HomeMy WebLinkAboutStaff Report 2512-5688 and 2601-5858CITY OF PALO ALTO
CITY COUNCIL
Special Meeting
Monday, February 02, 2026
Council Chambers & Hybrid
5:30 PM
Agenda Item
8.Review the 2024 Greenhouse Gas Inventory and S/CAP Key Performance Indicators
Annual Progress Report, and Approve the 2026-2027 S/CAP Work Plan and Receive Six
S/CAP Studies Recommended by the Climate Action and Sustainability Committee; CEQA
Status: Review GHG Inventory and Key Performance Indicators: Not a Project; Potential
Environmental Impacts of the S/CAP Work Plan were Studied in the June 5, 2023 S/CAP
Addendum to the 2017-2031 Comprehensive Plan EIR; this Project is also Exempt
Pursuant to CEQA Guidelines Section 15183 Supplemental Report added
City Council
Staff Report
From: City Manager
Report Type: ACTION ITEMS
Lead Department: Public Works
Meeting Date: February 2, 2026
Report #:2512-5688
TITLE
Review the 2024 Greenhouse Gas Inventory and S/CAP Key Performance Indicators Annual
Progress Report, and Approve the 2026-2027 S/CAP Work Plan and Receive Six S/CAP Studies
Recommended by the Climate Action and Sustainability Committee; CEQA Status: Review GHG
Inventory and Key Performance Indicators: Not a Project; Potential Environmental Impacts of
the S/CAP Work Plan were Studied in the June 5, 2023 S/CAP Addendum to the 2017-2031
Comprehensive Plan EIR; this Project is also Exempt Pursuant to CEQA Guidelines Section 15183
RECOMMENDATION
Staff recommends that the City Council:
1. Review the 2024 Citywide and Municipal Greenhouse Gas Emissions Inventories; and
2. Review the Sustainability and Climate Action Plan (S/CAP) Key Performance Indicators
Annual Progress Report for calendar year 2024.
The Climate Action and Sustainability Committee and staff recommend that the City Council:
3. Approve the 2026-2027 S/CAP Work Plan; and
4. Receive the following studies:
a. S/CAP Funding and Financing Study;
b. S/CAP Funding Source Survey;
c. EV Charger Needs Assessment; and
d. Single-family, Multi-family, and Non-Residential Building Sector Studies.
EXECUTIVE SUMMARY
This staff report presents the Palo Alto Citywide and Municipal GHG Emissions Inventories for
calendar year 2024, a historical comparison of Citywide GHG Inventories, the Sustainability and
Climate Action Plan (S/CAP) Key Performance Indicators (KPI) Annual Progress Report for
calendar year 2024, and the Climate Action and Sustainability Committee recommended
priorities for the 2026-2027 Sustainability and Climate Action Plan Work Plan.
In addition, the Climate Action and Sustainability Committee is recommending the City
Council’s receipt of six studies that were attached to and summarized in the staff report for the
December 13, 2025 Climate Action and Sustainability Committee (CASC) workshop on
electrification funding and financing strategies. These studies document the work done to
develop models and data for City staff and policy makers to use to support strategic decision-
making about community-scale electrification funding, financing, and program design. They also
include insights about the financial dynamics of community-scale electrification based on three
illustrative scenarios analyzed. One key insight surfaced is that if the City were to rely on up-
front incentives available to all community members as a way to achieve its goals, it would
result in City expenses that exceed currently available resources for climate action. This points
to the need for new strategies and additional modeling. Staff intends to use these tools and
data throughout 2026 and 2027 to support strategic planning efforts under 2026-2027 S/CAP
Work Plan item C13 (Develop Funding and Financing Strategies for Consideration) and to model
different strategies and scenarios for community-wide electrification.
BACKGROUND
In June 2023, City Council adopted the 2022 Sustainability and Climate Action Plan (S/CAP),2
certified the Comprehensive Plan Environmental Impact Report Addendum: Update to the
Sustainability and Climate Action Plan,3 and accepted the 2023-2025 S/CAP Work Plan.4 The
S/CAP aligns with several goals of the 2030 Comprehensive Plan Implementation plan, as well
as the City Council 2025 Priority Area ”Climate Action and Adaptation, & Natural Environment
Protection”.5,6
Both the Palo Alto Citywide and Municipal GHG Emissions Inventories calculate emissions for
calendar year 2024. As a result of various City-led initiatives, programs, and activities focused
on sustainability and climate action, by the end of 2024 Palo Alto reduced total citywide
greenhouse gas (GHG) emissions 50.2% from the 1990 baseline, despite a population increase
of 22% during that same time period. Due to changes in methodology, it is not possible to do an
equivalent comparison of the 2024 Municipal GHG Inventory with previous inventories.
However, by the end of 2024 the City reduced total municipal GHG emissions roughly 64% from
the 2005 baseline.
Due to delays associated with the COVID-19 pandemic, the 2019 GHG inventory was not
completed until 2021. Previous GHG inventories were all completed by the following
calendar year. Staff and external experts worked to complete both the 2023 and 2024 GHG
inventories in 2025 to provide more timely reporting on the City’s progress towards the 80 x
30 and carbon neutrality goals. While this report focuses on the 2024 GHG inventory, new
data from the 2023 GHG inventory is also included in figures, tables, and attachments. In
addition, staff and external experts updated the 1990 Citywide GHG inventory to align with
the methodology used for the 2019 through 2024 Citywide GHG inventories. This allows for a
more equivalent comparison between the inventories.
The City has reached the end of its 2023-2025 S/CAP work planning period. The 2023-2025
S/CAP Work Plan guided S/CAP Implementation with 77 work items, of which 27 focused on
sustainability and 50 on climate action.
Staff developed a proposed 2026-2027 S/CAP Work Plan to continue progress towards
achieving the S/CAP goals. Development of the 2026-2027 S/CAP Work Plan aligns with one of
2 2022 Sustainability and Climate Action Plan;
https://www.cityofpaloalto.org/files/assets/public/v/1/sustainability/reports/2022-scap-report_final.pdf
3 Comprehensive Plan Environmental Impact Report Addendum: Update to the Sustainability and Climate Action
Plan, 2023; https://www.cityofpaloalto.org/files/assets/public/v/1/agendas-minutes-reports/agendas- minutes/
city-council-agendas-minutes/2023/2023comprehensive-plan-environmental-impact-report-addendum- update-
to-the-scap.pdf
4 2023-2025 S/CAP Workplan, 2023;
https://www.cityofpaloalto.org/files/assets/public/v/1/sustainability/reports/2023-2025-scap-work-
plan_final.pdf 5 2030 Comprehensive Plan; https://www.cityofpaloalto.org/Departments/Planning-Development-
Services/Housing-Policies-Projects/2030-Comprehensive-Plan
6 City Council, May 5, 2025; Agenda Item #8; SR #2504-4466, https://recordsportal.paloalto.gov/WebLink/DocView.aspx?id=83379&dbid=0&repo=PaloAlto
the four Council Priorities for CY 2025: Climate Action and Adaptation, and Natural
Environment Protection, and fulfills Council Priority Objective CA 23 - Develop and obtain
Council approval for strategies and a 2026/2027 work plan for the next phase of S/CAP
implementation of climate and sustainability goals. At the January 9, 2026 Climate Action and
Sustainability Committee meeting, the Committee received an update on the status of the
2023-2025 S/CAP Work Plan and discussed the recommended priorities for the 2026-2027
S/CAP Work Plan.11 The Committee voted unanimously, inclusive of staff and committee
consensus modifications, to recommend that the City Council approve the work plan.
Council recognized the importance of developing a long-term financial strategy as part of S/CAP
implementation in the 2023–2025 Work Plan, which included initiation of an S/CAP Funding
Study to explore potential funding and financing sources, as well as several complementary
studies (an EV Charger Needs Assessment, studies of electrification opportunities in multi-
family and non-residential buildings, and a Funding Source Survey).
The City issued a Request for Proposals for these studies in August 2023 and retained a
consultant team - Willdan, E3 (a Willdan company), and Rincon - to complete them.12 This
model and its input studies – including assessments of gas equipment in single-family, multi-
family, and non-residential buildings, an Electric Vehicle (EV) charger needs assessment, and a
survey of funding sources – provide data to evaluate different electrification rollout scenarios
and their financial implications.
ANALYSIS
The City is 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.
This report presents a 2026-2027 S/CAP Work Plan to continue the City’s progress on
sustainability and emissions reduction, a 2024 update to the Citywide and Municipal GHG
Emissions Inventories showing progress to-date, and asks the City Council to receive six reports
related to the S/CAP Funding Study that provide data and a modeling framework that will be
used for policy discussions on funding community-wide electrification through 2026 and 2027.
Starting with the 2019 Citywide GHG Emissions Inventory, the City followed the calculation and
reporting standards outlined in the Global Protocol for Community-Scale GHG Emissions
Inventories (GPC). However, the 1990 Citywide GHG Emissions Inventory followed a different
methodology, and did not include several emissions sources, including: Airport Emissions, Off-
Road Vehicles and Equipment, Caltrain Commuter Rail, Composting, Palo Alto Landfill Gas
Flaring, and Wastewater Biosolid Treatment. Staff and external experts corrected this error and
the 1990 Citywide GHG Emissions Inventory now follows the same GPC Protocol used in the
11 Climate Action and Sustainability Committee, January 9, 2026; Agenda Item 1; SR #2507-5027,
https://cityofpaloalto.primegov.com/Portal/Meeting?meetingTemplateId=18309
12 City Council, January 16, 2024; Agenda Item #4; SR #2308--1939,
https://recordsportal.paloalto.gov/WebLink/DocView.aspx?id=82633&dbid=0&repo=PaloAlto
2019 through 2024 Citywide GHG Emissions Inventories. Historical comparisons are now more
equivalent and provide a clearer picture of the City’s sustainability and climate action progress.
2e) from the residential, commercial, industrial, transportation, waste, water, and municipal
sectors. In comparison to the 1990 base year emissions (which have increased to 798,868 MT
from the previously calculated 780,119 MT due to corrections in methodology and additions of
excluded emissions sources), these emissions represent a 50.2% decrease in total community
emissions, despite a population increase of 22% during that same period. Emissions in 2024
equated to 5.9 MT per capita. The California Air Resource Board’s 2017 Scoping Plan Update
recommends a goal for local governments of 6 MT CO2e per capita by 2030 and 2 MT CO2e per
capita by 2050.15 In order to achieve 80 x 30, Citywide GHG Emissions need to be at 160,000 MT
CO2e (corrected from the previous target of 156,024 MT CO2e).
15 California Air Resources Board 2022 Scoping Plan Appendix D Local Actions, November 2022;
https://ww2.arb.ca.gov/sites/default/files/2022-11/2022-sp-appendix-d-local-actions.pdf
Figure 1: 2024 Palo Alto Citywide Greenhouse Gas Emissions by Sector
As shown in Figure 2, total GHG emissions steadily decreased between 1990 and 2021.
However, emissions increased between 2021 and 2022 and slightly increased between 2022
and 2023. The main driver of the increase in 2022 was On-Road Transportation, in part due to
the shift away from pandemic-level (reduced) driving frequency, returning to the office after
working from home, and economic recovery. These effects likely continued into 2023 as
employers continued to change hybrid work policies and economic and travel activities
continued to shift.
GHG emissions from Transportation and Mobile Sources are estimated to have increased
slightly (by less than 1%) between 2023 and 2024 but remain 27% lower than 1990
Transportation and Mobile Sources emissions. Within Transportation and Mobile Sources, On-
Road Transportation increased slightly (less than half a percent). However, this estimate is
preliminary due to lack of data. Vehicle miles traveled (VMT) data for 2024 were not yet
available when the 2024 GHG inventory was prepared. City staff and external experts calculated
a preliminary estimate of 2024 VMT by scaling 2023 per capita VMT based on 2024 population
for passenger vehicles and service population for commercial vehicles and buses. This estimate
reflects demographic growth and may not capture actual VMT trends. The largest increase
between 2023 and 2024 within Transportation and Mobile Sources was from Airport Emissions,
which increased 22.4% from 2023. The full comparison between GHG inventories can be found
in Attachment B.
Figure 2: Palo Alto Citywide GHG Emissions by Sector, 1990 and 2019 – 2024
2e from municipal operations, which is a slight
reduction from 2023. As shown in Figure 3, GHG emissions from Palo Alto’s municipal
operations are from five main sectors: Buildings and Other Facilities, Streetlights and Traffic
Signals, Wastewater Facilities, City Vehicles and Equipment, and Indirect Emissions. Since the
methodology has changed significantly for certain sectors since the first Municipal GHG
Inventory was conducted in 2005, it is no longer possible to do an equivalent comparison with
previous Municipal GHG inventories. However, the methodologies for Buildings and Other
Facilities, Streetlights and Traffic Signals, and City Vehicles and Equipment are similar enough to
do rough comparisons for those sectors. By the end of 2024 the City reduced total municipal
GHG emissions roughly 64% from the 2005 baseline.
Figure 3: 2024 Palo Alto Municipal Greenhouse Gas Emissions by Sector
Other Facilities GHG emissions), and natural gas leakage (about 3% of Buildings and Other
Facilities GHG emissions).
Figure 4. Palo Alto Municipal GHG Emissions, 2005 and 2022-2024
GHG emissions factor than conventional fossil diesel. Table 1 and Figure 5 show a historical
comparison of On-Road Vehicle GHG emissions by City Department.
Table 1: On-Road Vehicle GHG emissions by City Department (MT CO2e)
City Department 2022 2023 2024 % of Total in
2024
Total MT CO2e 1550.2 1307.6 1268.1 100.0%
Note: Percentages and MT CO2e may not add to the total due to rounding
Figure 5: Palo Alto On-Road Vehicle GHG Emissions by City Department
Palo Alto’s Progress Toward Carbon Neutrality
Figure 6: 2024 Progress Toward Carbon Neutrality
Half Moon Bay, Menlo Park, and Watsonville). Many cities’ targets cannot be compared directly
because of different baseline years. Table 2 displays the emission reduction targets of surveyed
cities using the same baseline year as Palo Alto (1990).
Table 2: Comparison of Select Greenhouse Gas Emission Reduction Targets
City Reduction Target Reduction Target Year Baseline Year
*The City Council of Irvine has not ratified their climate action plan.
Table 3: Greenhouse Gas Emission Reductions of Surveyed Cities
City Reduction Target Baseline Year GHG Inventory Year GHG Reduction
Cities with 1990 baseline year
Palo Alto 80% by 2030 1990 2024 50%
Cities with other baseline years
Sunnyvale 56% by 2030 2008 2023 37%
Berkeley 100% by 2045 2000 2023 41%
Hayward 55% by 2030 2005 2023 35%
Millbrae 49% by 2030 2005 2023 30%
Menlo Park 90% by 2030 2005 2023 27%
Half Moon Bay 40% by 2030 2005 2023 27%
Brisbane 66% by 2030 2005 2023 16%
Santa Barbara 100% by 2035 1990 2019 15%
Belmont 40% by 2030 1990 2023 15%
Solana Beach 85% by 2045 2016 2018 9%
Mountainview 80% by 2050 2005 2019 14%
Burlingame 40% by 2030 2005 No data No data
*The City Council of Irvine has not ratified their climate action plan.
S/CAP Key Performance Indicators Annual Progress Report
Achieving 80 x 30 and carbon neutrality by 2030 are the overarching goals for the S/CAP. The
S/CAP also 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 climate action areas of Climate Action, Energy, Electric Vehicles, and Mobility
primarily focus on the 80 x 30 and carbon neutrality by 2030 goals. The sustainability areas of
Water, Climate Adaptation and Sea Level Rise, Natural Environment, and Zero Waste do not
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. Progress towards achieving the S/CAP Key
Performance Indicators can be found in Attachment D and are summarized in Attachment E.
2026 – 2027 S/CAP Work Plan
The City has reached the end of its 2023-2025 S/CAP work planning period. The 2023-2025
S/CAP Work Plan guided S/CAP Implementation with 77 work items, of which 27 focused on
sustainability and 50 on climate action.
Of the 50 climate action items, 16 were ongoing work items and 34 were discrete
projects, of which 27 were completed, 6 are in progress, and 1 is delayed (not started).
Of the 27 sustainability work items, 14 were ongoing and 13 were discrete projects, of
which 8 were completed. Five of the remaining items are in progress and one is delayed.
A summary of the progress of the 2023 – 2025 S/CAP Work Plan can be found in Attachment F.
The proposed 2026-2027 S/CAP Work Plan includes 28 strategies focused on Climate Action, 16
strategies focused on Sustainability, and 3 strategies for overall S/CAP Communications for all
areas of the S/CAP. The full 2026 – 2027 Work Plan can be found in Attachment G.
At a high level, the Climate Action priorities in the Work Plan are intended to help the
community develop a funding strategy for community-wide electrification at a pace that
balances community willingness to fund climate action, utility rate impacts, and the
community’s desire to maintain leadership in this area. It will do this through piloting cost-
efficient building electrification and EV charging program models in the single-family, multi-
family, and non-residential sectors that minimize the cost to the City while remaining attractive
to customers. In parallel, staff will present different strategies and scenarios for funding
community-wide electrification and carbon neutrality using the data and modeling frameworks
developed in the S/CAP Funding Study.
The key areas of focus for the Sustainability priorities in the Work Plan are water, sea level rise,
wildfire protection, natural environment, green stormwater infrastructure, and zero waste.
While sustainability strategies do not necessarily have a direct impact on greenhouse gas
reductions, they have critically important sustainability, public health and safety, regional,
resource conservation, and equity benefits that contribute to overall climate action. These
strategies contribute towards achieving the goals of the S/CAP and are directly tied to the
Sustainability Key Actions.
The City developed a 2026-2027 S/CAP Work Plan to continue progress towards achieving the
S/CAP goals. Development of the 2026-2027 S/CAP Work Plan aligns with one of the four
Council Priorities for CY 2025: Climate Action and Adaptation, and Natural Environment
Protection, and fulfills Council Priority Objective CA 23 - Develop and obtain Council approval
for strategies and a 2026/2027 work plan for the next phase of S/CAP implementation of
climate and sustainability goals. At the January 9, 2026 Climate Action and Sustainability
Committee meeting, the Committee received an update on the status of the 2023-2025 S/CAP
Work Plan and discussed the recommended priorities for the 2026-2027 S/CAP Work Plan.17
The development of the 2026-2027 S/CAP Work Plan is described in more depth in the staff
report for the January 9, 2026 Climate Action and Sustainability Committee meeting. At that
meeting the Committee voted unanimously, inclusive of staff and committee consensus
modifications, to recommend that the City Council approve the work plan.
Six Studies Requested to be Received
The Climate Action and Sustainability Committee and staff recommend the City Council receive
six studies that were attached to and summarized in the staff report for the December 13, 2025
17 Climate Action and Sustainability Committee, January 9, 2026; Agenda Item 1; SR #2507-5027,
https://cityofpaloalto.primegov.com/Portal/Meeting?meetingTemplateId=18309
Climate Action and Sustainability Committee (CASC) workshop on electrification funding and
financing strategies.19 These include:
The S/CAP Funding and Financing Study (Attachment H), which uses an “S/CAP Funding
Model” developed via collaboration between the consultant and City staff and the data
and analysis from the other studies to model three illustrative electrification scenarios
that show various financial dynamics of community-scale electrification.
The EV Charger Needs Assessment (Attachment I), which evaluates illustrative scenarios
for EV adoption and charging strategies in Palo Alto to show charging capacity needs
and the financial and operational dynamics of different business models and strategies
for providing EV charging.
Three studies of building electrification strategies and costs in the single-family
(Attachment J), multi-family (Attachment K), and non-residential sectors (Attachment L)
that provide data and insights that can be used for program design and strategic
planning.
The S/CAP Funding Source Survey (Attachment M), an inventory of potential funding
sources for community-wide electrification.
FISCAL/RESOURCE IMPACT
19 Climate Action and Sustainability Committee, December 13, 2025; Agenda Item #A; SR #2507-5025,
https://cityofpaloalto.primegov.com/Portal/Meeting?meetingTemplateId=18114
that significant financial investment would be needed that exceeds current available resources
if the City were to pay for all the needed incremental investment using incentives. As part of
the 2026-2027 S/CAP Work Plan, staff will need to work with the City Council and the
community to grapple with the funding needs for community-wide electrification in a current
environment where federal support has changed and with the local competing priority of
maintaining low utility rates.
STAKEHOLDER ENGAGEMENT
C1. Build awareness about sustainability and climate action and City programs available
to the community
C2. Drive community actions to achieve S/CAP goals
C3. S/CAP Data Collection and Annual Reporting
and programs, as well as unmet needs and priorities. The 2024 and 2025 Community Surveys
included a question about familiarity with the S/CAP and 80 x 30, with 42% of residents noting
they were familiar with the S/CAP and 80 x 30 in both surveys. The only difference is that in
2025 6% of respondents noted that they were very familiar with the S/CAP and 80 x 30
compared to 5% in 2024. The communications focus of the 2026 – 2027 Work Plan will strive to
increase awareness from the current 42% of residents who are familiar with the S/CAP and 80 x
30.
Mobility-related work items (CA21 – CA25) may require consultation with the Planning
and Transportation Commission depending on the project.
Infrastructure-related Climate Action items (CA19 – CA20) and Water-related work
items (S1-S3) would require consulting or informing the Utilities Advisory Commission
(UAC) at various stages of the projects. The UAC would also discuss the potential rate
impacts of any utility-related climate action programs as part of the utility financial
planning process.
ENVIRONMENTAL REVIEW
consistent with an existing general or comprehensive plan and does not require additional
CEQA review (CEQA Guidelines section 15183).
ATTACHMENTS
APPROVED BY:
Page 1 of 12
Attachment A: Palo Alto 2024 Citywide 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 70% of global energy-related carbon dioxide emissions, with transportation and
buildings among the largest contributors.1 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 are 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 category.2
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)3 partnered to create a global standard protocol for
generation-based GHG inventories. The Global Protocol for Community-Scale GHG Emissions
Inventories (GPC) 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 Protocol,4 which provides
more detailed methodology specific to the U.S. It seeks to:
Help cities develop a comprehensive 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
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 Formerly the International Council for Local Environmental Initiatives, renamed in 2003 to ICLEI – Local
Governments for Sustainability.
4 U.S. Community Protocol; https://icleiusa.org/us-community-protocol/
Page 2 of 12
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 citywide inventory was completed for 2005 and then
extrapolated for 1990 (the baseline year). Beginning in 2010, new citywide GHG inventories
were completed annually, enabling Palo Alto to track progress over time.
The 2024 Palo Alto Citywide GHG inventory, completed by Rincon Consultants, follows the
calculation and reporting standards outlined in the GPC BASIC reporting level.9 Inventory
calculations were performed using Rincon’s GHG Inventory tool and uploaded into ClearPath
2.0,10 a software platform designed for creating generation-based GHG inventories.
GHG emissions from community activities are classified into three main sectors:
•Stationary Energy (e.g., building electricity consumption, fugitive natural gas emissions)
•Transportation (e.g., on-road passenger vehicles, off-road equipment)
•Waste (e.g., solid waste disposal, wastewater treatment and discharge)
Activities taking place within a city can generate GHG emissions that occur inside the city
boundary as well as outside the city boundary. To distinguish among them, the GPC groups
emissions into three categories based on where they occur:
Scope 1: GHG emissions from sources located within the city boundary, such as
stationary fuel consumption.
Scope 2: GHG emissions occurring due to 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 city.11
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. While the 2024 Inventory
follows GPC BASIC reporting standards and aligns with previous GHG emissions inventories,
minor updates to calculation methodologies were included in the 2024 Inventory and previous
inventories following the GPC protocol were corrected as well. Of note, the 1990 Inventory was
updated to follow GPC BASIC reporting standards and align with GHG emissions inventories
from 2019 through 2024. Previously excluded emissions sources were added, including: Airport
Emissions, Off-Road Vehicles and Equipment, Caltrain Commuter Rail, Composting, Palo Alto
Landfill Gas Flaring, and Wastewater Biosolid Treatment.
9 GPC Executive Summary; https://ghgprotocol.org/sites/default/files/2022-12/GPC_Executive_Summary_1.pdf
10 ClearPath 2.0 tool; https://icleiusa.org/clearpath-2/
11 GPC Protocol; https://ghgprotocol.org/sites/default/files/standards/GHGP_GPC_0.pdf
Page 3 of 12
The City did not complete a consumption-based GHG inventory. The California Air Resources
Board (CARB) has been tasked with developing an implementation framework and accounting
to track consumption-based emissions over time.15 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.
1.b. Palo Alto’s 2024 GHG Emissions
In 2024, Palo Alto emitted an estimated 397,791 metric tons (MT) of carbon dioxide equivalent
(CO2e) from the residential, commercial, industrial, transportation, waste, water, and municipal
sectors. In comparison to the 1990 base year emissions (which have increased to 798,868 MT
from the previously calculated 780,119 MT due to corrections in methodology and additions of
excluded emissions sources), these emissions represent a 50.2% decrease in total community
emissions, despite a population increase of 22% during that same period. Emissions in 2024
equated to 5.9 MT per capita. The California Air Resource Board’s 2017 Scoping Plan Update
recommends a goal for local governments of 6 MT CO2e per capita by 2030 and 2 MT CO2e per
capita by 2050.8 In order to achieve 80 x 30, Citywide GHG Emissions need to be at 160,000 MT
CO2e (corrected from the previous target of 156,024 MT CO2e).
Of the GHG emissions reductions to date, 46.4% came from providing carbon free for the City’s
electricity portfolio, 23.4% from declines in transportation emissions, 16.7% from reduction in
natural gas (methane) consumption, 11.5% from declines in solid waste emissions, and 1.9%
from declines in wastewater-related emissions.
For citywide GHG emission sources in 2024, 64.1% of GHG emissions were from Transportation
and Mobile Sources, 31.9% from Natural Gas (Methane) Use, and the remainder are from other
sources. A comparison of 1990 and 2019 through 2024 Citywide GHG emissions is shown in
Figure 1. The full comparison between the inventories can be found in Attachment B Historical
Comparison of Citywide GHG Emissions by Sector.
Total GHG emissions steadily decreased between 1990 and 2021. However, emissions increased
between 2021 and 2022 and slightly increased between 2022 and 2023. The main driver of the
increase in 2022 was On-Road Transportation, in part due to the shift away from pandemic-
level (reduced) driving frequency, returning to the office after working from home, and
economic recovery. These effects likely continued into 2023 as employers continued to change
hybrid work policies and economic and travel activities continued to shift.
GHG emissions decreased by 4% between 2023 and 2024. This decrease was primarily driven by
reductions in Natural Gas (Methane) Use: residential natural gas GHG emissions decreased by
14.2%, commercial by 10.9%, and industrial by 20.1% since 2023.
15 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.
Page 4 of 12
Figure 1: Palo Alto Citywide Greenhouse Gas Emissions by Sector, 1990 and 2019 - 2024
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
Equipment, and Caltrain Commuter Rail) and Natural Gas (Methane) Use (including Residential,
Commercial, and Industrial).
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 and Equipment include airport
ground support, construction and mining, industrial, light commercial, portable equipment, and
transportation refrigeration units.
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 free since 2013, when the City 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.
Page 5 of 12
Figure 2: 2024 Palo Alto Citywide Greenhouse Gas Emissions by Sector
In 2024, Transportation and Mobile Sources accounted for 64.1% of total citywide GHG
emissions in Palo Alto. GHG emissions from Transportation and Mobile Sources are estimated
to have increased slightly (by less than 1%) between 2023 and 2024 but remain 27% lower than
1990 transportation and mobile emissions. Within Transportation and Mobile Sources, On-Road
Transportation increased slightly (less than half a percent). However, this estimate is
preliminary due to lack of data. Vehicle miles traveled (VMT) data for 2024 were not yet
available when the 2024 GHG inventory was prepared. City staff and external experts calculated
a preliminary estimate of 2024 VMT by scaling 2023 per capita VMT based on 2024 population
for passenger vehicles and service population for commercial vehicles and buses. This estimate
reflects demographic growth and may not capture actual VMT trends. The largest increase
between 2023 and 2024 was from Airport Emissions, which increased 22.4% from 2023. The
largest increase from 1990 was from Off-Road Vehicles and Equipment, which increased 173%.
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 (in-boundary trips), one-half of daily vehicular trips with an origin
within Palo Alto city limits and a destination outside of Palo Alto city limits (outbound
trips; 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
Page 6 of 12
city limits and a destination within Palo Alto city limits (inbound trips; this assumes that
Palo Alto shares the responsibility of trips traveling to other jurisdictions). Vehicular
trips through Palo Alto (such as commuters on Highway 101) 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 and Equipment - 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, and transportation
refrigeration units (based on service population).
Caltrain Commuter Rail – This includes emissions from Caltrain travel within Palo Alto.
Table 2: Transportation and Mobile Sources GHG Emissions by Subsector (MT CO2e)
Subsector 1990 2019 2020 2021 2022 2023 2024
% of
Total
2024
GHG
On-Road
Transportation 331,840 293,413 217,279 185,925 221,923 225,387 226,019 64.1%
Airport
Emissions 3,096 2,192 1,664 2,641 1,837 1,935 2,369 0.6%
Off-road
Vehicles 7,431 14,634 15,029 18,961 20,191 19,129 20,287 5.1%
Caltrain
Commuter Rail 6,390 4,842 4,552 3,876 7,272 6,377 6,331 1.6%
Total MT CO2e 348,757 315,081 238,523 211,403 251,223 252,828 255,006 61.2%
Note: Percentages and MT CO2e may not add to the total due to rounding
The main driver of GHG emissions from Transportation and Mobile sources is fuel combustion
from internal combustion engine (ICE) vehicles, specifically passenger vehicles, commercial
vehicles, and buses (69%, 18%, and 2% of all transportation GHG emissions, respectively). Since
electricity in the City is carbon-neutral, there are no GHG emissions attributed to passenger,
commercial, or bus EVs.
The 2024 inventory utilized vehicles miles traveled (VMT) data from Google’s Environmental
Insights Explorer (EIE) and VMT-weighted emission factors from the California Air Resources
Page 7 of 12
(CARB) Emission FACtor (EMFAC) model17 to estimate GHG emissions from all passenger,
commercial, and bus ICE vehicles. Because 2024 VMT data is not yet available from Google EIE,
City staff and external experts calculated a preliminary estimate of 2024 VMT by scaling 2023
per capita VMT based on 2024 population for passenger vehicles and service population for
commercial vehicles and buses. When the Google EIE data becomes available, the City will
update 2024 VMT accordingly. In 2023, 46% of VMT was from inbound trips, 45% from
outbound trips, and 9% from in-boundary trips.
18 Commercial and bus VMT data were then multiplied by their respective EV share
percentages to determine EVMT of these vehicle categories.
19
including airport ground support, construction, mining, industrial, light commercial, portable
equipment, and transportation refrigeration units. All attribution factors used to allocate
17 CARB EMFAC v1.0.1.; https://ww2.arb.ca.gov/our-work/programs/msei/on-road-emfac
18 While these percent EV share estimates also come from CEC’s ZEV Statistics database, only county-level data is
available for medium- and heavy-duty (i.e., commercial and bus) ZEVs. The average percent EV share for Santa
Clara and San Mateo County was used as a proxy for Palo Alto because Palo Alto shares one zip code (94303) with
San Mateo, and much I-E/E-I EVMT attributed to Palo Alto is assumed to be between these two counties
19 CARB OFFROAD v1.0.5.; https://arb.ca.gov/emfac/offroad/
Page 8 of 12
countywide fuel consumption to Palo Alto in 2024 remained the same as previous inventories,23
except airport ground support. Attributed fuel consumption from each off-road sector was then
multiplied by its respective GHG emissions factor (MT CO2e/gallon) depending on fuel type
(i.e., gasoline, diesel, or natural gas) to estimate GHG emissions.
Sustainability Report as the most recently available data.24 It is assumed that the
total fuel consumption and allocation methodology described above is comparable to Palo
Alto’s share of Caltrain commuter rail emissions in 2024. This estimation method results in the
highest emissions to remain conservative. Caltrain electrification is a key component of the
Caltrain Modernization program,25 with Caltrain electrified in late September 2024. Now that
the Caltrain Modernization program is complete, most of the Caltrain commuter rail emissions
will be eliminated in future Citywide GHG Emissions Inventories.
1.d Natural Gas (Methane) Use
23 Attribution factors are based off demographic data such as population, employment, and service population
(except for airport ground support).
24 Caltrain 2023 Sustainability Report; https://www.caltrain.com/media/33109
25 Caltrain Modernization Program; https://calmod.org/
Page 9 of 12
appliances. Overall, Natural Gas (Methane) Use emissions remain far below 1990 levels (34.5%
decrease).
1Table 3: Natural Gas (Methane) Consumption by Subsector (Therms)
Subsector 2019 2020 2021 2022 2023 2024 % of Total
2024 GHG
Commercial 12,954,768 10,061,842 10,468,041 11,729,819 12,502,216 11,144,038 15.0%
Residential 13,565,360 12,952,262 12,756,160 13,037,423 12,686,165 10,884,832 14.6%
Industrial 2,707,034 2,253,641 2,294,119 2,372,902 2,193,781 1,752,352 2.4%
Total
Therms 28,867,162 25,267,739 25,518,320 27,140,144 27,382,162 23,781,222 31.9%
Note: Percentages and Therms may not add to the total due to rounding
Natural Gas (Methane) Fugitive Emissions
4), 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.
Page 10 of 12
1.e. Solid Waste
In 2024, Palo Alto's solid waste diversion rate was 88%, far exceeding the 50% 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. The diversion rate of 88% is an
improvement from the 62% rate in 2007, 81% rate in 2019, and 84% rate in 2022 and 2021.
However, it is a decrease from the 91% rate in 2022 and 2023 due to increased waste landfilled
in 2024. As part of the 2016 S/CAP Framework, the City Council adopted a goal of 95% diversion
of materials from landfills by 2030.29
Solid Waste emissions accounted for 2.3% of total 2024 citywide GHG emissions in Palo Alto, a
6.4% decrease from 2023 and an 83.4% decrease from 1990. As shown in Table 4, the 2024
inventory included emissions from solid waste generated in the City but treated biologically
outside of the city. This includes composting emissions at the Zero Waste 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.
2e)
0 731 1,154 843 1,142 1,242 1,308 0.3%
226 281 316 237 233 186 176 0%
24,325 n/a30 n/a n/a n/a n/a n/a n/a
30,732 5,519 4,721 5,029 5,297 6,702 7,715 1.9%
2e
Note: Percentages and MT CO2e may not add to the total due to rounding
Solid Waste emissions increased slightly in 2024, with landfill methane emissions increasing by
15.1% compared to 2023 but remaining 74.9% lower than 1990 levels. Organic Waste
Composting emissions also increased slightly (5.3%) compared to 2023, continuing the trend
driven by state-mandated organic waste diversion programs such as SB 1383.
29 Sustainability and Climate Action Plan Framework, November 2016;
https://www.cityofpaloalto.org/civicax/filebank/documents/64814
30 Not included because the Palo Alto landfill was closed
Page 11 of 12
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.
This is why diverting waste from landfills is so important. 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) and aspires to reduce statewide disposal
of organic waste 75% by 2025 and recover at least 20% of the currently disposed edible food for
human consumption by 2025. Palo Alto is in compliance with many of SB 1383 requirements
due to the City’s progressive zero waste programs and initiatives and is continuing to take
initiatives to further reduce organic materials from being disposed in landfills.
1.f. Wastewater Treatment
3Table 5: Wastewater-Related GHG Emissions by Subsector (MT CO2e)
Subsector 1990 2019 2020 2021 2022 2023 2024
% of Total
2024
GHG
Wastewater
Biosolid
Treatment33
Wastewater
Treatment
Wastewater
Effluent
Wastewater
Sludge
Composting
Total MT CO2e 10,110 2,197 1,857 1,674 2,615 2,463 2,409 0.6%
Note: Percentages and MT CO2e may not add to the total due to rounding
33 Sludge incineration
Page 12 of 12
As shown in Figure 3, 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, RWQCP incinerators were the City’s
largest facility-related GHG source. The updated biosolids treatment process has and will
continue to reduce 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.
Figure 3: Regional Water Quality Control Plant Historical Total Greenhouse Gas Emissions
1
0
2
4
7
Attachment B: Historical Comparison of Palo Alto Citywide GHG Emissions by Sector
Sector and Subsector
1990 GHG
emissions
(MT CO2e)
2019 GHG
emissions
(MT CO2e)
2020 GHG
emissions
(MT CO2e)
2021 GHG
emissions
(MT CO2e)
2022 GHG
emissions
(MT CO2e)
2023 GHG
emissions
(MT CO2e)
2024 GHG
emissions
(MT CO2e)
% Change
in 2024
from 1990
% of Total
2024
Emissions
Total Transportation & Mobile Sources 348,757 315,081 238,523 211,403 251,223 252,828 255,0061 -26.9%64.1%
-On-Road Transportation 331,840 293,413 217,279 185,925 221,923 225,387 226,019 -31.9%56.8%
-Airport Emissions 3,096 2,192 1,664 2,641 1,837 1,935 2,369 -23.5%0.6%
-Off-road Vehicles 7,431 14,634 15,029 18,961 20,191 19,129 20,287 173.0%5.1%
-Caltrain Commuter Rail 6,390 4,842 4,552 3,876 7,272 6,377 6,331 -0.9%1.6%
Total Natural Gas (Methane) 194,000 153,509 134,365 135,697 144,996 146,289 127,051 -34.5%31.9%
-Commercial Energy 66,987 53,515 55,676 62,667 66,793 59,537 n/a 15.0%
-Industrial Energy 14,373 11,961 12,176 12,677 11,720 9,362 n/a 2.4%
-Residential Energy 72,149 68,889 67,846 69,652 67,776 58,152 n/a 14.6%
Natural Gas (Methane) Fugitive 4,718 5,009 4,384 4,427 4,709 4,751 4,126 -12.5%1.0%
Total Wastewater-Related Emissions 10,110 2,197 1,857 1,674 2,615 2,463 2,409 -76.2%0.6%
-Wastewater Biosolid Treatment2 1,606 403 0 0 0 0 0 -100.0%0%
-Wastewater Treatment 380 381 346 86 82 85 n/a 0%
-Wastewater Effluent 8,504 1,005 1,007 915 2,344 2,163 2,077 n/a 0.5%
-Wastewater Sludge Composting 409 469 412 185 218 247 -97.1%0.1%
Total Solid Waste Emissions 55,283 6,531 6,191 6,110 6,672 8,130 9,199 -83.4%2.3%
-Organic Waste Composting (ZWED)0 731 1,154 843 1,142 1,242 1,308 n/a 0.3%
-Palo Alto Landfill Gas Flaring 226 281 316 237 233 186 176 -22.1%0%
-Palo Alto Landfill Gas Fugitive 24,325 n/a3 n/a n/a n/a n/a n/a -100.0%0%
-Palo Alto Landfill Methane 30,732 5,519 4,721 5,029 5,297 6,702 7,715 -74.9%1.9%
Brown Power Supply (Electricity)186,000 04 0 0 0 0 0 -100.0%0%
Total GHG Emissions (MT CO2e)798,868 482,237 385,320 359,312 410,215 414,461 397,791 -50.2%100%
Notes: MT CO2e = metric tons of carbon dioxide equivalent. Percentages and MT CO2e may not add to the total due to rounding
1 Based on a preliminary estimate of 2024 Vehicle Miles Travelled (VMT). 2024 Google Environmental Insights Explorer VMT data was unavailable at time of publication.
2 Sludge Incineration. In 2019, the sewage sludge incinerators at the Regional Water Quality Control Plant were replaced with a Sludge Dewatering and Truck Loadout Facility.
3 Not included because the Palo Alto landfill was closed.
4 Since 2013, the City provides carbon free electricity to all customers.
Page 1 of 7
Attachment C: Palo Alto 2024 Municipal Greenhouse Gas Emissions Inventory
Overview of Methodology for Quantifying Greenhouse Gas Emissions
The 2024 Municipal Greenhouse Gas (GHG) Emissions Inventory follows the calculation and
reporting standards outlined in the International Council for Local Environmental Initiatives’
(ICLEI) Local Government Operation (LGO) Protocol1, which aligns with the Global Protocol for
Community-Scale GHG Emissions Inventories (GPC) local government operations protocol.2
Under the LGO Protocol, GHG Emissions from Palo Alto’s municipal operations can be classified
into four main sectors:
Buildings and other facilities (e.g., stationary combustion)
Streetlights and Traffic Signals (e.g., electricity use)
City vehicle and equipment fleet (e.g., mobile combustion)
Wastewater facilities (e.g., wastewater treatment and discharge)
Indirect emissions (e.g., employee commuting, landfilled solid waste generation)
Activities taking place within a city can generate GHG emissions that occur inside the city
boundary as well as outside the city boundary. To distinguish among them, the LGO Protocol
groups emissions into three categories based on where they occur:
Scope 1 emissions: GHG emissions from sources located within the city boundary
Scope 2 emissions: GHG emissions occurring as a consequence of the use of grid-
supplied electricity, heat, steam and/or cooling within the city boundary
Scope 3 emissions: All other GHG emissions that occur outside the city boundary as a
result of activities taking places within the city boundary
Palo Alto’s 2024 Municipal GHG Emissions
In 2024, the City emitted a total of 14,590 metric tons (MT) of carbon dioxide equivalent (CO2e)
from municipal operations. As shown in Figure 1, GHG emissions from Palo Alto’s municipal
operations are from five main sectors: Buildings and Other Facilities, Streetlights and Traffic
Signals, City Vehicles and Equipment, Wastewater Facilities, and Indirect Emissions. Since the
methodology has changed significantly for certain sectors since the first Municipal GHG
Inventory was conducted in 2005, it is no longer possible to do an equivalent comparison with
previous Municipal GHG inventories. However, the methodologies for Buildings and Other
Facilities, Streetlights and Traffic Signals, and City Vehicles and Equipment are similar enough to
make rough comparisons. For reference only, in 2005 the City emitted a total of 40,499 MT
CO2e from municipal operations. By the end of 2024 the City reduced total municipal GHG
emissions roughly 64% from the 2005 baseline.
1 LGO Protocol Rulebook; https://icleiusa.org/resources/local-government-operations-lgo-protocol/
2 GPC Inventories for local government operations;
https://ghgprotocol.org/sites/default/files/standards/GPC_Full_MASTER_RW_v7.pdf
Page 2 of 7
Figure 1: 2024 Palo Alto Municipal Greenhouse Gas Emissions by Sector
The majority of municipal GHG emissions, about 37%, are attributed to the Regional Water
Quality Control Plant (RWQCP). Since the RWQCP is owned and operated by the City, 100% of
GHG emissions are attributed to the City and are Scope 1. These GHG emissions include indirect
nitrous oxide (N2O) emissions from wastewater effluent (about 95% of total wastewater GHG
emissions), process nitrous oxide emissions from the treatment of wastewater without
nitrification/denitrification (about 4% of total Wastewater Facilities sector GHG emissions), and
natural gas combustion/leakage (about 1% of total Wastewater Facilities GHG emissions).
The second major contributor to GHG emissions is attributed to the Indirect Sources sector, or
the City’s Scope 3 sources. These indirect sources account for about 33% of total GHG emissions
and include GHG emissions resulting from employee commute mobile combustion (about 44%
of the Indirect Emission Sources GHG emissions) and methane emissions resulting from
landfilled solid waste (about 56% of the Indirect Emissions Sources GHG emissions). Landfilled
solid waste methane emissions are a product of decomposing organic material generated and
sent to the landfill by municipal operations. This subsector attributes methane emissions based
on total landfilled solid waste generated in the inventory year and does not account for pre-
existing landfilled solid waste methane emissions.
The third major contributor to GHG emissions includes GHG emissions from natural gas usage in
Buildings and Other Facilities (excluding the RWQCP), considered a Scope 1 source. These GHG
emissions accounted for 22% of total GHG emissions and are driven by natural gas combustion
(about 97% of Buildings and Other Facilities GHG emissions), and natural gas leakage (about 3%
of Buildings and Other Facilities GHG emissions).
Page 3 of 7
The final contributor to GHG emissions includes the City’s vehicle and equipment fleet sector,
considered a Scope 1 source (except for the City’s electric vehicles, EVs, which are considered a
Scope 2 source due to the energy source being purchased electricity). Together, these account
for about 9% of total GHG emissions and are mainly driven by the City’s on-road vehicle fleet
powered by gasoline, renewable diesel, and compressed natural gas (CNG) and off-
vehicle/equipment fleet powered by gasoline and diesel. The City’s on-road vehicle fleet makes
up about 97% of City Vehicle and Equipment Fleet GHG emissions, while off-road vehicles and
equipment make up the remaining 3%.
Figure 2: Palo Alto Municipal GHG Emissions, 2005 and 2022-2024
Page 4 of 7
Table 1: Palo Alto Municipal GHG Emissions (MT CO2e)
Sector and Subsector Scope 2005 2022 2023 2024
% Change
in 2024
from
2005*
Buildings and Other Facilities 10,698 3,398 2,844 3,154 - 70.5%
- Electricity Use Scope 2 0 0 0
- Natural Gas Combustion Scope 1 3,291 2,755 3,055
- Natural Gas Leakage Scope 1 107 89 99
- Water-Energy Consumption Scope 2 0 0 0
Streetlights & Traffic Signals 748 0 0 0 - 100%
City Vehicles and Equipment Fleet 2,835 1,676 1,352 1,308 - 53.9%
- On-road Renewable Diesel**Scope 1 499 182 182
- On-road Gasoline Scope 1 1,045 1,108 1,079
- On-road CNG Scope 1 6 20 7
- On-road Electric Scope 2 0 0 0
- Off-road Renewable Diesel**Scope 1 124 40 37
- Off-road Gasoline Scope 1 3 2 3
Wastewater Facilities (Regional
Water Quality Control Plant)11,269*5,715 5,722 5,354 - 52.5%*
- Effluent Discharge Fugitive Scope 1 5,448 5,414 5,070
- Process N₂O Emissions Scope 1 200 206 207
- Electricity Use Scope 2 0 0 0
- Natural Gas Combustion Scope 1 65 99 75
- Natural Gas Leakage Scope 1 2 3 2
Indirect Emission Sources 5,567*4,758 4,873 4,774 - 14.2%*
- Employee Commute Scope 3 1,865 1,980 2,096
- Landfill Methane Scope 3 5,567 2,893 2,893 2,678
Power Generation Facilities 9,308 n/a n/a n/a n/a
Water Delivery Facilities 74 n/a n/a n/a n/a
Total MT CO2e 40,499*15,546 14,792 14,590 - 64%*
Note: Percentages and MT CO2e may not add to the total due to rounding
* Not an equivalent comparison due to different methodologies
** Diesel emissions factors were used in 2022
Page 5 of 7
Despite the overall downward trend, GHG emissions from natural gas combustion (Scope 1) in
the Buildings and Other Facilities sector increased between 2023 and 2024 due to higher
therms usage. These emissions had previously decreased by 16% from 2022 to 2023 but rose by
11% from 2023 to 2024. Nonetheless, total GHG emissions from natural gas combustion
declined by 7% between 2022 and 2024.
5
Administrative Services Department – purchasing and printing
Community Services Department – administration, arts and culture, recreation, parks
and golf
Fire Department – operations, support
Information Technology Department – information technology
Planning and Development Department – inspection services
Police Department – police, animal services
Public Works Department – engineering, facilities management, equipment
management, operations, wastewater treatment operations, storm drainage, refuse,
Palo Alto airport operations
Utilities Department – administrative services, electric operations, electric engineering,
water / gas / wastewater engineering, water / gas / wastewater operations, resource
management
5 CARB staff has reached out to several renewable diesel fuel producers and as of February 2023, is aware that
renewable diesel produced by Neste meets the regulatory requirements and standards. Estimates in GHG
emissions reduction based on emission factors provided by Neste accessed at: https://www.neste.com/en-
us/products-and-innovation/neste-my-renewable-diesel/product-information
Page 6 of 7
Table 2: On-Road Vehicle GHG emissions by City Department & Vehicle Fuel Type (MT CO2e)
City Department Diesel
Vehicles
Gasoline
Vehicles CNG Vehicles Total
(MT CO2e)
Administrative Services 2.4 0 0.2 2.6
Community Services 5.4 87.8 0 93.2
Fire 52.5 66 0.02 118.5
Information Technology 0 2.3 0 2.3
Planning and Development 0 18.6 0.03 18.7
Police 7 413.5 0 420.5
Public Works 56 214.3 4.5 274.9
Utilities 58.5 276.4 2.5 337.4
Total MT CO2e 181.9 1,078.8 7.3 1,268
Note: Totals and MT CO2e may not add to the total due to rounding
Table 3: On-Road Vehicle GHG emissions by City Department (MT CO2e)
City Department 2022 2023 2024 % of Total in
2024
Administrative Services 8.3 2.8 2.6 0.2%
Community Services 88.9 87.9 93.2 7.4%
Fire 228.9 118.7 118.5 9.3%
Information Technology 2.5 2.4 2.3 0.2%
Planning and Development 18.1 22.2 18.7 1.5%
Police 430 421.7 420.5 33.2%
Public Works 337.8 323.5 274.9 21.7%
Utilities 436 328.5 337.4 26.6%
Total MT CO2e 1550.2 1307.6 1268 100.0%
Note: Percentages and MT CO2e may not add to the total due to rounding
Page 7 of 7
Figure 3: Palo Alto On-Road Vehicle GHG Emissions by City Department
1
0
2
4
9
Attachment D: S/CAP Key Performance Indicators Progress Report
This progress report provides an update on the Sustainability and Climate Action Plan (S/CAP)
Key Performance Indicators (KPIs) for calendar year 2024. The S/CAP Key Actions are
abbreviated for the purposes of this report, but the full key actions can be found in Section 5:
Goals and Key Actions of the S/CAP.1 Significant actions and accomplishments from 2024 can be
found on the Sustainability website2.
Climate Action
GOAL
Reduce GHG emissions 80% below 1990 levels by 2030
KEY ACTIONS
Community assistance
C1. Provide building and transportation emissions consultations for residents
C2. Develop major employer custom emissions reduction plans
Staff Analysis
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
Staff and Council action
C8. Accelerate GHG reductions
KEY PERFORMANCE INDICATORS
GHG reductions
Community awareness
Participation in Climate Pledge
Climate Action KPI: GHG Reductions
Palo Alto has already made significant progress in its sustainability and climate action efforts,
decreasing its community emissions to 397,791 metric tons (MT) CO2e, or 5.9 MT CO2e per Palo
Alto resident in 2024 (50.2% decrease compared to 1990 levels). However, to achieve the 80 x
30 and carbon neutrality by 2030 goals, Palo Alto must meet a greenhouse gas (GHG) emissions
target of 160,000 MT CO2e, or 2 MT CO2e per Palo Alto resident by 2030. In order to make
1 2022 Sustainability and Climate Action Plan;
https://www.paloalto.gov/files/assets/public/v/1/sustainability/reports/2022-scap-report_final.pdf
2 Sustainability Actions and Accomplishments; https://www.cityofpaloalto.org/City-Hall/Sustainability/Goals-and-
Progress/Sustainability-Actions-and-Accomplishments
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progress on the GHG reductions goal, in 2024 the City focused on community assistance (Key
Action C1, C2), staff analysis (C3, C4, C5, and C6), and staff and Council action (C8).
Climate Action KPI: Community Awareness
5 Fifty-eight percent of Palo Altans
were not familiar with the S/CAP and it’s 80 x 30 goal.
Climate Action KPI: Participation in Climate Pledge
GOALS
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)
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)
KEY ACTIONS
Reduce greenhouse gas emissions in appliances and equipment
E1.Reduce GHG emissions in Single-Family Appliances and Equipment
E2.Reduce GHG emissions in Non-Residential Equipment
Reduce natural gas use in buildings
E3.Reduce Gas Use in Major Facilities
E4.Reduce natural gas use at City facilities
5 Palo Alto Community Survey, 2024; https://www.paloalto.gov/files/assets/public/v/1/city-
manager/communications-office/general/palo-alto-community-survey-report-2024-final.pdf
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Make it affordable
E5.Support income-qualified residents and vulnerable businesses with electrification
E6.Develop electric rate options
Paving the road to electrification
E7.Use codes and ordinances to facilitate electrification
E8.Electric grid modernization plan
E9.Additional electrification opportunities in commercial and multi-family buildings
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
In order to make progress on the Energy goals, in 2024 the City focused on key actions to
reduce GHGs in appliances and equipment (E1, E2), reduce natural gas use in buildings (E3, E4),
make it affordable (E5, E6), and pave the road to electrification (E7, E8).
In 2024, total natural gas (methane) use in buildings was 23,781,222 therms7 or 127,051 MT
CO2e, which is a decrease from 2023. In 2023, total natural gas (methane) use in buildings was
27,382,162 therms or 146,289 MT CO2e. This is a slight increase from 2022, when total natural
gas (methane) use in buildings was 27,140,144 therms or 144,996 MT of CO2e. This is most
likely because it was colder in the first three months of 2023 than it was in the first three
months of 2022. It could also be because more people were returning to work in offices and
continuing to return to Palo Alto for dining, shopping, and recreation. The decrease between
2024 and 2023 is partly because January 2024 was the warmest January on record. It could also
be partly because residents have replaced more gas appliances with electric appliances.
The City estimates that 2.0% of single-family households (289 single-family homes) have no gas
connections. The S/CAP impact analysis found that in order to achieve 80 x 30, virtually all
single-family gas appliances need to be switched to electric appliances.
Natural gas (methane) use in City facilities in 2024 decreased by 45 percent compared to the
2016 baseline. Data is currently not available for other major facilities.
7 One therm is the energy content of approximately 100 cubic feet of natural gas at standard temperature and
pressure.
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Electric Vehicles
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 alternative transportation modes, micro-mobility, 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
Expand EV infrastructure
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
Electrify fleet vehicles
EV9.Electrify municipal vehicle fleet
EV10.Support policy to electrify fleet vehicles
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
EV KPI: GHG emissions from vehicle travel
2e of citywide GHG emissions were attributed to on-road vehicle
transportation. While VMT data were not available for 2024, City staff and external experts
calculated a preliminary estimate of 2024 VMT based on 2023 per capita VMT, 2024 population
for passenger vehicles, and service population for commercial vehicles and buses. The
preliminary estimate of 226,019 MT CO2e is an increase compared to the past four years, but a
decrease compared to pre-COVID-19 emissions from VMT. Emissions from passenger vehicles
decreased slightly, but emissions from commercial vehicles and buses increased slightly.
EV KPI: Percentage of registered electric vehicles in Palo Alto
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Electric vehicles (EVs) made up 19% of all registered vehicles in Palo Alto in 2024 (9,673 EVs).9
This percentage follows a trend of increasing EV registrations in Palo Alto since 2021: EVs made
up 11% of all registered vehicles in Palo Alto in 2021 (5,499 EVs out of 50,192 total
registrations), 13% in 2022 (6,496 EVs), and 16% in 2023 (8,019 EVs).
EV KPI: Percentage of new vehicle sales that are EVs
EV KPI: Percentage of multifamily residents with access to overnight EV charging
EV KPI: Gasoline sales in Palo Alto
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.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
Change the way we think about parking cars
M5.Implement smart parking infrastructure in public garages
Learn how we can grow without increasing GHG emissions
M6.Study land use and transportation
M7.Continue to implement the City’s Housing Element
M8.Improve transit and traffic flow
9 Electric vehicles (EVs) and plug-in hybrid electric vehicles combined.
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Leverage current tools to foster mobility related GHG reductions
M9.Create housing density and land use mix that supports transit and non-SOV (Single
Occupancy Vehicle) transportation modes
M10.Encourage reductions in GHGs and VMT (vehicle miles traveled)
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 Transportation Demand Management (TDM)
programs (when regional TDM Program data becomes available)
In order to make progress on the Mobility goals, in 2024 the City focused on key actions to
promote alternatives to single occupancy car trips (M1, M2, M3), change the way we think
about parking cars (M5), learn how we can grow without increasing GHG emissions (M7, M8),
and leverage current tools to foster mobility related GHG reductions (M9).
Mobility KPI: Total VMT
In 2023, total VMT was 597,735,000, which is an increase from 2022, when total VMT was
575,389,724. While VMT data were not available for 2024, City staff and external experts
calculated a preliminary estimate of 2024 VMT based on 2023 per capita VMT, 2024 population
for passenger vehicles, and service population for commercial vehicles and buses. The
preliminary estimate of 601,350,463 is an increase from 2023, but significantly less than the
pre-COVID 19 VMT of 952,584,400 in 2019.
Mobility KPI: Commute mode share for all modes
Table 1 shows the commute mode share for Palo Alto residents age 16 and older. These data
are from the US Census American Community Survey. Data from 2019 is also included as a
comparison to pre-COVID 19 pandemic commute mode share. The share of trips taken by solo
drivers in automobiles has increased since 2022 but is less than 2019. The share of trips taken
by Palo Alto residents driving in carpools has increased from all years. The share of Palo Alto
residents taking public transportation has not returned to pre-COVID 10 levels. However, the
share of Palo Alto residents bicycling and walking has increased since 2019. It is important to
note that the share of Palo Alto residents working from home has increased significantly since
2019, with 9.7% working from home in 2019 compared to 22.4% working from in 2024. The
share of Palo Alto residents working from home in 2024 decreased from both 2023 and 2022.
The large increase in Palo Alto residents working from home reduces the total number of work
trips and changes the mode share for other modes.
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Table 1. Mode share estimates as a percentage of commute trips taken by Palo Alto
residents age 16 and older
Mode 2019 2022 2023 2024
Automobile – Solo Driver 61.2%46.1%51.6%51.5%
Automobile – Carpool 5.2%2.4%3.9%6.2%
Taxi, motorcycle, or other 2.1%1.7%2.1%1.2%
Public Transportation 8.0%1.6%2.3%1.2%
Bicycle 10.0%9.2%6.7%11.0%
Walk 3.9%6.4%5.4%6.6%
Work from home 9.7%32.6%27.9%22.4%
Table 2 shows the mode share for all trips taken within, inbound to Palo Alto, or outbound to
Palo Alto by all travelers – residents, commuters, and visitors - in 2022 through 2023. These
data are from Google Environmental Insights Explorer, which has not released transportation
data for 2024. This includes travel mode share for Palo Alto, which is not yet available for 2024.
Data from 2019 is also included as a comparison to pre-COVID 19 pandemic trip mode share.
The shares of trips taken by automobile, rail, and walking in 2023 were comparable to 2022.
Bus ridership increased in 2023 compared to 2022, returning to pre-COVID 19 levels. However,
rail ridership is still lower than pre-COVID 19 and bicycle ridership further decreased below pre-
COVID 19 levels.
Table 2. Mode share estimates as a percentage of trips taken within, inbound to Palo Alto,
or outbound from Palo Alto by all travelers
Mode 2019 2022 2023
Automobile 71.7%79.8%79.9%
Rail 2.8%1.3%1.5%
Bus 1.3%0.8%1.3%
Bicycle 5.2%5.1%4.6%
Walk 19%13.1%12.8%
Mobility KPI: Commute Benefits participation by City employees
In 2024, 25% of full-time City employees participated in commute benefits programs.
Mobility KPI: 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
In 2024, 1.2% of Palo Alto residents took transit for their commute to work. For all trips in Palo
Alto by all travelers – residents, commuters, and visitors – 2.1% of all trips were by transit in
2023. 2024 data is not yet available. In 2024, 17.6% of residents were within a quarter-mile
walkshed of frequent transit. Walksheds are a visual representation of the area a pedestrian
can travel to access transit, and “frequent transit” is defined as a stop or station with service
every 15 minutes or less. Since the introduction of Palo Alto Link in 2023, 67,000 Palo Alto
residents (99% of the population) are covered by on-demand transit.
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Mobility KPI: Number and proportion of residents within a 10-minute walk of retail or other
essential services/land uses
In 2024, 37,800 Palo Alto residents (56.2% of all 67,231 residents) lived within a 10-minute walk
of retail locations or other essential services.
Mobility KPI: Number of businesses participating in Transportation Demand Management
(TDM) programs
The City will report on the “Number of businesses participating in TDM programs” KPI when
regional TDM program data becomes available.
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 2024)
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 water conservation and efficiency
W2.Build a salt removal facility
W3.Implement One Water Portfolio projects
W4.Develop a dynamic water planning tool
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
The near-term focus for water is reducing water consumption while exploring ways to capture
and store water and increase the availability and use of recycled water.
In 2024, the City held three landscape workshops on water-saving topics including drought-
tolerant landscape design, lawn conversion, and information on available rebates. The City
tabled at five neighborhood events to educate residents on water efficiency programs and
rebates. The City also provides the WaterSmart water management tool which gives residents
information about their water consumption and personalized water conservation
recommendations.
The Water KPIs are shown in Table 3.
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Table 3: S/CAP Key Performance Indicators for Water (2024)
KPI 2024
Estimated indoor per capita residential water
consumption
17,927 Gallons per capita
Estimated outdoor residential water
consumption for irrigation
662 Million gallons
Water consumption of commercial
customers with irrigation meters
349 Million gallons
Amount of recycled water used in Palo Alto 63 Million gallons
Volume of stormwater that is captured and
reused
No data to report – no active stormwater
reuse projects at this time
Climate Adaptation and Sea Level Rise
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
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
Minimize the impacts of wildland fire hazards
S5.Implement the Foothills Fire Management Plan
S6.Minimize fire hazards through zoning
S7.Collaborate on reducing wildfire hazards
S8.Implement CAL FIRE education programs
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
The near-term focus for Climate Adaptation and Sea Level Rise is to develop and adopt a multi-
year Sea Level Rise Adaptation Plan and minimize wildland fire hazards through Foothills Fire
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Management Plan implementation, zoning, and collaborating with Fire agencies. In order to
make progress on the Climate Adaptation and Sea Level rise goals, in 2024 the City focused on
key actions to minimize the impacts of sea level rise (S1, S2, S3, S4) and minimize the impacts of
wildland fire hazards (S5, S6, S7, S8).
Sea Level Rise KPI: Percent of vulnerable locations protected from three feet of sea level rise
Sea Level Rise KPI: Percent of properties protected from San Francisquito Creek flooding
11,12
Sea Level Rise KPI: Progress towards sea level rise levee alignments
11 Palo Alto Storm Drain Master Plan; 2015; https://www.paloalto.gov/files/assets/public/v/1/public-
works/engineering-services/webpages/stormwater/storm-drain/storm-drain-master-plan-update-june-2015.pdf
12 Ballot Measure Description of the Proposed Storm Water Management Fee; 2017;
https://www.paloalto.gov/files/assets/public/v/1/public-works/flood-and-storm/storm-water-management-
program/stormwater-management-fee-ballot-2017-final.pdf
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community assets. If funded, this work will complement the preexisting City’s Vulnerability
Assessment15 that was completed in 2022. SB1 grant funding is not slated to reexamine levee
alignments themselves but would provide additional protection strategies that could be
considered.
Climate Adaptation KPI: Implementation of Foothills Fire Management Plan mitigation
measures
Table 4: S/CAP Key Performance Indicators for Foothills Fire Management Plan Mitigation
Measures (2022-2023)
Foothills Fire
Management
Plan Mitigation
Measure
2022 2023 2024
15 2022 Palo Alto Sea Level Rise Vulnerability Assessment;
https://www.cityofpaloalto.org/files/assets/public/v/1/public-works/environmental-compliance/sea-level-
rise/palo-alto-sea-level-rise-vulnerability-assessment-june-2022-062822-linked-final.pdf
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Number of
residential
defensive space
re-inspections
that are required
33 homes 18 homes 21 homes
Percent of miles
of overhead
utility line tree
trimming in
Foothills
completed
65.73%
(7.25 miles)
67.91%
(7.49 miles)
54.49%
(2.91 of 5.34 total miles)
Total miles of
electric lines
undergrounded in
the City of Palo
Alto Utilities
Foothills
Coverage Area
Approx. 2.94 miles
(15,500 feet)
Approx. 1.04 miles
(5,500 feet)
Approx. 2.27 miles
(12,000 feet)
Percent of
electric line miles
undergrounded in
the City of Palo
Alto Utilities
Foothills
Coverage Area
31.5%11.2% 24.4%
Natural Environment
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 baseline
KEY ACTIONS
Maintain and protect tree canopy
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
Restore and enhance biodiversity
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N6.Maximize biodiversity and soil health
N7.Coordinate implementation of the City Natural Environment-Related Plans
N8.Expand Water Efficient Landscape Ordinance (WELO) requirements
N9.Phase out gas-powered lawn and garden equipment
Reduce pollutants entering the Bay
N10.Support the Green Stormwater Infrastructure Plan.
N11.Incorporate green stormwater infrastructure in municipal projects
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
The near-term focus for Natural Environment is to increase Palo Alto’s Tree Canopy, reduce
pesticide usage in parks and open space preserves, and support the Green Stormwater
Infrastructure Plan and incorporate it in municipal projects. In order to make progress on the
Natural Environment goals, in 2024 the City focused on key actions to maintain and protect tree
canopy (N2, N3, N4, N5), restore and enhance biodiversity (N6, N7, N8, N9), and reduce
pollutants entering the Bay (N10, N11).
Ongoing tree planting efforts to increase tree canopy will be integrated with traditional tree
planting programs and Green Stormwater Infrastructure to provide co-benefits including
carbon sequestration, improve water quality, capture stormwater when feasible, and reduce
the urban heat island.
Natural Environment KPI: City-wide Tree Canopy coverage
2024 canopy coverage data is not yet available. In 2023, citywide tree canopy coverage was
44%, however this includes open space and the Foothills Nature Preserve. Tree canopy
coverage in urbanized areas only was 26%.
Natural Environment KPI: Native species on City property and in new landscape projects (to
measure biodiversity)
In 2024, City landscape projects included the Boulware Park renovation, Cameron Park
butterfly garden installation, and Mitchell Park Dog Park. Of the 996 individual plants
established at these sites, 935 were native to California. Across the sites, 22 native species were
planted.
Natural Environment KPI: Land area that uses green stormwater infrastructure to treat urban
water runoff
There is currently no data to report for the “Land area that uses green stormwater
infrastructure to treat urban water runoff” KPI.
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Zero Waste
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
KEY ACTIONS
Education and outreach
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
Collaborate on and expand policies
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
KEY PERFORMANCE INDICATORS
Diversion rate
Number of Zero Waste Plan initiatives implemented
The near-term focus for Zero Waste is to encourage residents and businesses to reduce their
food waste, which will also reduce the associated greenhouse gas emissions, lower their waste
generation through the undertaking of zero waste living practices of using less at home and at
work; to champion waste prevention technical assistance to businesses; eliminate single-use
disposable containers; and prioritize domestic processing of recyclable materials.
In order to make progress on the Zero Waste goals, in 2024 the City focused on key actions on
education and outreach (ZW1, ZW2, ZW3, ZW4) and to collaborate on and expand policies
(ZW5, ZW8). The City developed a new booklet for businesses, “Multi-Ordinance Checklist”,
that summarizes Palo Alto’s Zero Waste and SB 1383 requirements such as requirements for
the use of colored refuse containers as well as see-through colored bags to match the color of
the containers for Compost, Recycle, and Landfill materials. The printed copies were mailed to
425 commercial businesses, specifically food service establishments, in November 2023. In
addition, the City developed a new brochure for the Very Small Quantity Generator Program for
household hazardous waste and has been distributing it during household hazardous waste
events and direct business engagement.
Expanding the Disposable Foodware Ordinance (ZW6) has been put on hold until further
clarification is received through Senate Bill 54 final regulations and other recent legislation
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creating changes on what will be considered recyclable and compostable. The City developed
and printed postcard and trifold brochures on the Disposable Foodware Ordinance/AB 1276 to
be mailed and handed out to 450 food service establishments.
Zero Waste KPI: Diversion rate
Zero Waste KPI: Number of Zero Waste Plan initiatives implemented
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Attachment E: S/CAP Key Performance Indicators Progress Summary
Key Performance Indicator 2022 2023 2024
GHG reductions (1990 baseline)47.4%48.1%50.2%
Community awareness No data 68% of participants
indicated that it is
essential or very
important for Palo Alto
to focus on GHGs in
the next 2 years
40% of Community
Survey respondents
indicated they were at
least slightly familiar
with the S/CAP and
80x30 goalCl
i
m
a
t
e
A
c
t
i
o
n
Participation in Climate Pledge No data No data 3
GHG emissions from natural
gas use in buildings
144,996 MT CO2e 146,289 MT CO2e 127,051 MT CO2e
% of single-family households
in Palo Alto with no natural gas
connections
1.2% (208 homes)1.5% (232 homes)2.0% (289 homes)
En
e
r
g
y
% of natural gas use reduction
in major facilities and City
facilities (2016 baseline)
No data 45% reduction in City
facilities
45% reduction in City
facilities
GHG emissions, vehicle travel 221,923 MT CO2e 225,387 MT CO2e 226,019 MT CO2e*
% of registered vehicles in Palo
Alto that are EVs
13%16%19%
% of new vehicle sales in Palo
Alto that are EVs
43%52%55%
% of multifamily residents with
access to overnight EV charging
3%4%7.6%
El
e
c
t
r
i
c
V
e
h
i
c
l
e
s
Gasoline sales in Palo Alto Data unavailable Data unavailable Data unavailable
Total Vehicle Miles Traveled
(VMT)
575,190,655 597,735,000 601,350,463*
(preliminary estimate)
Commute mode share
(commute trips by residents
age 16 and older)
Automobile – solo driver
Automobile – carpool
Taxi, motorcycle, or other
Public Transportation
Bicycle
Walk
Work from home
46.1%
2.4%
1.7%
1.6%
9.2%
6.4%
32.6%
51.6%
3.9%
2.1%
2.3%
6.7%
5.4%
27.9%
51.5%
6.2%
1.2%
1.2%
11.0%
6.6%
27.4%
Trip mode share (all trips by all
travelers)
Automobile
Rail
Bus
Bicycle
Walk
71.7%
2.8%
1.3
5.2%
19%
79.9%
1.5%
1.3%
4.6%
12.8%
Data forthcoming*
Mo
b
i
l
i
t
y
City employee commute
benefits participation
No data 19%25%
1
0
2
5
0
Key Performance Indicator 2022 2023 2024
Transit ridership by adult
residents for commute trips
Transit ridership by all
travelers for all trips
The proportion of residents
within a quarter-mile
walkshed of frequent transit
Proportion of residents
covered by on-demand
transit services
1.6%
2.1%
Data unavailable
Data unavailable
2.3%
2.8%
21.9%
99.7%
1.2%
Data forthcoming*
17.6%
99%
Number and proportion of
residents within a 10-minute
walk of retail or other essential
services/land uses
Data unavailable 32,700
(48% of all 68,112
residents)
37,800
(56.2% of all 67,231
residents)
Businesses participating in
Transportation Demand
Management (TDM) programs
Data unavailable Data unavailable Data unavailable
Indoor per capita residential
water consumption (estimated)
24,171 gallons 17,537 gallons 17,927 gallons
Outdoor residential water
consumption for irrigation
(estimated)
427 million gallons 620 million gallons 662 million gallons
Water consumption of
commercial customers with
irrigation meters
348 million gallons 312 million gallons 349 gallons
Amount of recycled water used
in Palo Alto
113.5 million gallons 81.05 million gallons 63.21 million gallons
Wa
t
e
r
Volume of stormwater that is
captured and reused
No data No data No data
Percent of vulnerable locations
protected from three feet of
sea level rise
No data No data No data
Percent of properties protected
from San Francisquito Creek
flooding
No data No data No data
Cl
i
m
a
t
e
A
d
a
p
t
a
t
i
o
n
a
n
d
S
e
a
Le
v
e
l
R
i
s
e
Progress towards sea level rise
levee alignments
Not launched yet No data USACE feasibility study
conducted; no federal
interest in funding
large levee alignment
projects at this time
1
0
2
5
0
Key Performance Indicator 2022 2023 2024
Implementation of Foothills
Fire Management Plan
mitigation measures
Number of residential
defensive space re-
inspections that are
required
% of miles of overhead
utility line tree trimming in
Foothills completed
Total miles of electric lines
undergrounded in the City
of Palo Alto Utilities
Foothills Coverage Area
% of electric line miles
undergrounded in the City
of Palo Alto Utilities
Foothills Coverage Area
33 homes
65.73% (7.25 miles
completed)
2.94 miles
31.5%
18 homes
67.91% (7.49 miles
completed)
1.04 miles
11.2%
21 homes
54.49% (2.9 miles
completed of 5.3
total miles)
2.27 miles
24.4%
City-wide tree canopy coverage No data 26% of urbanized areas
44% including
Foothills Nature
Preserve area
Data forthcoming
Native species on City property
and in new City landscape
projects (to measure
biodiversity)
No data No new landscape
projects to report
935 individual native
plants; 22 native
species
Na
t
u
r
a
l
E
n
v
i
r
o
n
m
e
n
t
Land area that uses green
stormwater infrastructure to
treat urban water runoff
No data No data No data
Diversion rate 91%91%88%
Ze
r
o
Wa
s
t
e
Zero Waste Plan initiatives
implemented
No data 18 completed
15 in progress
15 remaining
18 completed
15 in progress
15 remaining
* VMT data were not available in Google Environmental Insights Explorer (Google EIE) for 2024. City staff and external experts
calculated a preliminary estimate of 2024 VMT based on 2023 per capita VMT, 2024 population for passenger vehicles, and
service population for commercial vehicles and buses. 2024 KPI data will be revised when 2024 Google EIE data becomes
available.
Attachment F: 2023-2025 S/CAP Work Plan Status
For more details, see the 2025 Q1-2 S/CAP report1. The 2025 Q3-4 report will be published in February.
Item No.Work Plan Item Status
1 City Council, November 3, 2025; Agenda Item A; SR #2505-4672, https://recordsportal.paloalto.gov/WebLink/DocView.aspx?
id=83784&dbid=0&repo=PaloAlto
2.2B Rooftop Packaged HVAC Advanced Pilot Design
2.2C Establish Major Employer Partnerships
2.2D Commuter Transportation and EV Charging Strategy
2.2E Identify Regional and State Partnerships
2.3A Transportation and Land Use Policies and Programs
2.3B Housing Element Adoption
2.3C Housing Element Implementation
2.3D Micro-mobility Evaluations
2.3E Launch On-demand Transit Pilot
2.3F Update Bicycle Plan (final draft plan complete, going to Council in early 2026)
2.3G Vision Zero Program (Safety Action Plan completed in 2025, transitioning this item to be to an ongoing
item in future reports to reflect ongoing plan implementation)
2.3H Evaluate Expansion of Employer Transportation Demand Management (TDM)
2.3I Proposals for Managing Downtown Parking Availability
2.3J Implement Efficient Downtown Parking Management
2.3K Traffic Signal Improvements & Transit Signal Priority
2.4A Facility Electrification Assessment Plan
2.4B Facility Electrification Assessment Implementation
2.4C Electrify Equipment at City Facilities during Routine Replacement
2.4D Electrify City Vehicle Fleet
2.3E Build City Fleet and Employee Charging Infrastructure
2.4F Publicly Owned Charger Strategic Plan
2.5A Electric Vehicle Strategic Plan Development
3.1A Build awareness of the need for climate action and the benefits the City and its utility can receive and
provide
3.1B Drive community actions to achieve S/CAP goals
3.1C S/CAP Survey Program
3.1D S/CAP Reporting
3.1E Build confidence in the City’s electric infrastructure
4A Multi-family and Commercial End Use Study
4B Idea Generation and Additional Research
4C Additional Emissions Reduction Project Prioritization
5A Resource Needs Assessment
5B Funding Alternatives
5C Affordability Study
5D Gas Utility Financial and Operating Plan
8A Maximize Water Conservation and Efficiency
8B Design and Build a Salt Removal Facility for the Regional Water Quality Control Plant
8C Develop a “One Water” Portfolio for Palo Alto
8D Develop a tool for dynamic water planning in the future
8E Complete the Sea Level Rise Vulnerability Assessment
8F Develop a Sea Level Rise Adaptation Plan
8G Begin Design Process for a Levee Project
8H Identify Protection Strategies from Significant Flood Events at Newell Road Bridge
8I Identify Protection Strategies from Significant Flood Events at Pope Chaucer Bridge and Creek
8J Identify Protection Strategies from Significant Flood Events
8K Implement Foothills Fire Management Plan
8L Minimize Fire Hazards Through Zoning
8M Collaborate on Reducing Wildfire Hazards
8N Implement CAL FIRE Public Education Programs
8O Increase Palo Alto’s Tree Canopy and establish a baseline and Key Performance Indicator for carbon
storage of tree canopy
Canopy
Carbon
Storage
8P Ensure No Net Tree Canopy Loss for all Projects
8Q Reduce Pesticide Use in Parks and Open Space Preserves
8R Coordinate Implementation of City Natural Environment-Related Plans
8S Support the Green Stormwater Infrastructure (GSI) Plan and incorporate GSI in Municipal Projects
8T Encourage Food Waste Prevention and Require Food Recovery from Commercial Food Generators
8U Promote Residential Food Waste Reduction
8V Champion Waste Prevention, Reduction, Reusables, and the Sharing Economy
8W Provide Waste Prevention Technical Assistance to the Commercial Sector
8X Prioritize Domestic Processing of Recyclable Materials
8Y Eliminate Single-Use Disposable Containers
8Z Expand the Deconstruction and Construction Materials Management Ordinance
8aa Implement Reach Code standard for Low Carbon Construction Materials
1
2026-2027
Sustainability and Climate Action Plan Work Plan
The Sustainability and Climate Action Plan (S/CAP) outlines the strategies for achieving the
City’s greenhouse gas (GHG) emissions reduction targets, while improving our natural
environment, adapting to climate impacts, and increasing livability for Palo Alto residents. The
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 climate action areas of Climate Action, Energy, Electric Vehicles, and Mobility primarily
focus on the overarching goals to reduce GHG emissions 80% below 1990 levels and achieve
carbon neutrality by 2030. The sustainability areas of Water, Climate Adaptation and Sea Level
Rise, Natural Environment, and Zero Waste do not 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 2026-2027 S/CAP Work Plan includes 28 strategies focused on climate action, 16 strategies
focused on sustainability and three strategies for overall S/CAP Communications for all areas of
the S/CAP.
Climate Action
Single-Family
CA1.Continue Advanced Home Electrification Pilot Program: Offer full suite of program
services to support residents with home electrification projects, including turnkey
service, technical assistance, and rebates. Offer enhanced rebates and 0% financing to
income-qualified households. Goals and funding levels to be developed annually and
coordinated with annual budget process. Program will be designed and changed as
needed to complement the Bay Area Air District’s Zero-NOx rules (Rules 9-4 and 9-
6). Resource Availability: Fully staffed; goals and funding levels to be considered on
timeline in alignment with annual budget process. Explore ways to promote resources
for renters, including information on appliances like portable induction cooktops and
window-mounted heat pumps that can help renters reduce emissions without asking
landlords to make major improvements to the units. Target Completion Date: On-
going.
2
CA2.Develop a Residential Electrification as a Service or Similar Financing Pilot for Council
Approval: Offer electrification as a service or similar creative financing pilot to
residents to support financing of gas to heat pump projects as a pilot of more
financially efficient program design. Develop pilot participation agreement, enable
tracking of debt repayment in billing system, create process to enroll customer in
EaaS. Resource Availability: Program team fully staffed, IT / administrative staffing
needs evaluation; goals and funding levels to be considered on timeline in alignment
with annual budget process. Target Completion Date: Q3 2026 (tentative, pending
staff evaluation).
CA3.Enhance Data Tracking for Home Electrification: Enhance existing database to more
comprehensively track home electrification status and incorporate data from existing
program databases, home assessments, gas data analytics to estimate home gas
equipment, and results from voluntary data inputs by residents. This will allow staff to
more effectively track program results, perform more targeted outreach, and tailor
communications to homeowners based on their building characteristics. Resource
Availability: As staff time is available; consultant resources needed, covered within
existing budget. Target Completion Date: Q4 2026.
Multi-Family
CA4.Launch Enhanced Multifamily EV Charging Infrastructure Program: Update program
guidelines, incentives (i.e. rebates, financing), and technical assistance offerings for
the installation of EV charging infrastructure that supports multifamily residents
through:
private on-site charging at multifamily properties;
publicly-accessible charging at neighborhood e-mobility hubs at public or
private properties; or
publicly-owned or public-private partnership neighborhood curbside charging
installations
This work includes complementary programming supporting EV adoption by income-
qualified customers and integration of alternative transportation infrastructure,
launch in alignment with design guidelines approved by the City Council on November
17, 2025. Resource Availability: Fully staffed; goals and funding levels to be considered
on timeline in alignment with annual budget process. Target Completion Date: Launch
in 2026.
CA5.Develop a Charging-as-a-Service (CaaS) or Similar Financing Pilot for Council
Approval: Offer charging-as-a-service (CaaS) or a similar creative financing program to
multi-family property owners to support financing of EV infrastructure projects
developed through the Multifamily EV Charging Infrastructure Program. Develop pilot
participation agreement, enable tracking of debt repayment in billing system, create
process to enroll customer in CaaS, and collaborate with EV service providers to
3
identify projects. Resource Availability: Program team fully staffed, IT / administrative
staffing needs evaluation; goals and funding levels to be considered on timeline in
alignment with annual budget process. Target Completion Date: Launch in 2026.
CA6.Continue Affordable Multifamily Building Electrification Incentive Program: Continue
pilot electrification program for affordable multifamily properties providing rebates to
support the electrification of central water heating and/or space heating equipment in
at least 3-5 properties and in-unit electrification of at least one property. The pilot
program will provide opportunities to design and test innovative low-interest
financing models as well as opportunities to model turn-key multifamily residential
electrification. Resource Availability: Fully staffed; goals and funding levels to be
considered on timeline in alignment with annual budget process. Target Completion
Date: End of 2027.
CA7.Launch Multi-Family Electrification Technical Assistance: Design and implement a
technical assistance program to address the particular challenges associated with
electrification of multi-family buildings. This would complement incentives or other
financial assistance provided by other programs (e.g. via residential whole home
programs and electrification as a service for multi-family in-unit improvements and via
commercial electrification programs for central system improvements). Resource
Availability: As staff time is available; goals and funding levels to be considered on
timeline in alignment with annual budget process. Explore ways to promote resources
for renters, including information on appliances like portable induction cooktops and
window-mounted heat pumps that can help renters reduce emissions without asking
landlords to make major improvements to the units. Target Completion Date: End of
2027.
Non-Residential
CA8.Launch Advanced Heat Pump HVAC Program: Launch an advanced Heat Pump HVAC
(HPHVAC) program to transition aging gas systems (rooftop units and ground
mounted) off of gas in alignment with Council-approved design guidelines. Resource
Availability: Fully staffed; goals and funding levels to be considered on timeline in
alignment with annual budget process. Target Completion Date: Q4 2026 - Q1 2027.
CA9.Develop a Commercial Electrification as a Service pilot or Similar Financing Pilot for
Council Approval: Offer electrification as a service or a similar creative financing
program to commercial property owners to support financing of gas to heat pump
projects as a pilot of more financially efficient program design. Develop pilot
participation agreement, enable tracking of debt repayment in billing system, create
process to enroll customer in Electrification as a Service (EaaS). Resource Availability:
Program team fully staffed, IT / administrative staffing needs evaluation. Target
Completion Date: Q3 2027 (tentative, pending staff evaluation).
CA10.Launch Workplace EV Charging Pilot: Implement a workplace EV charging program
building upon the framework of the multifamily EV charging program. Advance
4
additional analysis as needed on the current state of workplace charging, available
electric capacity and commute patterns. Collaborate with the EV Team and Office of
Transportation on grant opportunities to promote to commercial property owners.
Resource Availability: Fully staffed. Target Completion Date: 2027
CA11.Launch Pilot Program for Electrification of Centralized Water Heaters and Boilers:
Provide incentives for a select number of large equipment replacements to collect
performance data, identify barriers to electrification, and compare cost impacts of
like-for-like versus electric options, including effects on customer utility bills. Resource
Availability: As staff time is available; goals and funding levels to be considered on
timeline in alignment with annual budget process. Target Completion Date: 2027.
CA12.Establish One or More Partnerships with Large Commercial Facility Owners: Develop
custom sustainability partnerships with at least one major employer, such as creative
financing options, electrification pilots with large facilities, and support of corporate
electrification efforts. Resource Availability: Fully staffed; goals and funding levels to
be considered on timeline in alignment with annual budget process. Target
Completion Date: 2026.
Regulatory, Analytics, Finances, and Strategy
CA13.Develop S/CAP Funding and Financing Strategies for City Council Consideration:
Using insights and models developed for S/CAP Funding Study, City staff will develop
potential funding and financing strategies for City Council consideration. Policies will
consider different timelines, the effect of regulatory requirements, and equipment
focus to provide a range of policy alternatives. Analyses will consider resource needs,
additional revenue requirements, and potential impact on utility rates. Resource
Availability: Fully staffed, to be absorbed from existing budgets. Target Completion
Date: Q4 2026.
CA14.Develop Potential Regulatory Measures to Drive Climate Action: Develop a list of
potential regulatory measures to drive electrification, energy efficiency, and EV
adoption in Palo Alto for consideration by City Council, in addition to implementation
of Reach Codes that apply. Seek regulatory measures that could serve as the
“regulatory backbone” of a decarbonization strategy (e.g. a Building Emissions Savings
Ordinance that would require compliance at the time of residential or commercial
property listing or a commercial Building Performance Standard). Consider the
programs needed to make such mandates work, such as incentives and technical
assistance programs to help building owners meet regulatory requirements. Resource
Availability: Fully staffed. Target Completion Date: Q4 2026.
CA15.Develop Carbon Neutrality Strategies for City Council Consideration: Develop
potential strategies for City Council consideration for achieving community carbon
neutrality by 2030. Resource Availability: Fully staffed. Target Completion Date: Q4
2026.
5
CA16.Develop Potential Strategies for Cost-Based Pricing of Non-Electric Decarbonization
and Inefficient Electrification: Based in industry research and legal analysis, develop
potential strategies for Council consideration for reflecting the cost of decarbonization
without electrification (e.g. via renewable fuels like biogas and hydrogen) and the
costs of electrification that does not incorporate efficient electrification practices on
distribution costs (e.g. due to 400A panel upgrades for higher demand appliances than
are needed to serve the electrified uses, leading to the need to build more electric
distribution capacity). Examples of potential strategies for consideration include
electrical capacity fees and voluntary carbon pricing reflecting the cost of
decarbonizing with renewable fuels). Resource Availability: Fully staffed. Some
consulting budget may be needed, to be considered via annual budget process. Target
Completion Date: Q4 2026.
CA17.Reduce Permitting, Interconnection, and Other Barriers to Adoption of Vehicle and
Building Electrification and Flexible Energy Technologies for Reliability and
Resiliency: Reduce barriers to adoption of vehicle and building electrification
technologies, flexible energy technologies for reliability and resiliency, and efficient
electrification best practices. Focus on planning and zoning rules, utility rules and
regulations, fees, and potential barriers that could be relieved through climate
program services such as technical assistance. Look for efficient project approaches,
such as bundling multiple electric readiness projects together at once and exploring
different approaches to electric panel load calculations, such as by using smart meter
data. Develop and implement annual list of priority areas for consideration and
timeline for evaluation of potential options. Resource Availability: As staff time is
available, higher level of effort possible with resources. Target Completion Date: On-
going.
CA18.Develop Public Charging Siting and Business Models: As needed, perform siting
analysis and develop business models for public charging on public and private
properties to support multi-family, workplace, and visitor charging needs. Work is
expected to be performed primarily using in-house staff with light consulting
assistance as needed. Resource Availability: Fully staffed; some consulting budget may
be needed, to be considered via annual budget process. Target Completion Date: Q1
2027.
Infrastructure
CA19.Continue Grid Modernization: Continue electric distribution system grid
modernization program with the completed pilot informing program implementation,
at the pace needed to provide adequate capacity for building and vehicle
electrification. Resource Availability: Fully staffed; project and consulting budgets to
be requested via annual budget process as needed. Target Completion Date: On-
going.
6
CA20.Develop Gas Transition Management Strategies: Complete study of gas system
physical and financial operation under various electrification scenarios, discuss
relevant findings with policy makers, and develop and implement any policies,
programs, or operational practices needed to ensure safe, financially viable, and
equitable operation of the gas utility as electrification proceeds. Resource Availability:
Fully staffed; project and consulting budgets to be requested via annual budget
process as needed. Target Completion Date: On-going.
Mobility
CA21.Achieve Benchmarks for Bicycle and Pedestrian Capital Improvement Projects: South
Palo Alto Bikeways Demonstration Project: Upgrade crossings and bicycle facilities on
East Meadow Drive and Fabian Way to improve safety, especially for students
traveling to school. Information learned throughout the demonstration project will be
incorporated into an update of the Palo Alto Safety Action Plan and will inform
permanent design changes to the corridor. Resource Availability: Project is fully
funded but requires staffing. Target Completion Date: Pilot construction anticipated
for summer 2027.
Churchill Avenue Enhanced Bikeway Project: Improve walking and bicycling on
Churchill Avenue with a multi-use path, intersection improvements, and landscaping.
Project work is focused between the Caltrain tracks and El Camino Real. Target
Completion Date: Construction is scheduled to finish by fall 2026.
Quarry Road Extension at El Camino Park: Develop underused portion of El Camino
Park to provide a direct connection from El Camino Real to the Palo Alto Transit
Center. Project is led by Stanford. Target Completion Date: By fall 2027, project will
complete the Caltrans process for the Encroachment Permit and prepare plans,
specifications, and estimate construction documents for the project in both Caltrans
and City right-of-way. In addition, the team will perform both a bike and transit
operations assessment and recommend operational scenarios to inform future bikes,
bus and shuttle operations in and around the Transit Center.
South Palo Alto Bike/Ped Connectivity: Identify locations and design concepts for
additional east-west bicycle and pedestrian crossings of the Caltrain railroad tracks in
the southern part of the City. Council selected the El Dorado Avenue option (also
called Alternative A) for further planning and development work. Two variants of
Alternative A were advanced: A1 (signalized crossing of Alma Street at El Dorado
Avenue) and A2 (tunnel under both Alma Street and the Caltrain tracks). Additional
community engagement activities are planned for early 2026 to support the decision-
making process and incorporate public feedback on the alternatives in the vicinity of El
Dorado Avenue. Target Completion Date: Study will complete following Council
7
adoption of a final report in spring 2027, and next steps include securing grant funding
for environmental documentation, final design and construction.
CA22.Implement Micromobility Feasibility Study Recommendations: Pursue next steps for
a bike/e-bike/e-scooter share pilot program or other recommendation as advised by
the Micromobility Feasibility Study, to be finalized in early 2026. Resource Availability:
Fully staffed and partially funded, need to evaluate based on recommendation in the
study. Target Completion Date: 2027.
CA23.Continue Traffic Signal Operations and Multimodal Improvements: 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.
Projects that include operational improvements include the Quarry Road Intelligent
Transportation Systems and Operations Improvement (in-progress), Citywide Central
Management and ITS Updates (Ongoing), Citywide Arterial Operations Optimization
(on-going pending staff resources), and Automated Traffic Signal Performance
Measure (ATSPM) implementation (near future). Each of these projects includes
multimodal improvements and optimization to improve operations and reduce
emissions.
Resource Availability: Mostly funded, long-term funding needs being evaluated. Target
Completion Date: On-going.
CA24.Continue Implementing the Housing Element / Land Use Planning and Policy:
Implement the goals, policies, and programs in the City's 2023-2031 Housing Element
of the Comprehensive Plan to improve the City's jobs-housing balance and to reduce
vehicle miles traveled (VMT). Implementation will continue creating a housing density
and land use mix that supports transit and non-SOV (Single Occupancy Vehicle)
transportation modes, such as efforts on land use and area plans, housing plans,
development standards, and affordable housing projects. Resource Availability:
Funding via grants and annual City budget process. Target Completion Date: 2030.
CA25.Update City’s Traffic Calming Policy and Process: Update the City’s Traffic Calming
Process to provide more clarity on traffic calming design details and criteria for
consideration in relation to engineering judgment. Resource Availability: Proceed as
staff time available. Target Completion Date: End of 2027.
Municipal Assets and Operations
CA26.Develop and Begin Implementing a City Facility Electrification Plan: Building on the
citywide Facilities Assessment, create a multi-year plan to begin replacing fossil fuel
use in City buildings in alignment with S/CAP goals, and begin implementing through
the Capital Improvement Program. Target Completion Date: On-going.
8
CA27.Electrify City Vehicle Fleet when Feasible: Convert all Palo Alto municipal vehicles to
EVs when feasible and when the replacement is operationally acceptable. Support
state policy efforts to electrify fleet vehicles, including delivery trucks. Determine
municipal EV charging needs to ensure adequate EV charging infrastructure for City
fleet vehicles. Where possible, explore a shared use of fleet chargers that would allow
for City staff to use the fleet chargers during the day. Also explore options for
providing EV chargers in employee parking lots. Resource Availability: Fully staffed; EV
acquisition evaluated with each scheduled vehicle replacement, additional funding
needed for certain vehicle classes. Funding for charging infrastructure evaluated
project by project and funded through annual budget process. Target Completion
Date: On-going.
CA28.Explore the Electric Capacity Needs of the Palo Alto Airport for Electric Aviation:
Explore the electric capacity needs of the Palo Alto Airport to ensure adequate
infrastructure to accommodate electric aviation, as well as electric fleet
vehicles. Resource Availability: Proceed as staff time is available. Target Completion
Date: 2030.
Sustainability
Water
S1.Implement Water Efficiency and Conversation Measures: Deploy water efficiency and
conservation measures that achieve water savings above and beyond what is required
by state regulations. Resource Availability: Fully staffed and funded. Target Completion
Date: 2030.
S2.Improve Recycled Water Quality through Salt Removal: Improve the quality of recycled
water produced at the Regional Water Quality Control Plant. Resource Availability: Fully
staffed and funded. Target Completion Date: 2028.
S3.Identify and Implement Water Distribution System Adaptation Measures: Identify risks
from climate change to the water distribution system and implement solutions.
Resource Availability: Fully staffed; funding to implement projects not identified. Target
Completion Date: 2026.
Sea Level Rise
S4.Finalize Partnership Agreement with Santa Clara County on SB272 Regional Shoreline
Adaptation Plan Requirements to Develop a Regional Vulnerability Assessment and
Adaptation Plan: If grant funding is received, this project is anticipated to identify and
align county-wide sea level rise adaptation planning projects. Resource Availability: To
be determined. Target Completion Date: 2027.
S5.Update the City's Sea Level Rise Adaptation Policy to Include Sea Level Rise Planning
Decision-Making Points in the City: Update the City's Sea Level Rise Adaptation Policy
9
to include newest technical information, best practices, and decision-making points in
the City where sea level rise and shallow groundwater changes should be considered for
new projects and operations/maintenance. Resource Availability: Existing funding.
Target Completion Date: 2027.
S6.Complete Construction and Begin Monitoring the Palo Alto Horizontal Levee Pilot
Project (PAHLPP): The PAHLPP will be the first Bay Area horizontal levee to be
hydrologically connected to the Bay. The project will inform future potential levee
improvements that expand habitat benefits. The City and partner agencies will advance
monitoring and research following project completion, anticipated in early 2026.
Resource Availability: Existing funding. Target Completion Date: 2026.
S7.Continue Partnership with Valley Water on Sea Level Rise / Shoreline Levee
Improvement Efforts: Track developments with Valley Water and Army Corps of
Engineers. Resource Availability: Staffing available, future funding needed. Target
Completion Date: 2027.
Wildfire Protection
S8.Implement the Foothills Fire Management Plan: Implement the Foothills Fire
Management Plan to balance conservation of natural resources with reduction of fire
hazards especially in open space areas. Priority implementation areas include:
Mitigating fire risk from electrical equipment through projects such as moving the
overhead electric lines underground in areas generally within the City limits west of
Highway 280, known as the Foothills area, and mitigating fire risk from vegetation,
including through the removal of targeted Eucalyptus groves in specific project areas.
Resource Availability: General Funds, Staffing, CIP EL-21001. Target Completion Date:
On-going.
Natural Environment
S9.Increase Tree Canopy in South Palo Alto: Develop programs to plant trees in South Palo
Alto 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. Resource Availability: Partially funded, Staff available as
time permits. Target Completion Date: On-going.
S10.Reduce Pesticide Use in Parks and Open Space Preserves: 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. Resource Availability: Staff available as time
permits. Target Completion Date: On-Going.
Green Stormwater Infrastructure
S11.Construct a Green Stormwater Infrastructure Project at a City of Palo Alto Park: A
green stormwater infrastructure (GSI) project proposed at Juana Briones Park will be
10
designed and constructed. The GSI project will treat an estimated drainage area of 14.8
acres, 6.6 acres of which are impervious. Proposed design will include community
features for park users during dry periods throughout the year. Resource Availability:
Funding includes U.S. EPA grant to be supplemented by Stormwater Management Fund
as needed. Target Completion Date for Design: September 2027.
S12.Increase Green Stormwater Infrastructure on City of Palo Alto Property and/or Right-
of-Way: Evaluate planned Capital Improvement Program projects for integration of
green stormwater infrastructure to treat additional impervious surfaces. Resource
Availability: Existing staff resources. Target Completion Date: Ongoing.
S13.Quantify Land Area that Uses Green Stormwater Infrastructure to Treat Urban Water
Runoff: Quantify the amount of land area in the City of Palo Alto that uses green
stormwater infrastructure to treat urban water runoff. This includes quantifying the
amount of impervious surfaces, and will be used as a baseline for future S/CAP work.
Resource Availability: Consultant will be contracted to support City staff. Target
Completion Date: December 2026.
Zero Waste
S14.Champion Waste Prevention, Reduction, Reusables, and the Sharing Economy: Create
new collaborations with city departments (such as libraries) and community
organizations to advance reuse and repair initiatives, including textile re-use and
recycling. Resource Availability: Existing staff resources and outreach funding. Target
Completion Date: 2027.
S15.Eliminate Single-Use Disposable Containers and Reduce Disposable Foodware: Assess
compliance with existing foodware ordinance requirements, identify key challenges and
barriers to reducing additional single-use disposables and to requiring reusable
alternatives. Develop new comprehensive plan to effectively expand and strengthen the
foodware ordinance. Resource Availability: Funded for Ordinance Requirement, need
additional funding for implementation of future requirements. Target Completion Date:
2027.
S16.Promote Food Waste Reduction: Maintain and enhance ongoing public education and
outreach initiatives aimed at promoting food waste reduction throughout the
community. These efforts will also support and ensure continued compliance with the
requirements of Senate Bill 1383 (2016). Messaging strategies will be aligned with
sustainability goals and tailored to foster greater community engagement and
behavioral change. Resource Availability: Existing staff resources and outreach
funding. Target Completion Date: On-going.
10
11
Communications
C1.Build Awareness about Sustainability and Climate Action and City Programs Available
to the Community. Achieve widespread awareness about sustainability and climate
action, the 80 x 30 goal, City services and programs, and achievements. Collaborate with
partnerships and volunteers to support grassroots outreach helping to build residents,
commercial customers, and contractors awareness. Resource Availability: Fully
staffed, partially funded. Target Completion Date: On-going.
C2.Drive Community Actions to Achieve S/CAP Goals: Run effective marketing and
outreach campaigns that seek to increase program participation and drive community
action in initiatives to achieve S/CAP goals. Resource Availability: Fully staffed, partially
funded. Target Completion Date: On-going.
C3.S/CAP Data Collection and Annual Reporting: Track community sentiment and
engagement, including key performance indicators, through tools such as surveys and
on-line analytics, and program analysis to guide decision making. Annually develop,
implement, and report out on S/CAP communications objectives and progress. Resource
Availability: Fully staffed, partially funded. Target Completion Date: On-going.
Index of S/CAP Key Actions and the 2026-2027 S/CAP Work Items that Implement them
S/CAP Key Action Title 2026-2027 S/CAP Work Plan Item(s)
C1. Provide Building and Transportation Emissions
Consultations for Residents
(On-going item initiated in 2023-2025 S/CAP Work
Plan)
C2. Develop Major Employer Custom Emissions
Reduction Plans
CA12. Establish One or More Partnerships with
Large Commercial Facility Owners
C3. Study Additional Key Actions Needed for 80 x 30 CA11. Launch Pilot Program for Electrification of
Centralized Water Heaters and Boilers
C4. Study Staffing and Budgetary Needs
CA13. Develop S/CAP Funding and Financing
Strategies for City Council Consideration
CA20. Develop Gas Transition
Management Strategies
C5. Study Funding Alternatives
C6. Conduct an Electrification Affordability Study
C7. Study Carbon Neutrality Options CA15. Develop Carbon Neutrality Strategies for City
Council Consideration
12
C8. Accelerate GHG reductions through Mandates
or Price Signals
CA8. Launch Advanced Heat Pump HVAC Program
CA10. Launch Workplace EV Charging Pilot
CA14. Develop Potential Regulatory Measures to
Drive Climate Action
CA16. Develop Potential Strategies for Cost-Based
Pricing of Non-Electric Decarbonization and
Inefficient Electrification
E1. Reduce GHG emissions in Single-Family
Appliances and Equipment
CA1. Continue Advanced Home Electrification Pilot
Program
CA2. Develop a Residential Electrification as a
Service or Similar Financing Pilot for Council
Approval
CA3. Enhanced Data Tracking for Home
Electrification
E2. Reduce GHG emissions in Non-Residential
Equipment
CA8. Launch Advanced Heat Pump HVAC Program
CA9. Develop a Commercial Electrification as a
Service or Similar Financing Pilot for Council
Approval
CA12. Establish One or More Partnerships with
Large Commercial Facility Owners
E3. Reduce Gas Use in Major Facilities
CA8. Launch Advanced Heat Pump HVAC Program
CA9. Develop a Commercial Electrification as a
Service or Similar Financing Pilot for Council
Approval
CA12. Establish One or More Partnerships with
Large Commercial Facility Owners
E4. Reduce Natural Gas Use at City facilities
CA8. Launch Advanced Heat Pump HVAC Program
CA9. Develop a Commercial Electrification as a
Service or Similar Financing Pilot for Council
Approval
CA26. Develop and Begin Implementing a City
Facility Electrification Plan
E5. Support Income-Qualified Residents and
Vulnerable Businesses with Electrification
CA1. Continue Advanced Home Electrification Pilot
Program
13
CA2. Develop a Residential Electrification as a
Service or Similar Financing Pilot for Council
Approval
CA3. Enhanced Data Tracking for Home
Electrification
CA6. Continue Affordable Multifamily Building
Electrification Incentive Program
CA7. Launch Multi-Family Electrification Technical
Assistance
E6. Develop Electric Rate Options (Completed in 2023-2025 S/CAP Work Plan)
E7. Use Codes and Ordinances to Facilitate
Electrification
CA8. Launch Advanced Heat Pump HVAC Program
CA17. Reduce Permitting, Interconnection, and
Other Barriers to Adoption of Vehicle and Building
Electrification and Flexible Energy Technologies for
Reliability and Resiliency
E8. Electric Grid Modernization Plan
CA17. Reduce Permitting, Interconnection, and
Other Barriers to Adoption of Vehicle and Building
Electrification and Flexible Energy Technologies for
Reliability and Resiliency
CA19. Continue Grid Modernization
CA28. Explore the Electric Capacity Needs of the
Palo Alto Airport for electric aviation
E9. Additional Electrification Opportunities in
Commercial and Multi-Family Buildings
CA8. Launch Advanced Heat Pump HVAC Program
CA9. Develop a Commercial Electrification as a
Service or Similar Financing Pilot for Council
Approval
EV1. Raise Awareness of Alternative Transportation
Modes, Micromobility, and EVs.
CA4. Launch Enhanced Multifamily EV Charging
Infrastructure Program
CA5. Develop a Charging-as-a-Service (CaaS) or
Similar Financing Pilot for Council Approval
CA10. Launch Workplace EV Charging Pilot
EV2. Collaborate to Promote EV Adoption
Regionally
(On-going item initiated in 2023-2025 S/CAP Work
Plan)
EV3. Promote EV Adoption and Alternative
Commutes for Commuters
CA10. Launch Workplace EV Charging Pilot
14
CA12. Establish One or More Partnerships with
Large Commercial Facility Owners
EV4. Facilitate the Adoption of EVs, E-bikes and
other Light EVs.
CA4. Launch Enhanced Multifamily EV Charging
Infrastructure Program
EV5. Promote Alternative Transportation Modes
and Infrastructure to Support Adoption
CA4. Launch Enhanced Multifamily EV Charging
Infrastructure Program
CA6. Continue Affordable Multifamily Building
Electrification Incentive Program
CA7. Launch Multi-Family Electrification Technical
Assistance
EV6. Expand EV Charging Access for Multi-Family
Residents
CA4. Launch Enhanced Multifamily EV Charging
Infrastructure Program
CA5. Develop a Charging-as-a-Service (CaaS) or
Similar Financing Pilot for Council Approval
CA18. Develop Public Charging Siting and Business
Models
EV7. Improve EV Charging Access for Income-
Qualified residents
CA4. Launch Enhanced Multifamily EV Charging
Infrastructure Program
CA5. Develop a Charging-as-a-Service (CaaS) or
Similar Pilot for Council Approval
CA6. Continue Affordable Multifamily Building
Electrification Incentive Program
CA7. Launch Multi-Family Electrification Technical
Assistance
EV8. Ensure EV Charging Capacity Supports EV
Growth
CA10. Launch Workplace EV Charging Pilot
CA18. Develop Public Charging Siting and Business
Models
EV9. Electrify Municipal Vehicle Fleet CA27.Electrify City Vehicle Fleet when Feasible
EV10. Support Policy to Electrify Fleet Vehicles CA27.Electrify City Vehicle Fleet when Feasible
M1. Increase Active Transportation and Transit for
Local Work Trips
CA21. Achieve Benchmarks for Bicycle and
Pedestrian Capital Improvement Projects
CA22. Implement Micromobility Feasibility Study
Recommendations
CA25. Update City’s Traffic Calming Policy and
Process
15
M2. Expand Availability of Transit and Shared
Mobility Services
CA21. Achieve Benchmarks for Bicycle and
Pedestrian Capital Improvement Projects
CA22. Implement Micromobility Feasibility Study
Recommendations
CA25. Update City’s Traffic Calming Policy and
Process
M3. Implement the Bicycle and Pedestrian
Transportation Plan
CA21. Achieve Benchmarks for Bicycle and
Pedestrian Capital Improvement Projects
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
CA24. Continue Implementing the Housing Element
/ Land Use Planning and Policy
M8. Improve Transit and Traffic Flow CA23. Continue Traffic Signal Operations and
Multimodal Improvements
M9. Create Housing Density and Land Use Mix that
Supports Transit and Non-SOV Transportation
CA24. Housing Element Implementation / Land Use
Planning and Policy
M10. Encourage Reductions in GHGs and VMT
W1. Maximize Water Conservation and Efficiency S3. Identify and Implement Water Distribution
System Adaptation Measures
W2. Build a Salt Removal Facility S2. Improve Recycled Water Quality through Salt
Removal
W3. Implement One Water Portfolio Projects S1. Implement Water Efficiency and Conversation
Measures
W4. Develop a Dynamic Water Planning Tool (Completed in 2023-2025 S/CAP Work Plan)
S1. Complete a Sea Level Rise Vulnerability
Assessment
(Completed in 2023-2025 S/CAP Work Plan)
S2. Implement a Sea Level Rise Adaptation Plan
S4. Finalize Partnership Agreement with Santa Clara
County on SB272 Regional Shoreline Adaptation
Plan Requirements to Develop a Regional
Vulnerability Assessment and Adaptation Plan.
16
S5. Update the City's Sea Level Rise Adaptation
Policy to Include Sea level Rise Planning Decision
Making points in the City.
S3. Begin Design Process for a Levee Project
S6. Complete Construction and Begin Monitoring
the Palo Alto Horizontal Levee Pilot Project
(PAHLPP).
S7. Continue Partnership with Valley Water on SLR /
Shoreline Levee Improvement Efforts
S4. Complete Bridge improvements and Identify
Protection Strategies from Flood Events
S7. Continue Partnership with Valley Water on SLR /
Shoreline Levee Improvement Efforts
S5. Implement the Foothills Fire Management Plan S8. Implement the Foothills Fire Management Plan
S6. Minimize Fire Hazards Through Zoning (On-going item initiated in 2023-2025 S/CAP Work
Plan)
S7. Collaborate on Reducing Wildfire Hazards S8. Implement the Foothills Fire Management Plan
S8. Implement CAL FIRE Public Education Programs (On-going item initiated in 2023-2025 S/CAP Work
Plan)
N1. Increase Palo Alto's Tree Canopy S9. Increase Tree Canopy in South Palo Alto
N2. Ensure No Net Tree Canopy Loss for all Projects (On-going item initiated in 2023-2025 S/CAP Work
Plan)
N3. Reduce Pesticide Use in Parks and Open Space
Preserves
S10. Reduce Pesticide Use in Parks and Open Space
Preserves
N4. Enhance Pollinator Habitat
N5. Establish a Carbon Storage of Tree Canopy
Baseline and KPI
S9. Increase Tree Canopy in South Palo Alto
N6. Maximize Biodiversity and Soil Health
N7. Coordinate Implementation of City Natural
Environment-Related Plans
(On-going item initiated in 2023-2025 S/CAP Work
Plan)
N8. Expand Water Efficient Landscape Ordinance
(WELO) Requirements
N9. Phase out Gas-Powered Lawn and Garden
Equipment
(Addressed by CA Assembly Bill 1346 banning the
sale of new gas-powered small off-road engines)
N10. Support the Green Stormwater Infrastructure
Plan
S11. Construct a Green Stormwater Infrastructure
Project at a City of Palo Alto Park
17
S13. Quantify Land Area that Uses Green
Stormwater Infrastructure to Treat Urban Water
Runoff
N11. Incorporate Green Stormwater Infrastructure
in Municipal Projects
S12. Increase Green Stormwater Infrastructure on
City of Palo Alto Property and/or Right-of-Way
ZW1. Encourage Food Waste Prevention and
Require Food Recovery from Commercial Food
Generators
(On-going item initiated in 2023-2025 S/CAP Work
Plan)
ZW2. Promote Residential Food Waste Reduction S16. Promote Food Waste Reduction
ZW3. Champion Waste Prevention, Reduction,
Reusables, and the Sharing Economy
S14. Champion Waste Prevention, Reduction,
Reusables, and the Sharing Economy
ZW4. Provide Waste Prevention Technical
Assistance to the Commercial Sector
(On-going item initiated in 2023-2025 S/CAP Work
Plan)
ZW5. Prioritize Domestic Processing of Recyclable
Materials
(Completed in 2023-2025 S/CAP Work Plan with on-
going review)
ZW6. Eliminate Single-Use Disposable Plastics S15. Eliminate Single-Use Disposable Containers
and Reduce Disposable Foodware
ZW7. Expand the Deconstruction and Construction
Materials Management Ordinance
(On-going item initiated in 2023-2025 S/CAP Work
Plan)
ZW8. Implement Reach Code standard for Low
Carbon Construction Materials
(Completed in 2023-2025 S/CAP Work Plan)
Attachments H through M for Staff Report 2512-5688 are available at the below links:
Attachment H: S/CAP Funding and Financing Study
Attachment I: EV Charger Needs Assessment
Attachment J: Single-family Building Sector Study
Attachment K: Multi-family Building Sector Study
Attachment L: Non-Residential Building Sector Study
Attachment M: Funding Source Survey
Item No. 8. Page 1 of 1
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2
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5
City Council
Supplemental Report
From: Brad Eggleston, Director Public Works/City Engineer
Meeting Date: February 2, 2026
Item Number: 8
Report #:2601-5858
TITLE
SUPPLEMENTAL REPORT: Review the 2024 Greenhouse Gas Inventory and S/CAP Key
Performance Indicators Annual Progress Report, and Approve the 2026-2027 S/CAP Work Plan
and Receive Six S/CAP Studies Recommended by the Climate Action and Sustainability
Committee; CEQA Status: Review GHG Inventory and Key Performance Indicators: Not a
Project; Potential Environmental Impacts of the S/CAP Work Plan were Studied in the June 5,
2023 S/CAP Addendum to the 2017-2031 Comprehensive Plan EIR; this Project is also Exempt
Pursuant to CEQA Guidelines Section 15183
BACKGROUND
The attached summary of the public workshop held December 13, 2025 by the Climate Action
and Sustainability Committee (CASC), and which was mentioned in the Executive Summary,
Analysis, and Fiscal Impact sections of the report, was inadvertently not attached to the initial
staff report
ATTACHMENTS
Supplemental Attachment A: Summary of December 13, 2025 CASC Workshop
APPROVED BY:
Brad Eggleston, Director Public Works/City Engineer
BluePoint Planning 12/22/25 1
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S/CAP Priorities Workshop Summary
On December 13, 2025, Palo Alto hosted a Climate Action Priorities public workshop aimed at
identifying the types of mechanisms that Council and the public is interested in using to advance
the Sustainability and Climate Action Plan ( S/CAP) 80x30 goals related to climate action for the
residential sector. This workshop was also held as part of a special public meeting of the
Climate Action and Sustainability Committee (Committee). The three council members of the
Committee (Vicki Veenker, Patrick Burt, and George Lu) and Commissioner Rachel Croft from
the Utilities Advisory Commission attended the meeting, with an additional 20 members of the
public in attendance. The public workshop was also designed to promote greater understanding
of tradeoffs in financing and regulations to achieve the City’s 80x30 goals.
The workshop focused on an interactive tabletop game named “Decarb Quest.” This game
asked participants to pick at random cards representing different resident types and
characteristics, home types, and home triggers. From there, participants must decide the
strategy or combination of strategies that would best promote electrification in each scenario.
Participants could also design additional strategy cards for scenarios in which they felt the suite
of potential strategies was not sufficient.
The workshop followed the following agenda:
Introductions
Climate Action Priorities Presentation
Breakout Group Discussion
o Benefits and challenges of mandates and incentives
Evaluating Decarbonization Programs Presentation
Breakout Group Discussion
o Decarb Quest game on potential tools and approaches for electrification
Public Comment
Closing Comments
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Wall Graphic Recording
Below is the wall graphic recording from the workshop that captured high-level takeaways from breakout group conversations.
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Mandates and Incentives Presentation and Discussion
Ahead of the first breakout group discussion on mandates and incentives, Jonathan
Abendschein, Assistant Director of Climate Action, delivered a presentation on the S/CAP
Electrification Funding Study, discussing the quantification of total benefits to the Palo Alto
community over time from switching from gas to electric appliances and some initial
considerations for utilizing incentives and mandates to accomplish electrification. Jonathan then
took questions and comments from the Council Members present (full list of comments is listed
under the detailed notes). Participants were then asked to discuss the benefits and drawbacks
of utilizing incentives vs. mandates to accomplish 80% reduction in GHG emissions by 2030.
Summary of Participant Comments
Below are the takeaways from the breakout groups discussion:
There is a place for both mandates and incentives to reach 80x30 goals
Storytelling and effective communication is essential to support mandates and
incentives
o Mandates need to be paired with communication training; if people believe that
their contributions are important, more people are likely to follow suit
o Voluntary incentives give people agency and encourage personal storytelling
It is important to quantify health savings as part of the discussion about avoided costs
from electrification
City should utilize mandates and include incentives as a stop gap measure
o City can set health and safety standards/ mandates that must be met, and then
use incentives to get people to reach those standards
Incentives should focus on less affluent residents with higher need
o City must do incentives
o Some groups stated that incentives should be income qualified
Programs that support incentives and mandates should be designed to reduce friction
as much as possible for residents
Workforce needs to be involved in leading electrification efforts
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Detailed Comments
Below are additional notes from Council Members about the Decarbonization Strategies
Presentation.
Council Member Pat Burt
Emphasize health and safety benefits of electric appliances
o Appealing to community for support for programs based on climate impacts will
capture chunk of community; more people spurred to action by health benefits
o Should quantify economics of health benefits in study and feature these benefits
to community
o Safety should be a priority element
EV trips likely account for greater share of trips than reflected in the EV ownership rate
(of 16%)
o Around 50% of purchases are EVs
o Most people who purchase EVs use them more than their older car
o Trends in equipment cost moving forward may decline
o Wondered to what degree we are basing funding projections on current costs of
electric appliances
Council Member George Lu
Can the funding study take into account a decrease in EV charging installation costs/
HPWH costs over time?
o Is there a scenario where we can count on some national technology curve
How are offsets assessed to users?
o Offsets could be used more creatively as stick or carrot
Vice Mayor Vicki Veenker
Consider savings from gas transition study from Air District
Implementation of Air District rules could save 89 deaths annually and $890 mil per year
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Electrification Strategies, Discussion, Decarb Quest Game
Before the second breakout group, which focused on electrification strategies, Jonathan
delivered a presentation on considerations for electrification strategies, including financing
options for incentives. This included considerations for how a Building Emissions Savings
Ordinance (BESO) could operate, and an overview of financing cash flows for Electrification as
a Service (EaaS) for Palo Alto residents. Jonathan then took questions from the Council
Members present (full list of comments is listed under the detailed notes).
Participants then rearranged into different breakout groups and completed an interactive
tabletop game, “Decarb Quest.” This game asks participants to pick at random cards
representing different resident types and characteristics, home types, and triggers for
electrification upgrades. From there, participants must decide the strategy or combination of
strategies that would best promote electrification in each scenario. Participants fill out the game
board, picking at random from the deck two resident characteristics, a home type card, and a
trigger for what may be happening to that home type (e.g. selling house, wanted to remodel,
etc.). Participants then score how well that suite of strategies will encourage the resident with
that home type to electrify, using game pieces to score on a scale of 1-4. Strategies that score a
1 would mean that residents would not electrify, and 4 means they would certainly electrify.
Participants could also design additional strategy cards for scenarios in which they felt the suite
of potential strategies was not sufficient.
Below are images of the blank board and cards that participants were given. The images of the
filled out boards from the game are included below at the end of this summary.
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Decarb Quest Game Board
Decarb Quest resident characteristic, housing characteristic and housing trigger cards
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Summary of Participant Comments
Below are the takeaways from the breakout groups discussion:
Overall, the BESO and EaaS were popular strategies
o BESO and EaaS work well for more affluent, singly family (SF) households,
especially those doing remodels or large projects
o May need to increase cost for BESO-funded upgrades for buyers
o Traditional financing and EaaS may work for those with affordability issue
o City could host investment fund to help support EaaS program
Communication and storytelling must be part of BESO and EaaS programs
o Emphasize that natural gas prices will rise and the City needs to protect
residents’ health; by electrifying, the City will end up with lower, cheaper utility
bills and improve residents’ health
o Emphasize that electrification increases home value
o Publicize existing programs more!
The renter segment is difficult to reach
o Mandates would work better for renters; renters need to be empowered to reach
landlords
o There are some other residents and scenarios that are difficult to electrify (e.g. a
young, financially constrained family who is selling their house; landlord with
renters who are high energy users and have a broken appliance)
Multifamily (MF) homes typically have access to a traditional financing qualification
In some scenarios it may make more sense for buyers to complete/ pay for energy
assessment as part of BESO; buyer would then be required to upgrade to code when
doing a construction project
Require those selling their home to future proof it to become all-electric
Implement the Watt Diet (strategic selection of electric products and load sharing among
devices) to reduce the need for panel upgrades
o City could price amp services differently, with higher watt panels costing more
Technical assistance is a throughline for many electrification strategies
Homeowners associations (HOAs) are a different scenario than rental apartments
because there are so many hoops to jump through
o Incentives would not be the driver of upgrades
o EaaS may be a partial solution but there may still be a gap for HOAs
City could pool electrification projects for more income-constrained residents
Should be easier for residents to use electric vehicles (EVs), especially for MF properties
o They can be a battery for homes and support resilience
o Time of use (TOU) rates could be mandated; they would support EV usage and
make EVs more affordable
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Additional Strategies
Below is the full list additional strategies that participants brainstormed during the Decarb Quest
game:
BESO without public reporting
For BESO, the seller can do the energy assessment but the buyer is required to upgrade
(as opposed to the seller)
Progressive loans (particularly for financially constrained households)
Building owner makes bulk electric appliance purchase at reduced upfront cost (for MF
renters)
Building performance standard– each home has an environmental rating
o May not be public for homeowners
o Building performance standards (BPS) may work well for larger, MF properties,
and would give these properties a timeline to electrify
Pool electric project scopes for multiple homes
City fund for electrification as service to reduce costs to residents
o Some funds would be invested and get returns, some given to EaaS
o This would help subsidize financially constrained residents
EV charging in City lots adjacent to MF properties
Streetside charging
Portable induction cooktops
Use City investment funds so City can be full financer of EaaS (City already covers loans
under GoGreen)
Education and communication around electrification benefits must underpin all strategies
o Lawn signs can promote emergency heat pump water heater (HPWH)
replacements and GoGreen financing
Below are additional notes from Council Members about the Decarbonization Strategies
Presentation.
Vice Mayor Vicki Veenker
Very interested in what has traction with residents
Strategies aren’t necessarily alternatives, but can be combined– what is interplay
between the strategies?
Interested in understanding BESO ordinance
Sees potential for Electrification as a Service
Council Member Pat Burt
Under EaaS we have lender involvement; to what extent would that be friction point?
How simple could that become?
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o Palo Alto has simplified permitting for solar
o Jonathan: there is discussion regionally on lender friction
Where does funding come from for existing electrification and energy efficiency (EE)
efforts and what legal latitude can apply?
o Jonathan: electric public benefits funding is collected for EE, income qualified
programs, renewable energy, and research and development. City has used
funds for some electrification programs and is in conversation on how to use this
in defensible way and what the competing priorities are
Council Member George Lu
Interested in both BESO and EaaS, lots of questions for both
Interested in how we can reach MF apartments through sales of buildings and individual
condos
EaaS is more uncertain and has more moving parts; there are lots of questions to
consider
o What lenders exist out there?
o How much risk is City taking on?
o What happens if homeowners want to get expensive appliances? What happens
if homeowners get into financial trouble?
o Make process as simple as possible
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Game Board Result Images
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CITY OF PALO ALTO
CITY COUNCIL
Special Meeting
Monday, February 02, 2026
Council Chambers & Hybrid
5:30 PM
Agenda Item
8.Review the 2024 Greenhouse Gas Inventory and S/CAP Key Performance Indicators
Annual Progress Report, and Approve the 2026-2027 S/CAP Work Plan and Receive Six
S/CAP Studies Recommended by the Climate Action and Sustainability Committee; CEQA
Status: Review GHG Inventory and Key Performance Indicators: Not a Project; Potential
Environmental Impacts of the S/CAP Work Plan were Studied in the June 5, 2023 S/CAP
Addendum to the 2017-2031 Comprehensive Plan EIR; this Project is also Exempt
Pursuant to CEQA Guidelines Section 15183 Supplemental Report added
Item No. 8. Page 1 of 1
City Council
Supplemental Report
From: Brad Eggleston, Director Public Works/City Engineer
Meeting Date: February 2, 2026
Item Number: 8
Report #:2601-5858
TITLE
SUPPLEMENTAL REPORT: Review the 2024 Greenhouse Gas Inventory and S/CAP Key
Performance Indicators Annual Progress Report, and Approve the 2026-2027 S/CAP Work Plan
and Receive Six S/CAP Studies Recommended by the Climate Action and Sustainability
Committee; CEQA Status: Review GHG Inventory and Key Performance Indicators: Not a
Project; Potential Environmental Impacts of the S/CAP Work Plan were Studied in the June 5,
2023 S/CAP Addendum to the 2017-2031 Comprehensive Plan EIR; this Project is also Exempt
Pursuant to CEQA Guidelines Section 15183
BACKGROUND
The attached summary of the public workshop held December 13, 2025 by the Climate Action
and Sustainability Committee (CASC), and which was mentioned in the Executive Summary,
Analysis, and Fiscal Impact sections of the report, was inadvertently not attached to the initial
staff report
ATTACHMENTS
Supplemental Attachment A: Summary of December 13, 2025 CASC Workshop
APPROVED BY:
Brad Eggleston, Director Public Works/City Engineer
BluePoint Planning 12/22/25 1
S/CAP Priorities Workshop Summary
On December 13, 2025, Palo Alto hosted a Climate Action Priorities public workshop aimed at
identifying the types of mechanisms that Council and the public is interested in using to advance
the Sustainability and Climate Action Plan ( S/CAP) 80x30 goals related to climate action for the
residential sector. This workshop was also held as part of a special public meeting of the
Climate Action and Sustainability Committee (Committee). The three council members of the
Committee (Vicki Veenker, Patrick Burt, and George Lu) and Commissioner Rachel Croft from
the Utilities Advisory Commission attended the meeting, with an additional 20 members of the
public in attendance. The public workshop was also designed to promote greater understanding
of tradeoffs in financing and regulations to achieve the City’s 80x30 goals.
The workshop focused on an interactive tabletop game named “Decarb Quest.” This game
asked participants to pick at random cards representing different resident types and
characteristics, home types, and home triggers. From there, participants must decide the
strategy or combination of strategies that would best promote electrification in each scenario.
Participants could also design additional strategy cards for scenarios in which they felt the suite
of potential strategies was not sufficient.
The workshop followed the following agenda:
Introductions
Climate Action Priorities Presentation
Breakout Group Discussion
o Benefits and challenges of mandates and incentives
Evaluating Decarbonization Programs Presentation
Breakout Group Discussion
o Decarb Quest game on potential tools and approaches for electrification
Public Comment
Closing Comments
BluePoint Planning 12/22/25 2
Wall Graphic Recording
Below is the wall graphic recording from the workshop that captured high-level takeaways from breakout group conversations.
BluePoint Planning 12/22/25 2
BluePoint Planning 12/22/25 3
Mandates and Incentives Presentation and Discussion
Ahead of the first breakout group discussion on mandates and incentives, Jonathan
Abendschein, Assistant Director of Climate Action, delivered a presentation on the S/CAP
Electrification Funding Study, discussing the quantification of total benefits to the Palo Alto
community over time from switching from gas to electric appliances and some initial
considerations for utilizing incentives and mandates to accomplish electrification. Jonathan then
took questions and comments from the Council Members present (full list of comments is listed
under the detailed notes). Participants were then asked to discuss the benefits and drawbacks
of utilizing incentives vs. mandates to accomplish 80% reduction in GHG emissions by 2030.
Summary of Participant Comments
Below are the takeaways from the breakout groups discussion:
There is a place for both mandates and incentives to reach 80x30 goals
Storytelling and effective communication is essential to support mandates and
incentives
o Mandates need to be paired with communication training; if people believe that
their contributions are important, more people are likely to follow suit
o Voluntary incentives give people agency and encourage personal storytelling
It is important to quantify health savings as part of the discussion about avoided costs
from electrification
City should utilize mandates and include incentives as a stop gap measure
o City can set health and safety standards/ mandates that must be met, and then
use incentives to get people to reach those standards
Incentives should focus on less affluent residents with higher need
o City must do incentives
o Some groups stated that incentives should be income qualified
Programs that support incentives and mandates should be designed to reduce friction
as much as possible for residents
Workforce needs to be involved in leading electrification efforts
BluePoint Planning 12/22/25 4
Detailed Comments
Below are additional notes from Council Members about the Decarbonization Strategies
Presentation.
Council Member Pat Burt
Emphasize health and safety benefits of electric appliances
o Appealing to community for support for programs based on climate impacts will
capture chunk of community; more people spurred to action by health benefits
o Should quantify economics of health benefits in study and feature these benefits
to community
o Safety should be a priority element
EV trips likely account for greater share of trips than reflected in the EV ownership rate
(of 16%)
o Around 50% of purchases are EVs
o Most people who purchase EVs use them more than their older car
o Trends in equipment cost moving forward may decline
o Wondered to what degree we are basing funding projections on current costs of
electric appliances
Council Member George Lu
Can the funding study take into account a decrease in EV charging installation costs/
HPWH costs over time?
o Is there a scenario where we can count on some national technology curve
How are offsets assessed to users?
o Offsets could be used more creatively as stick or carrot
Vice Mayor Vicki Veenker
Consider savings from gas transition study from Air District
Implementation of Air District rules could save 89 deaths annually and $890 mil per year
BluePoint Planning 12/22/25 4
BluePoint Planning 12/22/25 5
Electrification Strategies, Discussion, Decarb Quest Game
Before the second breakout group, which focused on electrification strategies, Jonathan
delivered a presentation on considerations for electrification strategies, including financing
options for incentives. This included considerations for how a Building Emissions Savings
Ordinance (BESO) could operate, and an overview of financing cash flows for Electrification as
a Service (EaaS) for Palo Alto residents. Jonathan then took questions from the Council
Members present (full list of comments is listed under the detailed notes).
Participants then rearranged into different breakout groups and completed an interactive
tabletop game, “Decarb Quest.” This game asks participants to pick at random cards
representing different resident types and characteristics, home types, and triggers for
electrification upgrades. From there, participants must decide the strategy or combination of
strategies that would best promote electrification in each scenario. Participants fill out the game
board, picking at random from the deck two resident characteristics, a home type card, and a
trigger for what may be happening to that home type (e.g. selling house, wanted to remodel,
etc.). Participants then score how well that suite of strategies will encourage the resident with
that home type to electrify, using game pieces to score on a scale of 1-4. Strategies that score a
1 would mean that residents would not electrify, and 4 means they would certainly electrify.
Participants could also design additional strategy cards for scenarios in which they felt the suite
of potential strategies was not sufficient.
Below are images of the blank board and cards that participants were given. The images of the
filled out boards from the game are included below at the end of this summary.
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Decarb Quest Game Board
Decarb Quest resident characteristic, housing characteristic and housing trigger cards
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Summary of Participant Comments
Below are the takeaways from the breakout groups discussion:
Overall, the BESO and EaaS were popular strategies
o BESO and EaaS work well for more affluent, singly family (SF) households,
especially those doing remodels or large projects
o May need to increase cost for BESO-funded upgrades for buyers
o Traditional financing and EaaS may work for those with affordability issue
o City could host investment fund to help support EaaS program
Communication and storytelling must be part of BESO and EaaS programs
o Emphasize that natural gas prices will rise and the City needs to protect
residents’ health; by electrifying, the City will end up with lower, cheaper utility
bills and improve residents’ health
o Emphasize that electrification increases home value
o Publicize existing programs more!
The renter segment is difficult to reach
o Mandates would work better for renters; renters need to be empowered to reach
landlords
o There are some other residents and scenarios that are difficult to electrify (e.g. a
young, financially constrained family who is selling their house; landlord with
renters who are high energy users and have a broken appliance)
Multifamily (MF) homes typically have access to a traditional financing qualification
In some scenarios it may make more sense for buyers to complete/ pay for energy
assessment as part of BESO; buyer would then be required to upgrade to code when
doing a construction project
Require those selling their home to future proof it to become all-electric
Implement the Watt Diet (strategic selection of electric products and load sharing among
devices) to reduce the need for panel upgrades
o City could price amp services differently, with higher watt panels costing more
Technical assistance is a throughline for many electrification strategies
Homeowners associations (HOAs) are a different scenario than rental apartments
because there are so many hoops to jump through
o Incentives would not be the driver of upgrades
o EaaS may be a partial solution but there may still be a gap for HOAs
City could pool electrification projects for more income-constrained residents
Should be easier for residents to use electric vehicles (EVs), especially for MF properties
o They can be a battery for homes and support resilience
o Time of use (TOU) rates could be mandated; they would support EV usage and
make EVs more affordable
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Additional Strategies
Below is the full list additional strategies that participants brainstormed during the Decarb Quest
game:
BESO without public reporting
For BESO, the seller can do the energy assessment but the buyer is required to upgrade
(as opposed to the seller)
Progressive loans (particularly for financially constrained households)
Building owner makes bulk electric appliance purchase at reduced upfront cost (for MF
renters)
Building performance standard– each home has an environmental rating
o May not be public for homeowners
o Building performance standards (BPS) may work well for larger, MF properties,
and would give these properties a timeline to electrify
Pool electric project scopes for multiple homes
City fund for electrification as service to reduce costs to residents
o Some funds would be invested and get returns, some given to EaaS
o This would help subsidize financially constrained residents
EV charging in City lots adjacent to MF properties
Streetside charging
Portable induction cooktops
Use City investment funds so City can be full financer of EaaS (City already covers loans
under GoGreen)
Education and communication around electrification benefits must underpin all strategies
o Lawn signs can promote emergency heat pump water heater (HPWH)
replacements and GoGreen financing
Below are additional notes from Council Members about the Decarbonization Strategies
Presentation.
Vice Mayor Vicki Veenker
Very interested in what has traction with residents
Strategies aren’t necessarily alternatives, but can be combined– what is interplay
between the strategies?
Interested in understanding BESO ordinance
Sees potential for Electrification as a Service
Council Member Pat Burt
Under EaaS we have lender involvement; to what extent would that be friction point?
How simple could that become?
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o Palo Alto has simplified permitting for solar
o Jonathan: there is discussion regionally on lender friction
Where does funding come from for existing electrification and energy efficiency (EE)
efforts and what legal latitude can apply?
o Jonathan: electric public benefits funding is collected for EE, income qualified
programs, renewable energy, and research and development. City has used
funds for some electrification programs and is in conversation on how to use this
in defensible way and what the competing priorities are
Council Member George Lu
Interested in both BESO and EaaS, lots of questions for both
Interested in how we can reach MF apartments through sales of buildings and individual
condos
EaaS is more uncertain and has more moving parts; there are lots of questions to
consider
o What lenders exist out there?
o How much risk is City taking on?
o What happens if homeowners want to get expensive appliances? What happens
if homeowners get into financial trouble?
o Make process as simple as possible
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Game Board Result Images
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