for the Equity criterion which was evaluated by the City’s
internal S/CAP teams. The City’s teams also reviewed AECOM’s initial ratings and made adjustments based on their
interpretation of the draft S/CAP actions. Below is an example of the Air Quality criterion rating scale and example
actions that match each rating option; note that the first three example actions were draft S/CAP actions and the
final two rating example actions are provided for comparison but were not included as draft S/CAP actions:
Criterion Rating Score Rating Definition Example Action
Very Positive 2 The action has a positive impact Ban Registration of Gas Vehicles
across the community Rationale: Applies to community-wide vehicle
fleets
Somewhat 1 The action has a positive impact Electrify Municipal Fleet
Positive across a small portion of the Rationale: Applies to a small portion of total
Air Quality:community or a slightly positive community vehicle fleet
impact across the entire community
Neutral 0 The action has no impact, or the
impact is unknown
Community Outreach - EV Education
Rationale: Outreach/education/information is an
indirect action – project team assumed no co-
benefits associated with this action type
Improve air quality
through reduced
exposure (indoor and
outdoor) to particulate
matter (PM2.5 and
PM10), nitrous oxide
(NO2), ozone (O3), sulfur
dioxide (SO2) or airborne
toxins.
Somewhat
Negative
-1 The action has a negative impact
across a small portion of the
community or a slightly negative
Reduce Parking Pricing in Downtown/Commercial
Districts (not a draft S/CAP action)
Rationale: Induces additional vehicle travel in a
impact across the entire community specific area
Very Negative -2 The action has a negative impact Roadway Expansion to Decrease Congestion (not
across the community a draft S/CAP action)
Rationale: Induces additional vehicle travel across
community
Using a five-point rating allows a long list of potential actions to be evaluated relatively easily and consistently
but can limit the amount of nuance that can be reflected in the evaluation process. Prior to action evaluation,
AECOM and the City team established certain rating rules to ensure consistency when applying the action
ratings to similar action types. In addition to the more generic rating rules, AECOM and the City team defined
the following evaluation approaches for three special circumstances that apply to specific action types:
•EV charging installation and incentive actions will promote EV use and therefore indirectly impact
Air Quality and Lifecycle Emissions, so similar actions received positive ratings for these co-benefit
criteria.
•Any advocacy, outreach, education, plan creation, or assessment actions produce a neutral impact on
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co-benefits unless they result from cooperating with neighboring agencies, in which case they
received a positive rating for the Regional Benefit criterion.
•Electrification actions have the potential to both increase and decrease cost of living, so most of these
actions received a neutral Cost of Living rating.
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Results
The ASAP tool produces a series of scores and graphic outputs that aid in evaluating the strengths, weaknesses, and tradeoffs of the actions evaluated.
These outputs enable comparison between actions to support decision-making and prioritization while intuitively communicating the benefits of
individual actions to stakeholders and the public. Note: The final versions of the Key Actions are included in Section 5.
The following co-benefit criteria scoring chart displays the top 30 actions by co-benefit criteria scores*:
*The Health and Wellbeing category includes Air Quality, Public Health, and Public Safety; Environment includes Regional Benefit, Resource Conservation, and Lifecycle Emission; Economic Prosperity includes
Cost of Living and Productivity; Inclusivity and Civil Society includes Equity; no Essential Public Services criteria were selected within the ASAP tool for use in Palo Alto
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The highest-scoring actions identified in this chart include:
1.Mode Split to Active Transport
2.Transportation Demand Management (TDM) Program
3.Sea Level Rise (SLR) Adaptation Plan
4.Reduce Vehicle Miles Traveled (VMT) through Land Use
These actions produce the largest positive impact based on the selected co-benefits. Overall, no actions
produced a net negative score for co-benefits. In particular, no actions scored negatively for the Air Quality,
Public Health, Public Safety, Regional Benefit, Resource Conservation, Lifecycle Emissions, and Productivity
criteria. However, some actions received negative scores in the Equity and Cost of Living criteria. The actions
that received the lowest negative scores for these criteria include:
1.Internal Combustion Engine (ICE) Fee/Tax/Assessment
2.Natural Gas Disconnect in Residential Buildings by 2030
3.Ban Registration of Gas Vehicles
4.Single Occupancy Vehicle (SOV) Pricing
The ASAP tool also allows action co-benefits to be assessed individually in co-benefit pie charts. These charts
provide a clear visual representation of the positive or negative impact of each action, and can be used to
quickly compare the overall co-benefit evaluation results from one action to another Note that the ASAP tool
allows users to weight certain criteria more heavily than others, which would result in variation in the pie chart
wedge sizes; Palo Alto did not apply any co-benefit weighting in its analysis, so all co-benefits provide an equal
share of the total evaluation score.
Appendix A on the following pages provides a color-coded summary table showing all rating results by action and
evaluation criteria. Note: Some of the actions included in Appendix A may require further legal analysis or require
legislative or regulatory change before they can be fully implemented. The final versions of the Key Actions are included
in Section 5.
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Legend
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E-1: Community Engagement - Electrification
E-2: Electrification - Streamlined Permitting
E-3: All-Electric Utility Rate
E-4: Existing SFR Remodel Electrification
E-5: Existing MF Retrofit - Gas Wall Furnace to
Electric Heat Pump
E-6: SF Home Sale - Electrification Evaluation and
Education
E-7: SFR Home Sale Electrification
E-8: SFR Home Electrification
E-9: Natural Gas Disconnect in Residential
Buildings by 2030
E-10: Residential Electrification On-bill Financing
E-11: K-12 Electrifcation - Space and Water
Heating
E-12: Non-Residential Retrofit - Gas Packaged
Rooftop Units to Electric Heat Pumps
E-13: Non-Residential NC - All-Electric Mandate
E-14: Public Buildings - 80% Electrification
E-15: Existing Commercial >25,000 sq. ft. -
Carbon Emissions Intensity Target
E-16: Assess Opportunities - Distributed
Energy/Microgrids
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E-17: Identify Funding - Electrification
Infrastructure Preparation
E-18: Identify Funding - Building Electrification
M-1: Mode Split to Active Transport
M-2: Reduce SOV use through Parking
Requirements
M-3: Implement CIP Transit Projects
M-4: Smart Traffic Signaling
M-5: TDM Programs
M-6: Reduce VMT through Land Use
M-6a: Trees Along Pathways/Bikeways
M-7: Private Transit GHG Reduction
M-8: Support Telecommuting Infrastructure
M-9: SOV Pricing
M-10: Eliminate Gasoline Vehicle Use
M-11: Advocacy of Transit Options
EV-1: Incentivize Private EV Charging Stations
EV-2: Charging Network Plan
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EV-3: Electrify Municipal Fleet
EV-4: Community Outreach - EV Education
EV-5: Advocate for State EV Rebate Program to
Include Motorcycles/Bicycles
EV-6: Increase Light EV VMTs + Reduce ICE VMTs
EV-7: Plan to Encourage EV Adoption of Inbound
Vehicles
EV-8: Lower Electric Retail Rates for EV Charging
EV-9: Lobby State for Stricter Emission Standards
EV-10: MF Parking Spaces - 25% with EV
Charging
EV-11: Existing Commercial Parking - EV Charing
Requirements
EV-12: ICE Fee/Tax/Assessment
EV-13: Electrify Private Bus Fleets
EV-14: Ban Registration of Gas Vehicles
EV-15: Evaluate Funding for EVs
W-1: Education and Incentives - Water Efficiency
W-2: Water Reuse Project
W-3: Green Stormwater Infrastructure
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W-4: Salt Removal Facility
W-5: One Water Portfolio
W-6: Baseline and KPIs for Reduction of
Impervious Surfaces
A-1: SLR Vulnerability Assessment
A-2: SLR Adaptation Plan
A-3: Review SAFER Recommendations
A-4: Discuss SLR Levee Alignment Alternatives
with Surrounding Community
A-5: Coordinate Regionally, Act Locally
NE-1: Tree Planting
NE-2: New Construction Plant Selection -
Biodiversity and Soil Health
NE-3: Urban Forest Master Plan + Parks Master
Plan
NE-4: WELO Requirements for Native and
Drought Tolerant Species
NE-5: Green Stormwater Infrastructure Plan
NE-6: No Net Tree Canopy Loss
NE-7: Reduce Pesticides
NE-8: Enhance Pollinator Habitat in Parks
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City of Palo Alto S/CAP Action Evaluation Memo Appendix A - Action Ratings
Page 6 of 6
Legend
Very Positive
Somewhat Positive
Neutral/Unrated
Somewhat Negative
Very Negative
Action Air
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NE-9: Baseline and KPIs for Tree Carbon Storage
ZW-1: Deconstruction and Construction
Materials Management Ordinance
ZW-2: Disposable Foodware Ordinance --
Eliminate Single-Use Cups and Containers
ZW-3: Commercial Food Generators -- Require
Food Waste Prevention and Recovery
ZW-4: Residential Food Waste Reduction
ZW-5: Incentivize Reusable Diapers
ZW-6: Champion a Circular Economy
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SCAP Report
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Attachment C
Resolution No. ____
Resolution of the Council of the City of Palo Alto Approving
an Addendum to the Comprehensive Plan Environmental
Impact Report and Adopting the Sustainability and Climate
Action Plan
R E C I T A L S
A.In April 2016, Council adopted a GHG emissions reduction goal of 80%
reduction by the year 2030, relative to a 1990 baseline (the “80 x 30” goal).
B.In April 2021, Council directed the Mayor to form a Sustainability and Climate
Action Plan (S/CAP) Ad Hoc Committee to guide the development, implementation,
communication, and future community engagement of the S/CAP. The Ad Hoc Committee
hosted a series of public engagement opportunities for the community to provide input on
various components of the S/CAP Update.
C.As a result, Council wishes to adopt the S/CAP, which will serve as the roadmap
for achieving the 80 x 30 goal.
D.Approval of the S/CAP would constitute a project under the provisions of the
California Environmental Quality Act of 1970, together with related state implementation
guidelines promulgated thereunder (CEQA).
E.The S/CAP is an activity proposed in the City of Palo Alto Comprehensive Plan
2030 (Comprehensive Plan 2030).
F.In November 2017, Council approved Resolution 9720 certifying adequacy of
the Final Environmental Impact Report (EIR) for the City of Palo Alto Comprehensive Plan
Update and adopting a Mitigation Monitoring and Reporting Plan in accordance with the
CEQA.
G.The City, in compliance with CEQA, prepared an EIR Addendum to provide an
assessment of the potential environmental consequences of adopting and implementing the
proposed S/CAP. The environmental review process under CEQA commenced and was
undertaken concurrently with the preparation and consideration of the S/CAP Update.
H.Council is the decision-making body for adoption of the proposed S/CAP.
The Council of the City of Palo Alto RESOLVES as follows:
SECTION 1. Council, in the exercise of its independent judgment as the decision-making
body for the City of Palo Alto as Lead Agency, makes and adopts the following findings and
certifications in compliance with the requirements of CEQA:
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Attachment C - Resolution
Approving an Addendum
to the Comp Plan Impact
Report and Adopting the
SCAP
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1. Council has independently reviewed and considered the EIR Addendum.
2. None of the conditions described in CEQA Guidelines Section 15162 calling for
the preparation of a Subsequent EIR or Supplemental EIR are present.
3. Council does hereby find and certify that the EIR Addendum has been prepared
and completed in compliance with CEQA.
4. Council does hereby find and certify that the EIR Addendum reflects the City of
Palo Alto’s independent judgment and analysis.
SECTION 2. Council hereby adopts the Sustainability and Climate Action Plan.
INTRODUCED AND PASSED:
AYES:
NOES:
ABSENT:
ABSTENTIONS:
ATTEST:
City Clerk Mayor
APPROVED AS TO FORM: APPROVED:
Assistant City Attorney City Manager
Director of Public Works
Director of Administrative Services
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Attachment C - Resolution
Approving an Addendum
to the Comp Plan Impact
Report and Adopting the
SCAP
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Draft S/CAP Three-Year Work Plan – Updated Q1 2023
Page 1 of 42
DRAFT
City of Palo Alto Sustainability and Climate Action Plan
Implementation Work Plan (2023 through 2025)
Table of Contents:
1.Executive Summary
2.2023-2025 Climate Action Section Work Plan: Making Progress on the 80x30 Goal
i.Climate Action 2023-2025 Priorities
ii.Summary Timeline, 2023-2025
iii.Climate Action 2023-2025 Work Plan
3.2023-2025 Sustainability Section Work Plan: Creating a More Sustainable Natural Environment
Appendix A: Detailed Implementation Timeline
Appendix B: How Climate Action Priorities were Prioritized
Appendix C: Policy Guidelines for Electric Vehicle Strategic Plan Development
Appendix D: Policy Guidelines for Reliability and Resiliency Strategic Plan Development
Appendix E: Index of S/CAP Key Actions and the Work Plan Items that Implement them
1. Executive Summary
This work plan implements the City’s Sustainability and Climate Action Plan (S/CAP). In November 2016 the Council
adopted the S/CAP Framework, which has served as the road map for achieving Palo Alto’s sustainability goals. On
October 3, 2022, the City accepted an updated set of Goals and Key Actions and is performing CEQA review with the goal
of formally adopting the S/CAP in spring of 2023. This work plan implements this updated set of Goals and Key Actions.
The Goals and Key Actions are divided into eight areas, four of which are climate-focused and include actions to achieve
the City’s “80x30”1 and carbon neutrality2 goals (Climate Action, Mobility, Electric Vehicles, and Buildings) and four of
which are focused on actions that create a sustainable natural environment and adapting to a warming climate but do
not contribute significantly to the 80x30 goal (Natural Environment, Zero Waste, Water, and Sea Level Rise).
Based on Council’s acceptance of the S/CAP Goals and Key Actions, staff and the Ad Hoc Subcommittee developed five
Climate Action priorities for 2023 through 2025, which are listed in Section 2.i below:
It includes a variety of work items for achieving these priorities, including:
•Promoting electric vehicles (EVs) for residents, commuters, visitors, and other users (e.g. deliveries, rideshare)
and regionally, including micromobility (e-bikes, e-scooters, and other small EVs).
•Reducing vehicle miles traveled through citywide Mobility programs, including parking management, piloting on-
demand transit, implementing the City’s Housing Element, and updating the Bicycle Plan
•Launching an Advanced Heat Pump Water Heater Pilot Program and scaling it up
1 The 80x30 goal is to reduce Palo Alto greenhouse gas emissions 80% from 1990 levels by 2030
2 Carbon neutrality means that all GHG emissions emitted into the atmosphere are balanced in equal measure by GHGs that are removed from the atmosphere,
either through carbon sinks or carbon capture and storage
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•Beginning a strategic upgrading of capacity in the residential areas of the electric grid and promoting whole
home electrification in the upgraded areas
•Expanding access to EV charging in multi-family buildings (including affordable housing) and exploring ways to
electrify those buildings as well
•Electrifying commercial rooftop packaged heating, ventilation, and air conditioning (HVAC).
•Partnering with major employers on emissions reduction plans, including commuter emissions
•Electrifying City buildings and vehicles where feasible
•Engaging City operations to support these goals
•Exploring additional emissions reduction opportunities by surveying multi-family and non-residential building
equipment and exploring other ideas from the community (e.g. shuttles, shared vehicles)
•Evaluating funding and resource needs of the above programs and identifying viable funding sources.
This work plan implements the S/CAP goals for a sustainable natural environment (including reducing waste, creating a
sustainable and holistically managed water system, and a thriving urban canopy) by:
•Reducing water consumption while exploring ways to capture and store water, as well as to increase the
availability and use of recycled water
•Developing and adopting a multi-year Sea Level Rise Adaptation Plan
•Minimizing wildland fire hazards through Plan implementation, zoning, and collaborating with Fire agencies
•Increasing Palo Alto’s Tree Canopy and reducing pesticide use in parks and open space preserves
•Supporting the Green Stormwater Infrastructure (GSI) Plan and incorporating GSI in municipal projects
•Encouraging food waste reduction, prevention, and recovery and providing waste prevention technical
assistance
•Eliminating single-use disposable containers and prioritizing domestic processing of recyclable materials
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2. 2023-2025 Climate Action Section Work Plan: Making Progress on the 80x30 Goal
The Climate Action section of the S/CAP focuses on achieving the City’s 80x30 goal, and includes goals and key actions
primarily focused on reducing emissions in transportation and buildings. The climate action sections of the S/CAP itself
are divided into four topic areas (Climate Action, Mobility, EVs, and Energy), but this work plan is intended to prioritize
and organize those key actions, so work plan items are organized according to five 2023-2025 Climate Action section
priorities.
2.i 2023-2025 Climate Action Section Priorities
The following five priorities are intended to focus the City’s efforts on the highest potential and lowest cost emissions
reduction actions and supporting efforts to enable the City’s programs in these areas to be as impactful as possible.
Appendix B outlines how the highest priority emissions reduction actions were chosen (single-family residential
electrification, expanding EV charging access, commercial rooftop packaged HVAC, and Mobility). EV charging is a
complex topic with a variety of different types of vehicle owner needs and potential electric grid impacts and benefits,
and Appendix C outlines the guiding principles the City used for developing electric vehicle charging work items. These
principles will also be reflected in any studies done on EVs or EV programs developed.
The 2023-2025 climate action section priorities are:
P1. Complete grid modernization plan and begin construction to increase reliability and transformer capacity for
electrification
P2. Launch effective programs for emissions reductions with highest impact and lowest cost: single-family
electrification, strategic promotion of EVs, commercial rooftop HVAC, and expanded transportation alternatives
P3. Build community awareness and confidence in electrification through engagement, addressing concerns, and
program results
P4. Identify an additional 9% in emissions reduction opportunities to achieve the 80x30 goal
P5. By 2024 identify funding needed and potential funding sources for full scale implementation of highest impact
emissions reductions
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2.ii 2023-2025 Climate Action Summary Timeline
The proposed timeline for the 2023-2025 Climate Action section work items (which are listed below in section 2.c) is
outlined below. The proposed timeline is contingent on certification of environmental review and may be modified
accordingly. A more detailed timeline for each work plan item is included in Appendix A.
Priority 2023 2024 2025
P1 (Modernize
grid)
•Grid modernization study
completion, hire contractor
•Reliability/Resiliency Strategic
Plan
•Begin a 5-7 year construction effort to increase reliability and
transformer capacity
•Implement Reliability and Resiliency Strategic Plan
Design and launch programs:
•Full-scale HPWH program
•Pilot commercial HVAC
•Municipal electrification
•Downtown parking
management program
•On-demand transit pilot
•Single-family whole home
•Full-scale commercial HVAC
•Full-scale multi-family EV
charger program (tentative)
Studies to guide program launches:
P2 (Launch
programs)
•EV Strategic Plan
•Multi-family and income-
qualified EV work plan
•Bicycle Plan update
•Work plan for commuter and
visitor EV charging and EV
promotion
•Vision Zero program (tentative)
Design and launch additional
programs based on the 2024
studies (See P4 for other studies
that may result in new
programs) and the EV Strategic
Plan
Build awareness of the need for climate action and the City’s services and achievements. Drive
community actions to achieve S/CAP goals. Build confidence in the City’s electric infrastructure. Report
results from new and existing programs:
P3 (Build
awareness and
confidence)
•New program: HPWH pilot
•Existing programs:
•Existing Mobility programs
•Multi-family EV charger
•New programs: Full-scale HPWH
program, commercial HVAC pilot
•Continuation of existing programs
•New programs; Full-scale
HVAC, multi-family EV
charger
•Continuation of programs
•Evaluate new programs
based on studies
P4 (Additional
emissions
reductions)
•Seek ideas from community
members and other experts
•Monitor technologies and
medium term opportunities
•Multi-family and non-residential
electrification study
•Study highest potential community
ideas/technologies
P5 (Funding
needs and
sources)
•Evaluate implementation cost
for full scale high impact /
lower cost programs
•Preliminary evaluations of
potential funding sources
•Decisions on how to fund priority
electrification areas
•Develop financial and operational
plan for gas utility
•Implement follow up from
prior-year studies
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2.C Climate Action 2023-2025 Work Plan
The climate change topic areas of the S/CAP (Energy, EVs, Mobility, and Climate Change) are highly inter-related. Multiple key actions can affect the same
community members in various ways. For example, a multi-family building owner might do a project that builds EV charging, bike storage, and electrifies some
building equipment, which touches all three topic areas. Programs should be as simple as possible for the community. As a result, the work plan below is
organized according to the type of activity and the part of the community served instead of being organized by the S/CAP topic areas. The key actions being
implemented are listed next to each work plan item, and an index is provided in Appendix D to help readers map the Key Actions from the S/CAP to all
implementing work plan items.
The work plan is organized according to the priorities above, as follows:
P1.Grid Modernization: Complete grid modernization plan and begin construction to increase reliability and transformer capacity for electrification
P2.Launch Programs: Launch effective programs for emissions reductions with highest impact and lowest cost: single-family electrification, strategic
promotion of EVs, commercial rooftop HVAC, and expanded transportation alternatives
P2.1 Residential Emissions Reduction
P2.2 Non-Residential Emissions Reduction
P2.3 Citywide Mobility
P2.4 Municipal Electrification
P2.5 EV Strategic Plan
P3.Build Awareness and Confidence: Build community awareness and confidence in electrification through engagement, addressing concerns, and program
results
P4.Additional Emissions Reductions: Identify an additional 9% in emissions reduction opportunities to achieve the 80x30 goal
P5.Funding Needs and Sources: By 2024 identify funding needed and potential funding sources for full scale implementation of highest impact emissions
reductions
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P1: Grid Modernization
Grid modernization is critical, particularly for residential electrification. The programs below will impact the electric grid, and there are also supporting grid-
related efforts that could reduce barriers to electrification citywide, such as examining electric rate design, low wattage solutions, and fee structures for
transformer upgrades. Electric grid reliability and resilience will be important to inspiring confidence in electrified homes and vehicles.
Work Item
Key
Action Description
Resource
Availability
Target
Completion Date Status (Apr 2023)
1.A Grid Modernization Study E8 Complete a grid modernization
study covering scope, designs, high
level cost estimates, and estimated
implementation timelines for
electric system upgrades.
Recruitment
challenges.
Planning fully
funded.
Implementation
funding needs
under review.
Dec ‘22: Complete study
Dec ’23: Complete
design, bring contractor
on board
Early 2024: Begin
construction
Consultant hired, study in
progress, nearing release
of initial draft study
1.B Reliability and Resiliency
Strategic Plan
E8 Develop Reliability and Resiliency
strategic plan based on principles
in Appendix D
Fully staffed,
funding needs
under evaluation
Dec 2023 Not started
1.C Reliability and Resiliency
Strategic Plan Implementation
E8 Implement Reliability and
Resiliency Strategic Plan
Staffing and
funding needs to
be evaluated
To be evaluated as part
of 1.B
Policy guidelines for plan
development to Council
December 5, 2022
1.D Evaluate Utility Rates and Fees E6 Evaluate utility rate designs and
fee structures in the context of
future electrification, implement
any needed changes
Fully funded Mar 2023 Cost of service evaluation
in progress
P2.1: Residential Emissions
The long-term goal in residential areas is full electrification of vehicles and buildings, but some electrification of some types of buildings is easier and less costly
than others. Single-family homes tend to be easier and less costly to electrify than multi-family buildings. It is easier to install EV charger access as well. Grid
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capacity is an important consideration that drives the work plan in residential areas. The plan below prioritizes individual heat pump water heating electrification
(which is primarily in single-family homes, but also some multi-family) and EV charger access in multi-family homes. Individual heat pump water heaters have
low grid impact compared to other electrification measures and can be installed citywide while grid modernization gets underway. In modernized
neighborhoods electrification of space heating and other equipment and appliances can be promoted.
The work plan for multi-family residential emissions reduction prioritizes EV charger access in multi-family homes. EV chargers are relatively easy to install
without City assistance in single-family homes, but the City’s multi-family EV program will help multi-family building owners and condo associations install EV
chargers so residents can access the savings and emissions reductions from EVs. This work plan includes development of a strategy to scale successful existing
multi-family EV charging pilot programs to all multi-family buildings in Palo Alto. Multi-family building electrification requires more study to develop cost-
effective strategies, since early studies and pilots have found multi-family building electrification to be very expensive. But more pilots in affordable housing
projects, where grants and other funding might be available, would help the City get experience and develop strategies. All programs will be developed with
equity in mind, considering how to serve low-income residents and renters.
Work Item
Key
Action Description
Resource
Availability
Target
Completion Date Status (Apr 2023)
All Residential
2.1 A Promote EV Adoption EV1, EV4 Offer Workshops and Events to
raise awareness of EVs, including
electric micromobility options and
incentives. Work item subject to
change based on EV Strategic Plan
(see 2.5A).
Fully staffed and
funded, staffing
issues may
impact this in the
short term
Ongoing In 2022 conduct 33 EV
related workshops and
expos. Contracting in
progress to offer more
awareness raising
opportunites in 2023.
2.1 B Emissions Reduction Advisory
Services
C1 Provide single points of contact for
online and phone advice for
residents to reduce building and
transportation emissions.
Fully staffed and
funded
Dec ‘23: Phone advising
Timeline for launch of
online services under
evaluation
RFP responses evaluated
and contract negotiations
are in progress
2.1 C Evaluate small electric
vehicles (e.g. e-bike) program
potential
EV4 Evaluate alternatives for providing
residential small electric vehicle
programs or pilots. Work item
subject to change based on EV
Strategic Plan (see 2.5A).
Fully staffed and
funded, though
staffing issues
may impact this
in the short term
Complete evaluation by
December 2023
RFP being written
Single-family Residential
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Work Item
Key
Action Description
Resource
Availability
Target
Completion Date Status (Apr 2023)
2.1 D Heat Pump Water Heater
Electrification Pilot Program
E1, E5 Launch a pilot heat pump water
heater electrification pilot to
achieve 1000 gas water heater
replacements by the end of 2023
Partly staffed and
funded – sales/
marketing needs
being evaluated
Launch late 2022 / early
2023, aim to achieve
goal by Dec 2023
Council approved program
on October 3, staff
implementing the plan
2.1 E Full-Scale Heat Pump Water
Heater Electrification
Program
E1, E5 As pilot program nears its goals,
transition to a full-scale program
with the goal of electrifying all
water heaters in Palo Alto
Fully staffed for
design, staffing /
funding needs to
be determined
Based on pilot program
progress, tentatively
late 2023
Some preliminary analysis
completed, otherwise not
started.
2.1 F Electrification data collection
program
E1 Do home evaluations to collect
data and help people plan for
equipment or whole home
electrification
Fully staffed,
funding needs
under evaluation
Program up and running
by December 2023
Contract negotiations in
progress
2.1 G Pilot Programs for
Modernized Neighborhoods
E1, E5 Identify and launch electrification
programs for neighborhoods with
increased electric capacity such as
whole home or heat pump space
heating pilot programs
Fully staffed,
funding needs
under evaluation
Program design and
approvals by Dec 2024
Not started
2.1 H Single-family Electrification
Rebates
E1 Establish rebates for all appliances
and equipment in single-family
homes
Fully staffed and
funded
Launch rebates by
spring of 2024
Some analysis done, but
moving slowly due to
conflicting priorities
Multi-family Residential
2.1 I Affordable Housing EV
Charging and Electrification
Pilot
E5, EV5,
EV7
Design a pilot electrification and EV
project in an affordable housing
multi-family building to test
potential scalable approaches.
Work item subject to change based
on EV Strategic Plan (see 2.5A).
Fully staffed,
funding needs
under evaluation
Complete pilot design
by December 2023
Partner identified, grant
secured for EV charging,
contract negotiations in
progress for electrification
pilot management, some
analysis completed.
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Work Item
Key
Action Description
Resource
Availability
Target
Completion Date Status (Apr 2023)
2.1 J Multi-Family EV Charger
Program
EV5,
EV6,
EV7
Establish rebates and EV charging
technical assistance , with the goal
of expanding charger access to
10% (1,100 units) of multifamily
households. Work item subject to
change based on EV Strategic Plan
(see 2.5A).
Fully staffed and
funded
Aiming for 1,100 units
by December 2025
100+ multifamily
properties actively
proceeding in programs to
install EV chargers
2.1 K Multi-family and Affordable
Housing Electrification and
EV Charger Access Strategy
Development
C8, EV6,
EV7,
EV8
Evaluate potential scalable
strategies for multi-family and
affordable housing EV charger and
electrification programs, including
the role of publicly-owned EV
charging, such as in rights-of-way.
Work item subject to change based
on EV Strategic Plan (see 2.5A).
Fully staffed and
funded for
evaluation,
implementation
needs TBD
Complete evaluation by
December 2023
Evaluating responses to
RFP issued for multi-family
electrification services,
analyses of potential
program designs / funding
sources in progress.
P2.2: Non-Residential Emissions
City staff has less experience and knowledge with electrification of non-residential building equipment than with electrification of other types of building
equipment. In section 6 of this work plan there are several studies planned that could help staff develop building electrification strategies for the non-residential
sector. In the meantime, rooftop packaged heating, ventilation, and air conditioning (HVAC) units are potentially cost-effective to electrify. This work plan
includes running a small initial pilot while simultaneously designing a potential advanced pilot and evaluating the potential for mandated electrification for end
of life replacements. These rooftop HVAC programs and/or mandates can reduce emissions in major facilities as well (see Section 5)
In addition, staff plans to partner with major facility owners in Palo Alto to help them achieve their sustainability goals. Ideally these partnerships would include
both building electrification, promotion of alternative transportation and EVs for commuters, and expanded EV charger access. A successful partnership with at
least one major employer could provide an example that could lead to future employer partnerships, while a partnership with the schools could be an
educational opportunity that leads to more awareness of electrification among residents.
Staff estimates about a third of transportation emissions come from drivers entering Palo Alto to visit or do business. The City is limited in its ability to affect
these emissions, but partnering regionally to promote alternative transportation modes and personal and fleet EVs should help.
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Work Item
Key
Action Description
Resource
Availability
Target
Completion Date Status (Apr 2023)
2.2 A Rooftop Packaged Heating,
Ventilation, and Air
Conditioning (HVAC) Pilot
E2, C8,
E7
Continue HVAC pilot with the goal
of completing 4-5 installations
Fully funded December 2023 Program launched,
recruiting participants
2.2 B Rooftop Packaged HVAC
Advanced Pilot Design
E2, C8,
E7
Develop proposal for an advanced
pilot program and/or mandate
Fully funded Proposal to Council for
approval by Dec 2023,
implementation 2024
Not started
2.2 C Major Employer Partnerships C2, E2,
E3, EV3,
other
Develop custom sustainability
partnership with at least one major
employer, electrification pilots
with City facilities, and support
PAUSD electrification efforts. Work
item subject to change based on
EV Strategic Plan (see 2.5A).
Fully funded for
design, not
implementation
Complete goals listed in
“Description” column by
December 2023
Started discussions with
various employers and
PAUSD
2.2 D Commuter Transportation and
EV Charging Strategy
C8, EV1,
EV3,
EV8
Develop a strategy to promote EV
adoption (including small EVs like
e-bikes/e-scooters) and alternative
transportation to commuters.
Evaluate workplace charger
programs and/or mandates,
including role of publicly owned
business district EV charging. Work
item subject to change based on
EV Strategic Plan (see 2.5A).
Fully staffed,
consultant
funding needs
being evaluated.
Implementation
needs TBD.
Complete plan by end of
December 2024,
implementation
timeline TBD
Not started
2.2 E Regional and State
Partnerships
EV2,
EV10
Identify promising regional
partnerships and State programs
for potential City participation.
Work item subject to change based
on EV Strategic Plan (see 2.5A).
Under evaluation Ongoing Not started
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P2.3: Citywide Mobility
Road transportation represents the largest percentage of Palo Alto’s existing carbon footprint – and a congestion headache. Reducing vehicle miles traveled is an
important element in reducing these emissions. Reductions are achieved through a comprehensive citywide effort to increase access to alternative modes and
awareness of the benefits complemented by programs for specific groups within the community. Land use is an important lever for affecting vehicle miles
traveled. The City already has a variety of transportation programs and is addressing land use via its Comprehensive Plan process (including the Housing
Element) and subsequent implementation. The work plan below acknowledges those efforts and aims to modestly expand them as staff time and funding
permit.
Work Item
Key
Action Description
Resource
Availability
Target
Completion Date Status (Apr 2023)
2.3 A Transportation and Land Use
Policies and Programs
M1 Continue to implement existing
transportation policies and
programs to reduce VMT
Fully funded Ongoing Continuing to work on
Council Transportation
priorities including grade
separation, street closures
2.3 B Housing Element Adoption M7, M9 Update the Housing Element for
2023-2031.
Fully funded January 2023 Reviewing comments from
the California Housing &
Community Development
Department, planning on
bringing updated draft to
PTC and Council in May.
2.3 C Housing Element
Implementation
M7, M9 Implement the 2023-2031 Housing
Element, which is projected to
reduce VMT
Funding via
grants and
annual City
budget process
2031 Not started – awaiting
Housing Element adoption
2.3 D Micro-mobility evaluations M2 Evaluate opportunities to pilot
bike/scooter share and
neighborhood mobility hub pilots
to provide last-mile connections
Proceed as staff
time is available
No target, proceed as
time is available
Some design work and
research completed, staff
aims to develop potential
funding and/or staffing
proposals as time permits.
2.3 E On-demand transit pilot M2 Launch on-demand transit pilot to
provide last-mile connections for
100% of the city for a limited time
Fully funded for
two years
Launch by Mar 2023 Reviewing proposals for
on-demand transit provider
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Work Item
Key
Action Description
Resource
Availability
Target
Completion Date Status (Apr 2023)
2.3 F Update Bicycle Plan M3 Update the 2012 Bicycle and
Pedestrian Transportation Plan
Fully funded Dec 2024 Initiated update of the Plan
2.3 G Vision Zero Program M3 Program to reduce roadway severe
injuries and fatalities to zero
Awarded grant
funding for
planning
To be determined Awarded Federal Safe
Streets for All grant to fund
a safety action plan.
Implementation will require
additional staffing and
funding
2.3 H Evaluate expansion of
employer transportation
demand management (TDM)
M4 Evaluate possible alternatives to
expand TDM ordinance
requirements and/or voluntary
TDM services (e.g. expanding the
Transportation Management
Association)
Proceed as staff
time is available
No target, proceed as
time is available
Some design work and staff
research has been done,
staff exploring ways to fund
and staff a study of options
as time permits.
2.3 I Proposals for Managing
Downtown Parking Availability
M5 Develop proposals for pricing
strategies to manage parking
supply and availability
Fully funded Ongoing Proposals to be shared with
Council
2.3 J Implement Efficient
Downtown Parking
Management
M5 Implement proposals for pricing
strategies to manage parking
supply and availability
Funding and
staffing to be
determined
To be determined RFP for management
services in development
2.3 K Traffic Signal Improvements &
Transit Signal Priority
M8 Maintain and modernize current
traffic signals and central
management systems. Use
technology to improve traffic
operations and safety. Work with
transit providers on transit signal
priority where feasible.
Mostly funded,
long-term
funding needs
being evaluated
Ongoing Long-term system plan in
development. Supporting
transit signal priority
project for Dumbarton
Express. Implementing
Automated Traffic Signal
Performance Measures to
improve signal timing.
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P2.4: City Facilities and Fleet Emissions
A priority for the Council in development of the S/CAP was that we lead by doing. Electrification of City facilities and the vehicle fleet is a critical part of that. In
addition, if increased publicly-owned EV charging becomes a part of multi-family and/or business district EV charger strategies (see P2.1K and P2.2D), a detailed
plan for maintenance and operation will be needed.
Work Item
Key
Action Description
Resource
Availability
Target
Completion Date Status (Apr 2023)
2.4 A Facility Electrification
Assessment Plan
E4 Complete an assessment of
electrification opportunities at City
facilities
Fully funded Under evaluation Assessment of all City
facilities is underway
2.4 B Facility Electrification
Assessment Implementation
E4 Implement recommendations from
the Facility Electrification
Assessment Plan where feasible
Under evaluation Under evaluation Will begin after 2.4 A is
complete
2.4 C Electrify Equipment at City
Facilities during Routine
Replacement
E4 Evaluate the feasibility of
electrification when doing end of
life equipment replacements
Under evaluation Under evaluation On-going. The mechanical
equipment at MSC-B is at
the end of its service life
and we are currently
looking into electric
replacement solutions
2.4 D Electrify City Vehicle Fleet EV9 Convert all Palo Alto municipal
vehicles to EVs when feasible and
when the replacement is
operationally acceptable. Evaluate
leasing as a bridging strategy.
Evaluated with
each
replacement
On-going There are two units
identified in FY23 for
potential EV replacements,
pending manufacturer
availability and cost
2.4 E Build City Fleet and Employee
Charging Infrastructure
EV9,
EV3
Expand charging at City facilities to
support an electrified fleet and
employee EV adoption
Under evaluation Under evaluation We are currently testing a
low cost EV charger
solution that could be
used for future employee
charging locations
2.4 F Publicly-owned charger
strategic plan
EV8 Evaluate potential publicly-owned
EV charger strategies. Work item
subject to change based on EV
Strategic Plan (see 2.5A).
Staffing and
funding needs
under evaluation
Residential plan – by
Dec ‘23 (see P2.1 K)
Business district plan –
by Dec ‘24 (see P2.2 F)
Not started
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P2.5: Electric Vehicles Strategic Plan
Several work plan items relate to electric vehicle promotion and programs to improve access to charging. Coordinating staff effort across a variety of efforts
focused on many different parts of the community requires some level of coordination. This strategic plan will guide development of other work items.
Work Item
Key
Action Description
Resource
Availability
Target
Completion Date Status (Apr 2023)
2.5 A Electric Vehicle Strategic Plan
Development
EV1
thru
EV10
Develop a strategic plan based on
principles in Appendix C to guide
coordination of various work
items, including 2.1 A, C, I, J, and K,
2.2 C, D, and E, and 2.4 F. Align
with Reliability and Resiliency
Strategic Plan (1B and 1C)
Fully funded Under evaluation Policy guidelines for plan
development to Council
December 5, 2022
P3: Build Awareness and Confidence
To achieve high participation in electrification programs and other emissions reduction efforts and continuing support for S/CAP climate action programs
requires building community awareness and confidence through engagement, addressing concerns, and achieving program results.
Work Item
Key
Action Description
Resource
Availability
Target
Completion Date Status (Apr 2023)
3.1 A Build awareness of the need
for climate action and the
benefits the City and its
utility can receive and
provide
N/A Achieve widespread awareness of
the need for and benefits of
climate action and the City’s
services and achievements,
including low electric rates. Use
partnerships and volunteers to
help deliver the message.
Fully staffed,
partially funded
Ongoing Sustainability hub and
various other engagement
efforts implemented.
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Work Item
Key
Action Description
Resource
Availability
Target
Completion Date Status (Apr 2023)
3.1 B Drive community actions to
achieve S/CAP goals
N/A Run effective marketing and
outreach that drives community
action on S/CAP goals
Under evaluation Ongoing Marketing plan in
development
3.1 C S/CAP Survey Program N/A Continuing surveys of community
sentiment and engagement to
guide decision making and track
certain key performance indicators
Under evaluation Under evaluation –
requires coordination
with other City surveys
Exploring a partnership
with Stanford to develop a
survey to collect baseline
data
3.1 D S/CAP Reporting N/A Ongoing reporting of S/CAP results,
including key performance
indicators
Under evaluation Ongoing Annual reporting provided
in Earth Day report, to be
expanded to cover all
S/CAP KPIs
3.1 E Build confidence in the City’s
electric infrastructure
N/A Communicate actions the City is
taking to improve electric reliability
and grid capacity, to help residents
and businesses build resiliency,
and successes in these areas
Under evaluation Under evaluation –
requires coordination
with other City surveys
Not started
4. Additional Emissions Reductions
A variety of planning efforts are needed to achieve 80x30. Emissions reductions identified to date only achieve 71% from 1990 levels, so the City must identify
additional reductions to achieve its 80x30 goals. The multi-family and commercial building sectors have the smallest contribution to the emissions reductions
identified to-date, so this will be an area of focus where staff is likely to find the most additional emissions reductions. Note that carbon dioxide removal
technologies are not included in this effort, these are part of a separate future study on the City’s carbon neutrality goal.
Work Item
Key
Action Description
Resource
Availability
Target
Completion Date Status (Apr 2023)
4.A Multi-family and Commercial
End Use Study
C3, E9 Do end use study of commercial
and multi-family buildings to
identify potential building
electrification measures
Fully staffed,
consultant
funding needs
being evaluated
December 2024 Writing consultant RFP
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Work Item
Key
Action Description
Resource
Availability
Target
Completion Date Status (Apr 2023)
4.B Idea generation and additional
research
C3,
M10
Consult community members and
experts (including Stanford) and
research new technologies to
identify other potential
approaches to reducing emissions
in Palo Alto
Staffing and
funding needs to
be evaluated
December 2024 Not started
4.C Additional Emissions Reduction
Project Prioritization
C3 Prioritize the most cost-effective
approaches to achieving the
additional emissions reduction
needed to achieve 80x30 in
establishment of next three-year
work plan
Staffing and
funding needs to
be evaluated
December 2025 Not started
5. Funding Needs and Funding Sources
A high-level assessment of resource needs and funding sources will be done by fall of 2023 to allow for Council discussions on potential funding sources in late
2023 and early 2024. The needs of low- and middle-income residents will be assessed as part of this effort. Full-scale implementation of high potential programs
will cause significant reductions in gas utility sales, necessitating careful planning to manage contracting revenues and operational needs.
Work Item
Key
Action Description
Resource
Availability
Target
Completion Date Status (Apr 2023)
5.A Resource Needs Assessment C4 Complete study of staffing and
other resources needed for
programs and operations to
implement all 80x30 activities
Fully staffed,
consultant
funding needs
being evaluated
Dec 2023 Writing consultant RFP
5.B Funding Alternatives C5, M5 Complete study of funding
alternatives for 80x30, taking into
account Federal policy such as the
Inflation Reduction Act.
Fully staffed,
consultant
funding needs
being evaluated
Dec 2023 Writing consultant RFP
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Work Item
Key
Action Description
Resource
Availability
Target
Completion Date Status (Apr 2023)
5.C Affordability Study C6, E5 Identify vulnerable populations
who may need help electrifying
and subsidy needed
Fully staffed and
funded
Dec 2023 Consultant beginning work
5.D Gas Utility Financial and
Operating Plan
N/A Develop a financial and operating
plan for declining gas utility sales
that maintains safety and solvency
while providing affordable gas
service to remaining gas users
Staffing and
funding needs to
be evaluated
Dec 2024 Not started
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3. 2023-2025 Sustainability Section Work Plan: Creating a More Sustainable Natural Environment
In Palo Alto, we have a Sustainability and Climate Action Plan (S/CAP) because we include sustainability areas that don’t necessarily have a direct impact on
greenhouse gas reductions, but have critically important sustainability, public health and safety, regional, resource conservation, and equity benefits that
contribute to overall climate action. The Sustainability area Key Actions were prioritized based on the co-benefits analysis conducted by AECOM.
Work Item
Key
Action Description
Resource
Availability
Target
Completion
Date Status (Apr 2023)
8.A Maximize Water Conservation and
Efficiency
W1 Maximize cost-effective water
conservation and efficiency through
incentives, outreach/education, and
other programs
Fully funded On-going This is an on-going effort
8.B Design and build a salt removal
facility for the Regional Water
Quality Control Plant
W2 Facility that will remove salt from the
recycled water produced at the RWQCP
resulting in an enhanced product
Negotiating with
Valley Water
and the City of
Mountain View
Bring to
Council for
approval by
2023
Design is 90% complete.
Council has not approved
construction of the facility
8.C Develop a “One Water” Portfolio
for Palo Alto
W3 Develop a “One Water” Portfolio that
includes stormwater, recycled water,
on-site reuse, conservation, and
groundwater
Fully funded August 2023 Study underway by staff
and consultant
8.D Develop a tool for dynamic water
planning in the future
W4 Excel-based tool for water planning Fully funded August 2023 Included as deliverable
under One Water
consulting contract
8.E Complete the Sea Level Rise
Vulnerability Assessment
S1 Complete a Sea Level Rise Vulnerability
Assessment to identify risks and hazards
to the Palo Alto Baylands, City
infrastructure, and residential and
business property, considering high tide,
100-year coastal storm event scenarios
and rising shallow groundwater impacts
Fully funded Fall 2022 Completed in Fall 2022
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Work Item
Key
Action Description
Resource
Availability
Target
Completion
Date Status (Apr 2023)
8.F Develop a Sea Level Rise
Adaptation Plan
S2 Develop a Sea Level Rise Adaptation
Plan with goals to 1) Preserve and
Expand Habitat, and 2) Protect City and
Community Assets, and Private Property
Partially funded
to develop the
plan, and
funding needed
for plan and
implementation
2024 Preparing a contract
amendment AECOM so
that we can move to the
second phase of the
project, which is to
develop a Sea Level Rise
Adaptation Plan over the
coming months with the
goal of bringing a plan to
Council in 2024
8.G Begin design process for a levee
projects
S3 Determine levee alignment and begin
design process for a levee project that
protects the Palo Alto community from
sea level rise, and incorporates other
related priorities including habitat
restoration, recreation, transportation,
City facilities, and community properties
Funded by US
Army Corps of
Engineers (50%
Fed) and Valley
Water / CA
Coastal
Commission
(50% Non-Fed)
*PA staff is
participating in
the analysis
2024 Levee alignment will be
determined by 2024
8.H Identify Protection Strategies from
Significant Flood Events at Newell
Road Bridge
S4 Complete Newell Road Bridge
improvements
Funded by
Caltrans / local
sponsor
(SFCJPA)
2024 Preparing construction
documents and initiating
right-of-way aquisition
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Work Item
Key
Action Description
Resource
Availability
Target
Completion
Date Status (Apr 2023)
8.I Identify Protection Strategies from
Significant Flood Events at Pope
Chaucer Bridge and Creek
S4 Complete Pope Chaucer Bridge and
Creek widening improvements
Applied for
grants and
secured partial
funding through
SFCJPA / partner
agencies
contributions
2025-2026 Analysing existing
conditions within Creek to
verify structural integrity
8.J Identify Protection Strategies from
Significant Flood Events
S4 Working with San Francisquito Creek
Joint Powers Authority (SFCJPA) partner
agencies to identify strategies to protect
the community from flows that exceed
the 70-year + storm event
Part of SFCJPA
operating
budget – Palo
Alto contributes
1/5 of operating
budget
On-going This is an on-going
coordination effort
with Stanford (the entity
not the University)
8.K Implement Foothills Fire
Management Plan
S5 Implement the Foothills Fire
Management Plan to balance
conservation of natural resources with
reduction of fire hazards especially in
open space areas
Partially funded On-going This is an on-going effort
8.L Minimize Fire Hazards Through
Zoning
S6 Minimize fire hazards by maintaining
low density zoning in wildland fire
hazard areas and enforcing building
codes for fire resistant construction
Staff available On-going This is an on-going effort
8.M Collaborate on Reducing Wildfire
Hazards
S7 Coordinate with other Fire agencies
through the Santa Clara County Fire
Chiefs Association and CalFire
Staff available On-going This is an on-going effort
8.N Implement CAL FIRE Public
Education Programs
S8 Implement CAL FIRE recommended
programs in educating and involving the
local community to diminish potential
loss caused by wildfire and identify
prevention measures to reduce those
risks
Fully Funded On-going This is an on-going effort
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Work Item
Key
Action Description
Resource
Availability
Target
Completion
Date Status (Apr 2023)
8.O Increase Palo Alto’s Tree Canopy
and establish a baseline and Key
Performance Indicator for carbon
storage of tree canopy
N1
N5
Develop programs to plant trees to
increase tree canopy – that will be
integrated with traditional tree planting
programs and Green Stormwater
Infrastructure programs – and provide
carbon sequestration, improve water
quality, capture stormwater when
feasible, and reduce the urban heat
island effect
Partially funded,
Staff available
as time permits
Establish
baseline by
2024
New canopy cover GIS
tool recently launched,
which will help establish a
baseline
8.P Ensure No Net Tree Canopy Loss
for all Projects
N2 Ensure no net tree canopy loss for all
Projects
Staff available On-going This is an on-going effort
to implement the updated
Tree Ordinance (effective
July 21, 2022)
8.Q Reduce Pesticide Use in Parks and
Open Space Preserves
N3 Continue to review the use of pesticides
in all parks and open space preserves to
identify opportunities to further reduce
and eliminate the use of pesticides
Staff available
as time permits
On-going This is an on-going effort
8.R Coordinate Implementation of City
Natural Environment-Related
Plans
N7 Coordinate implementation of the
Urban Forest Master Plan, Parks Master
Plan, Green Stormwater Infrastructure
Plan and other citywide planning efforts
through interdepartmental collaboration
Staff available
as time permits
On-going This is an on-going effort
8.S Support the Green Stormwater
Infrastructure (GSI) Plan and
incorporate GSI in Municipal
Projects
N10
N11
Establish policies and ordinance changes
as needed to support the Green
Stormwater Infrastructure Plan as
required due to Municipal Regional
Stormwater Permit
Staff available
as time permits;
Partially funded
through GSI
On-going This is an on-going effort
to achieve a 10% increase
in land area that uses
green stormwater
infrastructure to treat
urban water runoff
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Work Item
Key
Action Description
Resource
Availability
Target
Completion
Date Status (Apr 2023)
8.T Encourage Food Waste Prevention
and Require Food Recovery from
Commercial Food Generators
ZW1 Encourage food waste prevention and
require edible food recovery for human
consumption from commercial food
generators
Staff and County
funded program
staff available;
Funded for FY
2023, may need
funding for FY
2024
On-going Began 1/1/2022 per
SB1383 requirements
8.U Promote Residential Food Waste
Reduction
ZW2 Create a new campaign to promote
residential food waste reduction
Existing
outreach
funding
Launch by July
2023
Campaign strategy in
development, for launch
by July 2023
8.V Champion Waste Prevention,
Reduction, Reusables, and the
Sharing Economy
ZW3 Promote adoption of a “Zero Waste
lifestyle”, stimulate value of reuse,
repair
Existing
outreach
funding for
initial
promotion of a
“Zero Waste
lifestyle”; may
need future
funding for
stimulating
reuse, repair
On-going This is an on-going effort
8.W Provide Waste Prevention
Technical Assistance to the
Commercial Sector
ZW4 Develop an outreach tool and technical
assistance to the commercial sector
Existing
outreach
funding
Launch in 2023 Outreach tool and
technical assistance in
development, for launch
in 2023
8.X Prioritize Domestic Processing of
Recyclable Materials
ZW5 Prioritize domestic processing of
recyclable materials
Request for
additional
$500,000
On-going Domestic processing for
Mixed Paper and Mixed
Rigid Plastics began April
2022. Went to Council in
November 2022 to
request additional funding
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Work Item
Key
Action Description
Resource
Availability
Target
Completion
Date Status (Apr 2023)
8.Y Eliminate Single-Use Disposable
Containers
ZW6 Eliminate single-use disposable
containers by expanding the Disposable
Foodware Ordinance
Funded for
Ordinance
Requirement,
need additional
funding for
infrastructure
and
implementation
of future
requirements
Launch in 2024 Strategy and timeline in
development, for launch
in 2024
8.Z Expand the Deconstruction and
Construction Materials
Management Ordinance
ZW7 Expand the Deconstruction and
Construction Materials Management
Ordinance
Additional staff
and funding
needed
Launch by
January 2026
Expand types of covered
projects or increase
diversion requirements,
collaborate with other
Departments; consider
including in next Reach
Code Cycle to be
implemented in January
2026
8.aa Implement Reach Code standard
for Low Carbon Construction
Materials
ZW8 Implement Reach Code standard for low
carbon construction materials
Additional staff
and funding
needed
Launch January
1, 2023
Reach Code approved by
Council in October 2022.
Went into effect January
1, 2023.
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Appendix A: S/CAP Work Plan Timeline
2023 2024 2025
Jan/
Feb
Mar
/Apr
May/
June
July/
Aug
Sep
/Oct
Nov
/Dec
Jan/
Feb
Mar
/Apr
May/
June
July/
Aug
Sep
/Oct
Nov
/Dec
Jan/
Feb
Mar
/Apr
May/
June
July/
Aug
Sep
/Oct
Nov
/Dec
Finalize
S/CAP and
2021 GHG
Inventory
Complete 2022 GHG Inventory Complete 2023 GHG Inventory Start Work Plan Update
Staff and Consultant Work
Finalize
CEQA
Documents
S/CAP Implementation S/CAP Implementation S/CAP Implementation
P1.A Grid
Modernization
Study
Complete study, design, and bring
contractor on board Construction to increase capacity
P1.B Reliability
and Resiliency
Strategic Plan
Development
Develop strategic plan Priority 1.
Grid
Moderniz
ation P1.C Reliability
and Resiliency
Strategic Plan
Implementation
Implementation based on timelines in Reliability and Resiliency Strategic Plan
P2.1 A Promote
EV Adoption Ongoing Ongoing Ongoing
P2.1 B Emissions
Reduction
Advisory
Services
Get phone advisory services up and
running
Determine work plan for online services,
begin implementation
All
R
e
s
i
d
e
n
t
i
a
l
P2.1 C Small
electric vehicles
(e.g. e-bike)
program
Complete evaluation
Program implementation? To be
determined depending on results of
program evaluation and staffing and
funding analysis.
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e
d
u
c
t
i
o
n
Pro
g
r
a
m
s
Sin
g
l
e
-Fam
i
l
y
Re
s
i
d
en
t
i
a
l
P2.1 D Heat
Pump Water
Heater
Work to achieve program goals
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Electrification
Pilot Program
P2.1 E Full-Scale
Heat Pump
Water Heater
Electrification
Program
Do program
evaluation,
assuming
advanced pilot
program goals are
on track to be met.
Transition to full scale program Ongoing program operation
P2.1 F
Electrification
data collection
program
Get program up and running by December
2023 Ongoing data collection Ongoing data collection
P2.1 G Pilot
Programs for
Modernized
Neighborhoods
Program design and approvals Assuming grid modernization has made
enough progress, launch program(s)
P2.1 H Single-
family
Electrification
Rebates
Cost-effectiveness studies to determine
rebate amounts, software configuration,
launch preparation
Rebate
launch
P2.1 I Affordable
Housing EV
Charging and
Electrification
Pilot
Complete pilot design, hire consultant Implement pilot project
P2.1 J Multi-
Family EV
Charger
Program
Ongoing program activity with the goal of
providing EV charging in buildings
representing 10% of multi-family units in
Palo Alto by 2025
Complete evaluation of potentially
scalable strategies for multi-family and
affordable housing EV charging and/or
building electrification, including
evaluating the role of publicly-owned EV
charging+L20:U20
Ongoing program activity with the goal of
providing EV charging in buildings
representing 10% of multi-family units in
Palo Alto by 2025
Mu
l
t
i
-
F
a
m
i
l
y
R
e
s
i
d
e
n
t
i
a
l
P2.1 K Multi-
Family and
Affordable
Housing EV
Charger Access
Strategy
Complete evaluation of potentially
scalable strategies for multi-family and
affordable housing EV charging and/or
building electrification, including
evaluating the role of publicly-owned EV
charging
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P2.2 A Rooftop
Packaged
Heating,
Ventilation, and
Air Conditioning
(HVAC) Pilot
Achieve installations at four to five sites
through existing rooftop HVAC pilot
program
P2.2 B Rooftop
Packaged HVAC
Advanced Pilot
Design
Develop proposal for an advanced pilot
program and/or mandate and present to
Council
Launch program and/or mandate if
approved
Ongoing program management, if
program is approved
P2.2 C Major
Employer
Partnerships
Develop custom emissions reduction and
sustainability partnership with at least
one major employer. Develop
electrification pilots with City facilities and
PAUSD
Develop additional employer partnerships Develop additional employer partnerships
P2.2 D
Commuter
Transportation
& EV Charging
Strategy
Complete evaluation and develop
recommendations for future programs
Implement any adopted commute or EV
charging programs
2.2.
Non-
Resid
entia
l
Emis
sions
Redu
ction
Progr
ams
P2.2 E Regional
and State
Partnerships
Develop work plan and identify promising
partnerships
Continued participation in chosen
partnerships, exploration of new
partnerships
Continued participation in chosen
partnerships, exploration of new
partnerships
P2.3 A
Transportation
and Land Use
Policies and
Programs
Continue ongoing transportation programs, traffic management, and partnerships and land use regulatory activity
P2.3 B Housing
Element
Adoption
Adopt plan
P2.3 C Housing
Element
Implementation
Implementation of Housing Element programs as outlined in Housing Element and as funded via grants and annual
budget requests
2.3
City
wide
Mobi
lity
P2.3 D Micro-
mobility
evaluations
Evaluate opportunities to pilot bike/scooter share and neighborhood mobility hub pilots to provide last-mile connections as staff
time becomes available
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P2.3 E On-
demand transit
pilot
Launch
Pilot Pilot program in operation
P2.3 F Update
Bicycle Plan Hire consultant, kick off study Study completion and plan adoption Plan implementation
P2.3 G Vision
Zero Program Timeline to be determined, depends on staffing and funding availability
P2.3 H Evaluate
expansion of
employer
transportation
demand
management
(TDM)
Evaluate possible alternatives to expand TDM ordinance requirements and/or voluntary TDM services (e.g. expanding the
Transportation Management Association) as staff time becomes available
P2.3 I Proposals
for Managing
Downtown
Parking
Availability
Bring
proposals to
Council
P2.3 J
Implement
Efficient
Downtown
Parking
Management
Hire parking
management
consultant
Ongoing program management
P2.3 K Traffic
Signal
Improvements
& Transit Signal
Priority
Maintain and modernize current traffic signals and central management systems. Use technology to improve traffic operations and
safety. Work with transit providers on transit signal priority where feasible.
P2.4 A Facility
Electrification
Assessment Plan
Finalizing Facility
Electrification Assessment
Plan
2.4
City
Facili
ties
and
Fleet
P2.4 B Facility
Electrification On-going On-going
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Assessment
Implementation
P2.4 C Electrify
Equipment at
City Facilities
during Routine
Replacement
On-going On-going On-going
P2.4 D Electrify
City Vehicle
Fleet
On-going On-going On-going
P2.4 E Build City
Fleet and
Employee
Charging
Infrastructure
Building City Fleet Infrastructure is on-
going, assessing Employee Charging
Infrastructure
On-going On-going
P2.4 F Publicly-
owned charger
strategic plan
Explore Public Charging Pilot Develop publicly-owned charger strategic
plan
2.5
EV
Strat
egic
Plan
P2.5A Electric
Vehicle Strategic
Plan
Development
Develop EV Strategic Plan to coordinate
efforts on various EV work items
P3.1 A Build
awareness of
the need for
climate action
Ongoing engagement, including Sustainability Newsletter, Climate Action Blog, Social Media, Sustainability Hub, Electrification
Portal, Website Updates, Utility Bill Inserts, Workshops, webinars, and departmental collaboration
P3.1 B Drive
community
actions to
achieve S/CAP
goals
On-going marketing On-going Marketing On-going Marketing
Priority 3:
Build
Confidenc
e and
Awarenes
s
P3.1 C S/CAP
Survey Program Develop Surveys Conduct Surveys Conduct Surveys
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P3.1 D S/CAP
Reporting
Earth Day
Report
CDP
Rep
ort
Earth Day
Report
CDP
Rep
ort
Earth Day
Report
CDP
Rep
ort
P3.1 E Build
confidence in
the City’s
electric
infrastructure
Ongoing engagement, including Sustainability Newsletter, Climate Action Blog, Social Media, Sustainability Hub, Electrification
Portal, Website Updates, Utility Bill Inserts, Workshops, webinars, and departmental collaboration
P4 A Multi-
family and
Commercial End
Use Study
Complete RFP for consultant to do end
use survey.
Complete multi-family and non-
residential end use survey to identify
promising emissions reduction
opportunities, develop recommendations
based on survey
P4 B Idea
generation and
additional
research
Seek ideas for emissions reductions from
community, experts.
Monitor emerging technologies.
Study those ideas and technologies with
highest potential
Priority 4.
Studies
and
Analysis
P4 C Additional
Emissions
Reduction
Project
Prioritization
Evaluate new programs based on findings
of studies
P5 A Resource
Needs
Assessment
Summarize resource needs for a selection
of pilots, advanced pilots,
full-scale programs + commercial end-use
research program
P5 B. Funding
Alternatives
Study funding options available to fund
programs evaluated in work item 4.B for
most promising electrification programs,
present findings to Council.
Continuing Council discussions of
potential funding options
Implement any follow-up actions from
prior year studies
P5 C.
Affordability
Study
Complete affordability study to inform
funding needs and program design
Priority 5.
Funding
Needs
and
Funding
Sources
P5 D. Gas Utility
Financial and
Operating Plan
Develop financial and operating plan for
contracting gas utility
Implement any follow-up actions from
prior year studies
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8.A Maximize
Water
Conservation
and Efficiency
Maximize cost-effective water conservation and efficiency through incentives, outreach/education, and other programs
8.B Design and
build a salt
removal facility
for the Regional
Water Quality
Control Plant
Design is 90% complete. Bring to Council
for approval of construction of the facility
8.C Develop a
“One Water”
Portfolio for
Palo Alto
Study underway by staff
and consultant
Implementation of a “One Water” Portfolio that includes stormwater, recycled water, on-site reuse,
conservation, and groundwater
Water
8.D Develop a
tool for dynamic
water planning
in the future
Included as deliverable
under One Water
consulting contract
8.E Complete
the Sea Level
Rise
Vulnerability
Assessment
Com
plet
ed
8.F Develop a
Sea Level Rise
Adaptation Plan
Develop a Sea Level Rise (SLR)
Adaptation Plan
CEQA Review of Sea Level
Rise Adaptation Plan
Bring SLR
Adaptation
Plan to
Council for
Approval
Implement Sea Level Rise
Adaptation Plan
8.G Begin design
process for a
levee projects
Determine levee alignment for a levee project that protects the Palo Alto community
from sea level rise, and incorporates other related priorities including habitat
restoration, recreation, transportation, City facilities, and community properties
Begin design process
Su
s
t
a
i
n
a
b
i
l
i
t
y
Climate
Adaptatio
n and Sea
Level Rise
8.H Identify
Protection
Strategies from
Significant Flood
Events at Newell
Road Bridge
Preparing construction documents and
initiating right-of-way acquisition
Construction of Newell Road Bridge
improvements
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8.I Identify
Protection
Strategies from
Significant Flood
Events at Pope
Chaucer Bridge
and Creek
Analyzing existing conditions within Creek
to verify structural integrity Prepare construction documents Construction of Pope Chaucer Bridge and
Creek widening improvement
8.J Identify
Protection
Strategies from
Significant Flood
Events
On-going work with San Francisquito Creek Joint Powers Authority (SFCJPA) partner agencies to identify strategies to protect the
community from flows that exceed the 70-year + storm event
8.K Implement
Foothills Fire
Management
Plan
On-going implementation of the Foothills Fire Management Plan to balance conservation of natural resources with reduction of fire
hazards especially in open space areas
8.L Minimize
Fire Hazards
Through Zoning
Ongoing work to minimize fire hazards by maintaining low density zoning in wildland fire hazard areas and enforcing building codes
for fire resistant construction
8.M Collaborate
on Reducing
Wildfire Hazards
On-going coordination with other Fire agencies through the Santa Clara County Fire Chiefs Association and CalFire
8.N Implement
CAL FIRE Public
Education
Programs
On-going implementation of CAL FIRE recommended programs in educating and involving the local community to diminish potential
loss caused by wildfire and identify prevention measures to reduce those risks
8.O Increase
Palo Alto’s Tree
Canopy and
establish a
baseline and Key
Performance
Indicator for
carbon storage
of tree canopy
Develop programs to plant trees to
increase tree canopy – that will be
integrated with traditional tree planting
programs and Green Stormwater
Infrastructure programs – and provide
carbon sequestration, improve water
quality, capture stormwater when
feasible, and reduce the urban heat island
effect
Establish baseline and Key Performance
Indicator for carbon storage of tree
canopy; implement programs to increase
tree canopy
On-going implementation of programs to
increase tree canopyNatural
Environm
ent
8.P Ensure No
Net Tree Canopy On-going effort to implement the updated Tree Ordinance (effective July 21, 2022)
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Loss for all
Projects
8.Q Reduce
Pesticide Use in
Parks and Open
Space Preserves
On-going effort to review the use of pesticides in all parks and open space preserves to identify opportunities to further reduce and
eliminate the use of pesticides
8.R Coordinate
Implementation
of City Natural
Environment-
Related Plans
On-going effort to coordinate implementation of the Urban Forest Master Plan, Parks Master Plan, Green Stormwater Infrastructure
Plan and other citywide planning efforts through interdepartmental collaboration
8.S Support the
Green
Stormwater
Infrastructure
(GSI) Plan and
incorporate GSI
in Municipal
Projects
On-going effort to achieve a 10% increase in land area that uses green stormwater infrastructure to treat urban water runoff
8.T Encourage
Food Waste
Prevention and
Require Food
Recovery from
Commercial
Food Generators
On-going effort to encourage food waste prevention and require edible food recovery for human consumption from commercial
food generators. Began 1/1/2022 per SB1383 requirements. May need funding for FY 2024
8.U Promote
Residential Food
Waste
Reduction
Campaign strategy in
development Implement campaign to promote residential food waste reductionZero
Waste
8.V Champion
Waste
Prevention,
Reduction,
Reusables, and
the Sharing
Economy
On-going effort to promote adoption of a
“Zero Waste lifestyle” and stimulate value
of reuse, repair.
On-going effort to promote adoption of a “Zero Waste lifestyle” and stimulate value of
reuse, repair. May need funding for stimulating reuse, repair outreach
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8.W Provide
Waste
Prevention
Technical
Assistance to
the Commercial
Sector
Develop an outreach tool and technical
assistance to the commercial sector Implement outreach tool and technical assistance to the commercial sector
8.X Prioritize
Domestic
Processing of
Recyclable
Materials
On-going effort to prioritize domestic processing of recyclable materials. Domestic processing for Mixed Paper and Mixed Rigid
Plastics began April 2022.
8.Y Eliminate
Single-Use
Disposable
Containers
Developing strategy and timeline to eliminate single-use disposable containers by
expanding the Disposable Foodware Ordinance
Implement the expanded Disposable
Foodware Ordinance
8.Z Expand the
Deconstruction
and
Construction
Materials
Management
Ordinance
Determine the most effective way of
expanding the Deconstruction and
Construction Materials Management
Ordinance
Expand types of covered projects or increase diversion requirements, collaborate with
other Departments; consider including in next Reach Code Cycle to be implemented in
January 2026
8.aa Implement
Reach Code
standard for
Low Carbon
Construction
Materials
Implement Reach Code standard for low carbon construction materials (pending Council approval in October 2022)
S/CAP Implementation
Resources, Updates,
Outreach, and Webinars
S/CAP Implementation Resources,
Updates, Outreach, and Webinars
S/CAP Implementation Resources,
Updates, Outreach, and Webinars
COMMUNITY
ENGAGEMENT
Cross-promotional efforts
with external partners and
COPA departments (e.g.
Library)
Cross-promotional efforts with external
partners and
COPA departments (e.g. Library)
Cross-promotional efforts with external
partners and
COPA departments (e.g. Library)
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COUNCIL AND
COMMISSION
MEETINGS
Council
certification
of CEQA and
adoption of
S/CAP,
acceptance
of Three-
Year
Workplan,
Council
Meeting on
Earth Day
Report
Co
u
n
c
i
l
S
t
u
d
y
S
e
s
s
i
o
n
o
n
S
/
C
A
P
Pro
g
r
e
s
s
R
e
p
o
r
t
Council
Approval of
Sea Level
Rise
Adaptation
Plan
Co
u
n
c
i
l
S
t
u
d
y
S
e
s
s
i
o
n
o
n
S
/
C
A
P
Pro
g
r
e
s
s
R
e
p
o
r
t
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Appendix B: How Climate Actions were Prioritized
The chart below gives an overview of how various emissions reduction activities were prioritized based on various
factors. Activities were divided up into four priority tiers:
A. Prioritize for immediate action
B. Prioritize in areas where grid modernization has been completed
C. Requires additional study or stakeholder engagement to determine priority
D. Prioritize only if resources are available
A fuller blue bubble denotes a program that ranks more favorably when considering S/CAP implementation efforts. For
example, a program with a full blue bubble in the “Total emissions reduction potential” column has more emissions
reduction potential than one with a partially filled bubble. See next page for more detail.
Activity
Cost effective
(per metric
ton basis)
Total emissions
reduction
potential
Minimizes
Electric Utility
Impacts
Policy leverage
– City ability to
impact
Funding
Source
Availability
Priority
Tier
Mobility – Bicycling /
Alternative Modes C
Visitor EV adoption D
New buildings/ADU A
Single-Family
Water Heating A
Space Heating (w/ A/C) B
Space Heating (w/o A/C)B
Other Building Equipment B
Electric Vehicles A
Multi-Family
Building retrofits (1)C
Electric Vehicles A
Non-Residential
Rooftop HVAC A
Other building equipment (2)C
Fleet Electrification D
Commuter EVs
Small/Med Business (1)B
Major Facilities (1)B
1. Tentative ranking based on some preliminary ideas that need more exploration, which will take staff time
2. Tentative conclusion based on initial impact analysis, needs more study
Insights:
•Mobility and EVs are the most cost-effective actions and the City has significant policy leverage in the Mobility area.
•The City has less policy leverage to drive EV adoption, but there are a few areas where it has potential policy
leverage, such as increasing EV charger access.
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•Electrification of single-family building equipment is worth prioritizing under most criteria. Heat pump water heaters
can be promoted citywide. Other equipment should be promoted primarily in neighborhoods with upgraded utility
infrastructure.
•Commercial building rooftop packaged HVAC units are worth prioritizing and may have fewer electric utility impacts
than other electrification measures.
•More study is needed to identify other viable building electrification actions in the commercial sector.
•More study is also needed on multi-family building electrification.
How to Ratings were Determined:
- Rating, high (filled bubble) to low (empty bubble)
Cost effective (MT
CO2-e)3
Total emissions
reduction
potential**
Minimizes Electric
Utility Impacts
Policy leverage –
City ability to
impact
Funding Source
Availability*
Deep cost savings >25,000 MT/yr
No permit review,
does not impact
utilities
City policy has high
impact
Resources / staffing
available in existing
budget, no added
funds needed
Modest cost savings 15,000 – 25,000
MT/yr
Permit review, but
rare utility upgrades
Dedicated funding
source under City
control, sufficient
for pilot programs
Break even 10,000 – 15,000
MT/yr
Permit review,
causes some utility
upgrades
Lower cost
($0/MT -$200/MT)
5,000 – 10,000
MT/yr
Frequent utility
impacts, must
develop programs
to limit impact.
No dedicated
funding source for
S/CAP pilots, grants
may be available
High cost
(>$200/MT)Minimal potential
Utility upgrades
often needed,
cannot be avoided
Little or no ability to
impact
No dedicated
funding source for
S/CAP pilots
* It may not be possible to use the same funding source to achieve all goals using the same funding source. For example,
Low Carbon Fuel Standard revenue might be available to fund residential EV programs or workplace charging programs,
but not both.
** This represents the full potential contribution of this type of activity to achieving the 80x30 goals, not just the
emissions reductions associated with the 2022-2024 work plan.
3 Metric tons (MT) of carbon-dioxide equivalent (CO2-e), a common measure of greenhouse gas emissions quantity.
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Climate Actions by Individual Prioritization Criteria
Key Actions by Cost per Metric Ton of Carbon Dioxide Equivalent Reduced4
4 Cost per metric ton shown as a range from a low-cost scenario to a high-cost scenario
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Total Citywide Emissions by Source (MT CO2-e)5
5 Metric tons (MT) of carbon-dioxide equivalent (CO2-e), a common measure of greenhouse gas emissions quantity.
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Appendix C: Policy Guidelines for Electric Vehicle Strategic Plan Development
Work item 2.5A calls for the development of an electric vehicles strategic plan, which would guide implementation of
several work items. The strategic plan would also relate to a reliability and resiliency strategic plan to be developed in
parallel.
Objectives
1. Promote residential, workplace, and visitor electric vehicle adoption
2. Lower the cost and carbon emissions of EV charging as much as possible
3. Decrease the impact of electric vehicle charging on the local electric distribution system
4. Explore how electric vehicles could contribute to the efficient and reliable operation of the statewide and local
electric system
5. Explore the use of electric vehicles for increased home resiliency
6. Evaluate the reliability and resiliency needs of an electrified transportation system and the City’s role in fulfilling
those needs
Concepts to explore adding to Strategic Plan
•Scalable programs to provide charging for multi-family and income-qualified households
•Scalable programs to provide workplace and visitor charging
•The role of publicly-owned charging in providing multi-family, income-qualified, workplace, and visitor charging
•How much high-speed charging is needed in Palo Alto and where it should be located
•Business models to make commuter and visitor mid-day low-cost, low-carbon charging more attractive than
overnight home charging
•New technologies such as vehicle to load, vehicle to home, and vehicle to grid and their roles in providing home
resiliency and improving the efficiency and reliability of the statewide and local electric systems
•Lower wattage chargers and charging behaviors
•Time of day pricing and other ways to encourage off-peak and mid-day charging
•The role of smaller electric vehicles such as e-bikes and e-scooters in transportation emissions reduction
•The role of regional partnerships in driving electric vehicle adoption for commuters and visitors
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Appendix D: Policy Guidelines for Reliability and Resiliency Strategic Plan Development
Work item 1B calls for the development of a reliability and resiliency strategic plan, which would guide implementation
of reliability and resiliency work items. This would be coordinated with development of an electric vehicle strategic plan.
Objectives
1. Maintain and improve electric system reliability
2. Improve utility outage communication
3. Prepare the electric system for increased penetration of solar, batteries, electric vehicles and chargers,
electrified building equipment, and similar new technologies
4. Optimize the use of local grid capacity in a cost-effective way
5. Promote technologies and behaviors that contribute to the efficient and reliable operation of the statewide and
local electric system
Concepts to explore adding to Strategic Plan
•Addressing utility workforce issues
•Replacing aging infrastructure as part of a grid modernization plan
•Installing additional switching and other solutions to improve reliability and recovery from outages as part of a
grid modernization effort
•Improving utility outage management system and communications protocols
•Technologies like vehicle to load or vehicle to home for home resiliency
•Equity in resiliency – how to provide resiliency to income-qualified residents
•Neighborhood-level resiliency solutions such as microgrids and local utility-scale battery storage
•Community emergency center resiliency
•Mobile battery strategies, such as large electric vehicles that could double as emergency resiliency solutions
•Promoting low-wattage electrification solutions to reduce grid impacts of vehicle and building electrification
•Time of day pricing and other ways to encourage shifting electric use to times of day with lower emissions, lower
utility cost, and lower local grid impact
•Increasing transformer capacity to accommodate higher loads
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Appendix E: Index of Key Actions and the Work Items that Implement them
Draft S/CAP Three-Year Work Plan – Updated Fall 2022 Page 41 of 42
Key Action Title
Work
Item(s)
C1. Provide Building and
Transportation Emissions
Consultations for Residents
P2.1B
C2. Develop Major Employer Custom
Emissions Reduction Plans
P2.2C
C3. Study Additional Key Actions
Needed for 80 x 30
P4.A,
P4.B,
P4.C
C4. Study Staffing and Budgetary
Needs
P5.B
C5. Study Funding Alternatives P5.C
C6. Conduct an Electrification
Affordability Study
P5.D
C7. Study Carbon Neutrality Options
C8. Accelerate GHG reductions
through Mandates or Price Signals
P2.1K,
P2.2A,
P2.2B,
P2.2D
E1. Reduce GHG emissions in Single-
Family Appliances and Equipment
P2.1D,
P2.1E,
P2.1F,
P2.1G,
P2.1H
E2. Reduce GHG emissions in Non-
Residential Equipment
P2.2A,
P2.2B,
P2.2C
E3. Reduce Gas Use in Major Facilities P2.2C
E4. Reduce Natural Gas Use at City
facilities
P2.4A,
P2.4B,
P2.4C
E5. Support Income-Qualified
Residents and Vulnerable
Businesses with Electrification
P5.D,
P2.1D,
P2.1I
E6. Develop Electric Rate Options P1.D
Key Action Title
Work
Item(s)
E7. Use Codes and Ordinances to
Facilitate Electrification
P2.2A,
P2.2B
E8. Electric Grid Modernization Plan P1.A,
P1.B,
P1.C
E9. Additional Electrification
Opportunities in Commercial and
Multi-Family Buildings
P4.B
EV1. Raise Awareness of Alternative
Transportation Modes,
Micromobility, and EVs.
P2.1A,
P2.2D
EV2. Collaborate to Promote EV
Adoption Regionally
P2.2E
EV3. Promote EV Adoption and
Alternative Commutes for
Commuters
P2.2C,
P2.2D
EV4. Facilitate the Adoption of EVs, E-
bikes and other Light EVs.
P2.1A,
P2.1C,
P2.2D
EV5. Promote Alternative
Transportation Modes and
Infrastructure To Support Adoption
P2.1I,
P2.1J
EV6. Expand EV Charging Access for
Multi-Family Residents
P2.1J,
P2.1K
P2.4F
EV7. Improve EV Charging Access for
Income-Qualified residents
P2.1I,
P2.1J,
P2.1K
P2.4F
EV8. Ensure EV Charging Capacity
Supports EV Growth
P2.1K,
P2.2D,
P2.4C
P2.4F
Key Action Title
Work
Item(s)
EV9. Electrify Municipal Vehicle Fleet P2.4D,
P2.4E
EV10. Support Policy to Electrify Fleet
Vehicles
P2.2E
M1. Increase Active Transportation
and Transit for Local Work Trips
P2.3A
M2. Expand Availability of Transit and
Shared Mobility Services
P2.3D,
P2.3E
M3. Implement the Bicycle and
Pedestrian Transportation Plan
P2.3F,
P2.3G
M4. Improve Transportation Demand
Management for Employees and
Residents
P2.3H
M5. Implement Smart Parking
Infrastructure in Public Garages
and Parking Fees in Business
Districts
P5.C,
P2.3I,
P2.3J
M6. Study Land Use and
Transportation
M7. Continue to Implement the City’s
Housing Element
P2.3B,
P2.3C
M8. Improve Transit and Traffic Flow P2.3K
M9. Create Housing Density and Land
Use Mix that Supports Transit and
Non-SOV Transportation
P2.3B,
P2.3C
M10. Encourage Reductions in GHGs
and VMT
P4.A,
P4.C
W1. Maximize Water Conservation
and Efficiency
8.A
W2. Build a Salt Removal Facility 8.B
W3. Implement One Water Portfolio
Projects
8.C
W4. Develop a Dynamic Water
Planning Tool
8.D
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Draft S/CAP Three-Year Work Plan – Updated Q1 2023 Page 42 of 42
Key Action Title
Work
Item(s)
S1. Complete a Sea Level Rise
Vulnerability Assessment
8.E
S2. Implement a Sea Level Rise
Adaptation Plan
8.F
S3. Begin Design Process for a Levee
Project
8.G
S4. Identify Protection Strategies from
Significant Flood Events
8.H, 8.I,
8.J
S5. Implement the Foothills Fire
Management Plan
8.K
S6. Minimize Fire Hazards Through
Zoning
8.L
S7. Collaborate on Reducing Wildfire
Hazards
8.M
S8. Implement CAL FIRE Public
Education Programs
8.N
N1. Increase Palo Alto's Tree Canopy 8.O
N2. Ensure No Net Tree Canopy Loss
for all Projects
8.P
N3. Reduce Pesticide Use in Parks and
Open Space Preserves
8.Q
N4. Enhance Pollinator Habitat
N5. Establish a Carbon Storage of Tree
Canopy Baseline and KPI
8.O
N6. Maximize Biodiversity and Soil
Health
N7. Coordinate Implementation of
City Natural Environment-Related
Plans
8.R
N8. Expand Water Efficient Landscape
Ordinance (WELO) Requirements
N9. Phase out Gas-Powered Lawn and
Garden Equipment
Key Action Title
Work
Item(s)
N10. Support the Green Stormwater
Infrastructure Plan
8.S
N11. Incorporate Green Stormwater
Infrastructure in Municipal Projects
8.S
ZW1. Encourage Food Waste
Prevention and Require Food
Recovery from Commercial Food
Generators
8.T
ZW2. Promote Residential Food Waste
Reduction
8.U
ZW3. Champion Waste Prevention,
Reduction, Reusables, and the
Sharing Economy
8.V
ZW4. Provide Waste Prevention
Technical Assistance to the
Commercial Sector
8.W
ZW5. Prioritize Domestic Processing of
Recyclable Materials
8.X
ZW6. Eliminate Single-Use Disposable
Containers
8.Y
ZW7. Expand the Deconstruction and
Construction Materials
Management Ordinance
8.Z
ZW8. Implement Reach Code standard
for Low Carbon Construction
Materials
8.aa
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Attachment E: Palo Alto’s 2021 Greenhouse Gas Emissions Inventory
1.a. Overview of Methodology for Quantifying Greenhouse Gas Emissions
Cities represent the single greatest opportunity for tackling climate change, as they are
responsible for 75 percent of global energy-related carbon dioxide emissions, with
transportation and buildings among the largest contributors1. The first step for cities to realize
their potential is to identify and measure the sources of their emissions. Best practices for
identifying these sources and quantifying emissions is to utilize a standardized GHG inventory.
There are two types of Greenhouse Gas (GHG) emissions inventories:
1.Generation-based GHG inventory – This measurement method helps a community
understand its level of emissions based on community energy use. It includes 1) direct
consumption of energy, 2) consumption of energy via the electrical grid, and 3)
emissions from the treatment/decomposition of waste. This is the industry-accepted
methodology for quantifying community GHG emissions, with emissions reported by
emission source category2.
2.Consumption-based GHG inventory – This measurement method helps a community
understand its level of emissions based on consumption. It offers an alternative, more
holistic, approach for quantifying emissions within a community, quantifying
consumption of goods and services (including food, clothing, electronic equipment, etc.)
by residents of a city, with emissions reported by consumption category.
Staff did not complete a consumption based GHG inventory as there is no State guidance yet,
though staff believes this inventory type is valuable. The California Air Resources Board (CARB)
has been tasked with developing an implementation framework and accounting to track
consumption-based emissions over time.3 In particular, this framework needs to address how
to account for the embodied emissions in the food, goods, and services the community
purchases not covered by generation-based GHG inventories.
In 2014, World Resources Institute, C40 Cities Climate Leadership Group (C40) and ICLEI – Local
Governments for Sustainability (ICLEI)4 partnered to create a global standard protocol for
generation-based GHG inventories. The official GHG Protocol standard for Cities5 provides a
1 See UN Environment Programme, ”Cities and Climate Change,” https://www.unep.org/explore-topics/resource-
efficiency/what-we-do/cities/cities-and-climate-change
2 There are two reporting frameworks commonly used by cities: the U.S. Community Protocol and the Global
Protocol for Communities (GPC). Palo Alto uses the GPC framework.
3 Executive Department State of California. (2019). Executive Order B-55-18 to Achieve Carbon Neutrality.
https://www.ca.gov/archive/gov39/wp-content/uploads/2018/09/9.10.18-Executive-Order.pdf.
4 Formerly the International Council for Local Environmental Initiatives, renamed in 2003 to ICLEI – Local
Governments for Sustainability.
5 The GPC is the official protocol specified by the Global Covenant of Mayors and defines what emissions must be
reported and how.
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robust framework for accounting and reporting city-wide GHG emissions for a generation-based
inventory. The GPC Protocol is the official protocol specified by the Global Covenant of Mayors
and defines what emissions must be reported and how. In addition, this inventory draws on
methods from the U.S. Community Protocol6, which provides more detailed methodology
specific to the U.S. AECOM utilized the GPC Protocol when developing our 2021 GHG inventory.
It seeks to:
•Help cities develop a comprehensive and robust GHG inventory to support climate
action planning
•Help cities establish a base year emissions inventory, set reduction targets, and track
their performance
•Ensure consistent and transparent measurement and reporting of GHG emissions
between cities, following internationally recognized GHG accounting and reporting
principles
•Enable city inventories to be aggregated at subnational and national levels
•Demonstrate the important role that cities play in tackling climate change, and facilitate
insight through benchmarking – and aggregation – of comparable data
Palo Alto’s first generation-based inventory was completed for 2005 and then extrapolated for
1990 (the baseline year). Beginning in 2010, new community GHG inventories were completed
annually, enabling Palo Alto to track progress over time.
The 2021 Palo Alto GHG inventory, completed by AECOM, uses the approach and methods
provided by the GPC. Inventory calculations were performed using the ClearPath7 tool, a
software platform designed for creating generation-based GHG inventories. The City’s GHG
inventory conforms to the GPC Basic protocol for a generation-based inventory.
The GPC Basic protocol describes three emissions scopes for community emissions:
•Scope 1: GHG emissions from sources located within the city boundary, such as
stationary fuel consumption.
•Scope 2: GHG emissions occurring because of the use of grid-supplied electricity, heat,
steam, and/or cooling within the city boundary
•Scope 3: All other GHG emissions that occur outside the city boundary as a result of
activities taking place within the city boundary
This inventory follows the city-inducted framework in the GPC protocol, which totals GHG
emissions attributable to activities taking place within the geographic boundary of the city8.
Under the Basic reporting level as defined by the GPC protocol, the inventory requirements
6 U.S. Community Protocol; https://icleiusa.org/us-community-protocol/
7 ClearPath tool; https://icleiusa.org/clearpath/
8 GPC Protocol; https://ghgprotocol.org/sites/default/files/standards/GHGP_GPC_0.pdf
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cover scope 1 and scope 2 emissions from stationary energy and transportation, as well as all
emissions resulting from waste generating within the city boundary.
1.b. Palo Alto’s 2021 GHG Emissions
In 2021, Palo Alto emitted an estimated 359,312 metric tons (MT) of carbon dioxide equivalent
(CO2e) from the residential, commercial, industrial, transportation, waste, water, and municipal
sectors.9 In comparison to the 1990 base year emissions (which were about 780,000 metric
tons), that is a 53.9 percent decrease in total community emissions, despite a population
increase of 19.5 percent during that same time period. This equates to 5.4 metric tons of
carbon dioxide equivalent (MT CO2e) per Palo Alto resident in 2021 compared to 14 MT CO2e
per Palo Alto resident in 1990. The California Air Resources Board’s 2017 Scoping Plan Update
recommends a goal for local governments of 6 MT C02e per capita by 2030.
Of that 53.9 percent reduction to-date, 44.2 percent came from achieving carbon neutrality for
the City’s electricity portfolio, 28.6 percent from declines in transportation emissions, 13.9
percent from reduction in natural gas (methane10) consumption, 11.5 percent from declines in
solid waste emissions, and 1.7 percent from declines in wastewater-related emissions. In
comparison to 2020, that is a 6.7 percent decrease in total community emissions.
For the emissions sources in 2021, 51.7 percent are from on-road transportation, 37.8 percent
are from natural gas (methane) use, and the remainder are from other sources. A comparison
of 1990, 2019, 2020, and 2021 GHG emissions is shown in
9 Carbon dioxide equivalent is a unit of measure that normalizes the varying climate warming potencies of all six
GHG emissions, which are carbon dioxide (CO2), methane (CH4), nitrous oxide (N2O), hydrofluorocarbons (HFCs),
perfluorocarbons (PFCs), and sulfur hexafluoride (SF6). For example, one metric ton of nitrous oxide is 210 metric
tons of CO2e.
10 Methane, which is the primary component of natural gas, is a very potent greenhouse gas, with a global
warming potential that is 25 times higher than CO2 over a 100-year period.
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Figure 1: 1990 vs 2021 GHG Emissions by Sector
and Table 1. The full comparison between the inventories can be found in Attachment B 1990
vs. 2021 Greenhouse Gas Emissions by Sector and Subsector. Additional existing emissions
sources that were missing from the 1990 GHG inventory were included in the 2021 GHG
inventory to comply with the GPC Basic protocol (Airport Emissions, Off-road Vehicles, Caltrain
Commuter Rail, Composting, and Palo Alto Landfill Gas Flaring).
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Figure 1: 1990 vs 2021 GHG Emissions by Sector
Table 1: 1990 vs 2021 GHG Emissions by Sector
Sector 1990 GHG
emissions
(MT CO2e)
2019 GHG
emissions
(MT CO2e)
2020 GHG
emissions
(MT CO2e)
2021 GHG
emissions
(MT CO2e)
Percent
Change in
2021
from 1990
On-Road Transportation 331,840 293,413 217,279 185,925 -44.0%
Additional Transportation Sources 21,668 21,244 25,478 n/a
Natural Gas (Methane) Use 194,000 153,509 134,365 135,697 -30.1%
Natural Gas (Methane) Fugitive
Emissions
4,718 5,009 4,384 4,427 -6.2%
Wastewater-Related Emissions 8,504 2,197 1,388 1,262 -85.2%
Solid Waste 55,057 6,531 6,660 6,522 -88.2%
Brown Power Supply (Electricity) 186,000 - 100%
Total GHG Emissions (MT CO2e) 780,119 482,237 385,320 359,312 -53.9%
As shown in Figure 2, the two largest categories of emissions are transportation and mobile
sources (including on-road transportation, airport emissions, off-road vehicles, and Caltrain
commuter rail) and natural gas (methane) use (including residential, commercial, and
industrial).
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Figure 2: 2021 GHG Emissions by Sector
Transportation and mobile sources include emissions from private, commercial, and fleet
vehicles driven within the City’s geographical boundaries, as well as the emissions from public
transit vehicles and the City-owned fleet. Off-road vehicles include airport ground support,
construction and mining, industrial, light commercial, portable equipment, and transportation
refrigeration.
Natural gas (methane) use includes emissions that result from natural gas (methane)
consumption in both private and public sector buildings and facilities, and residential,
commercial, and industrial sources. Fugitive emissions related to natural gas (methane)
consumption are calculated separately and are discussed in Section 1.d. The City’s electricity
supply has been carbon neutral since 2013, when Council approved a Carbon Neutral Electric
Resource Plan, committing Palo Alto to pursuing only carbon-neutral electric resources and
effectively eliminating all GHG emissions from the City's electric portfolio.
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1.c. Transportation and Mobile Sources
In 2021, transportation and mobile sources accounted for 58.8 percent of total GHG emissions
in Palo Alto, a 11.4 percent decrease from 2020. As shown in Table 2, transportation and
mobile sources consist of:
•On-Road Transportation – This includes all daily vehicular trips made entirely within the
Palo Alto city limits, one-half of daily vehicular trips with an origin within Palo Alto city
limits and a destination outside of Palo Alto city limits (this assumes that Palo Alto
shares half the responsibility for trips traveling from other jurisdictions), and one-half of
daily vehicular trips with an origin outside Palo Alto city limits and a destination within
Palo Alto city limits (this assumes that Palo Alto shares the responsibility of trips
traveling to other jurisdictions). Vehicular trips through Palo Alto are not included
because Palo Alto cannot solely implement policies that influence the trip-making
behavior. Rather, through trips are assigned to other jurisdictions that can influence
either the origin or destination side of the trip-making behavior.
•Airport Emissions – This includes emissions from take-offs and landings from trips that
start and end at Palo Alto Airport. This includes emergency services helicopters,
sightseeing helicopters, and training flights. Flights that take-off from Palo Alto Airport
but land elsewhere, and flights that land in Palo Alto Airport but take-off from
elsewhere are not included per GPC Basic Protocol.
•Off-road Vehicles - This includes airport ground support (based on take-offs and
landings), construction and mining, industrial (based on employment data), light
commercial (based on employment data), portable equipment (e.g. back-pack leaf
blower, based on service population), and transportation refrigeration units (based on
service population).
•Caltrain Commuter Rail – This includes emissions from Caltrain travel within Palo Alto.
Table 2: 2021 Transportation and Mobile Sources
Subsector 2019 GHG
emissions
(MT CO2e)
2020 GHG
emissions
(MT CO2e)
2021 GHG
emissions
(MT CO2e)
Percent of
Total 2021
Emissions (%)
On-Road Transportation 293,413 217,279 185,925 51.7%
Airport Emissions 2,192 1,664 2,641 0.7%
Off-road Vehicles 14,634 15,029 18,961 5.3%
Caltrain Commuter Rail 4,842 4,552 3,876 1.1%
Total Transportation &
Mobile Sources
315,081 238,523 211,403 58.8%
Estimating vehicles miles traveled (VMT) is a complicated process and is one of the few
emissions sources that the City does not estimate annually. Forecasts of on-road transportation
emissions are typically based on outputs from a travel forecasting model, other accounting-type
method (sketch models), or Big Data (vehicle navigation data from built-in GPS and location-
based services data from cell phones). Previously, Fehr & Peers provided VMT estimates for
2019, 2030, and 2040, with AECOM using the VMT estimates for 2019 to estimate the VMT for
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2020. The VTA model used to calculate Palo Alto’s 2019 annual VMT is only updated every few
years and has not yet been updated to better reflect changes in VMT due to the pandemic. For
2021, AECOM used the VMT estimates from the Google Environmental Insights Explorer.
The Google Environmental Insights Explorer (EIE) uses aggregated data to derive local data,
including distance driven by mode, then applies regional assumptions from the Climate Action
for Urban Sustainability (CURB) tool — an internationally recognized third-party data source —
to estimate the mix of vehicle and fuel types. This reflects actual trips from geospatial data
based on continuous observation. Total distance traveled for all trips is aggregated and
modeled to the entire city using aggregated location information from Google Location
History and other sources. Google EIE is now GPC compliant, which is why staff opted to use
the Google EIE data instead of the VTA model, which has not been updated since before the
pandemic. In addition, ICLEI recommends cities use Google EIE data to estimate VMT.
On-road transportation accounts for approximately 51.7 percent of Palo Alto’s total emissions,
a 14.4 percent decrease from 2020. Because the 2021 GHG inventory uses Google EIE to
calculate VMT and not the VTA model, it is possible that the emissions reductions in on-road
transportation were because of the change in methodology and not from actual reductions
in VMT. Using the VTA model, Fehr and Peers estimated VMT to be 729,969,567 total annual
miles in 2020 compared to 518,286,844 total annual miles in 2021 using Google EIE. In
addition, Google EIE does not use speed bin analysis11, whereas Fehr and Peers did.
However, moving forward, future GHG inventories will continue to use Google EIE to
calculate VMT, so the 2022 GHG inventory will be a better comparison.
Off-road transportation accounts for approximately 5.3 percent of Palo Alto’s total emissions, a
26.2 percent increase from 2020, mainly from transportation refrigeration units and light
commercial (outdoor power equipment such as compressors and generators). Off-road
transportation emissions were not calculated in 1990. It is important to note that most of the
off-road transportation emissions are based on models at the County level that were not
adjusted to reflect any pandemic-induced activity changes and do not reflect Palo Alto-specific
variation.
Caltrain commuter rail emissions account for approximately 1.1 percent of Palo Alto’s total
emissions, a 14.9 percent decrease from 2020. Caltrain electrification is a key component of the
Caltrain Modernization program12, with Caltrain scheduled to be electrified by the end of 2023
or early 2024. Once the Caltrain Modernization program is complete, most of the Caltrain
commuter rail emissions will be eliminated.
11 GHG emissions are commonly calculated using forecasts of VMT that are grouped according to the average
speed of the traveling vehicles, which is called speed bin analysis. Slower-moving vehicles generate more
pollutants, while travel speeds between 40-50 miles per hour (mph) tend to represent the most fuel-efficient
operating conditions for internal combustion engines.
12 Caltrain Modernization Program; https://calmod.org/
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Airport emissions account for approximately 0.7% of Palo Alto’s total emissions, a 58.7%
increase from 2020. Intracity flights fuel use is estimated by the City and not reflective of actual
fuel consumption.
1.d Natural Gas (Methane) Use
In 2021, natural gas (methane) emissions accounted for 37.8 percent of total 2021 GHG
emissions in Palo Alto, a 1 percent increase from 2020 and a 30.1 percent decrease from 1990.
As shown in Table 3, Palo Alto’s total natural gas (methane) consumption in 2021 was
25,518,320 therms. Residential energy accounts for 18.9 percent of total emissions, commercial
energy accounts for 15.5 percent of total emissions, and industrial energy accounts for 3.4
percent of total emissions. The pandemic drastically affected natural gas (methane)
consumption. The temporary shelter-in place order, as well as changes in how and where
people worked, resulted in major changes in the commercial and industrial sectors, with fewer
people staying in hotels, going to restaurants, and going to retail establishments in 2020. In
2021, as the commercial and industrial sectors began to rebound, natural gas (methane) use
increased 4 percent in the commercial sector and 1.8 percent in the industrial sector. Natural
gas (methane) use decreased 1.5% in the residential sector.
City Council unanimously approved Palo Alto’s Carbon Neutral Natural Gas Plan on December 5,
2016. The Natural Gas Plan, implemented on July 1, 2017, achieves carbon neutrality for the gas
supply portfolio by 1) purchasing high-quality carbon offsets equivalent to our City and
community natural gas (methane) emissions; 2) pursuing efficiency strategies to reduce natural
gas (methane) use, and 3) seeking opportunities to fund local offsets that finance actual
emissions reductions in Palo Alto and the surrounding region. As a bridging strategy, carbon
offsets are being purchased in an amount equal to the GHG emissions caused by natural gas
(methane) use within the City. However, offsets are not included in this GHG inventory.
Table 3: 2021 Natural Gas (Methane) Use
Subsector 2019
Consumption
(Therms)
2020
Consumption
(Therms)
2021
Consumption
(Therms)
Percent of Total
2021 Emissions
(%)
Residential Energy 13,565,360 12,952,262 12,756,160 18.9%
Industrial Energy 2,707,034 2,253,641 2,294,119 3.4%
Commercial Energy 12,954,768 10,061,842 10,468,041 15.5%
Total Natural Gas
(Methane) Use
28,867,162 25,267,739 25,518,320 37.8%
Natural Gas (Methane) Fugitive Emissions
Natural gas is mainly methane (CH4), some of which escapes during the drilling, extraction, and
transportation processes. Such releases are known as fugitive emissions. The primary sources of
these emissions may include equipment leaks, evaporation losses, venting, flaring and
accidental releases. Methane is a potent greenhouse gas – approximately 25 times more
powerful than carbon dioxide over a 100-year timescale.
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In 2021, natural gas (methane) fugitive emissions accounted for 1.2 percent of total GHG
emissions in Palo Alto, an increase of 1 percent from 2019 and a decrease of 6.2 percent from
1990. Per the GPC, fugitive emissions from natural gas (methane) are based on overall
community consumption and a leakage rate of 0.03 percent.
As mentioned in Section 1.a., the GPC Basic methodology includes GHG emissions attributable
to activities taking place within the geographic boundary of the city. As such, the 2021 GHG
inventory does not include a category of emissions that are called “upstream emissions,” which
includes emissions from extraction of natural gas (methane) and its transportation across the
western United States through California to Palo Alto. Leaks during gas extraction and
transportation can be very significant, so the actual impacts of natural gas (methane) use can
be much more significant than is represented in a formal greenhouse gas inventory.
1.e. Solid Waste
In 2021, Palo Alto's solid waste diversion rate was 84 percent, far exceeding the 50 percent
mandate for local jurisdictions. “Diversion” includes all waste prevention, reuse, recycling, and
composting activities that “divert” materials from landfills. The City uses the diversion rate to
measure progress on waste reduction and resource conservation goals. As shown in Figure 3:
Annual Diversion Rate Percentage, the diversion rate of 84 percent is an improvement from
the 62 percent rate in 2007 but has remained relatively flat the last few years. As part of the
2016 S/CAP Framework, Council adopted a goal of 95 percent diversion of materials from
landfills by 203013.
Figure 3: Annual Diversion Rate Percentage
13 Sustainability and Climate Action Plan Framework, November 2016;
https://www.cityofpaloalto.org/civicax/filebank/documents/64814
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Solid waste emissions accounted for 1.8 percent of total 2021 GHG emissions in Palo Alto, a 2
percent increase from 2020 and an 88.2 percent decrease from 1990. As shown in
Table 4, the 1990 inventory included Palo Alto Landfill Gas Fugitive emissions, whereas the
2021 inventory did not, and the 2021 inventory included composting emissions at the
ZeroWaste Energy Development Company’s (ZWED) Dry Fermentation Anaerobic Digestion
(AD) Facility in San Jose, CA, composting emissions at the Synagro El Nido Central Valley
Composting (CVC) facility in Dos Palos, as well as Palo Alto Landfill Gas Flaring Emissions. The
increase in solid waste emissions from 2020 is due largely to the increase in emissions from the
closed landfills within the community.
In 2021, emissions from the closed landfills located within the community accounted for 1.4
percent of total waste emissions.
Table 4: 1990 vs 2021 Solid Waste Emissions by Subsector
Subsector 1990 GHG
emissions
(MT CO2e)
2019 GHG
emissions
(MT CO2e)
2020 GHG
emissions
(MT CO2e)
2021 GHG
emissions
(MT CO2e)
Percent of
Total 2021
Emissions
(%)
Composting Not included 731 1,623 1,256 0.3%
Palo Alto Landfill
Gas Flaring
Not included 281 316 237 0.1%
Palo Alto Landfill
Gas Fugitive
24,325 n/a14 n/a n/a n/a
14 Not included because the landfill was closed
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Landfill Waste 30,732 5,519 4,721 5,029 1.4%
Total 55,057 6,531 6,660 6,522 1.8%
Waste emissions result from organic material decomposing in the anaerobic conditions present
in a landfill and releasing methane (CH4) – a greenhouse gas much more potent than CO2.
Organic materials (e.g., paper, plant debris, food waste, etc.) generate methane within the
anaerobic environment of a landfill while non-organic materials (e.g., metal, glass, etc.) do not.
In 2016, Governor Brown signed Senate Bill 1383 (SB 1383) to reduce GHG emissions from a
variety of short-lived climate pollutants, including methane from organic materials disposed in
landfills. SB 1383 is the largest and most prescriptive waste management legislation in
California since the California Integrated Waste Management Act of 1989 (AB 939). SB 1383
sets several statewide goals, including:
•Reduce statewide disposal of organic waste by 50% by January 1, 2020 and 75% by
2025.
•Recover at least 20% of the currently disposed edible food for human consumption by
2025.
1.f. Wastewater Treatment
As shown in Table 5, in 2021 the City of Palo Alto Regional Water Quality Control Plant
(RWQCP) wastewater-related emissions accounted for 0.4 percent of total 2021 GHG emissions
in Palo Alto – a 9.1 percent decrease from 2020 and an 85.2 percent decrease from 1990.
RWQCP GHG emissions originate from electricity, natural gas (methane), and landfill gas usage
required to treat the wastewater, as well as GHGs that are emitted from the wastewater itself
either during treatment or after (effluent). The nitrogen within wastewater is subject to
transformation to nitrous oxide at varying stages in the treatment process as well as after it’s
been discharged to a receiving water (effluent). These emissions are included in the RWQCP
totals. The RWQCP operations achieved significant GHG reductions in 2019 when the facility’s
sewage sludge incinerators were replaced with the more environmentally-friendly Sludge
Dewatering and Truck Loadout Facility. Previously, the RWQCP incinerators were the City’s
largest facility-related GHG source. The updated biosolids treatment process has and will
continue to reduce climate-warming GHG emissions by approximately 15,000 MT of CO2e per
year when compared to the emissions from incineration. This approximates the carbon dioxide
emissions of 3,000 passenger cars. The dewatered sludge is used as agricultural soil
supplements.
Table 5: 1990 vs 2021 Wastewater-Related Emissions by Subsector
Subsector 1990 GHG
emissions
(MT CO2e)
2019 GHG
emissions
(MT CO2e)
2020 GHG
emissions
(MT CO2e)
2021 GHG
emissions
(MT CO2e)
Percent of
Total 2021
Emissions
(%)
Item 14
Attachment E - 2021 GHG
Inventory
Item 14: Staff Report Pg. 221 Packet Pg. 372 of 406
Wastewater
Biosolid
Treatment15
n/a 812 0 0 0%
Wastewater
Treatment and
Effluent
8,504 1,385 1,388 1,262 0.4%
Total 8,504 2,197 1,388 1,262 0.4%
Figure 4: RWQCP Historical Total Greenhouse Gas Emissions
15 Includes biosolid composting, anaerobic digestion, and incineration
Item 14
Attachment E - 2021 GHG
Inventory
Item 14: Staff Report Pg. 222 Packet Pg. 373 of 406
Attachment F: 1990 vs. 2021 Greenhouse Gas Emissions by Sector and Subsector
Sector and Subsector 1990 GHG
emissions
(MT CO2e)1
2019 GHG
emissions
(MT CO2e)
2020 GHG
emissions
(MT CO2e)
2021 GHG
emissions
(MT CO2e)
Percent Change
in 2021 from
1990 (%)
Percent of
Total 2021
Emissions (%)
Total Transportation & Mobile Sources 331,840 315,081 238,523 211,403 -36.3%58.8%
-On-Road Transportation 331,840 293,413 217,279 185,925 -44.0%51.7%
-Airport Emissions Not Included 2,192 1,664 2,641 n/a 0.7%
-Off-road Vehicles Not Included 14,634 15,029 18,961 n/a 5.3%
-Caltrain Commuter Rail Not Included 4,842 4,552 3,876 n/a 1.1%
Total Natural Gas (Methane) Use 194,000 153,509 134,365 135,697 -30.1%37.8%
-Commercial Energy Not calculated 66,987 53,515 55,676 n/a 15.5%
-Industrial Energy Not calculated 14,373 11,961 12,176 n/a 3.4%
-Residential Energy Not calculated 72,149 68,889 67,846 n/a 18.9%
Natural Gas (Methane) Fugitive
Emissions
4,718 5,009 4,384 4,427 -6.2%1.2%
Total Wastewater-Related Emissions 8,504 2,197 3,355 1,262 -85.2%0.4%
-Wastewater Biosolid Treatment2 n/a 812 0 0 n/a 0%
-Wastewater Treatment and Effluent 8,504 1,385 1,388 1,262 -85.2%0.4%
Total Solid Waste 55,057 6,531 6,660 6,522 -88.2%1.8%
-Composting Not Included 731 1,623 1,256 n/a 0.3%
-Palo Alto Landfill Gas Flaring3 Not Included 281 316 237 n/a 0.1%
-Palo Alto Landfill Gas Fugitive 24,325 n/a4 n/a n/a n/a n/a
-Landfill Waste 30,732 5,519 4,721 5,029 -83.6%1.4%
Brown Power Supply (Electricity)186,000 n/a n/a n/a -100.0%n/a
Total GHG Emissions (MT CO2e)780,119 482,237 385,320 359,312 -53.9%100%
1 Source: 2016 S/CAP Framework and 2016 Earth Day Report
2 Includes biosolid composting, anaerobic digestion, and incineration
3 2016 Earth Day Report labeled these emissions as biogenic
4 Not included because the landfill was closed
Item 14
Attachment F - 1990 vs 2021 GHG
Emissions by Sector and Subsector
Item 14: Staff Report Pg. 223 Packet Pg. 374 of 406