HomeMy Public PortalAbout2020-02-25 Item 7 Attachment 1January 2020
DRAFT (1-31-2020)
City of Millbrae Climate
Action Plan
Executive Summary
Attachment 1
Acknowledgements
Reuben D. Holober, Mayor
Ann Schneider, Vice Mayor
Anne Oliva, Councilmember
Gina Papan, Councilmember
Wayne J. Lee, Councilmember
Millbrae City Manager
Thomas C. Williams
Millbrae City Staff
Shelly Reider
Khee Lim
Meghan Kelly
The Climate Action Plan was developed using the Regionally Integrated Climate Action Planning Suite
(RICAPS) funded by a grant from the Bay Area Air Quality Management District (BAAQMD) and by California
utility customers, administered by Pacific Gas and Electric Company (PG&E) under the auspices of the
California Public Utilities Commission and with matching funds provided by the City and County Association
of Governments of San Mateo County (C/CAG).
RICAPS Project Consultant: DNV GL Energy Services USA Inc.
RICAPS Staff: Sandy Wong (C/CAG), Kim Springer (County of San Mateo), Susan Wright (County of San
Mateo)
1
Executive Summary
The Climate Action Plan (Plan) is designed to be a blueprint
of our community’s response to the challenges posed by
climate change. Climate change is a global problem;
however, through local actions the City can do its part to
contribute to reducing greenhouse gas (GHG) emissions
from local sources. Climate scientists around the world,
represented by the Intergovernmental Panel on Climate
Change (IPCC), have an unequivocal position: human
activity is changing the Earth’s climate through the release
of GHG emissions resulting from the combustion of fossil
fuels. The longer communities delay taking action, the
greater the risk humans face of irreversibly depleting non-
renewable resources and harming our environment.
However, it is conceivable, and increasingly foreseeable,
that humans will delay action so long that useful policy and
programs will become infeasible and both human
civilization and the biosphere will be permanently damaged.
The City of Millbrae (City) cannot solve the climate crisis
alone. Working in coordination with San Mateo County, the
State of California (State), and the Federal government, the
City has committed to taking steps to reduce GHG
emissions and create new programs and services that will
support the community and businesses in doing the same.
The Plan offers ways to make homes more energy efficient
and increase the amount of locally produced renewable
energy. It recommends “smart” development patterns that
emphasize vibrant neighborhoods and “complete streets”
that allow people to go about their business on foot, by
bicycle, or via public transportation. It provides transit
solutions and offers ways to reduce waste that would
otherwise go to landfills. Finally, the Plan outlines measures
that will continue to make municipal government operations
an efficient and environmentally responsible organization.
2
Why the City of Millbrae has a Climate Action Plan
The City of Millbrae, with our partner the City and County Association of Governments (C/CAG) of San
Mateo County, and with partial grant funding from the Bay Area Air Quality Management District
(BAAQMD) and Pacific Gas and Electric Company (PG&E), has developed the Climate Action Plan in
order to achieve a number of objectives, including:
To demonstrate environmental leadership – We as a community can rise to the difficult
challenge of reducing the impact of climate change by taking reasonable steps to reduce our
GHG emissions.
To save money and promote green jobs – Residents,
businesses, and government will reduce their utility costs
through increased energy and water efficiency. A focus on
efficiency creates job opportunities within the community
that contribute to protecting our environmental resources.
To comply with letter and spirit of State environmental
initiatives – California is taking the lead in tackling climate
change while driving the new energy markets and fostering
new environmental services. As such we have a responsibility to help the State meet its goals
to reduce greenhouse gas emissions.
To promote sustainable development – By developing the Climate Action Plan according to
BAAQMD District guidelines, a new class of sustainable development projects, such as mixed
use and transit-oriented developments, can be fast-tracked through the California environmental
review process.
We have developed this
Climate Action Plan to
implement measures to reduce
greenhouse gases through
environmental leadership and
stewardship of our local
environment.
3
Greenhouse Gas Inventory and Forecast
The emissions inventory provides an important foundation for the Climate Action Plan, providing a
baseline year, 2005, against which progress toward the City goal of reducing GHG emissions of 32%
by 2025 and 49% by 2030 can be measured. The Plan includes a business-as-usual (BAU) forecast of
GHG emissions, which will enable the City of Millbrae to estimate the amount of emissions reductions
needed to meet its goal.
In the base year of 2005, approximately 150,643 metric tons of carbon dioxide equivalent (MTCO2e)
were emitted in Millbrae from the residential, commercial, industrial, transportation, waste, and
municipal sectors.1 For the community-wide inventory, the municipal emissions are included in the
commercial/industrial sector. Burning fossil fuels in vehicles and for energy use in buildings and
facilities is the largest contributor to the City’s GHG emissions.
Table 1 provides a summary of total city-wide (i.e. community and municipal) GHG emissions.
Table 1: 2005 Community Emissions by Sector
Sector GHG Emissions
(MTCO2e)
Percentage of GHG
Emissions
Residential 32,405 21.5%
Commercial/Industrial 27,633 18.3%
Transportation – Local roads 29,558 19.6%
Transportation – State highways 51,981 34.5%
Transportation – Off-road equipment 5,645 3.7%
Transportation – Caltrain 873 0.6%
Generated Waste 2,486 1.7%
Wastewater Treatment 62 0.04%
TOTAL 150,643 100%
The residential, commercial, and industrial sectors represent emissions that result from electricity and
natural gas used in both private and public sector buildings and facilities. The transportation sector
includes emissions from private, commercial, and fleet vehicles driven within the City’s geographical
1 Carbon dioxide equivalent is a unit of measure that normalizes the varying climate warming potencies of all six GHG emissions, which are
carbon dioxide (CO2), methane (CH4), nitrous oxide (N2O), hydrofluorocarbons (HFCs), perfluorocarbons (PFCs), and sulfur hexafluoride
(SF6). For example, one metric ton of methane is equivalent to 21 metric tons of CO2e. One metric ton of nitrous oxide is 210 metric tons of
CO2e.
4
boundaries as well as the emissions from transit vehicles and the City-owned fleet. Off-road
equipment includes lawnmowers, garden equipment, and construction, industrial, and light commercial
equipment. Figure 1 shows the proportion of Millbrae’s total GHG emissions from all major sources for
2005.
Figure 1: Community Emissions by Sector (2005)
As shown above, the four largest sectors of emissions are either related to transportation (State
highways and local roads) or building energy use (residential and commercial/industrial).
The City of Millbrae Reduction Target
The City of Millbrae is committed to an emissions reduction target
of 49% below the baseline 2005 levels by 2030 and an interim
target of 32% below baseline levels by 2025. This goal is selected
to be consistent with the California Assembly Bill (AB) 32 Scoping
Plan and the BAAQMD guidelines for a qualified GHG emissions
reduction strategy and to be achievable by City-supported
measures identified in the Plan.
The City of Millbrae is
committing to reducing
community-wide greenhouse
gas emissions 49% by 2030, a
reduction of 92,025 metric tons
of carbon dioxide equivalent.
5
Figure 2 illustrates how the BAU emissions are estimated to increase, thus widening the emissions
reductions needed by 2025 and 2030. Figure 2 also shows the emissions reductions expected from
State level actions, and the reductions needed to reach the City’s emissions target.
Table 2 shows the baseline emissions, forecasted emissions, targeted emissions, and emissions
needed to reach the targets.
Figure 2: Millbrae GHG Reduction Target (32% below 2005 levels by 2025 and
49% below 2005 levels by 2030)
Table 2: GHG Emissions Projection and Reduction Target
Description Emissions (MTCO2e)
2005 Base Year Emissions: 150,643
2025 Target Emissions at 32% below 2005: 102,437
2025 BAU Emissions: 160,682
2025 Required Reduction: 58,245
2030 Target Emissions at 49% below 2005: 76,828
2030 BAU Emissions: 168,853
2030 Required Reduction: 92,025
6
Climate Action Strategies
The Climate Action Plan is a beginning of a journey towards a more sustainable Millbrae. In the Plan,
the citizens and business community of Millbrae will find policies and programs that aim to reduce
emissions, save energy (and money), and help the City of Millbrae continue to be a beautiful and
healthy place to live, work, and play as time goes on.
By adopting the Plan, the City is committing to take action to reduce GHG emissions. The Plan
provides a prioritized list of actions, or “measures”. Many of the strategies in the Plan are already in
progress or underway. The City benefits from its longstanding leadership in environmental programs,
and a number of the measures included in the Plan extend current environmental programs that will
help achieve its goals. Some of the other strategies are newly proposed policies or programs, each of
which should be further studied before being implemented. Some of the emissions reductions will
come from State and countywide transportation strategies that are essential in order for the City to
achieve the emissions reduction goal by 2030. In addition, the Plan contains a mix of voluntary
strategies and mandatory policies. While implementation dates have been allocated to the various
measures, dates may change based on financial considerations and other conditions outside of the
City’s control.
The programs and policies described give Millbrae a viable path towards reducing emissions that,
combined with emissions reductions resulting from countywide programs and State and regional
policies, will meet the emissions reduction goals adopted by the City Council and established in
Assembly Bill (AB) 32 and Senate Bill (SB) 32.
The Climate Action Plan includes the descriptions of the measures. The following section is an outline
of all of the measures.
7
Summary of Measures
A summary of all the emission reduction measures is provided in Table 3.
Table 3: Summary of All Measures
Measure Description
GHG
Reduction in
2030
(MTCO2e)
Cont. of
Current
Measure?
Measure
Start Year
Commercial
Green Building
Ordinance
The City will continue to adopt the latest version of the
CALGreen Code for non-residential construction and will
consider implementing a reach code that achieves greater
energy efficiencies.
497 Yes NA
Residential Green
Building
Ordinance
The City will continue to adopt the latest version of the
CALGreen Code for residential construction and will
consider implementing a reach code that achieves greater
energy efficiencies.
146 Yes NA
Residential
Energy Retrofit
Incentives and
Rebates
Through marketing and outreach, City promotes
participation in residential energy efficiency programs,
including BayREN’s Home+ program, San Mateo County
Energy Watch and and PG&E’s efficient appliance rebates.
City provides or encourages residential energy audits City
will encourage residential energy audits.
2,872 Yes NA
Commercial
Energy Efficiency
Programs
Through marketing and outreach, City promotes
participation in commercial energy efficiency programs and
demand response programs offered by SMC Energy Watch
and PG&E – including PGE’s appliance rebates, 0%
energy efficiency financing and demand response
programs. City will encourage commercial energy audits.
1,657 Yes NA
Residential
Energy
Conservation
Program
Initially start a voluntary residential energy conservation
program, whereby the City would encourage minimum
energy efficiency and water efficiency standards at the time
of building sale. Transition to mandatory residential energy
conservation ordinance over time.
607 No
2020
(voluntary) /
2025
(mandatory)
Commercial
Energy
Conservation
Program
Initially start a voluntary commercial energy conservation
program, whereby the City would encourage minimum
energy efficiency and water efficiency standards at the time
of building sale. Transition to mandatory commercial
energy conservation ordinance over time.
458 No
2020
(voluntary) /
2025
(mandatory)
8
Measure Description
GHG
Reduction in
2030
(MTCO2e)
Cont. of
Current
Measure?
Measure
Start Year
Free or
Subsidized Shade
Trees
Implement city program to reduce energy consumption
associated with cooling homes through the provision of free
or subsidized shade trees for buildings with eastern,
western or southern exposures.
23 No 2020
Electrical Panel
Upgrades in
Existing Buildings
Leverage incentives provided by PCE to encourage
residents and offices to upgrade electric panels in order to
accommodate all-electric technologies including solar PV,
battery storage, air source heat pumps, heat pump water
heaters, electric dryers, electric stoves and electric
vehicles.
6,480 No 2020
Promote Solar
Installations
Continue to participate in bulk purchase program such as
the Peninsula SunShares Program. Promote the
installation of solar among residents and businesses in the
community.
1,527 Yes NA
Participate in
Community
Choice
Aggregation
Through Peninsula Clean Energy, the City will continue to
provide greener renewable electricity to citizens and
businesses.
7,320 Yes NA
New Non-
Residential
Buildings Solar
Requirement
Update building code to mandate that all commercial new
construction and major remodels install either a solar PV or
solar hot water system at time of construction.
616 No 2022
Pairing Battery
Storage with Solar
PV Systems
Provide education and outreach on the benefits of pairing
battery storage with solar PV systems to stakeholders,
including businesses, residents and contractors.
872 No 2020
Energy Efficient
Street Lighting
Continue to replace street, signal, parks, and parking lot
lighting with efficient lighting. 64 Yes NA
Environmentally
Preferred
Purchasing Policy
- Energy
Continue to implement Administrative Standard Procedures
which includes a sustainable purchasing policy prioritizing
Energy Star equipment.
4 Yes NA
Participate in
Community
Choice
Aggregation:
Municipal
The City has elected and will continue to elect to “opt up” to
ECO100 (100% renewable) electricity service through
PCE.
142 Yes NA
9
Measure Description
GHG
Reduction in
2030
(MTCO2e)
Cont. of
Current
Measure?
Measure
Start Year
Energy Efficiency
in Municipal
Buildings
Continue to audit City facilities for energy efficiency
opportunities and implement energy efficient (EE) retrofits.
The City participates in San Mateo County Energy Watch
and leveraged benchmarking to identify opportunities for
EE upgrades and track energy performance. Leverage
other programs that provide funding.
273 Yes NA
Renewable
Energy Installation
for Municipal
Properties
Evaluate installation of solar carport system at Millbrae City
Hall/Library parking lots. 68 No 2022
Municipal Green
Building Policy
The City will follow the CALGreen Code and consider
achieving LEED Silver or Gold status or equivalent. 5 2 No N/A
Water
Conservation
Incentives
Continue promoting existing and new rebates for water
efficient appliances and fixtures. 102 Yes NA
Water Efficient
Landscape
Ordinance and
CALGreen Indoor
Water Efficiency
Requirements
Continue implementation of the State Model Water Efficient
Landscape Ordinance (MWELO) and CALGreen indoor
water efficiency requirements.
43 Yes NA
Residential
“Graywater
Ready” New
Construction
Encourage new construction projects to be built “graywater
ready” by educating applicants during the design phase of
projects.
11 No 2020
Smart Growth
Development
Continue Smart Growth Policy that prioritizes infill, higher
density, transportation oriented, and mixed-use
development.
624 Yes NA
Walkable /
Bikeable Street
Landscape
Remake urban landscape to make walking and biking more
desirable, such as bike lanes, bike parking, traffic calming,
beautification, etc.
873 Yes N/A
Safe Routes to
School
Continue to support the City's Safe Route to Schools
program by establishing bike trails and safe pedestrian
routes to local schools (infrastructure) and educate the
community about the program.
50 Yes N/A
Electric Vehicle
Education and
Outreach
Increase number of electric vehicles that are owned by
residents, commuters and visitors to the City through
education and outreach focused on the benefits of electric
vehicles.
5,555 Yes N/A
2 These projections assume that any new facilities are built to LEED Silver standards or equivalent.
10
Measure Description
GHG
Reduction in
2030
(MTCO2e)
Cont. of
Current
Measure?
Measure
Start Year
Local Farmers’
Market
Support the farmers’ market to encourage local shopping
for locally-grown food and reduce VMT associated with
acquiring produce.
6 Yes N/A
Bike Sharing Explore bike sharing program to have bikes located at the
BART Station, downtown and elsewhere. 118 No 2020
Car Sharing Encourage car sharing companies to open pods in town. 131 No 2020
Shuttle Program Increase shuttle service within city limits to connect areas
not covered by public transit. 249 No 2021
EV Charging
Infrastructure in
Existing Buildings
Leverage incentives from PCE to expand charging
infrastructure in public properties, multi-unit dwellings, and
workplaces.
11,558 No 2020
EV Charging
Infrastructure in
New Construction
Update the residential and commercial building code to
increase the mandated percentage of parking spaces
designed to accommodate electric vehicle charging
equipment and also increase the mandated percentage of
parking spaces devoted to clean air vehicles (EVs, PHEVs,
carpools).
878 No 2022
Shared Electric
Bikes and
Scooters
Modify existing city infrastructure to accommodate shared
electric bikes and scooters that provide last-mile solutions
to residents and commuters. Infrastructure enhancements
including dedicated off-street parking spaces and on-street
corrals to accommodate shared electric bike and scooter
parking and prevent conflicts with pedestrians.
830 No 2020
Electric
Transportation
Network Company
(TNCs) Vehicles
Develop policies, such as a revenue neutral fee that only
applies to internal combustion engine TNCs, to encourage
the use of EV TNCs in the community. Utilize funds
generated by fees to provide discounts on EV TNC rides.
Provide designated drop-off locations and charging
locations for EV TNCs to facilitate EV adoption.
887 No 2021
Public Employee
Commuting
Program
Continue with the commute alternatives program to
promote and incentivize public transportation, carpooling,
biking, etc.
2 Yes NA
Clean Fleet Policy
Prioritize purchase of battery electric, plug-in hybrid electric
and traditional hybrid vehicles. Maintain existing vehicles
for optimum mileage. Encourage staff to drive minimally
and efficiently. Expand on the idling policy.
42 No 2020
Landfill Diversion
Rate Goal
Increase participation in recycling programs and weekly
collection of recyclables and organic waste to achieve 85%
diversion.
289 Yes NA
11
Measure Description
GHG
Reduction in
2030
(MTCO2e)
Cont. of
Current
Measure?
Measure
Start Year
Sustainable Food
Service Ware
City will consider amending its existing Sustainable Food
Service Ware ordinance to require that all food ware is
compostable and to reduce the use of other single-use
items in food services.
Supporting
Measure No 2020
Commercial
Organics
Recycling
Ordinance
AB 1826 requires all businesses and multi-family
complexes with more than five units to sort and recycle
organic material. Provide enforcement to ensure
compliance with ordinance.
Supporting
Measure Yes NA
Environmentally
Preferred
Purchasing Policy
- Waste Reduction
Revise the Administrative Standard Procedures on Reuse
and Recycling to strengthen sustainable purchasing
procedures.
Supporting
Measure Yes NA
Sustainable
Vendor Policy at
Public Events
Continue to work with event organizers for recycling at
public events (of cardboard, paper, containers and
food/organics), and for use of compostable/recyclable food
service ware.
Supporting
Measure Yes N/A
Municipal Zero
Waste Policy
Implement policy to achieve 95% diversion in City
operations by 2030. 3 No 2020
Bay Area Green
Business Program
Continue implementing this program that allows businesses
to brand themselves as green by following sustainable
practices.
110 Yes N/A
12
Meeting the Emissions Targets
In summary, the measures described in the Plan, combined with state-wide legislation and initiatives
and countywide transportation programs, will enable the City to meet its emissions reduction target of
49% below 2005 levels by 2030 and the interim target of 32% below 2005 levels by 2025. Table 4
shows the contribution of the state-wide initiatives along with the community and municipal operations
Climate Action Plan measures. As shown in Figure 2 and Table 2, the City needs to achieve a 92,025
MTCO2e of GHG emissions reduction by 2030 to meets its goal. The total estimated GHG reductions
accounted for in the Plan total 92,270 MTCO2e by 2030 (49.2% below 2005 levels), as shown in Table
4.
Table 4: Meeting the 2030 Target
State Initiative Sector
2030 Reduction in
City’s emissions
(MT CO2e)
Advanced Clean Cars Program On-road Transportation 27,207
Low Carbon Fuel Standard Off-road Transportation 1,223
Caltrain Electrification Trains 1,045
Renewable Portfolio Standard All Electricity 5,360
100% ZNE New Residential (2020) Residential Energy 1,279
50% ZNE Existing Commercial (2030) Commercial Energy 8,157
Organic Waste Diversion SB 1383 Disposed Waste 2,007
A. Total State-wide Initiative Emissions Reductions 46,277
B. Total City Climate Action Plan Reductions 45,992
C. Total Expected Emissions Reductions /(A+B) 92,270
D. City of Millbrae Emissions Reduction Requirement 92,025
E. Meets/exceeds State goals? (C > D) Yes
13
Conclusion
While the challenge of climate change is unprecedented,
local-level solutions can reduce emissions, improve energy
efficiency, promote economic development, and improve the
quality of life for the community, both residents and
businesses.
The City of Millbrae has taken a significant step toward a more
sustainable future with the Climate Action Plan. The Plan has
identified areas and opportunities to reduce GHG emissions
through the community and municipal operations, along with
state-wide and county-wide efforts, to ultimately achieve its
environmental goals and GHG emissions reduction targets.
The City is poised to reap the benefits of a clean energy
economy, with policies that can increase the demand for local
green jobs.
These are difficult issues that will take a unified approach
working with the State of California, County of San Mateo, and
local citizens and businesses to achieve the GHG emissions
reduction goals. There is a lot that one person can do
individually, and Appendix D: 10 Steps to Reduce Your
Carbon Footprint of the Plan provides 10 ways individuals can
reduce their GHG footprint and help safeguard the
environment for future generations.
While creation of the Plan is an important first step, the Plan
will remain a living document, to be updated as technology
and policies progress, and to support the City’s efforts to
manage GHG emissions for a sustainable future for all.
January 2020
DRAFT (1-24-2020)
City of Millbrae Climate
Action Plan
Acknowledgements
Millbrae City Council
Reuben D. Holober, Mayor
Ann Schneider, Vice Mayor
Anne Oliva, Councilmember
Gina Papan, Councilmember
Wayne J. Lee, Councilmember
Millbrae City Manager
Thomas C. Williams
Millbrae City Staff
Shelly Reider
Khee Lim
Meghan Kelly
This Climate Action Plan was developed using the Regionally Integrated Climate Action Planning Suite
(RICAPS) funded by a grant from the Bay Area Air Quality Management District (BAAQMD) and by California
utility customers, administered by the Pacific Gas and Electric Company (PG&E) under the auspices of the
California Public Utilities Commission and with matching funds provided by the City and County Association
of Governments of San Mateo County (C/CAG).
RICAPS Project Consultant: DNV GL Energy Services USA Inc.
RICAPS Staff: Sandy Wong (C/CAG), Kim Springer (County of San Mateo), Susan Wright (County of San
Mateo)
Prepared in collaboration with City/County Association of Governments of San Mateo County
City of Millbrae Climate Action Plan page 1
Table of Contents
1 Introduction .......................................................................................................................... 3
Why the City of Millbrae has a Climate Action Plan ..................................................... 4
Climate Science .......................................................................................................... 4
Projected San Francisco Bay Area Climate Impacts ................................................... 8
Rising Sea Levels............................................................................................ 8
Extreme Heat & Storm Events ....................................................................... 11
Public Health ................................................................................................. 12
Decreasing Fresh Water Supply .................................................................... 14
Local efforts .............................................................................................................. 14
The City of Millbrae’s Climate Action Plan Process ................................................... 18
Framework for Climate Action ....................................................................... 18
Public Outreach and Community Engagement .............................................. 20
2 Greenhouse Gas Inventory and Forecast ........................................................................... 21
Inventory Sources and Data Collection Process ....................................................... 21
Baseline Emissions Inventory for 2005 ..................................................................... 23
Electricity and Natural Gas Emissions ........................................................... 25
Transportation Emissions .............................................................................. 27
Solid Waste ................................................................................................... 28
Municipal Operations ..................................................................................... 29
Emissions Forecast for 2025 and 2030 ......................................................... 30
Emission Reduction Targets ..................................................................................... 31
Reductions from State-Level Actions ............................................................. 32
The City of Millbrae Reduction Target ........................................................... 33
3 Climate Action Strategies ................................................................................................... 35
Energy ...................................................................................................................... 37
Goal: Improve Energy Efficiency and Increase Electrification of Existing
Buildings and New Construction Projects .................................................................. 39
Goal: Promote Renewable Energy Opportunities and Programs ................... 45
Goal: Increase Energy Efficiencies and Proportion of Electricity from
Renewable Sources in Municipal Operations ............................................................ 49
City of Millbrae Climate Action Plan page 2
Goal: Conserve Water to Reduce Energy Use .............................................. 54
Transportation and Land Use .................................................................................... 58
Goal: Encourage Smart Development and Programs that Support Alternative
Modes of Transportation ........................................................................................... 60
Goal: Promote the Use of Fuel Efficient and Alternative Vehicles in Municipal
Operations and Reduce Public Employee Vehicle Miles Traveled ............................. 72
Solid Waste .............................................................................................................. 73
Goal: Reduce Waste and Increase Recycling Opportunities .......................... 76
Goal: Reduce Waste in Municipal Operations Through Adopting Purchasing
and Zero Waste Policies ........................................................................................... 81
All Sectors: The Green Business Program ................................................................ 84
Summary of Measures .............................................................................................. 86
Adaptation ................................................................................................................ 92
4 Implementation .................................................................................................................. 93
Prioritizing measures for action ................................................................................. 93
Meeting the Emission Targets ................................................................................... 95
Management of GHG Reduction Strategy ................................................................. 95
Public Participation and Community Engagement ..................................................... 96
Timeline .................................................................................................................... 97
5 Monitoring and Improvement .............................................................................................. 98
6 Conclusion ......................................................................................................................... 99
7 Appendices ...................................................................................................................... 100
Appendix A. Glossary of Terms .............................................................................. 100
Appendix B. State Policy and Regulatory Context ................................................... 101
Appendix C. Regional Efforts .................................................................................. 105
Appendix D: 10 Steps to Reduce Your Carbon Footprint ........................................ 107
Appendix E. Summary of Funding Sources ............................................................. 110
Federal Funding .......................................................................................... 110
State Funding .............................................................................................. 110
Utility Rebate Programs............................................................................... 111
Local Energy Programs Available to Residents and Businesses ................. 112
Other Funding Opportunities ....................................................................... 113
Appendix F. Adaptation Planning for Climate Impacts ............................................. 114
Appendix G. Historic GHG Inventories and Forecast .............................................. 119
Appendix H. Baseline GHG Inventory Updates ....................................................... 122
City of Millbrae Climate Action Plan page 3
1 Introduction
The City of Millbrae is pleased to present this Climate
Action Plan (Plan), which is designed to be a blueprint of
our community’s response to the challenges posed by
climate change. Climate change is a global problem;
however, through local actions the City can do its part to
contribute to reducing greenhouse gas (GHG) emissions
from local sources. Climate scientists around the world,
represented by the Intergovernmental Panel on Climate
Change (IPCC), have an unequivocal position: human
activity is changing the Earth’s climate through the
release of GHG emissions resulting from the combustion
of fossil fuels. The longer communities delay taking
action, the greater the risk humans face of irreversibly
depleting non-renewable resources and harming our
environment. However, it is conceivable, and
increasingly foreseeable, that humans will delay action
so long that useful policy and programs will become
infeasible and both human civilization and the biosphere
will be permanently damaged.
The City of Millbrae (City) cannot solve the climate crisis
alone. Working in coordination with San Mateo County
(County), the State of California (State), and the Federal
government, the City has committed to taking steps to
reduce GHG emissions and create new programs and
services that will support the community and businesses
in doing the same. This Plan offers ways to make homes
more energy efficient and increase the amount of locally
produced renewable energy. It recommends “smart”
development patterns that emphasize vibrant
neighborhoods and “complete streets” that allow people
to go about their business on foot, by bicycle, or via
public transportation. It provides transit solutions and
offers ways to reduce waste that would otherwise go to
landfills. Finally, this Plan outlines measures that will
continue to make municipal government operations an
efficient and environmentally responsible organization.
City of Millbrae Climate Action Plan page 4
Why the City of Millbrae has a Climate Action Plan
The City of Millbrae, with our partner the City and County Association of Governments (C/CAG)
of San Mateo County, and with partial grant funding from the Bay Area Air Quality Management
District (BAAQMD) and the Pacific Gas and Electric Company (PG&E), has developed this
Climate Action Plan in order to achieve a number of objectives, including:
To demonstrate environmental leadership – We as a community can rise to the difficult
challenge of reducing the impact of climate change by taking reasonable steps to reduce
our GHG emissions.
To save money and promote green jobs – Residents,
businesses, and government will reduce their utility costs
through increased energy and water efficiency. A focus
on efficiency creates job opportunities within the
community that contribute to protecting our
environmental resources.
To comply with letter and spirit of State
environmental initiatives – California is taking the lead
in tackling climate change while driving the new energy markets and fostering new
environmental services. As such we have a responsibility to help the State meet its goals
to reduce greenhouse gas emissions.
To promote sustainable development – By developing this Climate Action Plan
according to BAAQMD guidelines, a new class of sustainable development projects, such
as mixed use and transit-oriented developments, can be fast-tracked through the
California environmental review process.
Climate Science
Climate change presents one of the most profound challenges of our time. A broad international
consensus exists among atmospheric scientists that the Earth’s climate system is being
destabilized in response to elevated levels of GHG emissions in the atmosphere. This is
primarily from the combustion of fossil fuels for energy use. GHG emissions include carbon
dioxide (CO2) methane (CH4), nitrous oxide (N2O), and three man-made gases:
hydrofluorocarbons (HFCs), perfluorocarbons (PFCs), and sulfur hexafluoride (SF6).
Figure 1 from the Intergovernmental Panel on Climate Change (IPCC), the leading international
scientific body on climate change, shows the growth and distribution of anthropogenic (human-
caused) GHG emissions in the atmosphere.
We have developed this
Climate Action plan to
implement measures to
reduce greenhouse gases
through environmental
leadership and stewardship
of our local environment.
City of Millbrae Climate Action Plan page 5
Figure 1: Growth and Distribution of Global Anthropogenic GHG Emissions 1
The largest anthropogenic contributor to climate change is carbon dioxide emissions from fossil
fuel and industrial processes (65%), followed by methane (16%), carbon dioxide from forestry
and other land use changes (11%), nitrous oxide (6.2%) and fluorinated gases (2.0%). Carbon
dioxide is emitted through the combustion of fossil fuels such as coal and petroleum as well as
through the decomposition of clear-cut forests (deforestation). Figure 2 summarizes emissions
by economic sector in the United States.
1 Intergovernmental Panel on Climate Change, “Total annual anthropogenic GHG emissions by gases 1970-2010”, Climate Change
2014: Synthesis Report. Contribution of Working Groups I, II and III to the Fifth Assessment Report of the Intergovernmental Panel
on Climate Change [Core Writing Team, R.K. Pachauri and L.A. Meyer (eds.)]. Geneva, Switzerland, (2014), 5.
City of Millbrae Climate Action Plan page 6
Figure 2: Greenhouse Gas Emissions by Economic Sector in the United States 2
At a national level, the largest contributor to greenhouse gas emissions is the electricity sector
(30%), followed by the transportation (26%), industry (21%), commercial and residential (12%),
and agriculture (9%).
Volume II of the Fourth National Climate Assessment (Assessment), released in 2018 by the
United States Global Change Research Program, finds that climate change is affecting the
natural environment, agriculture, energy production and use, land and water resources,
transportation, and human health and welfare across the U.S. and its territories.
The key findings3 of the Assessment from the National Oceanic and Atmospheric
Administration, which was a major contributor to the report, include:
Communities
Communities across the U.S. are increasingly vulnerable to the impacts of climate change in
terms of health and safety, quality of life, and the rate of economic growth. The resulting impacts
of climate change threaten the natural, built, and social systems that communities rely on, both
within and beyond the U.S. borders.
2 U.S. Environmental Protection Agency, Inventory of U.S. Greenhouse Gas Emissions and Sinks: 1990-2017,
https://www.epa.gov/ghgemissions/inventory-us-greenhouse-gas-emissions-and-sinks (2019).
3 National Oceanic and Atmospheric Administration, “New federal climate assessment for U.S. released”,
https://www.noaa.gov/news/new-federal-climate-assessment-for-us-released (November 23, 2018).
City of Millbrae Climate Action Plan page 7
While efforts to respond to climate change have expanded in the last five years, it is not at the
scale needed to avoid substantial damages to the economy, environment, and human health
over the coming decades.
Substantial and sustained global efforts to reduce greenhouse gas emissions and regional
initiatives are needed or climate change is expected to cause increasing losses to infrastructure
and property and hinder the rate of economic growth over this century.
Agriculture and food production
It is expected that rising temperatures, extreme heat, drought, wildfire on rangelands, and heavy
downpours will increasingly challenge the quality and quantity of U.S. crop yields, livestock
health, price stability, and rural livelihoods.
Ecosystems
Major disruptions in some ecosystems will occur with
continued changes to the Earth’s climate. Some of the
coral reef and sea ice ecosystems have already
experienced transformational changes, affecting
communities and economies that rely upon them.
Water and the Coasts
There will be increasing risks and costs to agriculture,
energy production, industry, and recreation due to changes in the quality and quantity of fresh
water available for people and the environment.
By the latter part of this century, climate change will transform coastal regions, which will also
affect other regions and sectors. This will result in higher costs and lower property values due to
sea level rise.
Health
Climate change threatens the health and well-being of people by causing increasing extreme
weather, changes to air quality, the spread of new diseases by insects and pests, and changes
to the availability of food and water.
The central aim of the Paris Agreement, an agreement within the United Nations Framework
Convention of Climate Change signed in 2016, is to strengthen the global response to the threat
of climate change. Under the Paris Agreement, countries agreed on a goal of limiting global
warming to well below 2°C, or 3.6°F, by 2100 and to pursue efforts to limit the increase to 1.5°C,
or 2.7°F. According to the current scientific consensus, a 2°C increase in average global
temperature over the next century is a “safe” level of global warming. To limit the average global
temperature increase to 2°C, GHG concentrations need to be stabilized at a level well below
450 parts per million (ppm). In 2018, the global atmospheric concentration of CO2 passed 407
“Climate changes are
already affecting water,
energy, transportation,
agriculture, ecosystems,
and health.”
-U.S. Global Change
Research Program
City of Millbrae Climate Action Plan page 8
ppm.4 Achieving this level requires global GHG emissions to be reduced by at least 50% below
their 1990 levels by the year 2050.
The IPCC was created in 1988 by the World Meteorological Organization and the United
Nations Environment Program with the objective to provide governments with scientific
information that they can use to develop climate policies. IPCC reports are also a key input into
international climate change negotiations. In 2018, the IPCC released a special report, Global
Warming of 1.5°C, on the impacts of global warming and what it would take to cap rising
temperatures at 1.5°C above preindustrial levels, which is a goal that is exceedingly difficult but
thought not to be impossible.5 The IPCC warns that warming of 1.5°C could be realized as early
as 2030.
Projected San Francisco Bay Area Climate Impacts
Climate change refers to all aspects of climate, including disruptions to weather patterns that
include shrinking of glaciers, accelerated sea level rise, more intense heat waves, shifts in
animal and plant ranges, and changes in the timing of plant reproduction. In California and
western North America, a changing climate is evident. During the past 50 years, the region has
experienced warmer winter and spring temperatures, reduced spring snow levels in mountains
and earlier snowpack melt.
Rising Sea Levels
Historical records show that sea level in San Francisco Bay has risen about 8 inches (20 cm)
over the past 100 years. Scientists agree that the rate of sea level rise is accelerating, but
projections of future sea levels vary considerably.
4 Rebecca Lindsey, “Climate Change: Atmospheric Carbon Dioxide,” National Oceanic and Atmospheric Administration,
https://www.climate.gov/news-features/understanding-climate/climate-change-atmospheric-carbon-dioxide (September 19, 2019).
5 Intergovernmental Panel on Climate Change, “Special Report: Global Warming of 1.5°C”, https://www.ipcc.ch/sr15/, (2018).
City of Millbrae Climate Action Plan page 9
The City of Millbrae is located on the San Francisco Bay shoreline and is therefore susceptible
to the threats of rising sea levels. Figure 3 shows sea level rise projections for the Millbrae
coastline and nearby cities. Critical transportation infrastructure in or near Millbrae will be
affected by sea level rise, including San Francisco Airport and segments of Highway 101 and
Highway 380, both of which are major access points to the City.
Figure 3: Projected Sea Level Rise - San Mateo County Shoreline
Source: Pacific Institute
The range of current sea level rise estimates presents very different scenarios to cities that must
decide how to expend limited resources to protect critical land uses and infrastructure. As the
shoreline migrates landward, habitats and flood hazard areas will also shift. Past development
of residential, commercial, and public access infrastructure may limit the flexibility of set-backs
or adjustments to the Bay shoreline.
Due to San Mateo County being extremely vulnerable to sea level rise, the County started an
initiative called Sea Change San Mateo County to bring together and provide resources to local
governments and agencies within the County on the issue of sea level rise. A countywide Sea
Level Rise Vulnerability Assessment was completed and is part of a long term resilience
strategy to ensure local communities, ecosystems, and economies are prepared for climate
change. Specific information for Millbrae and other cities in the County can be found at
http://seachangesmc.com/ and http://seachangesmc.com/current-efforts/vulnerability-
assessment/. The assessment provides an overview of what is at risk from current and future
flooding and erosion in the County using three different sea level rise scenarios and one erosion
scenario. Other regional activities will be developed as a part of this effort, including a
City of Millbrae Climate Action Plan page 10
countywide Climate Collaborative, Climate Change Preparedness Action Plan, technical
assistance, adaptation planning toolkits and more.
The City received a Sea Change San Mateo County Community Resilience Grant of $60,000
with a partial City match which builds on previous studies, including the Vulnerability
Assessment and San Francisco Estuary Institute’s Bay Shoreline Adaptation Atlas, to assess
the impacts of sea level rise and propose potential mitigations, which will help the City to protect
the shoreline.
Mitigations can reduce overall flood risks, including Federal Emergency Management Agency
(FEMA) floodplains. The goals of the assessment are to develop city level mapping of sea level
rise and infrastructure, identify and explain the risks, collaborate to identify regional solutions
(Burlingame, San Francisco Airport, and San Mateo County), solicit public input, integrate
findings into future plans, and implement actions. The City held a workshop in June 2019 to
inform the community about these efforts and to gain input on sea level rise and climate change.
The Sea Level Rise Vulnerability Assessment for Millbrae for the baseline scenario shows a 1%
annual chance flood (also known as the “100 year flood”); the mid-level scenario shows a 1%
annual chance flood plus 3.3 feet of sea level rise; and the high-end scenario shows a 1%
annual chance flood plus 6.6 feet above the current 100-year Base Flood Elevation.
More than 165 acres of the City would be inundated under the mid-level scenario, and more
than 240 acres would be inundated under the high-end scenario. The direct value of properties
directly impacted would range from $250M-$380M. The inundated areas that would be affected
include drainage and pump stations, businesses, hotels, gas stations, the BART Station, the
Water Pollution Control Plant, other City facilities, future transit-oriented development, electrical
and gas infrastructure, and homes. The City is continuing to study the impacts from sea level
rise, which includes cataloging potential risks to the City, collaborating with partners, identifying
alternatives, preparing a sea level rise adaptation assessment, developing priorities, integrating
findings into local and regional plans, identifying funding opportunities, and building a safer
future for the community.
In addition, the City is implementing Green Infrastructure measures to improve water quality and
provide climate change benefits. A summary of these measures can be found in Chapter 3.6
and Appendix F, Adaptation Planning for Climate Impacts.
To improve regional coordination, in 2017, C/CAG established its Countywide Water
Coordination Committee to address flooding, regional stormwater, and sea level rise issues
within San Mateo County. The Committee developed a proposal for a water management
agency to modify an existing special district, the San Mateo County Flood Control District, which
was changed to the Flood and Sea Level Rise Resiliency Agency (Agency) consisting of five
City of Millbrae Climate Action Plan page 11
city and two county elected officials. The Agency's mission and role is to address sea level rise,
flooding, coastal erosion, and large-scale stormwater infrastructure improvements through
integrated regional planning, design, permitting, project implementation, and long-term
operations and maintenance to create a resilient "one shoreline" San Mateo County by 2100.
Extreme Heat & Storm Events
California in general should expect overall hotter and drier conditions with a reduction in winter
rain (and concurrent snow in the mountains), as well as increased average temperatures.
Dating back to 2009, it was expected that there would be a high likelihood that extreme weather
events, including heat waves, wildfires, droughts, and floods would be among the earliest
climate impacts experienced.6 In San Mateo County, higher average sea levels mean that
storms will impact the Bay shore more severely with higher storm surges, more extensive inland
flooding, and increased erosion. If more frequent or severe natural disasters occur, more
emergency and public health services will be needed to deal with the consequences.
Heat related illness and mortality are expected to increase. Though extreme heat events in
coastal areas like San Mateo County are not expected to be as severe or as long-lasting as
further inland, the resident population is not as well prepared or equipped to deal with higher
temperatures. Air conditioning is far less common, for example. Outdoor workers, elderly
populations, and children are particularly vulnerable to extreme temperatures.
2017 was the third hottest year on record and the hottest summer in state history. Higher
temperatures and drier summer conditions produce higher levels of ozone, which can
exacerbate respiratory illnesses, particularly among vulnerable populations such as children and
the elderly. Higher temperatures and drier conditions can also increase the potential for
wildfires, which can lead to declines in air quality and cause negative impacts to respiratory and
cardiovascular health.
Agriculture is also likely to be impacted by extreme weather events, higher temperatures, and
less water availability for agricultural production, resulting in lower production and a potential
decline in food security.
6 California Natural Resources Agency, 2009 California Climate Adaptation Strategy,
http://resources.ca.gov/docs/climate/Statewide_Adaptation_Strategy.pdf (2009).
City of Millbrae Climate Action Plan page 12
Additional Resources about Climate Change
Public Health
Most Californians are not aware of recent
statistics that suggest that California is home
to the worst air quality in the nation, with over
90% of Californians breathing unhealthy air.
According to the California Air Resources
Board, unhealthy levels of ozone (smog) and
particulate matter annually contribute to:
19,000 premature deaths
9,400 hospital admissions for respiratory and cardiovascular disease
280,000 asthma and other lower respiratory symptoms
22,000 cases of acute bronchitis
Millions of school and work days lost due to respiratory conditions7
In addition, climate change, including increased summer temperatures, can have adverse
effects for the health of City of Millbrae’s residents and workers, especially the vulnerable
populations such as children, seniors, and those with existing chronic illnesses, as mentioned in
Section 1.3.1.
7 American Lung Association, “Land Use, Climate Change & Public Health Issue Brief: Improving public health and combating
climate change through sustainable land use and transportation planning” (Spring 2010).
International Panel of Climate Change Fifth Assessment Report:
https://www.ipcc.ch/report/ar5/
U.S. Global Change Research Program:
http://www.globalchange.gov/publications/reports/scientific-assessments/us-impacts
C2ES – Center for Climate and Energy Solutions: https://www.c2es.org/
National Ocean and Aeronautical Administration (NOAA)
http://www.climate.gov/#Data_And_services
U.S. Environmental Protection Agency Climate Change Indicators:
https://www.epa.gov/climate-indicators
Real Climate: http://www.realclimate.org/
City of Millbrae Climate Action Plan page 13
San Mateo County Health System, in accordance with the Centers for Disease Control, serves a
number of functions to reduce health risks related to climate change. These include informing
cities about the risk climate changes poses to public health, creating tools that support decision
making and capacity building related to mitigating adverse health outcomes from climate
change, and serving as a credible leader in planning for the public health impacts of climate
change.
The City of Millbrae intends to work with the San Mateo County Health System to mitigate public
health dangers and maintain or improve long-term health by encouraging local residents and
workers to be part of the solution. Research shows that individuals who live in mixed-use and
walk able communities have a 35% lower risk of obesity.8 Another study estimates that the
walking associated with transit use saves individuals $5,500 over the course of their life by
reducing obesity-related medical costs.9 The City and the Health System will support programs
that promote more walkable and bikeable cities, which not only promote healthier lifestyles, but
also decrease reliance on vehicles that contribute to climate change.
Vulnerable Communities and Climate Change
Climate change will affect all population groups, yet some will be far more vulnerable to its
impacts than others as they may be less climate resilient. As mentioned, the rise and frequency
of extreme weather events will result in health threats and challenges imposed by climate
change. Those that are more vulnerable will disproportionately feel the detrimental effects that
others may not, including rises in the cost of living (i.e. water and food), increased exposure to
extreme weather, and associated threats to health. Those that are especially vulnerable include
children, older adults, those with a low income and low-income communities of color, people
with poor health, and others. The California Department of Public Health’s Climate Change and
Health Equity Program (CCHEP) addresses health and equity in California climate change
planning as well as climate change and equity in public health planning. CCHEP works with
local, state, and national partners to assure that climate change mitigation and adaptation
activities have beneficial effects on health while not exacerbating existing unfair and preventable
inequities in health status of some groups. Actions will need to be taken to provide resources
and assistance to aid vulnerable communities affected by the impacts of climate change.
8 Lawrence D. Frank, M.A. Andresen, T.L. Schmid, “Obesity relationships with community design, physical activity, and time spent in
cars,” American Journal of Preventive Medicine, Volume 27, Issue 2 (August 2004), 87-96.
9 Robert Wood Johnson Foundation, “Active Transportation: Making the Link from Transportation to Physical Activity and Obesity,”
Research Brief 9/09, Active Living Research (2009).
City of Millbrae Climate Action Plan page 14
Decreasing Fresh Water Supply
With shifting climate patterns, significant uncertainty exists related to whether the recent drought
conditions are the “new normal” for California. However, all climate projections show increases
in average temperatures and reduced snowpack where Millbrae sources much of its water.
Rising temperatures compounded by decreased precipitation have already severely reduced
spring snowpack in the Sierra Nevada. A past report indicated that the Sierra Nevada snowpack
is projected to be reduced by at least 25% by 2050 10 and will pose severe water supply
challenges for California, including the Hetch-Hetchy system in which the City relies.
Additionally, California may see longer drought periods and decreased groundwater levels.
According to the 2018 Fourth National Climate Assessment SF Bay Area, hydrologic changes
affecting the amount and location of precipitation and snowpack in California’s mountainous
regions will stress existing storage reservoirs, impacting surface supply, imported water, and
water transfer availability, especially in the summer and fall. Millbrae must continue to reduce
consumption of water and seek to capture more water locally through rainwater, graywater, and
stormwater retention, as well as investments in local green infrastructure.
Local efforts
For information on State and regional efforts to address climate change, see Appendix B. State
Policy and Regulatory Context and Appendix C. Regional Efforts.
While cities may be vulnerable to climate impacts, they also can play a critical role in reducing
the emissions that exacerbate climate impacts. With their concentrations of people and activities
at high densities, cities can use resources such as energy, materials, and land more efficiently.
Cities are places where high-level knowledge-based activities congregate, along with the
expertise needed to tackle climate change. This is especially true in the San Francisco Bay
Area.
Assembly Bill (AB) 32 identifies local governments as essential partners in achieving California’s
goal to reduce GHG emissions. Local governments have primary authority to plan, zone, and
permit how and where land is developed to accommodate population growth and the changing
needs of their jurisdictions. Cities have varying degrees of responsibility for the collection and
processing of waste and have responsibility for other environmental infrastructures, such as
energy and water. Cities own and manage buildings and vehicle fleets and are able to form
partnerships with private interests to mobilize and coordinate community action. Furthermore,
10 California Energy Commission, “Scenarios of Climate Change in California: An Overview.” Final report from California Energy
Commission, Public Interest Energy Research (PIER) Program, California Climate Change Center, publication no. CEC-500-2005-
186- SF (February 27, 2006).
City of Millbrae Climate Action Plan page 15
cities are uniquely positioned to promote economic development that emphasizes sustainable
development and local green-collar jobs.
To date, the City of Millbrae has undertaken the following climate related actions:
In 2007, the City Council passed two climate protection resolutions. One was the
adoption of the U.S. Mayors’ Climate Protection Agreement (part of the Cool Cities
Campaign) and the other was the Cities for Climate Protection® program of ICLEI ─
Local Governments for Sustainability (ICLEI).
The City also contracted with ICLEI in 2007 to assist with an inventory of municipal
operations and community-wide GHG emissions for 2005, the baseline year by which
reductions would be measured, and develop a report. ICLEI also developed two
technical memos to help guide the City in implementing programs in the near term and in
setting GHG emissions reduction goals. The City has also utilized the Community-Wide
GHG Emissions Inventory for 2005 developed by the County of San Mateo and C/CAG,
which is a secondary source of data for this climate action plan.
In 2009, the City Council adopted GHG emissions reduction targets of 15% below 2005
levels by 2020 and 80% below 2005 levels by 2050. The emissions reduction target of
49% below 2005 levels by 2030 is an interim goal for the 80% below 2005 levels by
2050 goal. Senate Bill (SB) 32 calls for the State to reduce emissions 40% below 1990
levels by 2030, which has also been interpreted by the State as reducing emissions 49%
below 2005 levels by 2030. The City is using the 49% emissions reduction target as
2005 is the baseline.
In 2012, the City’s 2010 Government Operations Greenhouse Gas Emissions Inventory
Report was conducted by Joint Venture Silicon Valley in collaboration with ICLEI-Local
Governments for Sustainability USA. A municipal inventory report was also completed
for 2015.
In March 2015, the City’s 2010 Community Greenhouse Gas Inventory Report was
prepared by DNV GL, a consulting firm, through the RICAPS (Regionally Integrated
Climate Action Planning Suite) program of C/CAG. Other community inventory reports
were completed for the years 2010 through 2015. See GHG inventory results in
Appendix G. Historic GHG Inventories and Forecast.
In 2015, the City participated in the Institute for Local Government’s Beacon Award:
Local Leadership toward Solving Climate Change Recognition Program. In recognition of
the City’s efforts to reduce greenhouse gases, the City was awarded a Silver Level
Spotlight Award for reducing community GHG emissions by 5% between 2005 and 2010
and two Platinum Level Spotlight Awards, one for a 42% energy savings for City facilities
between 2005 and 2010 and the other for sustainability best practices. In 2016, the City
City of Millbrae Climate Action Plan page 16
received a Gold Level Beacon Award for reducing municipal operation GHG gases by
15% between the years 2010 and 2015.
Millbrae Climate Protection Programs
The City has actively implemented a variety of environmental programs over many years
contributing to GHG reductions. The following is a listing of the City’s primary sustainable and
climate protection programs. Many of these programs are also described more fully in Section 3.
The annual emissions reduction is also provided for those programs with a direct impact on
GHG emissions in Section 3.
Community Programs
o Enacting a Transportation Systems Management Ordinance
o Adopting a Complete Streets Policy
o Developing the Millbrae Station Area Specific Plan that includes land use policies
for developing residential and commercial development near transit
o Updating the General Plan to include bicycle and trail routes and forming a
Bicycle & Pedestrian Advisory Committee
o Participating in the Spare the Air Program including distributing notifications
o Achieving and surpassing the AB 939 waste diversion requirements and
implementing many waste prevention, recycling, composting, and buy recycled
programs
o Adopting the first Sustainable Food Service Ware Ordinance in the County
prohibiting restaurants from using polystyrene foam and solid food service ware
o Adopting the first Single-Use Carryout Bag Ordinance in the County prohibiting
the use of plastic shopping bags and encouraging reusable bags
o Participating in the annual international Earth Hour event
o Implementing a Commuter Options and Incentives Program for City employees
and conducting outreach to the public
o Participating in regional residential energy efficiency and retrofit programs
o Participating in and holding workshops on the Bay Area SunShares solar and
electric vehicle programs
o Participating in the HOMEIntel energy conservation program
o Adopting San Mateo County’s Energy Strategy
o Adopting a Green Building Ordinance and thereafter adopting the State of
California’s Green Building Standards (CALGreen) Code
o Providing rebates for the installation of solar panels from 2007 to 2013
o Implementing the Green Business Program, including certifying and recertifying
City Hall and the Library as Green Businesses and promoting the program to
local businesses
o Implementing a variety of water conservation programs for all sectors
o Adopting resolutions allowing Property Assessed Clean Energy (PACE)
programs to operate in Millbrae
City of Millbrae Climate Action Plan page 17
o Participating in Peninsula Clean Energy, the countywide Community Choice
Aggregation program which provides greener renewable energy supply to all
energy customers
o Installing electric vehicle charging stations at City facilities and parking lots and
holding electric vehicle workshops
o Installing a community garden to encourage growing food locally
o Preparing a Sea Level Rise Adaptation Assessment
o Preparing a Green Infrastructure Plan and implementing associated projects
o Joining the Flood and Sea Level Rise Resiliency Agency
o Participating in Clean Air Day events
Municipal Operations Programs
o Installing a bio-gas renewable energy co-generation operation in 2006 to use
brown kitchen waste grease from restaurants to provide energy at the
Wastewater Treatment Plant and Operations Center—the microturbine had
worked intermittingly over the years and stopped working in approximately 2016.
Currently, some of the generated methane is utilized to heat one of the tanks.
o Installing energy efficiencies in City facilities including the Clean Energy
Program:
Installing induction lighting in the City’s streetlights and newer internal and
external lighting technology in City facilities
Adding new irrigation controllers in the City’s parks
Installing a 50kW solar photovoltaic system on the Library
Upgrading the heating and air conditioning systems (HVAC) at the
Community Center
o Participating in Peninsula Clean Energy and choosing 100% renewable energy
o Participating in PG&E’s ClimateSmart Program from 2008-2011 to offset
greenhouse gas emissions from municipal operations
o Participating in a Demand Response Program to reduce energy use during
Energy Alert Days
o Providing pre-tax commuter benefits for employees
o Purchasing four hybrid vehicles
o Planting trees
o Implementing a variety of water conservation programs
o Implementing a variety of waste prevention, recycling, and composting programs
City of Millbrae Climate Action Plan page 18
Participation in Regional Climate Protection Programs and Organizations
o City and County Association of Governments of San Mateo County (C/CAG)
Regionally Integrated Climate Action Planning Suite (RICAPS) Steering
Committee, Office of Sustainability
o Climate Ready San Mateo County
o ICLEI – Local Governments for Sustainability
o Silicon Valley Joint Venture Climate Task Force
This Plan incorporates the many programs the City has in place that have and will continue to
reduce GHG emissions. Input will be sought on the Plan from community members,
committees, and commissions. The goal is to have the policies and highlights of the measures
included in this Plan incorporated into the City’s General Plan, which is currently being updated
through 2040.
The City of Millbrae’s Climate Action Plan Process
This Climate Action Plan was developed in partnership with C/CAG. The climate action plan
template project sponsored by C/CAG assists member jurisdictions and other interested local
governments to develop climate action plans that are consistent with California Environmental
Quality Act (CEQA) guidelines, including both the CEQA Guidelines Amendments effective
March 18, 2010, and the BAAQMD’s CEQA Air Quality Guidelines (Updated May 2011). By
combining resources, the climate action plan template project promotes high quality climate
action plans that can be used to meet regulatory requirements and support planning efforts to
reduce GHG emissions. The template project and the City’s climate strategy is based on the
ICLEI 5-Milestone process as seen in the framework below.
Framework for Climate Action
The ICLEI Five Milestones Framework (http://icleiusa.org/programs/emissions-management/5-
milestones/) is a management process based on increasing knowledge through each step to
achieve the targeted GHG emissions reductions. Figure 4 illustrates the process.
City of Millbrae Climate Action Plan page 19
Figure 4: ICLEI’s Five Milestones Framework
Leadership Commitment: Define the overall vision and goals for the community.
Milestone 1 (Inventory Emissions): Conduct a baseline emissions inventory and
forecast.
Milestone 2 (Establish Target): Adopt an emissions reduction target for the forecast
year.
Milestone 3 (Develop Climate Action Plan): Identify feasible and suitable strategies
and supporting actions to reduce emissions and achieve co-benefits aligned with the
overall vision and goals.
Milestone 4 (Implement Climate Action Plan): Enact the Plan.
Milestone 5 (Monitor/Evaluate Progress): Establish feedback loops to assess and
improve performance, including an assessment and adjustment of the necessary
human, financial, and data resources.
In November 2009, all San Mateo County member jurisdictions completed their 2005 community
and municipal GHG inventories as part of a joint effort with ICLEI, Joint Venture Silicon Valley
Network, and the County of San Mateo, funded by C/CAG. The City’s 2005 community and
municipal operations GHG emissions inventories and report were completed with the assistance
of ICLEI in 2008 and the City Council accepted the report and adopted GHG emissions
reduction goals in 2009. With C/CAG’s assistance, Milestone 3, the development of this Plan, is
complete and the City is responsible for Milestone 4 and Milestone 5, implementing the actions
identified and monitoring and evaluating progress.
City of Millbrae Climate Action Plan page 20
Public Outreach and Community Engagement
The City of Millbrae has
the opportunity to
leverage existing
programs funded by the State of
California, Metropolitan Transportation
Commission (MTC), Association of
Bay Area Governments (ABAG),
BAAQMD, C/CAG, PG&E, and others
to support community actions to
improve energy efficiency, increase
renewable energy, facilitate alternative
transportation initiatives, and reduce
solid waste generation. This Plan
proposes that the City continue to
distribute information widely about
programs and funding opportunities
for residents and businesses to support their sustainability efforts. The adoption of the Plan is
an important companion action that is concurrent with the City’s 2040 General Plan Update.
The City will hold public workshops to gain feedback from the community regarding this draft
Plan. The workshops will be held after internal stakeholders, including committees and
commissions, and the City have reviewed and commented on this Plan. Information will also be
included on the City’s website and in newsletters.
City of Millbrae Climate Action Plan page 21
2 Greenhouse Gas Inventory and
Forecast
The emissions inventory provides an important foundation for the Climate Action Plan (Plan),
providing a baseline year, 2005, against which progress toward the City goal of reducing
greenhouse gas (GHG) emissions 32% by 2025 and 49% by 2030 can be measured. This Plan
includes a business-as-usual (BAU) forecast of GHG emissions, which will enable the City of
Millbrae to estimate the amount of emissions reductions needed to meet its goal.
Inventory Sources and Data Collection Process
An inventory of GHG emissions requires the collection of information (data) from a variety of
sectors and sources. The emissions inventory completed for the City of Millbrae follows the
standard outlined in the Bay Area Air Quality Management District (BAAQMD) GHG Plan Level
Quantification Guidance (dated May 2012), as well as the Local Government Operations
Protocol 11.
Table 1 summarizes the sectors, emissions sources, and energy types included in our GHG
inventory.
11 Local Government Operations Protocol For the quantification and reporting of greenhouse gas emissions inventories (Version
1.0). Developed in partnership by California Air Resources Board, California Climate Action Registry, ICLEI – Local Governments for
Sustainability, and The Climate Registry. (September 2008). Note that a newer version (version 1.1, dated May 2010) of the LGOP
is available; however, at the time the GHG inventory was completed for the City of Millbrae, only version 1.0 was available.
City of Millbrae Climate Action Plan page 22
Table 1: Sectors and Emissions in the GHG Inventory
Sector Emissions sources Energy types
Residential Energy and water use in residential buildings Electricity
Natural gas
Commercial Energy and water use in commercial, government
and institutional buildings
Electricity
Natural gas
Industrial Energy and water use in industrial facilities, and
processes
Electricity
Natural gas
Transportation
and Land Use*
All road vehicles
Public transportation
Light rail
Off-road vehicles/equipment
Gasoline
Diesel
Compressed natural gas
Liquefied natural gas
Biodiesel
Waste Landfills
Waste stream
Landfill gas (methane)
Wastewater Process and fugitive emissions from treating
wastewater, and associated stationary emissions
Not applicable
Water** To be determined To be determined
Stationary
Sources**
Stationary combustion of fuel in various equipment,
such as boilers and backup generators.
Various – may include natural
gas, propane, and diesel
* Some sectors may be updated in a new version of the BAAQMD GHG Plan Level Quantification Guidance.12
** W ater and Stationary Sources were included in the 2010-2014 inventories, but not the 2005 inventory.
While the BAAQMD GHG Plan Level Guidance recommends the inclusion of GHG emissions
from water processing delivery, and wastewater treatment that occurs outside of the City’s
boundary, these emissions are not included in the City’s baseline inventory due to lack of data
on the energy used for water processing, delivery, and wastewater treatment in the baseline
year. The following are emission sources that are mentioned in the BAAQMD GHG Plan Level
Guidance but were excluded from the City’s inventory because they are not applicable in
Millbrae: airports and sea ports, non-road vehicle use (planes, trains, ships), and water travel.
In 2012, ICLEI – Local Governments for Sustainability (ICLEI) developed the U.S. Community
Protocol 13, which is the first U.S.-specific protocol for developing community-wide GHG
emissions estimates. In 2013, ICLEI released an updated Version 1.1 of the U.S. Community
Protocol. All future inventories should utilize this protocol. Future inventories will also utilize the
most recent version of the Local Government Operations Protocol, as well as any updated
guidance from the BAAQMD.
The industry-accepted methodology for quantifying a community-wide GHG emissions inventory
focuses on emissions that occur from combustion sources within city limits and from electricity
consumption. In the future, there may be the opportunity and need to quantity GHG emissions
12 For updates to the GHG Plan Level Quantification Guidance, visit http://www.baaqmd.gov/Divisions/Planning-and-
Research/CEQA-GUIDELINES/Tools-and-Methodology.aspx.
13 ICLEI – Local Governments for Sustainability, U.S. Community Protocol for Accounting and Reporting of Greenhouse Gas
Emissions (Version 1.0) (October 2012).
City of Millbrae Climate Action Plan page 23
associated with the goods and products procured by communities and its residents. This type of
lifecycle emissions accounting is not included in this Climate Action Plan.
As mentioned in Section 1.4, the City of Millbrae contracted with ICLEI in 2007 to assist with an
inventory of municipal operations and community-wide GHG emissions for 2005, the baseline
year by which reductions would be measured, and develop a report. The City participated in
another study in which the City/County Association of Governments of San Mateo County
(C/CAG) and the County of San Mateo developed a Community-W ide GHG Emissions
Inventory for 2005. The project completed by ICLEI and the associated report is the primary
source of data for the baseline inventory, while the project completed by C/CAG and the County
of San Mateo is the secondary source of data for this plan. See Appendix F. Baseline GHG
Inventory Updates for more details.
Baseline Emissions Inventory for 2005
In the base year of 2005, approximately 150,643 metric tons of carbon dioxide equivalent
(MTCO2e) were emitted in Millbrae from the residential, commercial, industrial, transportation,
waste, and municipal sectors.14 Municipal sector emissions are calculated and reported
because the City generally has more control over these emissions than emissions from the
other sectors, and thus the City can implement specific policies and programs to reduce
municipal emissions. However, in the context of the community-wide inventory, the municipal
emissions are included in the commercial/industrial sector. Burning fossil fuels in vehicles and
for energy use in buildings and facilities is the largest contributor to the City’s GHG emissions.
Table 2 provides a summary of total city-wide (i.e. community and municipal) GHG
emissions.
14 Carbon dioxide equivalent is a unit of measure that normalizes the varying climate warming potencies of all six GHG emissions,
which are carbon dioxide (CO2), methane (CH4), nitrous oxide (N2O), hydrofluorocarbons (HFCs), perfluorocarbons (PFCs), and
sulfur hexafluoride (SF6). For example, one metric ton of methane is equivalent to 21 metric tons of CO2e. One metric ton of nitrous
oxide is 210 metric tons of CO2e.
City of Millbrae Climate Action Plan page 24
Table 2: 2005 Community Emissions by Sector
Sector GHG Emissions
(MTCO2e)
Percentage of GHG
Emissions
Residential 32,405 21.5%
Commercial/Industrial 27,633 18.3%
Transportation – Local roads 29,558 19.6%
Transportation – State highways 51,981 34.5%
Transportation – Off-road equipment 5,645 3.7%
Transportation – Caltrain 873 0.6%
Generated Waste 2,486 1.7%
Wastewater Treatment 62 0.04%
TOTAL 150,643 100%
The residential, commercial, and industrial sectors represent emissions that result from
electricity and natural gas used in both private and public sector buildings and facilities. The
transportation sector includes emissions from private, commercial, and fleet vehicles driven
within the City’s geographical boundaries as well as the emissions from transit vehicles and the
City-owned fleet. Off-road equipment includes lawnmowers, garden equipment, and
construction, industrial, and light commercial equipment. Figure 5 shows the proportion of
Millbrae’s total GHG emissions from all major sources for 2005.
City of Millbrae Climate Action Plan page 25
Figure 5: Community Emissions by Sector 15 (2005)
As shown above, the four largest sectors of emissions are either related to transportation (State
highways and local roads) or building energy use (residential and commercial/industrial).
Electricity and Natural Gas Emissions
In 2005, Millbrae’s total stationary energy consumption was 97,600,567 kilowatt-hours (kWh) of
electricity and 8,251,321 therms of natural gas, including municipal operations and direct access
customers. Direct access is when an end use customer buys electricity or natural gas on the
wholesale market, rather than from the Pacific Gas and Electric Company (PG&E) or Peninsula
Clean Energy (PCE). Stationary energy use by all community sectors (residential, commercial,
industrial, and municipal operations) accounted for 40% of total 2005 GHG emissions in
Millbrae, resulting in a total of 60,038 MTCO2e emissions.
15 While Millbrae’s water emissions are not displayed separately in the chart above, they have been accounted for in the
commercial/industrial and residential building energy sectors.
City of Millbrae Climate Action Plan page 26
Of the total 60,038 MTCO2e emitted due to energy use in buildings, the residential sector
accounts for a slightly greater portion (54%) of GHG emissions than commercial/industrial
sector (46%).
Figure 6: Building GHG Emissions by Sector
Of the total 60,038 MTCO2e emitted due to energy use in buildings, natural gas accounts for a
greater portion (60%) of GHG emissions than electricity (40%).
Figure 7: Building GHG Emissions by Fuel Type
It is important to note that emissions associated with the generation of electricity, which make
up a significant portion of the greenhouse gases associated with building energy, can vary
widely from year to year. The GHG emissions associated with electricity use are based on an
emissions factor specific to PG&E’s territory that is calculated annually by PG&E and then made
City of Millbrae Climate Action Plan page 27
available to cities. The source of the emission factor used for the 2005 baseline inventory is the
PG&E Power/Utility Protocol (PUP) spreadsheet of the PG&E California Climate Action Registry
Report. In future inventory years, the emission factor may be found in the Additional Optional
Information tab of PG&E’s Electric Power Sector report spreadsheet, which is part of PG&E’s
Report to The Climate Registry. PG&E’s specific emissions factor is calculated by dividing
PG&E’s total emissions from their power plants (in pounds of CO2) by the total amount of
electricity (in megawatt-hours, MWh) delivered to end users. This factor varies year over year
because PG&E’s electricity sources change. For instance, the utility specific emissions factor for
PG&E in 2006 was 455.81 lbs/MWh whereas in 2008 it was 641.35 lbs/MWh. For PG&E, the
variance is typically dependent on the availability of hydroelectric resources. During low
precipitation years, there is less water available to generate emissions-free hydropower.
Because of this, PG&E must compensate by supplying more electricity generated from natural
gas or coal.
For the 2005 baseline inventory, the 2005 emissions factor was used. For future inventories, a
three-year average emissions factor could be used to address the large variance that may occur
from year to year. Emissions from natural gas usage are calculated using the emissions factor
from the EPA Climate Leaders, Stationary Combustion Guidance (2007), Table A-1, based on
the US EPA, Inventory of Greenhouse Gas Emissions and Sinks: 1990-2005 (2007), Annex 3.1
(see also Local Government Operations Protocol, Table G.3).
Transportation Emissions
In 2005, transportation emissions accounted for 58% of Millbrae’s total emissions. Travel on
local roads accounted for 20% of transportation emissions (29,558 MTCO2e), travel on State
highways within city limits accounted for 35% (51,981 MTCO2e), and emissions from off-road
equipment, such as lawn and garden or construction and industrial equipment, accounted for
3.7% (5,645 MTCO2e).
On-road transportation emissions are based on figures for total vehicle miles traveled (VMT ) for
the City of Millbrae provided by the Metropolitan Transportation Commission (MTC) and
calculated from 2005 California Public Road Data, Highway Performance Monitoring System,
State of California, Department of Transportation and Caltrans GIS data of State highway road
segments divided into jurisdictional segments. Off-road equipment emissions data is calculated
from BAAQMD, using EMFAC2007 as a proxy for unavailable 2005 data.
Figure 8 summarizes the proportion of total on-road transportation emissions from highway
versus local roads travel.
City of Millbrae Climate Action Plan page 28
Figure 8: Transportation Emissions – Highways v. Local Travel
Figure 9 summarizes the proportion of total off-road transportation emissions from residential
versus commercial equipment.
Figure 9: Transportation Emissions – Residential v. Commercial Off-road Equipment
Solid Waste
In 2005, 13,481 tons of solid waste were sent to landfills, resulting in 2,461 MTCO2e of
emissions. Another 25 MTCO2e of emissions are estimated from the 1,347 tons of alternative
daily cover (ADC) used on the surface of the active face of municipal landfills to control odors,
blowing litter, and scavenging. Together, landfilled solid waste and ADC accounted for
approximately 2% of Millbrae’s total emissions.
City of Millbrae Climate Action Plan page 29
Emissions from waste result from organic materials decomposing in the anaerobic environment
of a landfill that produces methane, a GHG 21 times more potent than carbon dioxide. Organic
materials (e.g., paper, plant debris, food waste, and so forth) generate methane within the
anaerobic environment of a landfill while non-organic materials (e.g., metal, glass, and so on) do
not. Table 3 shows the approximate breakdown of the materials Millbrae sent to landfills in
2005. Materials that do not release GHGs as they decompose are included in the “All Other
Waste” category.
Table 3: Assumed Waste Composition 16
Waste Type Waste Share
Paper Products 21.0 %
Food Waste 14.6 %
Plant Debris 6.9 %
Wood/Textiles 21.8 %
All Other Waste 35.7 %
TOTAL 100 %
Municipal Operations
In 2005, Millbrae’s municipal operations generated 1,645 MTCO2e of emissions, accounting for
slightly more than 1% of the City’s total emissions. Table 4 and Figure 10 below show that
municipal buildings and facilities were the largest source of GHG emissions, followed by water
and sewer operations.
Table 4: 2005 Millbrae Government Operations Emissions by Sector
Sector Greenhouse Gas Emissions
(metric tons CO2e)
Buildings and Facilities 496
Water and Sewer 389
Vehicle Fleet 344
Public Lighting 329
Government-Generated Solid Waste 87
TOTAL 1,645
16 California Integrated Waste Management Board, Statewide Waste Characterization Study,
https://www2.calrecycle.ca.gov/Publications/Details/1097, (December 12, 2004). This state average waste characterization accounts
for residential, commercial and self-haul waste.
City of Millbrae Climate Action Plan page 30
Figure 10: 2005 Millbrae Government Operations Emissions by Sector
Emissions Forecast for 2025 and 2030
Based on the recently completed 2015 community GHG inventory, the City of Millbrae
forecasted future emissions for the years 2025 and 2030. The emissions forecast represents a
“business-as-usual” (BAU) prediction of how GHG emissions would grow in the absence of
GHG policy. Conducting an emissions forecast is essential for developing the Climate Action
Plan because one must compare future reductions with future emissions levels, not current
levels.
The projected BAU GHG emissions are based on the emissions from the existing growth pattern
prior to the adoption of this Climate Action Plan. More specifically, business-as-usual emissions
would occur if Millbrae were to continue its 2015 patterns of travel, energy and water
consumption, and waste generation and disposal. The BAU emissions are projected in the
absence of any mitigation measures, policies, or actions that would reduce emissions over time,
including landmark State legislation described in Appendix B. State Policy and Regulatory
Context. Programs, policies, and measures implemented after 2015 are considered beyond
business-as-usual. The projections use growth factors specific to each of the different economic
sectors. Table 5 below summarizes the results of the forecast.
City of Millbrae Climate Action Plan page 31
Table 5: Millbrae “Business as Usual” Emissions Forecast for 2030
Emissions Sources 2005 Emissions
(MTCO2e)
2015 Emissions
(MTCO2e)
Annual Growth
Rate: 2015-2030
2030 BAU
Emissions
(MTCO2e)
Residential 32,405 25,281 0.66% 27,920
Commercial/Industrial 27,633 27,273 2.27% 38,177
Transportation 88,057 89,382 0.62% 98,042
Waste 2,548 3,618 1.42% 4,471
Water N/A 196 1.42% 243
TOTAL 150,643 145,750 0.99% 168,853
The emissions forecast for each sector was projected because specific factors affect each
sector differently (e.g. new building energy codes or new fuel economy standards for vehicles).
This approach provides a better approximation of future emissions. The following points explain
how the emissions forecast was estimated for each sector:
For the residential energy sector, the compound annual population growth rate was
calculated from 2015 through 2030 using population projections from the Association of
Bay Area Governments (ABAG).
For the commercial energy sector, the compound annual job growth rate was calculated
from 2015 through 2030 using job projections from ABAG.
For the transportation sector, the compound annual VMT growth rate was calculated
from 2015 through 2030 using VMT projections from MTC.
For waste and water emissions growth, the primary determinate for growth in emissions
is population and jobs. Therefore, the compound annual population and jobs growth
rates from 2015 through 2030 were used to estimate future emission in the waste and
water sectors.
Emission Reduction Targets
The California Assembly Bill (AB) 32 Scoping Plan seeks to bring California to a low carbon
future, reaching 1990 emissions levels by 2020. As part of that reduction, the Scoping Plan asks
municipal governments to reduce their emissions by at least 15% by 2020 compared with
current levels (current levels are defined as 2008 levels or earlier). The Plan also directs local
governments to assist the State in meeting California’s emissions goals. Senate Bill (SB) 32
calls for the State to reduce emissions 40% below 1990 levels by 2030, which has also been
interpreted as reducing emissions 49% below 2005 levels by 2030. The City is using the 49%
City of Millbrae Climate Action Plan page 32
emissions reduction target as 2005 is the baseline, with an interim target of 32% below 2005
levels by 2025.
Many cities have consequently adopted community-wide emissions reduction targets of at least
15% below 2005 levels by 2020. Some cities in the Bay Area have sought even stricter
emissions targets. For example, San Francisco established a target in 2002 of reducing
emissions 20% below 1990 levels by 2012 and surpassed this target by achieving a 23%
reduction.17,18 Seattle, Portland, and Denver have set similar targets. However, the vast majority
of Bay Area cities have adopted the 2020 target of 15% reduction compared with 2005 levels as
it is in line with State objectives and technically achievable. In recent years, many of these cities
have updated their climate action plans to commit to a 2030 emissions reduction that meets or
exceeds the State’s SB 32 goal of 49% below 2005 levels by 2030.
In line with SB 32, this Climate Action Plan sets a GHG reduction target of 49% below 2005
levels by 2030. This Plan summarizes the actions that the City is planning to take to reduce
emissions within our community.
Reductions from State-Level Actions
In addition to the actions outlined here, regulations aimed at reducing GHG emissions at the
State and regional levels will also contribute to emissions reductions in Millbrae. For example,
the California Renewable Portfolio Standard (RPS) mandates that 100% of electricity sold by
the State’s investor-owned utilities be generated from renewable resources by 2045. These
actions are summarized in Section 1.1. A summary of the expected emissions reductions from
State programs is provided in Table 6 and additional information is included in Appendix B.
State Policy and Regulatory Context. The impact of State-level actions on reducing local
emissions is significant, and is shown in relation to the City’s emissions baseline, BAU forecast,
and reduction target in Figure 11.
17 City of San Francisco, Climate Action Plan, http://www.sfenvironment.org/downloads/library/climateactionplan.pdf, (2004).
18 City of San Francisco, “Mayor Lee & Board President Breed Announce San Francisco Exceeds Greenhouse Gas Emissions
Reduction Goal”, http://sfmayor.org/article/mayor-lee-board-president-breed-announce-san-francisco-exceeds-greenhouse-gas-
emissions, (2015).
City of Millbrae Climate Action Plan page 33
Table 6: Total Emission Reductions from State of California Programs
State Initiative Sector
% emissions
reduction from
applicable sector
in 2030
2030 reduction in
City’s emissions
(MTCO2e)
Advanced Clean Cars Program On-road
Transportation 30.4% 27,207
Low Carbon Fuel Standards Off-road
Transportation 17.1% 1,223
Caltrain Electrification Trains 89.1% 1,045
Renewable Portfolio Standard Electricity (Energy) 21.4% 5,360
100% Zero Net Energy New
Residential 2020 Residential Energy 4.6% 1,279
50% Zero Net Energy Existing
Commercial 2030 Commercial Energy 21.4% 8,157
Organic Waste Diversion SB 1383 Disposed Waste 80.0% 2,007
A. Total State-wide Initiative Emissions Reductions 46,277
The City of Millbrae Reduction Target
The City of Millbrae is committed to an emissions
reduction target of 49% below the baseline 2005 levels by
2030 and an interim target of 32% below baseline levels
by 2025. This goal is selected to be consistent with the
California AB 32 Scoping Plan and the BAAQMD
guidelines for a qualified GHG emissions reduction
strategy and to be achievable by City-supported
measures identified in the Plan.
Figure 11 illustrates how the BAU emissions are estimated to increase, thus widening the
emissions reductions needed by 2025 and 2030. Figure 11 also shows the emissions reductions
expected from State-level actions, and the reductions needed to reach the City’s emissions
target.
The City of Millbrae is
committing to reducing
community-wide
greenhouse gas emissions
49% by 2030, a reduction of
92,025 metric tons of
carbon dioxide equivalent.
City of Millbrae Climate Action Plan page 34
Table 7 shows the baseline emissions, forecasted emissions, targeted emissions, and
emissions needed to reach the targets.
Figure 11. Millbrae GHG Reduction Target
(32% below 2005 levels by 2025 and 49% below 2005 levels by 2030)
Table 7: GHG Emissions Projection and Reduction Target
Description Emissions (MTCO2e)
2005 Base Year Emissions: 150,643
2025 Target Emissions at 32% below 2005: 102,437
2025 BAU Emissions: 160,682
2025 Required Reduction: 58,245
2030 Target Emissions at 49% below 2005: 76,828
2030 BAU Emissions: 168,853
2030 Required Reduction: 92,025
City of Millbrae Climate Action Plan page 35
3 Climate Action Strategies
This Climate Action Plan (Plan) is a beginning of a journey towards a more sustainable Millbrae.
In these pages, the citizens and business community of Millbrae will find policies and programs
that aim to reduce emissions, save energy (and money), and help the City of Millbrae (City)
continue to be a beautiful and healthy place to live, work, and play as time goes on.
By adopting this Plan, the City is committing to take action to reduce greenhouse gas (GHG)
emissions. The Plan provides a prioritized list of actions, or “measures”. Many of the strategies
in this Plan are already in progress or underway. The City benefits from its longstanding
leadership in environmental programs, and a number of the measures included in this Plan
extend current environmental programs that will help achieve its goals. Some of the other
strategies are newly proposed policies or programs, each of which should be further studied
before being implemented. Some of the emissions reductions will come from State and
countywide transportation strategies that are essential in order for the City to achieve the
emissions reduction goal by 2030. In addition, this Plan contains a mix of voluntary strategies
and mandatory policies. While implementation dates have been allocated to the various
measures, dates may change based on financial considerations and other conditions outside of
the City’s control.
The programs and policies described give Millbrae a viable path towards reducing emissions
that, combined with emissions reductions resulting from countywide programs and State and
regional policies, will meet the emissions reduction goals adopted by the City Council and
established in Assembly Bill (AB) 32 and Senate Bill (SB) 32.
Sections 2.2 and 2.3 of this Plan presented Milestones 1 and 2 in ICLEI’s Five Milestone
Framework: Millbrae’s emissions inventory and the community emissions reduction target. The
following sections represent Milestone 3: The Climate Action Plan.
Each section below outlines the specific measures that seek to reduce GHG emissions in
Millbrae. Most measures are summaries of existing programs or policies already in place in
Millbrae. For example, one measure to increase the City’s solid waste diversion rate
incorporates numerous policies or programs already underway, including recycling programs, a
City of Millbrae Climate Action Plan page 36
single use carryout bag ordinance, and a sustainable food service ware ordinance. For
methodology of how measures were selected and prioritized for action, see Section 4.1. Some
measures aim to reduce emissions from the community at large, while other measures may
specifically focus on municipal operations. All of the measures are assumed to lead to specific
and quantifiable reductions of GHG emissions except for four measures that are considered
“supporting measures”. These supporting measures don’t have quantifiable emissions
reductions in themselves, but support other measures that do. For example, the City’s
Purchasing Policy: Recyclable Materials measure supports the overarching Municipal Zero
Waste Policy measure.
This chapter is organized by the type of emissions reduction activity, or “sector” of emissions
reductions: Energy (which includes water conservation); Transportation and Land Use; Solid
Waste; and a section for one program that covers All Sectors. The chapters include background
information for each sector, a general description of the programs and policies that apply to the
sector, and concludes with the list of quantifiable emissions reduction measures for the sector.
City of Millbrae Climate Action Plan page 37
Energy
In the United States, buildings account for 70% of total electricity use and about 40%
of GHG emissions.19 Since the 1970s, the State of California has led the nation in
developing and implementing successful energy-efficiency efforts. The State is committed to
first meet its energy needs “through all available energy efficiency and demand reduction
resources that are cost effective, reliable and feasible.”20
California has long been a leader in implementing policies aimed at improving the energy
efficiency of its building stock. The California Energy Efficiency Standards for Residential and
Residential Buildings (Title 24, Part 6 of the California Code of Regulations) mandates minimum
levels of energy efficiency in both new construction and renovation projects. These
requirements were updated in 2016 to further increase building and appliance energy efficiency.
California has also set targets for “zero net-energy” new buildings, in which efficiency and on-
site generation are combined to reduce residential buildings to zero net-energy use by 2020 and
commercial buildings by 2030.21
Building energy is the sector with the most immediately achievable and affordable reduction
opportunities. Energy efficiency is the most cost-effective measure for GHG reductions and has
numerous co-benefits such as cost savings over time and promotion of green collar jobs.
Design and construction of new buildings, and major renovations of existing ones, provide an
opportunity to implement energy-saving measures that reduce GHG emissions. Generous utility
rebates and federal tax incentives make investing in energy efficiency increasingly attractive.
Along with energy efficiency, California has a long history of supporting renewable energy
generation. With the idea of “reduce, then produce,” a sensible energy policy seeks to first
maximize energy efficiency and then look to generate electricity with low-carbon fuels and
renewable resources.
Energy and water use are linked. Energy is needed to transport and treat water so that it is safe
for public consumption. Energy is also used to treat wastewater so that it can be discharged
back to the environment. Figure 12 demonstrates California’s water use cycle.
19 M.C. Fuller, S.C. Portis, and D.M. Kammen, “Toward a Low-Carbon Economy: Municipal Financing for Energy Efficiency and
Solar Power”, Environment Magazine (2009).
20 California Energy Commission, California Public Utilities Commission and Consumer Power and Conservation Financing
Authority, Energy Action Plan, http://docs.cpuc.ca.gov/word_pdf/REPORT/28715.pdf (May 8, 2003).
21 California Energy Commission, 2007 Integrated Energy Policy Report, CEC-100-2007-008-CMF (2007).
City of Millbrae Climate Action Plan page 38
Figure 12: California’s Water Use Cycle 22
Energy is used in each step of the process. Water is collected, treated, and distributed to end
users in farms, residences, businesses, and industries. Energy, (usually natural gas,) is used to
heat water for use in buildings. Then energy is needed to treat water for discharge back to the
environment. 19% of the State’s electricity and 32% of the state’s natural gas is consumed
during this cycle.22 58% of the electricity and 98.5% of the natural gas consumption stems from
the residential, business, and industrial end users alone.
Reducing water consumption through efficiency and conservation can make a big impact on
energy consumption as well as protect against drought, a common problem in California. SB
X7-7 was enacted in November 2009, requiring all water suppliers to increase water use
efficiency. The legislation set an overall goal of reducing per capita urban water use 20% by
December 31, 2020. The California State Integrated Water Management Planning Process
promotes bringing together and prioritizing water-related efforts in a systematic way to ensure
sustainable water uses and reliable water supplies. In addition, the State has enacted long term
water use efficiency regulations in response to the drought spanning 2012-2016.
This chapter describes continuing and new programs and initiatives that will promote energy
and water efficiency as well as renewable energy in both existing and new buildings.
This Plan, through a combination of State and City measures, outlines a path to reducing
energy emissions 47% below 2005 levels by 2030.
22California Energy Commission, “California’s Water-Energy Relationship” (2005).
City of Millbrae Climate Action Plan page 39
Goal: Improve Energy Efficiency and Increase Electrification of Existing
Buildings and New Construction Projects
Existing and Continuing Community-wide Energy Efficiency and Electrification
Measures
Energy Efficiency in New Construction: Green Building Regulations
Reduced energy use in both new construction and existing buildings will continue to be
achieved through the City’s adoption and implementation of the California Green Building
Standards Code (CALGreen), which affects new buildings and remodels. This program helps to
reduce consumption of electricity, natural gas, and water as well as promote environmentally
sustainable building materials. Originally, a Green Building Ordinance was enacted in 2010 by
the City which required an additional 15% energy reduction over the State energy code at the
time for all new buildings and certain remodeling projects. The Ordinance also required the use
of Energy Star appliances. The City adopted the CALGreen Code in 201423. The 2016 update to
the Building Energy Efficiency Standards focused on several key areas to improve the energy
efficiency of newly constructed buildings and additions and alterations to existing buildings. The
most significant efficiency improvements to the residential standards include improvements for
attics, walls, water heating, and lighting.
The 2019 Building Energy Efficiency Standards, which went into effect in January 2020, require
all new residential construction and major remodels to be built to a zero net energy (ZNE)
standard. A ZNE building is one that produces as much energy (generally through onsite
renewable energy) as it consumes. In 2018, the California Energy Commission voted to adopt a
policy requiring all new single-family residences located in subdivisions with ten or more single-
family residences in California to incorporate rooftop solar. This change was incorporated into
the 2019 CALGreen code update. The City adopted the 2019 CALGreen code and will consider
adopting reach codes for all new commercial and residential construction. The goal of these
reach codes would be to encourage all-electric new construction, as opposed to mixed-fuel new
construction that relies on both natural gas and electricity. Compared to the standard State
code, the reach code would require mixed-fuel new construction to increase energy efficiency
beyond State minimums and pre-wire to accommodate the future installation of electric
appliances, while requiring that all-electric new construction simply meet the State minimum
code. This would encourage the construction of all-electric over mixed-fuel construction. Under
the reach code, all buildings would still be required to rely on some combination of energy
efficiency and/or on-site renewable energy generation to satisfy code requirements. The
23 The full text of the CALGreen Code Ordinance can be found in Chapter 9.35 of the municipal code:
http://www.codepublishing.com/ca/millbrae.html
City of Millbrae Climate Action Plan page 40
associated emission reductions are included in the Residential Green Building Ordinance
section in Table 8.
The City will continue implementing this program and evaluate requiring cool roofs and other
sustainable measures in the future. The measure calculations assume that approximately
96,000 square feet of residential and 218,000 square feet of non-residential new construction or
remodels are built per year, based on a previous review of permitted construction and projected
growth in population and jobs.
Table 8 summarizes the estimated GHG reductions associated with the CALGreen Code
measures.
Table 8: Existing Community Measures: Energy Efficiency in New Buildings
Measure Description
GHG
Reduction
in 2030
(MTCO2e)
Commercial Green
Building Ordinance
The City will continue to adopt the latest version of the CALGreen
Code for non-residential new construction and major remodels and
will consider implementing a reach code that makes it easier for
all-electric construction to comply with code. The reach code may
also require energy efficiency and on-site renewable energy
requirements that go beyond minimum State code requirements.
497
Residential Green
Building Ordinance
The City will continue to adopt the latest version of the CALGreen
Code for residential new construction and major remodels and will
consider implementing a reach code that makes it easier for all-
electric construction to comply with code. The reach code may
also require energy efficiency and on-site renewable energy
requirements that go beyond minimum State code requirements.
146
Energy Efficiency in Existing Buildings
Millbrae is a mostly built out community where there is a limited amount of open land available
for construction; therefore, a large focus is on achieving energy efficiencies from existing
buildings. Most homes in Millbrae were built prior to the enactment of State energy codes and
have significant potential to increase their energy efficiency. Typically, homes can increase their
energy efficiency by 30 to 40%.24 Energy efficiency programs can help Millbrae residents
reduce energy consumption and utility costs. Similarly, most businesses spend approximately
24 California Public Utilities Commission, Long Term Energy Efficiency Strategic Plan, San Francisco (2008).
City of Millbrae Climate Action Plan page 41
30% of their operating budget on energy costs. Providing businesses with energy efficiency
resources can help them save on utility costs and reduce emissions.
The City has participated in a number of energy conservation programs for many years that will
continue to help achieve the emissions reduction targets. These programs include the Energy
Upgrade California™ Program, the Bay Area Regional Energy Network (BayREN), San Mateo
County Energy Watch (SMCEW), and the Pacific Gas and Electric Company (PG&E) rebate
and incentive programs. The City has also conducted public outreach and holds energy efficient
workshops.
Energy Retrofit Incentives and Rebates
The City began participating in the Energy Upgrade California™ Program in 2010 through the
coordinated efforts of the County of San Mateo to promote the state-wide voluntary energy
efficiency retrofit program for residential buildings, which matched homeowners with local
contractors and provided rebates. This program has changed, and other energy efficiency
programs as described below have emerged offering opportunities for residents, businesses,
schools, and local governments.
The San Mateo County Energy Watch (SMCEW) Program is a local government partnership
between PG&E and the City/County Association of Governments of San Mateo County
(C/CAG), and is administered by the County’s Office of Sustainability. SMCEW partners with the
non-profit organization Ecology Action to provide no-cost technical services to eligible San
Mateo County local governments, schools, non-profits, and businesses. SMCEW provides
coordination, outreach, and educational resources to help guide community members through
the implementation process. SMCEW also has a Check-It-Out Home Energy and Water Saving
Toolkit program which residents can check out from the libraries to perform a basic assessment
of the efficiency of their home energy and water use and how to improve it where possible. The
Bay Area Regional Energy Network (BayREN) is a collaboration of the nine Bay Area counties
led by the Association of Bay Area Governments (ABAG). The BayREN Home+ Program offers
cash rebates for home improvements for single family homes, plus certified contractors along
with support through the process. BayREN also has energy efficient programs for multi-family
buildings and businesses.
To date, approximately eight Millbrae homeowners have participated in BayREN program and
received rebates and 28 homeowners and contractors have received technical assistance on
energy efficiency and home performance. There are eight businesses that have participated in
the direct install program for upgrades to energy efficient lighting and refrigeration systems. The
City also holds basic home energy efficiency workshops and has aired them on Millbrae
Community Television. The City will continue to promote the programs to the community as an
effective way to implement home energy efficiencies that will lower energy costs while also
City of Millbrae Climate Action Plan page 42
reducing GHG emissions, as well as continue with outreach and education programs.
Increasing promotion of all of the incentive programs will lead to greater energy and water
savings.
PG&E Programs: Incentives and Rebate Program
Achieving significant reductions in energy consumption in the residential sector will require both
public and private time and investment, which will result in cost savings and local job
opportunities over time. PG&E offers various incentives through providing rebates to residents
for purchasing energy efficient appliances, such as high-efficiency gas storage water heaters,
electric heat pump storage water heaters, and variable-speed pool pumps and motors. Another
PG&E program the City participates in is the Home Energy Analytics HOMEintel Program that
provides a set of customized energy saving recommendations for residents that typically
includes many simple, low-or no-cost fixes, an energy coach, and regular email updates to help
residents carry out the recommendations. Outreach is conducted on this energy saving
opportunity and a customized website provided at http://www.millbrae.hea.com/.
Demand Response Energy Conservation Program
Another PG&E program is the Demand Response Energy Conservation Program, which helps
to avoid rolling blackouts and reduces GHG emissions. This program is funded by the California
Public Utilities Commission (CPUC) and runs from June through September when energy use is
typically at its greatest. When Energy Alert Days are called, participating businesses are alerted
to curtail their energy use during peak times and receive payment based on how much energy is
reduced. The goal is to lower electricity use by at least 10% by implementing a variety of
strategies, including turning off non-essential lighting and office equipment, turning the air
conditioning up to 78 degrees Fahrenheit, taking the stairs instead of the elevator, and avoiding
the use of appliances. Various providers work in coordination with PG&E to implement the
program. The City participated in this program for municipal operations, described in Section
3.1.3. The City will promote this program to local businesses through the Chamber of
Commerce newsletter and direct contact with businesses.
Financing Options
Numerous innovative financing programs are becoming available for residential and non-
residential property owners who are interested in obtaining loans for energy efficiency projects.
For example, a Property Assessed Clean Energy (PACE) program is available to residential
building owners and owners of multifamily buildings with five or more units. This program is
described in more detail in Section 3.1.2.
Table 9 summarizes the estimated GHG reductions associated with existing community energy
efficiency in existing buildings measures.
City of Millbrae Climate Action Plan page 43
Table 9: Existing Community Measures: Energy Efficiency in Existing Buildings
Measure Description
GHG Reduction
in 2030
(MTCO2e)
Residential Energy
Retrofit Incentives
and Rebates
Through marketing and outreach, City promotes participation in
residential energy efficiency programs, including Energy Upgrade
California, BayREN’s Home+ program, San Mateo County Energy
Watch, and PG&E’s efficient appliance rebates. City will
encourage residential energy audits.
2,872
Commercial Energy
Efficiency Programs
Through marketing and outreach, City promotes participation in
commercial energy efficiency programs and demand response
programs offered by SMC Energy Watch and PG&E, including
PGE’s appliance rebates, 0% energy efficiency financing, and
demand response programs. City will encourage commercial
energy audits.
1,657
New Residential and Commercial Energy Efficiency and Electrification Measures
Residential and Commercial Energy Conservation Programs
Encouraging or mandating retrofits of existing buildings has proven challenging for many cities
due to significant market barriers. Often, building owners lack the incentives to upgrade
inefficient equipment, especially in the case of a rental property where the benefit of the
upgrade accrues to the renter who pays the utility bills. However, nearby jurisdictions including
San Francisco and Berkeley have achieved considerable success implementing a residential
energy conservation ordinance (RECO) and a commercial energy conservation ordinance
(CECO) that continually improve energy efficiency in existing buildings.
The measures included for the City are initially voluntary for residential and commercial
properties that are undergoing title transfers and would encourage minimum energy efficiency
and water efficiency standards at the time of building sale, then making the measures
mandatory. Typically, the current owners of the buildings are responsible for the implementation
of the energy efficiencies; however, arrangements could be made to have the new owners
assume responsibility for the prescribed energy efficiencies.
Mandatory measures would apply to residential and commercial buildings and are modeled after
the City of Berkeley’s Building Energy Saving Ordinance (BESO). Millbrae’s ordinance would
require title-transfer properties to complete comprehensive energy assessments to uncover
energy saving opportunities. The assessments would be conducted by registered energy
assessors who provide tailored recommendations on how to save energy and link building
City of Millbrae Climate Action Plan page 44
owners to incentive programs for energy efficiency upgrade projects, such as BayREN and
Energy Upgrade California. Homeowners would not be required to implement the
recommendations in the assessments; however, because the reports are tailored and show
energy and cost savings, it is expected that many would take the initiative to install the energy
efficiencies.
Free or Subsidized Shade Tree Program
Millbrae is a designated “Tree City USA” and plants trees every year for Arbor and Earth Day as
well as throughout the year. Strategic planting of shade trees, particularly on eastern, western or
southern exposures of buildings, can help decrease the need for space cooling and the
associated electricity consumption during hot days. Other benefits of trees: trees can cool the
streets during the hot summer months; remove carbon dioxide through sequestration; generate
oxygen; clean the air of particulate matter benefitting sensitive populations like children, the
elderly, and residents with asthma; reduce noise; slow traffic; encourage outdoor activity;
provide a home for wildlife; increase property values; and help make the City safer and more
beautiful. Carbon sequestration is the process in which atmospheric carbon dioxide is taken up
by trees, grasses, and other plants through photosynthesis and stored as carbon in tree trunks,
branches, foliage, roots and soils. This helps to offset sources of carbon dioxide to the
atmosphere, such as deforestation, forest fires, and fossil fuel emissions. Trees are very
important for carbon sequestration because they can store carbon for many years. Soil is even
more important because it can store carbon for thousands of years. Not only do trees store
carbon in their bodies and roots and remove carbon from the air, but they also release oxygen.
The City of Glendale, CA, the City of San José, CA, and the Sacramento Municipal Utility
District (SMUD) have had success in reducing electricity load through the provision of free
shade trees to residents and businesses. The City will evaluate options for creating and
implementing a tree shade or Adopt-A Tree Program.
Electrical Panel Upgrades in Existing Buildings
Replacing natural gas equipment in existing buildings— including heating, ventilation, and air
conditioning (HVAC), water heating, and cooking equipment— with all-electric equipment will be
critical in achieving the emissions reduction targets. However, the capacity of electrical panels in
many existing buildings is not high enough to accommodate the installation of all-electric
equipment. Peninsula Clean Energy has expressed interest in removing this barrier to
electrification through the provision of incentives that partially or fully offset the cost of upgrading
electrical panels in existing residential and non-residential buildings. Removing or reducing this
financial barrier significantly improves the cost-effectiveness of replacing natural gas equipment
at the end of its life with all-electric equipment. The City will leverage incentives provided by
PCE to encourage residents and offices to upgrade electric panels in order to accommodate all-
City of Millbrae Climate Action Plan page 45
electric technologies including solar photovoltaic (PV), battery storage, air source heat pumps,
heat pump water heaters, electric dryers, electric stoves, and electric vehicles.
Table 10 summarizes the estimated GHG reductions associated with these new programs
aimed at increasing energy efficiency and electrification in existing buildings.
Table 10: New Community Measures: Energy Efficiency and Electrification in Existing
Buildings
Measure Description
GHG
Reduction
in 2030
(MTCO2e)
Measure
Start Year
Residential
Energy
Conservation
Program
Initially start a voluntary residential energy conservation
program, whereby the City would encourage minimum
energy efficiency and water efficiency standards at the
time of building sale. Transition to mandatory residential
energy conservation ordinance over time.
607
2020
(voluntary) /
2025
(mandatory)
Commercial
Energy
Conservation
Program
Initially start a voluntary commercial energy conservation
program, whereby the City would encourage minimum
energy efficiency and water efficiency standards at the
time of building sale. Transition to mandatory commercial
energy conservation ordinance over time.
458
2020
(voluntary) /
2025
(mandatory)
Free or
Subsidized
Shade Trees
Implement city program to reduce energy consumption
associated with cooling homes through the provision of
free or subsidized trees.
23 2020
Electrical
Panel
Upgrades in
Existing
Buildings
Leverage incentives provided by PCE to encourage
residents and offices to upgrade electric panels in order
to accommodate all-electric technologies including solar
PV, battery storage, air source heat pumps, heat pump
water heaters, electric dryers, electric stoves, and electric
vehicles.
6,480 2020
Goal: Promote Renewable Energy Opportunities and Programs
Existing and Continuing Community-wide Renewable Energy Measures
Renewable Energy Solar Energy Incentives
The use of solar PV energy to power homes and businesses has become a popular method for
residential and non-residential energy customers to reduce their monthly utility bills and
City of Millbrae Climate Action Plan page 46
increase their use of renewable resources, thus lowering emissions. Installation of renewable
energy systems are recommended only after all cost-effective efficiency measures have been
implemented. The City had encouraged the installation of PV systems by offering a rebate
program between 2007 and 2013 for solar systems based on the number of PV panels installed.
From 2003 to June 2019, a total of 2,052 kW of solar capacity was installed in Millbrae. Of the
total installed solar capacity, 68% was installed on residential buildings and 32% was installed
on non-residential buildings.25
To further encourage solar installations, the City started participating in the Peninsula
SunShares Residential Solar Bulk Procurement Program (now known as the Bay Area
SunShares Program,) in 2014, with outreach to the community beginning April 2015. The City
participated again in 2018 and 2019. The program now includes an electric vehicle incentive.
The goal of the program is to encourage single-family homeowners to install rooftop solar PV
systems by leveraging economies of scale to drive down the price and making it easy for
residents to implement. Homeowners would benefit through system discounted pricing and ease
of administration and ultimately reduce energy consumption and related utility costs.
Typically, the most effective renewable energy installation options for San Francisco Bay Area
residents are solar hot-water heating and roof-top PV systems. The largest barrier to on-site
renewable energy is high up-front financing costs and long cost recovery periods. PG&E and
the State of California offer incentive programs that help defray the initial investment of energy
systems. Current clean energy incentives offered through PG&E include the New Solar Home
Partnership which incentivizes the installation of solar energy systems on new, energy-efficient
homes and the California Solar Initiative (CSI) Thermal which incentivizes the installation of
solar water heating systems on single-family homes.26
California Assembly Bill (AB) 1990, Solar for All, was adopted in 2012 and includes payment to
homeowner or business owner generators of renewable energy for the electricity they generate.
The City will also encourage residents and businesses to take advantage of the Go Solar
California tax credits and other Federal, State, local, and PG&E credits. The California Energy
Commission also provides rebates for the installation of renewable energy systems in homes,
including rebates for small wind-turbine generation systems. Benefits of solar energy generation
include lower energy bills, shelter from increased energy costs, and increased home and
business value.
The Property Assessed Clean Energy (PACE) program is an additional funding source for
renewable energy systems available to residential and commercial property owners. Through
25 California Distributed Generation Statistics, https://www.californiadgstats.ca.gov/.
26 PG&E clean energy incentives and programs, https://www.pge.com/en_US/residential/solar-and-vehicles/green-energy-
incentives/incentives-overview/incentives-overview.page.
City of Millbrae Climate Action Plan page 47
the PACE program, the costs of renewable energy installations are added to a building owner’s
annual property tax assessment. This funding option is currently available and promoted to
single family homeowners and owners of commercial businesses and multifamily residential
properties. The City currently has three PACE Programs, CaliforniaFIRST, California Home
Energy Renovation Opportunity (HERO) Program, and Figtree.
In 2015, the City adopted an ordinance in compliance with AB 2188 which aims to improve the
permitting process of solar energy systems. The bill required cities and counties to adopt an
ordinance to create an expedited, streamlined permitting process that conforms to best
practices for small residential rooftop solar energy systems.
Peninsula Clean Energy (PCE) Program
In 2016, the City became a member of the Joint Powers Authority for the newly formed PCE
Program formed by the County of San Mateo to purchase electricity with higher renewable
energy content. This has resulted in greater GHG emission reductions. PCE became the new
default electricity provider for all of San Mateo County, and all of the City’s residents and
businesses were automatically enrolled in the PCE Program by April of 2017. PCE purchases
greener electricity for its customers, and PG&E continues to handle electricity delivery,
maintenance of wires, customer billing, and natural gas services. All customers were enrolled in
the ECOplus level by default, which provides a minimum of 50% renewable energy and 90%
greenhouse gas free at a 5% cost savings compared to PG&E. Residents and businesses can
opt up to the ECO100 level for 100% renewable energy. Based on current participation rates in
PCE service in Millbrae, it is projected that the program will reduce 2018 emissions associated
with electricity consumption 35-40%.27 Table 11 summarizes the estimated GHG reductions
associated with existing community renewable energy measures.
Table 11: Existing Community Measures: Renewable Energy
Measure Description
GHG Reduction
in 2030
(MTCO2e)
Promote Solar
Installations
Continue to participate in bulk purchase program such as
the Bay Area SunShares Program. Promote the installation
of solar among residents and businesses in the community.
1,527
Participate in Community
Choice Aggregation:
Community
Through Peninsula Clean Energy, the City will continue to
provide greener renewable electricity to citizens and
businesses.
7,320
27 This estimate is based on 2017 participation rates in PCE service offerings (i.e. ECOplus and ECO100), the 2017 PCE emission
factors for these service offerings, and the 2015 PG&E electricity emission factor. 2018 is the first full year of PCE service being
offered to Millbrae customers.
City of Millbrae Climate Action Plan page 48
New Community Renewable Energy Measures
Solar Requirement for New Non-Residential Construction
The California Energy Code 2019 requires the installation of either a solar PV or solar thermal
installation on new residential construction of three stories or less. Some cities, including the
City of San Mateo, have adopted reach codes to extend this solar requirement to non-residential
buildings. The City would require all new non-residential construction to install solar PV system
either before or during the next Building Code update. This measure will contribute to the State
reaching its goal of 100% renewable energy by 2045.
Pairing Battery Storage with Solar Photovoltaic (PV) Systems
The amount of electricity produced by solar PV systems and other renewable sources will
continue to increase over time. In order to fully capitalize on the GHG reduction potential of
these renewable sources, the total capacity of battery storage will need to increase dramatically.
Battery storage can store excess clean electricity as it is produced and deploy it at peak times
when the grid is overburdened. As more battery storage is deployed, it will reduce the need for
natural gas “peaker plants” which are currently used to supply electricity during periods of peak
demand. The installation of battery systems is typically most cost effective for both residential
and non-residential customers when it occurs concurrently with the installation of a solar PV
system. Battery storage paired with solar PV provides residents and businesses the opportunity
to reduce electricity demand charges and provide a source of backup power during power
outages. Through education and outreach on the benefits of pairing battery storage with solar
PV to relevant stakeholders, including businesses, residents, and contractors, the City can help
increase the capacity of battery storage installed in Millbrae.
Table 12 summarizes the estimated GHG reductions associated with new community renewable
energy measures.
City of Millbrae Climate Action Plan page 49
Table 12: New Community Measures: Renewable Energy
Measure Description
GHG Reduction
in 2030
(MTCO2e)
Measure Start
Year
New Non-
Residential
Buildings Solar
Requirement
Update building code to mandate that all
commercial new construction and major remodels
install either a solar PV or solar hot water system
at time of construction.
616 2022
Pairing Battery
Storage with
Solar PV
Systems
Provide education and outreach on the benefits of
pairing battery storage with solar PV systems to
stakeholders, including businesses, residents and
contractors.
872 2020
Goal: Increase Energy Efficiencies and Proportion of Electricity from
Renewable Sources in Municipal Operations
Background on Municipal Operations Energy Efficiency Programs
The City of Millbrae has been a leader in implementing energy efficient equipment in city
facilities, traffic signals and streetlights. The City first installed energy efficient equipment, such
as lighting, in City facilities in 2003. The City enrolled in ABAG’s Local Government Energy
Partnership Program in 2004 to evaluate energy efficiency opportunities for City facilities. An
Energy Assessment Report was developed that provided a comprehensive overview of energy
use and identified which facilities have the highest energy use, as well as a high potential for
energy savings and energy efficiency improvements. The assessment used utility energy and
cost data and facility square footage information to generate the overview. Through this effort,
the City switched to energy efficient lighting, installed variable speed drives in the City’s HVAC
systems, and installed automatic dimmers in various spaces such as mailrooms and bathrooms.
The City passed a resolution in 2009 in support of the Energy Strategy 2012 report developed
by the County of San Mateo’s former Utilities and Sustainability Task Force. The objective of the
Energy Strategy was to bring together cities in the County to work collaboratively on energy and
water related issues and to provide practical actions for the cities and the County on energy and
water conservation, alternative energy, and climate protection. The County is in the process of
updating this report.
City of Millbrae Climate Action Plan page 50
The following describes background on two municipal operations’ programs, which were aimed
at increasing energy efficiency and renewable energy generation.
Water Pollution Control Plant Co-Generation System
In 2006, Millbrae’s wastewater treatment plant, the Water Pollution Control Plant (WPCP),
installed a co-generation system to use a combination of biogas, which is a by-product of waste-
water treatment, and brown restaurant kitchen grease, a waste by-product of food preparation,
to help power the WPCP and benefit the environment and economy.
This was a first of its kind project to turn inedible kitchen grease waste from restaurants, that
otherwise would have been disposed of in a landfill, into electricity. This type of kitchen grease
is called brown grease, and it cannot be made into biodiesel (which is made from yellow
grease.) The co-generation system is specifically designed to control odors, generate reliable
power, capture waste heat, and reduce energy costs. The WPCP’s microturbine had worked
intermittingly over the years and stopped working in approximately 2016. Currently, some of the
generated methane is utilized to heat one of the tanks.
The co-generation system was powered by a combination of natural gas and bio-gas; the bio-
gas is a by-product of the wastewater treatment process known as anaerobic digestion. The
production of biogas was substantially increased by adding used brown kitchen grease to the
digesters. The project also included installing a grease receiving facility and a fuel treatment and
blending facility.
The 250-kWh natural gas (methane) and biogas-fired microturbine co-generation system
provided 80% of the WPCP’s electrical needs, displacing energy derived from fossil fuels. The
system was estimated to save approximately $150,000 per year in energy costs, which is based
on the PG&E energy cost to Millbrae in 2004. Additionally, the new system was expected to
produce an estimated $50,000 in annual revenue from tipping charges for grease received. As
of this writing, the City is looking at removing this equipment as the size of the facility and
generation of material is not large enough to successfully utilize a microturbine to create a co-
generation system.
Clean Energy Project
In early 2012, the City contracted with the company Siemens Building Technologies to
implement the Clean Energy Project to reduce city-wide energy consumption, reduce the City’s
overall carbon footprint, and explore renewable energy solutions, all in consideration of
minimum upfront capital investment. City staff and Siemens Building Technologies undertook a
technical evaluation of several facilities improvement measures to help achieve these
objectives. The entire $2 million cost for the project will be paid over approximately 20 years
strictly from the energy savings and reduced maintenance costs. The guaranteed level of
energy savings and mechanisms are in place to track and verify the savings.
City of Millbrae Climate Action Plan page 51
The Clean Energy Project included the following components:
Installation of a 50-kW solar PV system on the Millbrae Library to help save energy at
Civic Center buildings (City Hall, Police Bureau, and Library).
Replacement of the 50-year-old HVAC system at the Community Center to save energy,
which was in use from 2012 until 2016 when the Center was burned down.
Replacement of the older technology lighting in the City’s nearly 1,400 streetlights with
new state-of-the-art low induction lighting (except for 278 energy-conserving light
emitting diodes, or LED, streetlights which were installed as part of a Federal stimulus
grant in 2011.)
Upgrade of the lighting inside and outside of the City’s buildings to state-of-the-art
energy-saving technology.
Upgrade of five City parks with Smart Irrigation Controllers to save energy and water.
The controllers sense the level of moisture in the soil, allowing for less irrigation. The
City’s other parks already had these controllers installed.
The City will realize energy savings for many years to come with the implementation of the
Clean Energy Project. Estimates have not been recalculated since the Community Center had
burned down, however, the total estimated annual electricity savings was 553,108 kWh and the
natural gas savings, resulting primarily from the HVAC system boiler replacement and the
building automation controls strategies at the Community Center, was projected at 3,507 therms
annually. The total annual irrigation water savings is 324,819 gallons. This project was
estimated to result in a reduction of 200,621 pounds (91 MTCO2e) of GHG emissions a year.
The LED Streetlight Project mentioned above involved installing 278 LED street lights utilizing
Federal stimulus grant funding. The estimated annual energy savings is 70,255 kWh, which will
result in a reduction of 19,842 pounds (9 MTCO2e) of GHG emissions a year. The additional
conversion of 1,400 streetlights to low-induction lighting in the Clean Energy Project will save
another 41 MTCO2e a year for a total of 50 MTCO2e a year reduced through the two streetlight
conversion projects.
The following describes the current municipal operations energy reduction measures.
City of Millbrae Climate Action Plan page 52
Existing and Continuing Municipal Operations Energy Measures
Energy Efficient Street Lighting
While the City’s streetlights were replaced as a part of the Clean Energy Project, street lighting
is also included as a measure that will continue as lights expire and need replacing. New street
lights are being replaced with LED lights.
Environmentally Preferred Purchasing Policy for Energy
The City implemented Administrative Standard Procedures for its Environmental Policy in 2013
which includes an environmentally preferred purchasing component, emphasizing purchasing of
recycled content products and Energy Star labeled equipment.
The Energy Star label was established by the EPA to help eliminate wasted energy by
promoting special energy-efficient designs that use less energy to perform regular tasks, and
when not in use, automatically enter a low-power mode. Products with the Energy Star label
reduce GHG emissions and other pollutants caused by inefficient use of energy and make it
easy for consumers to identify and purchase energy-efficient products that offer savings on
energy bills. Energy Star products are available for a variety of office equipment and appliances,
including computers, monitors, printers, copiers, and fax machines.
Peninsula Clean Energy (PCE) in Municipal Facilities
The City currently procures all electricity required to power municipal facilities through PCE’s
ECO100 service offering that consists of 100% renewable electricity. The City plans to continue
procuring electricity through the ECO100 service offering.
Energy Efficiency in Municipal Buildings
The City upgraded energy-consuming equipment in City facilities to be more efficient as
described above for the Clean Energy Project, and thereafter has continued to install energy
efficient equipment as older equipment needs to be replaced. The City will continue to
participate in the San Mateo County Energy Watch Program, which is a local government
partnership between PG&E and C/CAG to promote energy efficiency in municipal and non-profit
buildings. The program is managed and staffed by the County of San Mateo Office of
Sustainability. The City will work with the Energy Watch Program to take advantage of energy
efficient opportunities for City facilities, such as benchmarking, energy audits, technical
assistance, and other programs. All energy efficiency retrofit projects will leverage rebate and
incentive programs offered by PG&E. The City had an energy audit performed in 2016 for the
Civic Center (City Hall, Police Bureau, and Library), which led to the solar carport project being
City of Millbrae Climate Action Plan page 53
included in this Climate Action Plan. Other Energy Watch Program recommendations included
installing HVAC efficiencies, which were implemented.
The City participated in a Demand Response Energy Conservation Program described in
Section 3.1.1 from 2009-2011 for City Hall and surrounding facilities that are on the same
electrical meter through the non-profit organization San Francisco Community Power. The City’s
participation ended when the service provider no longer allowed participation from businesses
that were under the level of required energy savings. City Hall and buildings on the same meter
were no longer eligible to participate in this program due to electricity being generated from the
PV system on the Library. The City will keep apprised of other funding sources for future energy
efficiency projects.
Table 13 summarizes the estimated GHG reductions associated with existing municipal
operations energy measures.
Table 13: Existing Municipal Operations Measures: Energy
Measure Description
GHG
Reduction
in 2030
(MTCO2e)
Energy Efficient Street
Lighting
Continue to replace street, signal, parks, and parking lot lighting
with efficient lighting. 64
Environmentally Preferred
Purchasing Policy - Energy
Continue to implement Administrative Standard Procedures which
include a sustainable purchasing policy prioritizing Energy Star
equipment.
4
Participate in Community
Choice Aggregation:
Municipal
The City has elected and will continue to “opt up” to ECO100
(100% renewable) electricity service through PCE. 142
Energy Efficiency in Municipal
Buildings
Continue to audit City facilities for energy efficiency opportunities
and implement energy efficient (EE) retrofits. The City participates
in San Mateo County Energy Watch and leveraged benchmarking
to identify opportunities for EE upgrades and track energy
performance. Leverage other programs that provide funding.
273
New Municipal Operations Energy Measures
Renewable Energy Installation for Municipal Properties
The City’s Clean Energy Project, described above, was a huge undertaking that included the
installation of PV panels on the Library roof to generate renewable energy. The City will
City of Millbrae Climate Action Plan page 54
evaluate the San Mateo County Energy Watch recommendation to install a solar carport system
in City Hall and Library parking lots. The carport solar system would add an additional 308 kW
and increase solar generation from 13% to 100% of the total electricity use for the facilities in
the City Hall complex. It is not known at this time if solar will be included in the rebuild of the
Community Center.
Municipal Green Building Policy
City facilities will follow the CALGreen Code and consider having new municipal buildings
achieve LEED Silver or Gold status or equivalent. The new Community Center will be built to
green building standards; however, at this point it is unknown what level of LEED standard will
be achieved. The City is also looking at opportunities for including PV solar panels for the new
Community Center.
Table 14 summarizes the estimated GHG reductions associated with new municipal operations
energy measures.
Table 14: New Municipal Operations Measures: Energy
Measure Description
GHG
Reduction
in 2030
(MTCO2e)
Measure
Start
Year
Renewable Energy
Installation for
Municipal Properties
Evaluate installation of solar carport system at
Millbrae City Hall/Library parking lots. 68 2022
Municipal Green
Building Policy
The City will follow the CALGreen Codes and
consider achieving LEED Silver or Gold status or
equivalent.
5 28 2020
Goal: Conserve Water to Reduce Energy Use
Existing and Continuing Community-wide Water Conservation Measures
As previously mentioned, approximately 19% of electricity use and 32% of natural gas use in
California is related to water. Continuing and increasing water conservation in the City will
indirectly reduce energy use and will also lead to increased stewardship of local water
resources.
28 These projections assume that any new facility is built to LEED Silver or Gold standards or equivalent.
City of Millbrae Climate Action Plan page 55
The City provides water to City residents and businesses. The City’s Water Resources &
Conservation Program began in 1990 and imposed water rationing measures in response to
drought conditions. Since then, the City has continued and expanded on programs and
opportunities for residents, businesses, and City facilities to conserve water. The City has
steadily seen water consumption reduce over the last ten years. From the ten-year period 2006
to 2016, water use was reduced by nearly 25%. From 2013 to 2016, water use was reduced by
nearly 19%, with 2013 being the base year for drought reporting. An ongoing voluntary 10%
water use reduction had been encouraged for the community, which was adjusted to specific
requirements during the 2012-2016 drought. In addition to the previously mentioned rebate
programs, the City offers free water saving devices such as low flow showerheads, shower
timers, low flow kitchen and bathroom faucet aerators, free sprinkler nozzle heads, low flow
showerheads, toilet displacement bags, and toilet leak detection dye tablets. In an effort to
expand on water conservation efforts during the drought, the City began providing buckets to
residents in 2016 as a tool to collect and reuse indoor water for watering plants and landscapes.
Other programs include water-wise landscaping and irrigation workshops, classroom
presentations, audits of commercial businesses, and distribution of a variety of water conserving
brochures and guides. Water conservation programs have also been implemented at City
facilities, including changing to low flow bathroom and kitchen aerators and showerheads. The
various parks also have water efficient irrigation systems. The continuation of the water
conservation programs will contribute to the City’s reduction of GHG emissions.
Water Conservation Incentives
The use of water conservation incentives is an existing strategy that includes providing rebates
for water efficient appliances and equipment and is a voluntary measure. The City had rebate
programs for water efficient toilets and clothes washers for many years which ended when
PG&E discontinued their washer rebate program and BAWSCA member agencies discontinued
their highest efficiency toilet rebate program due to limited demand. Currently, the City has a
rain barrel rebate program in partnership with the San Mateo Countywide Pollution Prevention
Program and BAWSCA. The City also offers rebates for cisterns. The City also began
participating in the free sprinkler nozzle head program in 2015 in coordination with BAWSCA to
reduce water used on landscapes by switching to inefficient sprinkler nozzle heads with efficient
irrigation nozzle heads, which use 20-30% less water. Residential customers could sign up at
www.freesprinklernozzles.com and print out a voucher to redeem up to 25 free sprinkler nozzle
heads at a participating retailer. This program is being revamped and will be offered again in the
future. New rebates for water efficient appliances and fixtures will be considered dependent on
budget considerations. Other water conservation incentive programs are in the planning stage,
such as the Lawn Be Gone Program to provide incentives for replacing lawns with native and
drought tolerant plants, and an irrigation controller program. A variety of outreach is conducted
to inform residents and businesses of available resources and rebates.
City of Millbrae Climate Action Plan page 56
Indoor Water Use Efficiency Ordinance
In 2010, the City adopted an Indoor Water Use Efficiency Ordinance based on BAWSCA’s
model template developed with member cities and water agencies. The Indoor Water Use
Efficiency Regulations encouraged water conservation measures in the design, construction,
and maintenance of buildings. The City transitioned to the CALGreen Code regulations in 2014.
The water use efficiency practices are intended to achieve the conservation of natural
resources, increase water efficiency, reduce water costs, and reduce the operating and
maintenance costs for buildings. The regulations apply to new residential or commercial
construction projects, all additions involving bathrooms with new or expanded water use, and
remodels. The implementation of the CALGreen Code will continue in an effort to conserve
water and reduce energy.
Water Efficient Landscape Ordinance
In 2010 and 2016, the State’s Model Water Efficient Landscape Ordinance (MWELO) was
updated by reference in the Municipal Code. The 2016 MWELO was much more stringent and
affects new, rehabilitated, and existing landscapes. New development projects of 500 square
feet or more are affected by the MWELO and the ordinance also applies to residential,
commercial, industrial and institutional projects that require a permit, plan check, or design
review. Existing landscapes that are being rehabilitated and are 2,500 square feet or more that
are associated with a building or landscape permit, plan check, or design review must also
comply with the MWELO. Existing landscapes over one acre in size have regulations based on
the presence of an irrigation meter for conducting irrigation surveys, audits, and water use
analyses. Local agencies are required to submit an annual report on implementation and
enforcement.
Table 15 below summarizes the estimated GHG reductions associated with existing community
water conservation measures.
Table 15: Existing Community Measures: Water Efficiency
Measure Description
GHG Reduction
in 2030
(MTCO2e)
Water Conservation
Incentives
Continue promoting existing and new rebates for water efficient
appliances and fixtures. 102
Water Efficient
Landscape Ordinance
and CALGreen Indoor
Water Efficiency
Requirements
Continue implementation of the State Model Water Efficient
Landscape Ordinance (MWELO) and CALGreen indoor water
efficiency requirements.
43
City of Millbrae Climate Action Plan page 57
New Community-wide Water Conservation Measures
Residential Graywater Ready New Construction
Graywater is defined by California law as wastewater from laundries, showers, and bathroom
sinks, but not wastewater from dishwashers or kitchen sinks or toilets. Graywater cannot contain
hazardous chemicals or human or food waste. In single-family homes, graywater can be used
for outdoor irrigation, although not for root crops or edible parts of food that touch the soil. In
2009, the California Building Standards Commission approved emergency graywater
regulations that went into effect August 4, 2009. The regulations revised standards (California
Plumbing Code, Title 24, Part 5, Chapter 16A, Part I) for construction, installation, and alteration
of graywater systems for indoor and outdoor use. The City will encourage new residential
construction projects to be built “graywater ready”, meaning that these buildings can
accommodate the future installation of a graywater system. The City could also consider
implementing a recycled water measure for non-residential buildings where infrastructure is
incorporated into the design and the treated water is used to water the landscaping.
Other Water Conservation Programs
A variety of additional programs will be developed to be in compliance with State legislation, AB
1668 and Senate Bill (SB) 606. Following the extreme drought of 2012-2016, the State of
California developed a framework for “Making Water Conservation a California Way of Life” to
address the long-term water use efficiency requirements called for in Governor Brown’s
executive orders. Governor Brown signed into law AB 1668 and SB 606 in 2018, which builds
upon the executive orders to implement new urban water use objectives for urban retail water
suppliers. Key elements include new water use targets for urban water suppliers that go beyond
existing SB X7-7 20% reduction requirements and are based on strengthened standards for
indoor residential per capita use; outdoor irrigation; commercial, industrial, and institutional
water use; and water loss. The City is working with BAWSCA to plan programs to meet the
requirements. Table 16 summarizes the estimated GHG reductions associated with new
community water conservation measures.
Table 16: New Community Measures: Water Efficiency
Measure Description
GHG
Reduction
in 2030
(MTCO2e)
Measure
Start Year
Residential
“Graywater Ready”
New Construction
Encourage new construction projects to be built
“graywater ready” by educating applicants during
the design phase of projects.
11 2020
City of Millbrae Climate Action Plan page 58
Transportation and Land Use
41% of California’s GHG emissions stem from transportation 29 — the cars and trucks
that move people and goods throughout the State. In Millbrae, 61% of emissions
stem from transportation. Travel on local roads and State highways represent 35%
and 57% of transportation emissions respectively, with the remaining 8% coming from off-road
equipment, Caltrain, and freight trains. Thus, reducing transportation emissions is a critical
component of the climate action strategy.
Reducing emissions from the transportation sector requires addressing three constituent
components: reducing the carbon intensity of fuels, increasing vehicle efficiency, and reducing
vehicle miles traveled (VMT). Fuel carbon intensity, defined as the amount of carbon per gallon,
is addressed by the State of California’s Low Carbon Fuel Standard, which mandates a 10%
overall reduction in the carbon intensity of transportation fuels (gasoline, diesel, natural gas,
electricity, and so on) by 2020. Vehicle efficiency is addressed by AB 1493, California’s Clean
Cars Law of 2002, which requires carmakers to reduce GHG emissions from new passenger
cars and light trucks beginning in 2009. The first in the world to reduce GHG emissions from
cars, this law has now been adopted by 11 other states. Affecting nearly one-third of the U.S.
market, this law is projected to reduce GHG emissions in 2020 by 64 million tons per year.
However, addressing the third component, reducing VMT, is considerably more difficult than the
previous two. Californians have driven more and more miles per year over the past five
decades. Figure 13 shows the growth in VMT from 1980 – 2017.
29 California Air Resources Board, “Emissions by Economic Sector”, GHG Current California Emission Inventory Data,
https://www.arb.ca.gov/cc/inventory/data/data.htm.
City of Millbrae Climate Action Plan page 59
Figure 13: California Growth in Vehicle Miles Travelled: 1980-2017 30
Total 2017 annual VMT in California was an estimated 343.9 billion miles, representing a 121%
increase since 1980, a 33% increase since 1990 and a 12% increase since 2000. This growth in
VMT is attributable in part to following factors:
Growth in gross domestic product
Lack of affordability in urban core housing causes people to live far away from where
they work
Lack of viable public transportation options
Low cost of gasoline
Sprawl development patterns such as bedroom communities separated from retail and
commercial centers
Streetscapes that discourage pedestrian or bicycle access
30 Graph based on data from U.S. Department of Transportation, “Public Road Mileage by Functional System, 1980-2017”, U.S.
Department of Transportation Federal Highway Administration Highway Statistics 2017, Table HM-220,
https://www.fhwa.dot.gov/policyinformation/statistics/2017/ (2019).
City of Millbrae Climate Action Plan page 60
In order to reduce VMT and the associated GHG emissions, then Governor Schwarzenegger
signed Senate Bill 375 in 2008. SB 375 sets regional emissions targets and tasks regional
planning organizations to recalibrate land use and transportation planning to meet those
emissions targets. This Climate Action Plan seeks to meet the SB 375 targets for the San
Francisco Bay Area of 7% below 2005 levels by 2020 and 15% below 2005 levels by 2035.
The benefits of integrated planning and sustainable development go far beyond simply reducing
the GHG emissions that contribute to climate change and its damaging effects. Communities
that are well designed provide housing options for all income and age groups and are supported
by a range of transportation options that will have many other advantages. Among these are
increased mobility and transportation choices; reduced congestion; greater housing choices;
improved public health as a result of better air and water quality; natural resource conservation;
economic benefits, such as opportunities for neighborhood economic development and lower
costs for community infrastructure; reduced dependence on foreign oil; and greater equity
through the provision of improved access to jobs, housing, and everyday needs.
The City is fully committed to providing diverse transportation options that are convenient, safe,
and affordable. More than that, the City supports grouping new homes, jobs, and services near
existing transportation corridors.31 Policies proposed in this Plan strive to maintain a quality of
life that is environmentally and economically sustainable. These priorities and commitments are
reflected and incorporated in this chapter on transportation and land use.
This Plan, through a combination of State and City measures, outlines a path to reducing
transportation emissions 58% below 2005 levels by 2030.
Goal: Encourage Smart Development and Programs that Support
Alternative Modes of Transportation
There are a number of transportation and land use programs in place through local, countywide,
regional, and state-wide efforts that the City will benefit from in order to achieve the emissions
reduction target goals.
31 See https://www.sierraclub.org/loma-prieta/guidelines-and-resources for guidelines on how to integrate land use and mobility
strategies to create complete communities.
City of Millbrae Climate Action Plan page 61
Existing and Continuing Community-wide Transportation Programs
The City implements a variety of
transportation related programs that help to
improve the flow of traffic, relieve congestion,
reduce GHG emissions, and that promote
biking, walking, or other alternative forms of
transportation. The City is in a strong
position to promote public transportation by
having a hub of public transportation, the
Millbrae Intermodal Station, which is
conveniently located and includes Bay Area
Rapid Transit (BART), Caltrain, SamTrans
as well as commuter shuttles. The City works
in partnership with the County and other
agencies to implement programs, including
participating in Commute.org programs.
Commute.org is San Mateo County’s Transportation Demand Management Agency whose
mission is to reduce the number of single occupancy vehicles traveling in, to, and through San
Mateo County, which reduces vehicle emissions and results in improved air quality.
Commute.org helps people find ways to get to work that are faster, cheaper, and/or easier
through commuter information, employer programs, and city transportation demand
management partnerships. The programs include brochures on countywide alternative
transportation opportunities and schedules, the Emergency Ride Home Program, carpool and
vanpool incentive programs, bike racks at reduced rates, shuttle routes, and bike safety classes.
Commute.org is funded by C/CAG, the San Mateo County Transportation Authority, BBAQMD,
and the Metropolitan Transportation Commission (MTC).
The City has supported State policies toward the development of improved vehicle standards for
reducing GHG emissions. In 2010, the City Council passed a Resolution supporting the
California Clean Cars Campaign which included sending a letter of support to the California Air
Resources Board (CARB) to encourage them to strengthen their new vehicle standards to
further reduce pollutants and greenhouse gases and to promote the development and
deployment of zero emissions vehicle technologies. The goal of the California Clean Cars
Campaign is to encourage CARB to set strong standards for cleaner and more efficient vehicles
that reduce hazardous pollutants and emissions and improve California’s air quality.
City of Millbrae Climate Action Plan page 62
Commuter Options and Incentives Program
The City’s Commuter Options and Incentives Program started in 2008, initially for City
employees, to provide outreach and education on alternative transportation options for traveling
to and from work to reduce single-occupant vehicle travel. Initially for City employees, this
program has expanded to include outreach to the larger community on alternative transportation
options such as public transportation, carpooling, and bicycling in order to reduce emissions,
improve air quality, and improve overall health. Through Commute.org , the City participates in
the programs as described above and in Bike to Work Day every spring, hosting an Energizer
Station at the Millbrae Intermodal Station. Outreach for Bike to Work Day includes distribution of
brochures, public service announcements on the local cable station, newsletter articles, displays
at City Hall and the Library, and bicycle safety workshops.
Signalized Traffic/Pedestrian Crossing
A traffic signal and crosswalk at El Camino Real and Victoria Avenue were installed in late
2012. These improvements provide pedestrians with another pathway for safely walking across
El Camino Real, and a shorter and easier route between Millbrae’s downtown and the
Intermodal Station, which helps to encourage the use of public transportation. Other aspects to
help encourage the use of public transportation and other alternative modes of transportation
include SamTrans bus stops, enhanced landscaping, and an improved median. The project was
jointly funded by a Federal grant and a special grant from SamTrans. This is the third traffic
signal recently installed on El Camino Real which provides pedestrian safety and encourages
walking near the Millbrae Intermodal Station.
Millbrae Station Area Specific Plan
Another component for the City’s Smart Growth Development is the Millbrae Station Area
Specific Plan (MSASP) that includes land use policies for residential and commercial
development near transit. Originally created in 1998 as part of a city-wide General Plan update,
the MSASP was adopted in February 2016 and sets a vision for redevelopment of the 116 acres
around the Millbrae Intermodal Station. The updated MSASP will guide future public
improvements and private development in the Plan area over the next 25 years.
In addition, the City is creating the El Camino Real and Downtown Specific Plan for the Priority
Development Area with the intent of transforming the City’s primary areas of business and
commerce into vibrant and connected mixed-use centers of cultural and economic activity. This
Specific Plan focuses on the area that will undergo the majority of change and development in
the City over the next couple of decades and will include measures that reduce vehicle traffic
while promoting walking, biking, and using public transit.
City of Millbrae Climate Action Plan page 63
Regional and Countywide Transportation Programs
There are a number of transportation programs that the City implements in coordination with the
County and other agencies in the larger Bay Area region, and other programs that are
implemented by other agencies. The City will coordinate additional transportation programs with
the County and benefit from the state-wide and countywide programs in order to achieve the
GHG emissions reduction goals as described in Section 4.2.
The County and regional transportation programs are expected to have a major impact on
community-wide emissions reductions, especially from on-road vehicle emissions on State
highways that traverse through the City, where the City has no control to implement programs.
The expected countywide and regional transportation programs include promotion of and
incentives for high density housing near transit services; a variety of bicycling and pedestrian
infrastructure programs; improved transit system networks for shuttles and bus rapid transit;
implementation of the Traffic Congestion Management Plan; Caltrain electrification; incentives
for vehicular commute trip reductions; resources for employer ridesharing; and promotion of
alternative and clean fuel vehicles. While the City implements some of these programs, some
programs are implemented by the County, C/CAG, the transit agencies, or other agencies, with
coordination amongst the City, the County, and regional agencies. Another regional program
sponsored and completed by C/CAG is the Smart Corridor Project that improves the mobility of
vehicles and mass transit along Highway 101 and includes improvements on arterial routes
parallel to Highway 101. C/CAG created the San Mateo Countywide Transportation Plan 2040
(SMCTP 2040) which is a long-range, comprehensive transportation planning document and
provides transportation planning goals and objectives to promote consistency and compatibility
among all transportation plans and programs within the county. SMCTP 2040 supports an
integrated system‐wide approach to transportation planning and includes a coordinated, multi-
modal strategy that relies on advanced technologies and management practices required to
meet the growing and changing transportation needs of San Mateo County. More information
can be found at http://ccag.ca.gov/programs/countywide-transportation-plan/.
Transportation Demand Management Program
In 1994, the City adopted the Transportation Systems Management (TSM) Ordinance, which is
a multi-city effort to assist employers in the region in achieving trip reduction goals as a way to
improve air quality and reduce traffic congestion. The Program aims to increase public
awareness and encourage the use of alternatives to commuting by single-occupant vehicles.
The program also reduces traffic impacts within the City and the region by reducing the number
of automobile trips, daily parking demand, and total vehicle miles traveled per person that would
otherwise be generated by single-occupant vehicle commuting.
City of Millbrae Climate Action Plan page 64
Safe Routes to Schools
The San Mateo County Safe Routes to School (SR2S) Program is a countywide initiative started
in 2010 and funded by C/CAG to help develop and implement programs that will enable school
children and families to walk, bicycle, and carpool to school. The overall goal is to make San
Mateo County a healthier, safer, and more environmentally sound community with improved air
quality and reduced traffic congestion by reducing the number of school-related automobile
trips. The highlights of Millbrae’s School District programs include Bike, Walk, and Carpool to
School Days; bicycle, pedestrian, and safety education; walking school buses and bike trains;
SR2S Task Force; outreach materials; and parent education. Additional safety crossings are
being planned in the City. The City also received a Green Infrastructure/Safe Route to Schools
grant from C/CAG to make improvements to the area surrounding Taylor Middle School.
Bicycle Programs
The C/CAG Bicycle and Pedestrian Advisory Committee (BPAC) has been in existence for over
20 years and makes recommendations to the C/CAG Board of Directors on bicycle and
pedestrian projects to be funded with Transportation Development Act (TDA) Article 3 funds.
The BPAC serves as a countywide forum for information on bicycle and pedestrian issues that
affect San Mateo County jurisdictions. In 2009, the City’s General Plan was updated to include
bicycle and trail routes and the City formed a local BPAC comprised of the Parks and
Recreation Commission. In 2019, marked bike lanes were added in Millbrae to identify bicycle
routes.
Active Transportation Plan
The Active Transportation Plan (ATP), currently in development, is the city-wide bicycle and
pedestrian master plan that will enhance circulation and connectivity. The purpose of the ATP is
to assess the needs of pedestrians and cyclists in Millbrae; identify improvements to
infrastructure and programs; ensure eligibility for certain transportation funding sources; and
coordinate pedestrian and bicycle local actions and regional projects.
Grand Boulevard Initiative
The City adopted the Grand Boulevard Initiative in 2010, which is a collaboration of 19 cities,
counties, and local and regional agencies united to improve the performance, safety, and
aesthetics of El Camino Real, which stretches from Daly City to San Jose. The vision is of a
boulevard that connects communities by a mix of land uses designed to attract people. Millbrae
is in the process of making improvements along El Camino Real within the City’s boundaries.
The upgrades will help El Camino Real to function and look better, however, the goal is to
recreate the street to do a better job of connecting the communities (north-south) and of better
integrating it within each of the communities (east-west). The transportation-related benefits
include supporting transit-oriented development (TOD) and increasing density around station
areas; designing transit stops for easy passenger loading, unloading, and fare payment;
City of Millbrae Climate Action Plan page 65
improving signal timing; implementing transit-preferential street treatments such as signal
priority, bulb out stops, bus bypass lanes, and high occupancy vehicle/bus-only lanes where
needed and feasible; and implementing programs designed to reduce auto trips during
congestion periods. The upgrades will also reduce the distance between corridor crossings to
improve connectivity with adjacent neighborhoods thereby transforming the area to be more
walk able and transit- and bicycle-friendly.
Smart Growth Development
The Smart Growth
Development measure
includes a number of policies
that support and prioritize infill,
high density housing, and
mixed use and transit-oriented
development (TOD). Infill
involves building and
developing in vacant areas
which can reduce traffic
congestion, save open space, and create more livable communities. High density housing
includes a greater amount of housing units per building, allowing for building up rather than out
and taking less space overall. Smart Growth includes building developments near transit. The
principles of infill, high density housing, and mixed use and transit-oriented development lead to
decreased vehicle miles traveled and increased neighborhood vitality. These methods of
development also have multiple social benefits, including better health, lower infrastructure
costs, and increased accessibility.
There are a number of TOD’s located in Millbrae to provide high density housing near the
Intermodal Station (BART, Caltrain, SamTrans, shuttles) for a total of 455 units at six
developments. These developments include mixed uses: housing units on the upper levels and
commercial businesses on the lower levels. Most of these developments are located on the
main thoroughfare, El Camino Real. Two future developments near the intermodal station will
add approximately 826 additional units. The City will continue to look to Smart Growth
Development for future projects including the projects in the MSASP as described above. In
addition, the City will work with C/CAG to encourage developments to take advantage of TOD
incentives offered by C/CAG.
The City is finalizing its El Camino Real and Downtown Specific Plan and upon completion will
provide a framework to guide future development along the El Camino Real corridor by
promoting high density smart growth with an emphasis on alternative transportation modes.
City of Millbrae Climate Action Plan page 66
Electric Vehicle Education and Outreach
Electric vehicles (EV) are a critical element of the State’s path to a 40% reduction in emissions
below 1990 levels by 2030. To support this effort, the State has developed a goal of 1.5 million
zero-emission vehicles on California roads by 2025. To help reach this goal, the City will
encourage residents and commuters to drive EVs as opposed to gasoline and diesel vehicles.
The City will also continue to conduct outreach on electric vehicles, including electric vehicle
workshops and providing information on incentive programs provided by Peninsula Clean
Energy, the Bay Area SunShares Program, and other opportunities as they are identified.
Walkable and Bikeable Street Landscape
The City will continue with the local and regional
programs previously described and implement other
measures to make the City more amenable to walking
and biking. Bike lanes, bike parking, traffic calming, and
beautification are all part of creating an urban landscape
that encourages biking and walking. The City is currently
seeking funding for the Millbrae Pedestrians Overcrossing
Project. The goal is to construct a bridge near BART at
the Chevron Station on Millbrae Avenue that safely
crosses over Highway 101 to connect to the San
Francisco Bay Trail on Old Bayshore Highway. The
overcrossing would promote walking and biking from the
Trail and hotels and provide increased access to the
transit hub, stores and restaurants. While some of the
planned bicycle lanes have been implemented to date,
the City continues to pursue and receive grants to
complete more of the City’s bicycle and pedestrian network, including for the Spur Trail. The
grants help to connect the Transit Center to the Spur Trail as well as to the Bay Trail, and other
regional trails allowing individuals to safely walk or ride their bikes. This also helps to reduce
vehicles from the roadways by providing alternative routes to work and school. The City also
conducts outreach on bicycling, such as organizing Bike to Work Day events, as mentioned
above, and providing Bicycle Safety Workshops.
Furthermore, the City adopted a Complete Streets Policy Resolution in January of 2013, which
outlines guidance on including bicyclists and pedestrians in roadway project planning and
design. The goal is to create a network of safe bicycle and pedestrian facilities that serve all
transportation users. This policy also enables the City to be eligible for federal and State
transportation funding administered by the MTC. The City will continue to work with the Millbrae
Bicycle Pedestrian Advisory Committee to fine tune the policy based on the MTC guidelines and
from the experience and input from the community.
City of Millbrae Climate Action Plan page 67
Local Farmers’ Market
The Millbrae Chamber of Commerce sponsors and manages the Farmers’ Market held every
Saturday. The Farmers’ Market benefits the community in a number of ways by providing fresh
produce, supporting local farmers, and providing residents with a walkable option for buying
groceries.
Table 17 summarizes the estimated GHG reductions associated with existing community
transportation measures.
Table 17: Existing Community Measures: Transportation
Measure Description
GHG Reduction
in 2030
(MTCO2e)
Smart Growth Development
Continue Smart Growth Policy that prioritizes
infill, higher density, transportation oriented, and
mixed-use development.
624
Walkable / Bikeable Street
Landscape
Remake urban landscape to make walking and
biking more desirable, such as bike lanes, bike
parking, traffic calming, beautification, etc.
873
Safe Routes to School
Continue to support the City's Safe Route to
Schools program by establishing bike trails and
safe pedestrian routes to local schools
(infrastructure) and educate the community about
the program.
50
Electric Vehicle Education and
Outreach
Increase number of electric vehicles that are
owned by residents, commuters, and visitors to
the City through education and outreach focused
on the benefits of electric vehicles.
5,555
Local Farmers’ Market
Support the Farmers’ Market to encourage local
shopping for locally-grown food and reduce VMT
associated with acquiring produce.
6
New Community-wide Transportation Measures
Bike Sharing
The City will look for opportunities to partner with bike sharing companies to establish bike
share facilities throughout the City. Bike shares can be effective in solving the “last mile” issue
of getting to and from public transportation that often prevents commuters and residents from
fully utilizing public transportation.
City of Millbrae Climate Action Plan page 68
Car Sharing
The City will look for opportunities to partner with car sharing companies to establish designated
car sharing spaces and vehicles in the City. Providing residents with easy access to car shares
can decrease the rate of vehicles ownership and, consequently, reduce the number of miles
driven per resident per year.
Shuttle Program
The goal of the Shuttle Program is to increase shuttle service to connect areas not currently
covered by public transit primarily through private sector programs. Shuttles are an efficient
transport method to bring commuters from various areas to the transit system or close to work
sites. The City has had various shuttles, such as the Senior Program shuttle; however, there are
currently none operated by the City. There are various private sector shuttles in place including
for the hotels/motels and from the Intermodal Station to work sites outside the City limits. The
City will also look to grant funding from C/CAG and other organizations and work with
Commute.org to fund local shuttles. Increasing the number of shuttles would encourage more
passengers to commute to and from the Millbrae Intermodal Station and would reduce single
occupancy drivers, congestion, and GHG emissions.
EV Charging Infrastructure in Existing Buildings
Providing an adequate amount of EV charging stations at home, work and in public locations is
critical to increasing the adoption of electric vehicles. The City has installed ten ChargePoint
dual-port level 2 EV charging stations since 2015, for a total of 20 chargers, which are located in
four City-owned parking lots. Some of the stations were paid for by a grant from BAAQMD. In
addition, three EVgo level 3 fast chargers were installed in one City parking lot and others are
planned. The charging stations at the Library are powered by the building’s photovoltaic solar
system. In 2017, the City began charging $1.00 per hour with a parking limit of two hours for the
ChargePoint chargers. Additional fast charging stations are currently in the design phase.
Strategies will include expanding public EV charging infrastructure, working with large
employers to expand EV charging in existing buildings, and public parking policies that
incentivize EV ownership. In order to reach the 2030 emissions reduction associated with this
measure (see Table 17), 43% of gasoline vehicles currently on the road will need to be replaced
with EVs. PCE has expressed interest in offsetting the cost of installing EV chargers in existing
buildings, particularly multi-unit dwellings, workplaces and public locations through the provision
of incentives. The City will look to leverage funds from PCE or other sources in order to
accelerate the expansion of EV charging in existing buildings. This EV charging infrastructure
will be critical to achieving the 2030 emissions reductions.
City of Millbrae Climate Action Plan page 69
EV Charging Infrastructure in New Buildings
Incentives will be leveraged from PCE and other agencies to expand charging infrastructure in
public properties, multi-unit dwellings, and workplaces. Another strategy for accelerating the
expansion of EV charging stations is adopting reach codes either before or during the next
Building Code update that require commercial and residential properties to go beyond the
minimum requirements for the number of parking spaces in newly constructed buildings that
must be “EV capable” or have an EV charging station installed. “EV capable” means that the
parking spaces are designed with adequate electrical capacity and conduit installed to allow for
future EV charger installations. One benefit of an EV charging reach code is that installing EV
charging infrastructure in new construction is significantly more cost-effective than installing EV
charging infrastructure in existing buildings. Cities including San Mateo and Fremont have
implemented EV charging infrastructure reach codes that go beyond the State’s minimum code
requirements. CALGreen can also be modified to require new construction to require a certain
percentage of parking spaces to be devoted to clean air vehicles (EVs, PHEVs, carpools).
These parking spaces are typically located near entrances to buildings and, where applicable,
include waived metered parking fees. The City will consider this requirement for future
developments.
Shared Electric Bikes and Scooters
Shared electric bikes (e-bikes) and electric scooters (e-scooters) have the potential to play a
critical role in decreasing vehicle miles travelled (VMT) in Millbrae. These emerging forms of
transportation offer low-emissions “first/last mile” solutions for residents, commuters, and
visitors who want to connect with major transportation hubs, including the Intermodal Station. By
increasing the ease and speed of which connections to public transportation can be made, e-
bikes and e-scooters have the potential to significantly increase public transportation usage and
decrease dependence on cars. The emissions associated with e-bikes and e-scooters, which
use a small amount of electricity per mile, will continue to decrease as the amount of renewable
electricity on the grid continues to increase. The existing infrastructure will be modified to
accommodate shared electric bikes and scooters that provide last-mile solutions to residents
and commuters. Infrastructure enhancements include dedicated off-street parking spaces and
on-street corrals to accommodate shared electric bike and scooter parking and prevent conflicts
with pedestrians.
Electric Transportation Network Company (TNC) Vehicles
A 2017 study conducted by the San Francisco County Transportation Authority found that over
10% of total VMT in the city was attributable to Transportation Network Companies (TNCs)
including Uber and Lyft32. For this reason, increasing the percent of TNC vehicle that are
32 San Francisco County Transportation Authority, “TNCs Today: A Profile of San Francisco Transportation Network Company
Activity” (2017).
City of Millbrae Climate Action Plan page 70
electric, opposed to gasoline, can have significant emissions reduction impacts. Cities have the
ability to regulate TNCs. For example, in 2019 San Francisco passed a proposition adding a
1.5% tax on shared TNC rides and a 3.25% tax on all other TNC rides. Similar taxes or other
policies could be implemented to encourage the adoption of electric vehicles among TNC
drivers. This measure would involve develop a policy, such as a revenue-neutral fee, that only
applies to internal combustion engine TNCs, to encourage the use of EV TNCs in the
community. The funds could be utilized to pave roads, provide public transportation incentives,
and/or provide discounts on EV TNC rides. Designated drop-off locations and charging locations
would be provided for EV TNCs to facilitate EV adoption. Table 18 summarizes the estimated
GHG reductions associated with new community transportation measures.
City of Millbrae Climate Action Plan page 71
Table 18: New Community Measures: Transportation
Measure Description
GHG
Reduction
in 2030
(MTCO2e)
Measure
Start
Year
Bike Sharing Explore bike sharing program to have bikes located at
the BART Station, downtown and elsewhere. 118 2020
Car Sharing Encourage car sharing companies to open pods in town. 131 2020
Shuttle Program Increase shuttle service within city limits to connect areas
not covered by public transit. 249 2021
EV Charging
Infrastructure in
Existing Buildings
Leverage incentives from PCE to expand charging
infrastructure in public properties, multi-unit dwellings,
and workplaces.
11,558 2020
EV Charging
Infrastructure in
New Construction
Update the residential and commercial building code to
increase the mandated percentage of parking spaces
designed to accommodate electric vehicle charging
equipment and also increase the mandated percentage
of parking spaces devoted to clean air vehicles (EVs,
PHEVs, carpools).
878 2022
Shared Electric
Bikes and
Scooters
Modify existing City infrastructure to accommodate
shared electric bikes and scooters that provide last-mile
solutions to residents and commuters. Infrastructure
enhancements include dedicated off-street parking
spaces and on-street corrals to accommodate shared
electric bike and scooter parking and prevent conflicts
with pedestrians.
830 2020
Electric
Transportation
Network Company
(TNCs) Vehicles
Develop policies, such as a revenue neutral fee that only
applies to internal combustion engine TNCs, to
encourage the use of EV TNCs in the community. Utilize
funds generated by fees to provide pave roads, provide
public transportation incentives, and/or discounts on EV
TNC rides. Provide designated drop-off locations and
charging locations for EV TNCs to facilitate EV adoption.
887 2021
City of Millbrae Climate Action Plan page 72
Goal: Promote the Use of Fuel Efficient and Alternative Vehicles in
Municipal Operations and Reduce Public Employee Vehicle Miles
Traveled
Existing and Continuing Municipal Operations Transportation Measures
The City first purchased compressed natural gas (CNG) vehicles in 1989 and, up until recently,
30% of the fleet used CNG. Due to the tanks expiring, there are no longer CNG vehicles in
operation. The measures include continuing and expanding existing programs along with new
measures to help reduce GHG emissions.
Public Employee Commuting Program
The City’s Commuter Options and Incentives Program were described above for community-
wide programs. Commuter programs are also implemented for City employees, including
participating in the regional Great Race for Clean Air to reduce single car occupancy, and
providing periodic notifications on Spare the Air Days and general information on alternative
forms of transporting to and from work.
In 2014, the City implemented the Commuter Benefits Program, as provided by State law SB
1339, to provide incentives to employees for taking public transportation. With this benefit,
employees who work more than 20 hours a week and commute to work by public transit (bus,
rail, or ferry) or vanpool can pay their fare with pre-tax dollars. The Commuter Benefits Program
facilitates a regional approach to encourage the use of sustainable commute modes in an effort
to reduce single occupancy vehicles, traffic congestion, GHG emissions, and improve air
quality.
Table 19 summarizes the estimated GHG reductions associated with existing and continuing
municipal operations transportation measures.
Table 19: Existing Municipal Operations Measures: Transportation
Measure Description
GHG Reduction
in 2030
(MTCO2e)
Public Employee
Commuting
Program
Continue with the commute alternatives program to promote
and incentivize public transportation, carpooling, biking, etc. 2
City of Millbrae Climate Action Plan page 73
New Municipal Operations Transportation Measures
Clean Fleet Policy
Municipal operations’ emissions can be reduced by employing vehicles that are fuel efficient
and utilize low carbon fuels, and by purchasing electric vehicles. This measure will reduce
emissions by prioritizing the purchase of fuel efficient vehicles and alternative fuel vehicles,
continuing maintenance of existing vehicles for optimum mileage, using re-refined oil,
encouraging public employees to drive minimally and efficiently, and expanding on the City’s
municipal operations’ idling reduction policy. In addition, the City will evaluate the feasibility of
purchasing alternative fuel vehicles when new vehicles are needed and implementing a Clean
Fleet policy. The City currently has four hybrid vehicles.
Table 20 below summarizes the estimated GHG reductions associated with new municipal
operations transportation measures.
Table 20: New Municipal Operations Measures: Transportation
Measure Description
GHG Reduction
in 2030
(MTCO2e)
Measure
Start Year
Clean
Fleet
Policy
Prioritize purchase of battery electric, plug-in hybrid electric,
and traditional hybrid vehicles. Maintain existing vehicles for
optimum mileage. Encourage staff to drive minimally and
efficiently. Expand on the idling policy.
42 2020
Solid Waste
Reducing the amount of waste deposited into the landfill through waste prevention
and reduction, reuse, recycling, and composting is an important strategy to reduce
GHG emissions. Methane is the primary source of Millbrae’s GHG emissions in the
waste category. Continuing and expanding recycling-related programs for residents,
businesses, schools, and city facilities will enable the City to reach its emissions reduction
targets.
City of Millbrae Climate Action Plan page 74
A total of 13,480 tons of solid waste were landfilled in 2005 resulting in 2,461 MTCO2e of
emissions. There were an additional 25 MTCO2e of emissions associated with alternative daily
cover placed on the surface of the landfill. Waste represented less
than 2% of the City’s total emissions. The anaerobic (without oxygen)
decomposition of waste in landfills produces methane, a GHG that is
21 times more potent than carbon dioxide. Some landfills capture as
much methane as possible and combust it for electricity generation,
which is the process used at Ox Mountain Landfill in Half Moon Bay
where 97% of Millbrae’s waste is disposed. This process known as
“landfill gas to energy” was started at Ox Mountain Landfill in 2009
and produces 11.5 megawatts of electricity a year, which has reduced GHG emissions by
71,000 tons, the equivalent to taking 11,800 cars off the road. The landfill gas-to-energy process
captures and converts more methane than any other Bay Area landfill and has an estimated
recovery rate of 75%. Its six engines operate 24 hours a day and generate enough electricity to
power 7,500 homes, which is utilized by the cities of Alameda and Palo Alto.
Materials that typically end up in the landfill cannot be made into new products and are being
replaced with new products. The production of these new products often requires the use of
fossil fuels to obtain raw materials and manufacture the items.
GHG emissions are also associated with the production of products— more specifically, with the
product supply chain, or the system involved in moving a product from supplier to retailer.
Starting upstream, fossil fuel energy is used to extract the raw materials (wood, metals, etc.)
from which products are made. Additional energy is needed to manufacture consumer goods in
factories. Petroleum is used for the transportation of raw materials to the factory, moving
manufactured goods to market, and moving waste from consumer’s curbsides to landfills. These
emissions do not show up in Millbrae’s inventory; however, it is good to be aware of them as
consumers and take responsibility to support products that reduce waste and encourage
manufacturers to design environmentally-friendly products.
Waste reduction and recycling are powerful tools for reducing emissions throughout the
consumer materials’ lifecycle. Reducing the amount of materials required through reuse, such
as replacing plastic and paper bags from the grocery store with reusable shopping bags,
represents the best opportunity to reduce GHG emissions in a significant way. When people
reuse things or when products are made with less material, less energy is needed to extract,
transport, and process raw materials and manufacture products. When energy demand
decreases, fewer fossil fuels are burned and less carbon dioxide is emitted to the atmosphere.
Recycling and composting are other opportunities to reduce GHG emissions. Recycling reduces
energy-related carbon dioxide emissions in the manufacturing process and avoids emissions
City of Millbrae Climate Action Plan page 75
from waste management. Manufacturing products from recycled materials typically requires less
energy than producing products from virgin materials. Recycling paper products also allows for
the storage of carbon in trees. Trees absorb carbon dioxide from the atmosphere and store it in
wood, in a process called "carbon sequestration." Waste prevention and recycling of paper
products allow more trees to remain standing in the forest, where they can continue to remove
carbon dioxide from the atmosphere. Waste prevention and recycling of glass, metal, plastic,
and other materials reduces the need for mining, drilling, and refining of resources from the
Earth.
Composting yard trimmings and food scraps diverts organic wastes from landfills, reducing the
methane released when these materials decompose. As mentioned previously, when organic
materials break down in landfills, an anaerobic process takes place. On the converse, backyard
composting it an aerobic (with oxygen) process, resulting in little to no emissions upon
breakdown of the organic materials.
To address the issues of escalating waste production, California AB 939 was passed in 1989
and mandated local jurisdictions to meet a solid waste diversion goal of 50% by the year 2000.
Each jurisdiction was required to create an Integrated Waste Management Plan to develop
recycling related programs to reduce waste, including programs for waste prevention, recycling,
composting, and the purchasing of recycled products. These plans formed the foundation of the
recycling programs in place today along with additional adopted legislation.
The City’s Recycling & Waste Prevention Program has provided a variety of programs and
resources for residents, businesses, schools, and City departments since 1994. Since 1999, the
City has achieved and surpassed the 50% waste reduction requirement. Through 2006,
diversion was reported as a percentage and the City achieved a 67% diversion rate. In 2008,
California law changed the method of calculating disposal rates. Diversion is now calculated
using a per capita (per person) disposal rate, using a formula to arrive at a per day, per person,
target weight amount measured in pounds per day (PPD). The new method was applied
beginning with the 2007 reporting year. Millbrae was allocated a per capita of 5.3 PPD and for
2018, the last reporting year, had achieved 2.9 PPD.
This Plan, through a combination of State and City measures, outlines a path to reducing waste
emissions 90% below 2005 levels by 2030.
City of Millbrae Climate Action Plan page 76
Goal: Reduce Waste and Increase Recycling Opportunities
Existing and Continuing Community-wide Waste Reduction and Recycling
Measures
The City has comprehensive waste prevention
and recycling programs for residents,
businesses, schools, and City facilities. These
programs will continue and some of the
programs will be expanded to increase the
community diversion rate to 85% and municipal
operations to 95% in an effort to achieve as
close to zero waste as possible. The waste
prevention and recycling programs provide
opportunities for many ways to reduce, reuse,
recycle, and buy recycled products. Additional
programs are conducted to reduce the amount
of household hazardous waste that is used and
disposed of in landfills. The City works closely
with the franchised hauler, the South San
Francisco Company (SSF Scavenger), on the
collection programs. The City appreciates the
active participation of the community and businesses in the recycling programs. The City’s
efforts along with SSF Scavenger’s collection and outreach efforts have led to high participation
and diversion rates.
The City’s Recycling & Waste Prevention Program has applied innovative ideas over the years
to achieve a high diversion rate and has been recognized locally, regionally, and state-wide for
its many implemented programs. The City was one of the first cities in the County to achieve the
State’s initially mandated 50% landfill diversion requirement. In addition, there have been many
inquiries from other cities about Millbrae’s recycling programs and many have replicated them.
The City has led by example by implementing recycling programs for City facilities. The City
won two awards for best recycling program— the State’s Trash Cutters award in 2000 and an
award from Sustainable San Mateo County in 2007. The program also received the Beacon
Award for sustainable practices from the Institute for Local Governments, among other awards
mentioned earlier in this Plan.
Landfill Diversion Rate Goal - Achieve 85% Diversion
The City will increase participation in existing recycling programs through outreach and
education on reducing, reusing, recycling, and composting and through the weekly collection of
City of Millbrae Climate Action Plan page 77
recyclables and organic waste to achieve 85% diversion. The existing and continuing programs
are described below.
Residential Program
A cornerstone of the Recycling & Waste Prevention Program is conducting outreach to inform
the community on where and how they can recycle materials. SSF Scavenger also provides
outreach through quarterly newsletters and messaging on bills. A variety of recycling outreach
and education to residents is conducted and will continue through the distribution of educational
materials to public locations; holding organic gardening, energy conservation, water
conservation, composting, and other workshops; airing public service announcements and
educational videos on Millbrae Community Television, the local cable station; sending out press
releases; conducting community presentations; and installing educational displays at the Library
and City Hall. The City holds community events for Earth Day and Pollution Prevention Week
and provides information on relevant City and countywide programs. The City also staffs
educational tables in public locations like Millbrae Square and at events, where staff distributes
program materials and answers questions. In addition to recycling curbside, there are
opportunities to recycle materials in the public recycling containers located in the downtown
area and in parks and athletic fields.
Food scrap collection became available to all residents living in single family homes in January
of 2015. Residents can place food scraps and food soiled paper into their yard trimmings cart.
SSF Scavenger built a state-of-the-art anaerobic digester which breaks down green waste into
biogas and compost. The biogas is used to fuel SSF Scavenger’s collection vehicles. They have
39 fueling stalls in use. Food scrap collection for condominiums and apartments is also
available but currently underutilized. Outreach materials and a kitchen pail to collect food scraps
were delivered to every household. The City also conducted outreach by updating the website
and putting informational displays in City Hall and the Library. The food scrap program is
reducing the amount of organic material from entering the landfill, thus reducing GHG emissions
as well as the use of fertilizers, chemicals, and water use.
School Program
The Environmental Programs’ staff periodically conducts classroom presentations, or partners
with San Mateo County Office of Sustainability (County), and SSF Scavenger staff, on topics
such as where Millbrae’s waste goes, waste prevention, recycling, composting, buying recycled
products, and water conservation. The City also provides assistance to set up and expand
recycling programs by conducting assessments and providing indoor recycling containers and
backyard and/or worm composting bins. The County and SSF Scavenger also provide
assistance through waste assessments and school assemblies. Furthermore, City staff
conducts outreach and periodic newsletters to teachers and principals to inform them of the
available school resources and services.
City of Millbrae Climate Action Plan page 78
Commercial Programs: AB 341, AB 1826 and SB 1383
The City’s Environmental Programs staff works with new and existing businesses to provide
assistance and resources to help them set up recycling and organics collection programs to
reduce the amount of waste sent to the landfill. The City provides free indoor recycling
containers, SSF Scavenger provides outdoor recycling containers and collection, and together
they provide businesses additional resources and on-site visits to help ensure successful
program setup. The current State legislation described below provides impetus for additional
diversion programs. While the City has very good recycling participation and compliance, the
City will need to adopt an enforcement measure for compliance with SB 1383 which could
include other comprehensive recycling measures.
AB 341, the Mandatory Commercial Recycling regulation, took effect July 1, 2012 and requires
businesses, government offices, and schools that generate four cubic yards or more of garbage
per week and multi-family complexes of five or more units to recycle. This was one of the
measures adopted in AB 32 by the Air Resources Board in the California Global Warming
Solutions Act (Chapter 488, 2006). The goal is to achieve a state-wide 75% diversion rate in an
effort to reduce waste and GHG emissions by diverting commercial solid waste to recycling
efforts and expand opportunities for additional recycling services and recycling manufacturing
facilities in California. The commercial sector generates nearly three fourths of the solid waste in
California and much of this waste is readily recyclable. Most businesses and multi-family
complexes were already recycling in Millbrae prior to AB 341 and City staff worked with the few
required businesses and multi-family complexes that were not already setup with recycling
collection services to comply.
AB 1826, the Mandatory Commercial Organics Recycling regulation, requires businesses and
multi-family complexes with five or more units that generate specified amounts of waste to
recycle their organic waste. Multi-family complexes are only required to recycle yard trimmings,
not food scraps. On April 1, 2016, the bill went into effect for accounts that generate eight cubic
yards or more of organic waste. The law follows a schedule based on the amount and type of
waste the business produces on a weekly basis, with full implementation realized in 2019 with
businesses that generate four yards or more of solid waste required to have organics collection.
In 2020, if CalRecycle determines that the state-wide disposal of organic waste has not been
reduced by 50 percent of the level of disposal in 2014, the organic recycling requirements for
businesses could expand to businesses that generate two cubic yards or more of commercial
solid waste per week.
In 2014, with the completion of the anaerobic digester, SSF Scavenger started working directly
with businesses to implement food scrap recycling programs, requiring employees to sort their
food scraps and food soiled paper in-house. This effort has increased diversion and helps the
City and State achieve their diversion goals.
City of Millbrae Climate Action Plan page 79
SB 1383 was adopted in 2016 with a goal to reduce state-wide GHG emissions of methane
below 2013 levels by 2030, reduce state-wide disposal of organic waste 75% below 2014 levels
by 2025, and recover 20% of disposed edible food for human consumption by 2025. This was
adopted upon determining that the decomposition of organic waste in landfills was the second
largest source of methane emissions in California and food waste accounted for 18% of landfill
disposal in the State in 2014. Edible food recovery efforts are currently underway, working with
the County of San Mateo Office of Sustainability, who is taking the lead countywide on food
recovery and other elements. Additional planning, programs, policies, and reporting will need to
be implemented to meet the requirements once the regulations are developed, including
adopting an enforcement measure as previously mentioned. GHG reductions associated with
this measure have been calculated and included in the reduction numbers in Table 26 under
State-wide Initiative Emissions Reductions.
Construction and Demolition Reuse and Recycling
A program is in place to capture materials during the demolition and construction process for
reuse and recycling. At least 65% of all waste generated for projects by weight must be
achieved through the reuse and recycling of materials in accordance with the CALGreen Code.
This program is managed by the City’s Building Division in the Community Development
Department. The City could consider adopting an ordinance where a deposit is charged and
returned based on compliance.
City Adopted Policies
1. Single-Use Carryout Bag Ordinance
The City’s Single-Use Carryout Bag
Ordinance started on September 1,
2012 and prohibits the use of single-
use carryout plastic bags and the
distribution of free paper bags at
retail stores, including grocery
stores, supermarkets, convenience
stores, drug stores, clothing stores,
home improvement stores, office
supply stores, and other retail
stores.33 The goal of the Ordinance
is to encourage shoppers to use
reusable shopping bags and
decrease the use of single-use bags
33 The full text of the ordinance is available in Chapter 6.05 of the municipal code and can be found at:
http://www.codepublishing.com/ca/millbrae.html.
City of Millbrae Climate Action Plan page 80
and associated waste and litter. As plastic bags often end up in storm drains, on beaches, and
in waterways, this measure also helps with stormwater management regulations. Millbrae was
the first community in the County to adopt this type of ordinance. Thereafter the County of San
Mateo and other communities have adopted similar ordinances, leading to increased regional
benefits.
Stores can supply paper bags that contain a minimum of 40% post-consumer recycled content
and charge a minimum of $0.10 for each point-of-sale paper bag, which the stores retain. To
help with the transition to using reusable bags, the City distributed free reusable cloth shopping
bags made from 100% post-consumer recycled plastic bottles to Millbrae residents. To date, the
City has distributed over 9,000 reusable shopping bags.
2. Sustainable Food Service Ware Ordinance
The City adopted a Sustainable Food Service Ware Ordinance in 2008 that prohibits foam and
solid polystyrene food service ware and requires the use of compostable or recyclable food
service ware by food vendors, such as restaurants.34 The City once again was the first in the
County to pass this type of ordinance and thereafter the County of San Mateo and a number of
other cities in the County have adopted similar ordinances. The City adopted this Ordinance to
reduce waste and littering and for health-related reasons. Polystyrene contains the hazardous
chemicals styrene and benzene; benzene is a known carcinogen. Similar to single-use carryout
bags, polystyrene food service ware is a common item that is littered on streets and ends up in
storm drains, on beaches, and in the Bay and ocean. This measure therefore also helps with
stormwater management regulations. The County of San Mateo has amended its existing
Disposable Food Service Ware Ordinance to require that all food ware is compostable and
includes measures to reduce other single-use items used in food services, such as condiments.
Other Bay Area cities are enacting similar ordinances. The City will consider amending its
Sustainable Food Service Ware Ordinance to be in line with the County’s.
Table 21 summarizes the estimated GHG reductions associated with the existing and continuing
community waste measures.
34 The full text of the ordinance is available in Chapter 6.40 of the municipal code and can be found at:
http://www.codepublishing.com/ca/millbrae.html.
City of Millbrae Climate Action Plan page 81
Table 21: Existing Community Measures: Waste
Measure Description
GHG
Reduction
in 2030
(MTCO2e)
Landfill Diversion Rate
Goal
Increase participation in recycling programs and
weekly collection of recyclables and organic waste to
achieve 85% diversion.
289
Sustainable Food Service
Ware
City will consider amending its existing Sustainable
Food Service Ware ordinance to require that all food
ware is compostable and to reduce the use of other
single-use items in food services.
Supporting
Measure
Commercial Organics
Recycling Ordinance
AB 1826 requires all businesses and multi-family
complexes with more than five units to sort and recycle
organic material. Provide enforcement to ensure
compliance with ordinance.
Supporting
Measure
Goal: Reduce Waste in Municipal Operations through Adoption of
Purchasing and Zero Waste Policies
Expanding and New Municipal Operations Waste
Prevention and Recycling Policy Measures
There are comprehensive waste prevention and recycling
programs for the City’s various facilities, including City Hall, the
Library, Millbrae Police Bureau, fire stations, the Community
Center, and the Public Works Operations Center. Each facility is
recycling the standard materials including mixed paper,
containers (cans/bottles), cardboard, yard trimmings, household
batteries, and electronic waste. The collection of food scraps/organics began in 2017. The
Utilities and Operations staff recycles a variety of other materials including metals, cement,
asphalt, bricks, soil, base rock, fluorescent light bulbs, and other materials. In addition, film
plastic, expanded polystyrene, and all types of electronics are recycled at City Hall. Periodically,
the City emails newsletters or notices on various waste prevention and recycling topics to
employees.
The City adopted an Environmental Policy in 2013, which replaced a prior policy and sets
guidelines and responsibilities for City staff, departments, and facilities to recycle materials to
purchase recycled content paper, paper towels, and toilet paper, and adhere to other
sustainability measures. The City uses 100% post-consumer content white copy paper and 30%
City of Millbrae Climate Action Plan page 82
post-consumer content colored paper. Other office products also contain recycled content. In
2007, the City placed a requirement in the custodial contract to use non-toxic cleaning products
for City facilities. The City also certified City Hall and the Library as Green Businesses in 2008,
and both were recertified in 2013 and 2019.
The City launched a paper reduction campaign initially in 2008 that went hand in hand with the
transition to 100% post-consumer recycled paper. The campaign encouraged employees to
reduce paper use by adjusting margins, using both sides of paper, utilizing print preview, using
electronic versions as much as possible, etc. Paper reduction efforts have continued. By
switching to 100% post-consumer recycled paper along with the paper reduction campaign, the
City reduced enough paper use to offset the increased cost of buying the 100% post-consumer
recycled paper. Each year, the City saves 84 trees (40 feet high and 6-8 inches in diameter)
from being cut down, 14,350 kWh of electricity, 24,500 gallons of water, and 210 pounds of air
pollution. The trees saved by buying recycled paper products provide oxygen, help to reduce
climate change, protect fisheries, provide habitat for wildlife, increase precipitation, and help
hold soil in place.
Environmentally Preferred Purchasing Policy
The City’s Administrative Standard Procedures for its Environmental Policy described above
includes Environmentally Preferred Purchasing procedures. It is the intent to expand on the
City’s Administrative Standard Procedures to include other areas of sustainable purchasing,
including products such as building and landscaping materials, electronics, and additional office
supplies. The Environmentally Preferred Purchasing Policy would include instituting practices
that reduce waste by purchasing products that minimize environmental impacts, toxics,
pollution, and hazards to worker and community safety; purchasing products that reduce GHG
emissions in their production, shipping, use and discard; and purchasing products that include
recycled content, are durable and long-lasting, conserve energy and water, use agricultural
fibers and residues, use unbleached or chlorine free manufacturing processes, are non-toxic,
and use wood from sustainably harvested forests. This type of policy has far-reaching benefits
that encompass many environmental aspects for an overall comprehensive purchasing policy.
Sustainable Vendor Policy at Public Events
Efforts will continue in work ing with event organizers to provide recycling and food
scrap/organics collection at local public events and to ensure the use of compostable/recyclable
food service ware as required by the local Sustainable Food Service Ware Ordinance.
Table 22 summarizes the estimated GHG reductions associated with existing and continuing
municipal operations waste measures.
City of Millbrae Climate Action Plan page 83
Table 22: Existing Municipal Operations Measures: Waste
Measure Description
GHG Reduction
in 2030
(MTCO2e)
Environmentally
Preferred Purchasing
Policy - Waste Reduction
Revise the Administrative Standard Procedures for
the Environmental Policy to strengthen sustainable
purchasing procedures.
Supporting
Measure
Sustainable Vendor
Policy at Public Events
Continue to work with event organizers for recycling
at public events (of cardboard, paper, containers and
food/organics), and for use of
compostable/recyclable food service ware.
Supporting
Measure
New Municipal Operations Waste Reduction and Recycling Policy Measure
Implement a Municipal Zero Waste Policy
“Zero waste” means sending very little to the landfills by increasing efforts to reduce, reuse,
recycle, and compost, aiming for a minimum of a 95% diversion rate. It entails manufacturers
taking responsibility for designing products that are less wasteful, reusable, non-toxic, and less
polluting, as well as taking back their products and packaging for reuse and recycling. It also
involves using economic incentives for customers, workers, and suppliers. This is known as
Extended Producer Responsibility.
To help support sustainable resource management and landfill diversion, the City will adopt a
policy that maximizes diversion by the year 2030. To help achieve this goal, programs will be
developed to expand current efforts for reducing waste and increasing participation in all
recycling programs. The City will work with the SSF Scavenger to identify other materials that
may be recycled. An element of this is expanding the Administrative Standard Procedures to
incorporate more elements of zero waste within the purchasing policy as described above.
Efforts would be made to partner with other zero waste and sustainability advocates to pursue
and advocate for Extended Producer Responsibility as described above, where manufacturers
are involved in materials management and system redesign solutions.
Table 23 summarizes the estimated GHG reductions associated with new municipal operations
waste measures.
City of Millbrae Climate Action Plan page 84
Table 23: New Municipal Operations Measures: Waste
Measure Description
GHG Reduction in
2030
(MTCO2e)
Measure Start Year
Zero Waste Policy
Implement policy to
achieve 95% diversion in
City operations by 2030.
3 2020
All Sectors: The Green Business Program
Goal: Help businesses conserve resources, prevent pollution, and
minimize waste
Existing and Continuing All-Sector Program
Green Business Program
The Green Business Program addresses all sectors: energy efficiency, water conservation,
transportation, and waste reduction and recycling. The Bay Area Green Business Program was
developed in 1997 by ABAG and Bay Area public agencies in collaboration with the United
States Environmental Protection Agency (US EPA), California EPA (CalEPA) Department of
Toxic Substances Control, and the business community and is offered throughout the Bay Area
and most of California. The Green Business Program is a partnership between the cities,
counties, environmental agencies, and utility companies to assist, recognize, and promote
businesses and government agencies that comply with all environmental regulations and take
actions beyond compliance to conserve resources, prevent pollution, and minimize waste. The
benefits of being a Green Business include: saving money and resources by reducing
consumption of energy and water; reducing the amount of garbage disposed; reducing impact
on climate change; improving employee morale and creating a healthy workplace; strengthening
the bottom line through operating efficiencies and innovations; and being recognized as an
environmental leader in one’s community.
The Green Business Program offers motivated businesses and agencies an easy-to-use
framework for improving environmental performance, and then verifies improved performance.
To be certified as a Green Business, participants must be in compliance with all State and local
regulations and meet program standards for conserving resources, preventing pollution, and
minimizing waste. This program touches on many sectors affecting GHG reductions and
therefore has its own section in this Plan.
City of Millbrae Climate Action Plan page 85
Millbrae participated in the County of San Mateo’s pilot Green Business Program before it
expanded to include all of the cities in the County. The program ran from 2007 until it
temporarily ended in 2011, resuming in 2013. The City and Library were initially certified as a
Green Business in 2008 and then recertified in 2013 and 2019. The City provided environmental
leadership by becoming a certified Green Business with the goal of encouraging the business
community to follow suit. In addition, Central County Fire Department Stations were certified in
2019. Other certified local Green Businesses include Grace Yoga, Paper Culture, Taste
Catering and Dela Rama Dental Care. The City will continue to promote the program to local
businesses.
Table 24 summarizes the estimated GHG reductions associated with the Green Business
Program.
Table 24: Existing Community Measures: Green Business Program
Measure Description
GHG Reduction
in 2030
(MTCO2e)
Bay Area Green
Business Program
Continue implementing this program that allows businesses
to brand themselves as green by following sustainable
practices.
110
City of Millbrae Climate Action Plan page 86
Summary of Measures
A summary of all the emission reduction measures is provided in Table 25.
Table 25: Summary of All Measures
Measure Description
GHG
Reduction
in 2030
(MTCO2e)
Cont. of
Current
Measure
?
Measure
Start Year
Commercial
Green Building
Ordinance
The City will continue to adopt the latest version of the
CALGreen Code for non-residential construction and will
consider implementing a reach code that achieves greater
energy efficiencies.
497 Yes NA
Residential
Green Building
Ordinance
The City will continue to adopt the latest version of the
CALGreen Code for residential construction and will
consider implementing a reach code that achieves greater
energy efficiencies.
146 Yes NA
Residential
Energy Retrofit
Incentives and
Rebates
Through marketing and outreach, City promotes
participation in residential energy efficiency programs,
including BayREN’s Home+ program, San Mateo County
Energy Watch and PG&E’s efficient appliance rebates. City
provides or encourages residential energy audits City will
encourage residential energy audits.
2,872 Yes NA
Commercial
Energy
Efficiency
Programs
Through marketing and outreach, City promotes
participation in commercial energy efficiency programs and
demand response programs offered by SMC Energy Watch
and PG&E – including PGE’s appliance rebates, 0%
energy efficiency financing and demand response
programs. City will encourage commercial energy audits.
1,657 Yes NA
Residential
Energy
Conservation
Program
Initially start a voluntary residential energy conservation
program, whereby the City would encourage minimum
energy efficiency and water efficiency standards at the time
of building sale. Transition to mandatory residential energy
conservation ordinance over time.
607 No
2020
(voluntary) /
2025
(mandatory)
Commercial
Energy
Conservation
Program
Initially start a voluntary commercial energy conservation
program, whereby the City would encourage minimum
energy efficiency and water efficiency standards at the time
of building sale. Transition to mandatory commercial
energy conservation ordinance over time.
458 No
2020
(voluntary) /
2025
(mandatory)
City of Millbrae Climate Action Plan page 87
Measure Description
GHG
Reduction
in 2030
(MTCO2e)
Cont. of
Current
Measure
?
Measure
Start Year
Free or
Subsidized
Shade Trees
Implement city program to reduce energy consumption
associated with cooling homes through the provision of free
or subsidized shade trees for buildings with eastern,
western or southern exposures.
23 No 2020
Electrical Panel
Upgrades in
Existing
Buildings
Leverage incentives provided by PCE to encourage
residents and offices to upgrade electric panels in order to
accommodate all-electric technologies including solar PV,
battery storage, air source heat pumps, heat pump water
heaters, electric dryers, electric stoves and electric
vehicles.
6,480 No 2020
Promote Solar
Installations
Continue to participate in bulk purchase program such as
the Peninsula SunShares Program. Promote the
installation of solar among residents and businesses in the
community.
1,527 Yes NA
Participate in
Community
Choice
Aggregation
Through Peninsula Clean Energy, the City will continue to
provide greener renewable electricity to citizens and
businesses.
7,320 Yes NA
New Non-
Residential
Buildings Solar
Requirement
Update building code to mandate that all commercial new
construction and major remodels install either a solar PV or
solar hot water system at time of construction.
616 No 2022
Pairing Battery
Storage with
Solar PV
Systems
Provide education and outreach on the benefits of pairing
battery storage with solar PV systems to stakeholders,
including businesses, residents and contractors.
872 No 2020
Energy Efficient
Street Lighting
Continue to replace street, signal, parks, and parking lot
lighting with efficient lighting. 64 Yes NA
Environmentally
Preferred
Purchasing
Policy - Energy
Continue to implement Administrative Standard Procedures
which includes a sustainable purchasing policy prioritizing
Energy Star equipment.
4 Yes NA
City of Millbrae Climate Action Plan page 88
Measure Description
GHG
Reduction
in 2030
(MTCO2e)
Cont. of
Current
Measure
?
Measure
Start Year
Participate in
Community
Choice
Aggregation:
Municipal
The City has elected and will continue to elect to “opt up” to
ECO100 (100% renewable) electricity service through
PCE.
142 Yes NA
Energy
Efficiency in
Municipal
Buildings
Continue to audit city facilities for energy efficiency
opportunities and implement energy efficient (EE) retrofits.
The City participates in San Mateo County Energy Watch
and leveraged benchmarking to identify opportunities for
EE upgrades and track energy performance. Leverage
other programs that provide funding.
273 Yes NA
Renewable
Energy
Installation for
Municipal
Properties
Evaluate installation of solar carport system at Millbrae City
Hall/Library parking lots. 68 No 2022
Municipal Green
Building Policy
The City will follow the CALGreen Code and consider
achieving LEED Silver or Gold status or equivalent. 5 35 No N/A
Water
Conservation
Incentives
Continue promoting existing and new rebates for water
efficient appliances and fixtures. 102 Yes NA
Water Efficient
Landscape
Ordinance and
CALGreen
Indoor Water
Efficiency
Requirements
Continue implementation of the State Model Water Efficient
Landscape Ordinance (MWELO) and CALGreen indoor
water efficiency requirements.
43 Yes NA
Residential
“Graywater
Ready” New
Construction
Encourage new construction projects to be built “graywater
ready” by educating applicants during the design phase of
projects.
11 No 2020
35 These projections assume that any new facilities are built to LEED Silver standards or equivalent.
City of Millbrae Climate Action Plan page 89
Measure Description
GHG
Reduction
in 2030
(MTCO2e)
Cont. of
Current
Measure
?
Measure
Start Year
Smart Growth
Development
Continue Smart Growth Policy that prioritizes infill, higher
density, transportation oriented, and mixed-use
development.
624 Yes NA
Walkable /
Bikeable Street
Landscape
Remake urban landscape to make walking and biking more
desirable such as bike lanes, bike parking, traffic calming,
beautification, etc.
873 Yes N/A
Safe Routes to
School
Continue to support the City's Safe Route to Schools
program by establishing bike trails and safe pedestrian
routes to local schools (infrastructure) and educate the
community about the program.
50 Yes N/A
Electric Vehicle
Education and
Outreach
Increase number of electric vehicles that are owned by
residents, commuters, and visitors to City through
education and outreach focused on the benefits of electric
vehicles.
5,555 Yes N/A
Local Farmers’
Market
Support the farmers’ market to encourage local shopping
for locally-grown food and reduce VMT associated with
acquiring produce.
6 Yes N/A
Bike Sharing Explore bike sharing program to have bikes located at the
BART Station, downtown and elsewhere. 118 No 2020
Car Sharing Encourage car sharing companies to open pods in town. 131 No 2020
Shuttle Program Increase shuttle service within city limits to connect areas
not covered by public transit. 249 No 2021
EV Charging
Infrastructure in
Existing
Buildings
Leverage incentives from PCE to expand charging
infrastructure in public properties, multi-unit dwellings, and
workplaces.
11,558 No 2020
EV Charging
Infrastructure in
New
Construction
Update the residential and commercial building code to
increase the mandated percentage of parking spaces
designed to accommodate electric vehicle charging
equipment and also increase the mandated percentage of
parking spaces devoted to clean air vehicles (EVs, PHEVs,
carpools).
878 No 2022
City of Millbrae Climate Action Plan page 90
Measure Description
GHG
Reduction
in 2030
(MTCO2e)
Cont. of
Current
Measure
?
Measure
Start Year
Shared Electric
Bikes and
Scooters
Modify existing City infrastructure to accommodate shared
electric bikes and scooters that provide last-mile solutions
to residents and commuters. Infrastructure enhancements
including dedicated off-street parking spaces and on-street
corrals to accommodate shared electric bike and scooter
parking and prevent conflicts with pedestrians.
830 No 2020
Electric
Transportation
Network
Company
(TNCs) Vehicles
Develop policies, such as a revenue neutral fee that only
applies to internal combustion engine TNCs, to encourage
the use of EV TNCs in the community. Utilize funds
generated by fees to provide discounts on EV TNC rides.
Provide designated drop-off locations and charging
locations for EV TNCs to facilitate EV adoption.
887 No 2021
Public Employee
Commuting
Program
Continue with the commute alternatives program to
promote and incentivize public transportation, carpooling,
biking, etc.
2 Yes NA
Clean Fleet
Policy
Prioritize purchase of battery electric, plug-in hybrid electric
and traditional hybrid vehicles. Maintain existing vehicles
for optimum mileage. Encourage staff to drive minimally
and efficiently. Expand on the idling policy.
42 No 2020
Landfill
Diversion Rate
Goal
Increase participation in recycling programs and weekly
collection of recyclables and organic waste to achieve 85%
diversion.
289 Yes NA
Sustainable
Food Service
Ware
City will consider amending its existing Sustainable Food
Service Ware ordinance to require that all food ware is
compostable and to reduce the use of other single-use
items in food services.
Supporting
Measure No 2020
Commercial
Organics
Recycling
Ordinance
AB 1826 requires all businesses and multi-family
complexes with more than five units to sort and recycle
organic material. Provide enforcement to ensure
compliance with ordinance.
Supporting
Measure Yes NA
Environmentally
Preferred
Purchasing
Policy - Waste
Reduction
Revise the Administrative Standard Procedures on Reuse
and Recycling to strengthen sustainable purchasing
procedures.
Supporting
Measure Yes NA
City of Millbrae Climate Action Plan page 91
Measure Description
GHG
Reduction
in 2030
(MTCO2e)
Cont. of
Current
Measure
?
Measure
Start Year
Sustainable
Vendor Policy at
Public Events
Continue to work with event organizers for recycling at
public events (of cardboard, paper, containers and
food/organics), and for use of compostable/recyclable food
service ware.
Supporting
Measure Yes N/A
Municipal Zero
Waste Policy
Implement policy to achieve 95% diversion in City
operations by 2030. 3 No 2020
Bay Area Green
Business
Program
Continue implementing this program that allows businesses
to brand themselves as green by following sustainable
practices.
110 Yes N/A
City of Millbrae Climate Action Plan page 92
Adaptation
Climate adaptation involves taking practical actions to manage risks from climate impacts,
protect communities, and strengthen the resilience of the economy. The climate is changing
rapidly. According to the World Meteorological Organization (WMO), in their 2010 news release
“2000-2009, The Warmest Decade”, the decade of the 2000s was warmer than the 1990s,
which was warmer than the 1980s. And according to WMO’s “The State of the Global Climate in
2018”, 2018 was the fourth warmest year on record, which means the four prior years, 2015,
2016, 2017, and 2018 taken together were the four warmest years on record.
In the past decade, the oceans absorbed around 25% of anthropogenic carbon dioxide
emissions, according to WMO. More than 90% of the energy trapped by greenhouse gases
goes into the oceans. This contributes to ocean acidification as absorbed carbon dioxide reacts
with seawater to change the pH of the ocean. Observations over the last 30 years have shown a
clear trend of decreasing oceanic pH, with potentially negative impacts to shell-forming marine
organisms.
Even if humans stopped emitting GHGs tomorrow, the climate would continue to change due to
the length of the carbon cycle, or the ability of the Earth to absorb the excess carbon in the
ocean and plants. Therefore, our community must plan for adaptation to climate change.
Adaptation planning may be most effective at the State and regional level, due to the scale of
resources needed to develop and implement a coordinated plan. The 2009 California Climate
Adaptation Strategy was developed to guide California’s efforts in adapting to climate change
impacts. The State is currently developing an Adaptation Planning Guide to provide a decision-
making framework to aid local and regional stakeholders in the interpretation of climate science
and considerations for reducing risks caused, or exacerbated, by climate change.
For more information on adaptation planning, see Appendix F. Adaptation Planning for Climate
Impacts.
City of Millbrae Climate Action Plan page 93
4 Implementation
The preceding chapters describe the principal sources of the City of Millbrae’s greenhouse gas
(GHG) emissions and outline related goals and measures for achieving the target of reducing
emissions to 32% below 2005 levels by 2025 and 49% below 2005 levels by 2030. This chapter
outlines the main components of how the measures were prioritized and the timeline for
implementation.
As evident from the comprehensive list of policies related to climate change in Section 1.4, the
City of Millbrae (City) has a long history of enacting programs to reduce emissions from both the
community and municipal operations. Although these GHG reduction policies and initiatives are
already in place and will continue, the additional actions proposed in this Climate Action Plan
(Plan), especially the state-wide and regional transportation measures, will be necessary to
achieve the emissions reduction target. Implementing this Plan and ensuring that it results in
real GHG emissions reductions will require increased coordination across sectors and
institutionalized climate protection efforts across the community.
There are a large number of measures and programs that the City has included in this Plan to
reduce GHG emissions and many of the measures and programs are currently in place or in
progress of being implemented. Of the 42 measures included in this plan, 18 are new programs
or policies.
Prioritizing Measures for Action
The measure prioritization framework was developed by the City/County Association of
Governments of San Mateo County (C/CAG) Regionally Integrated Climate Action Planning
Suite (RICAPS) program. The City of Millbrae utilized RICAPS to analyze existing measures
and select and prioritize new measures, as described below. All existing measures or those that
are in progress are assumed to continue and were not prioritized. The expanding and new
programs are in the short and medium-term implementation time period to achieve the
emissions reduction targets. There are no new measures to be implemented in the long-term
time period after 2025 to 2030; however, there are many existing and continuing measures. This
City of Millbrae Climate Action Plan page 94
Plan is a living document. As emerging technologies change in the coming years, additional
measures can be added to the Plan.
The 18 new measures were prioritized for implementation and evaluated based on the following
three categories of Key Performance Indicators (KPIs): Benefits, Costs, and Implementation and
Feasibility. The following is a summary of the three categories of KPIs that were analyzed:
Category 1: Benefits
KPIs:
o Annual GHG reduction in metric tons
o Annual resource savings
o Annual government dollar savings
o Annual business dollar savings
o Co-benefits (such as reduced air pollution, increased employee productivity,
increased energy independence, and increased transportation options)
Category 2: Costs
KPIs:
o Government capital costs
o Additional government operating costs
o Staff time
o Residential costs
o Business costs
o Length of payback period
Category 3: Implementation and Feasibility
KPIs:
o Length of measure implementation
o Probability of community support or opposition
o Requirements for new codes or ordinances
o Synergies with existing initiatives and partnerships
o Availability of outside funding
City of Millbrae Climate Action Plan page 95
Meeting the Emissions Targets
In summary, the measures described in this Plan, combined with state-wide legislation and
initiatives and countywide transportation programs, will enable the City to meet its emissions
reduction target of 49% below 2005 levels by 2030 and the interim target of 32% below 2005
levels by 2025. Table 26 shows the contribution of the state-wide initiatives along with the
community and municipal operations Climate Action Plan measures. As described in Section
2.3, the City needs to achieve a 92,025 MTCO2e of GHG emissions reduction by 2030 to meets
its goal. The total estimated GHG reductions accounted for in this Plan total 92,270 MTCO2e by
2030 (49.2% below 2005 levels), as shown in Table 26.
Table 26: Meeting the 2030 Target
State Initiative Sector
2030 Reduction in
City’s Emissions
(MTCO2e)
Advanced Clean Cars Program On-road Transportation 27,207
Low Carbon Fuel Standard Off-road Transportation 1,223
Caltrain Electrification Trains 1,045
Renewable Portfolio Standard All Electricity 5,360
100% ZNE New Residential (2020) Residential Energy 1,279
50% ZNE Existing Commercial (2030) Commercial Energy 8,157
Organic Waste Diversion SB 1383 Disposed Waste 2,007
A. Total State-wide Initiative Emissions Reductions 46,277
B. Total City Climate Action Plan Reductions 45,992
C. Total Expected Emissions Reductions (A+B) 92,270
D. City of Millbrae Emissions Reduction Requirement 92,025
E. Meets/exceeds State goals? (C > D) Yes
Management of GHG Reduction Strategy
Support will be needed to direct the implementation of this Plan’s measures. The City currently
has one fulltime staff person that implements the City’s Environmental Programs. A number of
the measures are existing and continuing programs and some of involve staff from various
departments. Additional staffing would be desirable in order to implement the measures. This
section details how the City will organize itself to put this Plan into action.
Assign responsibility for implementation to the appropriate City staff: Responsibilities will
be assigned to the appropriate department and staff for each measure that is implemented. The
Energy and Transportation measures will involve the Public Works and Community
Development Departments. The Solid Waste measures will involve Public Works/Environmental
City of Millbrae Climate Action Plan page 96
Programs. The Green Business Program will be primarily implemented by Environmental
Programs staff. The Environmental Programs staff will coordinate outreach to appropriate City
staff to review the elements of this Plan and outline which measures are in their department or
division.
Conduct regular outreach to the public: Efforts will continue to conduct public education
activities, such as facilitated public meetings and workshops on local and regional programs.
These outreach events will engage the public in actively helping the City achieve the emissions
reduction goals. Outreach will also be conducted on reducing energy use and related incentive
programs. Other education activities may include developing literature, such as carbon footprint
calculators, to promote programs associated with the Plan’s implementation.
Maintain and add associations and partnerships: Partnerships will assist the City in
developing programs and policies and in attaining funding for activities that will result in GHG
emissions reductions.
Public Participation and Community Engagement
The City can play a substantial role in generating awareness and educating residents about
ways to reduce emissions. While the City can help initiate a movement that emphasizes
sustainable practices, it is crucial that other members of the community, such as residents and
businesses, are engaged in the process in order to achieve the reduction targets of this Plan
while minimizing costs. The targets will only be achieved by building a movement with sustained
action and coordination across all stakeholders and sectors.
As mentioned previously, there are significant opportunities for the City to leverage existing
programs funded by the State of California, County of San Mateo, C/CAG, Peninsula Clean
Energy (PCE), the Pacific Gas and Electric Company (PG&E), and others to support community
efforts to improve energy efficiency, install renewable energy technologies, facilitate alternative
transportation initiatives, and support households and businesses in taking other actions.
The City will continue to conduct a variety of outreach on all of its climate-related programs,
including wide distribution of information on incentive programs and specific actions that can be
taken by residents and businesses. The types of outreach the City will continue to implement
include: posting information and opportunities on the City’s website, social media, and the local
cable station; installing educational displays at City Hall and the Millbrae Library; conducting
classroom presentations; sending out press releases to newspapers; distributing program
brochures at key locations, including City Hall, the Library, and the Millbrae Community Center;
staffing public events; and holding workshops. The City will expand its efforts to reach more of
the community, both residents and businesses, engaging them in the identified programs in this
Plan.
City of Millbrae Climate Action Plan page 97
Specific actions that community members can take today are included in Appendix D: 10 Steps
to Reduce Your Carbon Footprint. Funding opportunities are listed in Appendix E. Summary of
Funding Sources.
Timeline
An implementation timeline with associated measures will be developed after adoption of this
Climate Action Plan.
City of Millbrae Climate Action Plan page 98
5 Monitoring and Improvement
Monitoring progress is a critical component to ensure that the emissions targets are met. Should
monitoring efforts find that the Climate Action Plan is falling short of its goals, the City will add
additional voluntary and mandatory measures to the Plan in order to meet the GHG emissions
reduction targets. Ongoing monitoring is critical in order to demonstrate that the Plan is
achieving its goals, thereby maintaining its status as a GHG Reduction Strategy over time. The
implementation and monitoring of the Plan will be critical to the ability of subsequent projects to
tier their GHG analysis under the California Environmental Quality Act (CEQA).
The following describes the monitoring and improvement plan:
The Environmental Programs staff will develop a report every one to two years to
summarize the results of the implementation progress for the Climate Action Plan
measures.
A full GHG inventory will be conducted every five years according to the ICLEI – Local
Governments for Sustainability community emissions protocol, or more often if
assistance from RICAPS is available. The inventory will allow the City to understand how
emissions levels are tracking in a top-down manner. PG&E can provide annual updates
on electricity and natural gas usage to track associated GHG emissions.
This Plan may need to be updated based on the results of the GHG inventories. The City
may modify and/or add new measures to ensure that the City is on track to meeting its
GHG emissions reduction goals.
City of Millbrae Climate Action Plan page 99
6 Conclusion
While the challenge of climate change is
unprecedented, local-level solutions can reduce
emissions, improve energy efficiency, promote
economic development, and improve the quality of life
for the community, both residents and businesses.
The City of Millbrae has taken a significant step toward
a more sustainable future with this Climate Action Plan.
The Plan has identified areas and opportunities to
reduce GHG emissions through the community and
municipal operations, along with state-wide and county-
wide efforts, to ultimately achieve its environmental
goals and GHG emissions reduction targets. The City is
poised to reap the benefits of a clean energy economy,
with policies that can increase the demand for local
green jobs.
These are difficult issues that will take a unified
approach working with the State of California, County of
San Mateo, and local citizens and businesses to
achieve the GHG emissions reduction goals. There is a
lot that one person can do individually, and Appendix D:
10 Steps to Reduce Your Carbon Footprint of this Plan
provides 10 ways individuals can reduce their GHG
footprint and help safeguard the environment for future
generations.
While creation of this Plan is an important first step, the
Plan will remain a living document, to be updated as
technology and policies progress, and to support the
City’s efforts to manage GHG emissions for a
sustainable future for all.
City of Millbrae Climate Action Plan page 100
7 Appendices
Appendix A. Glossary of Terms
AB 32 The California Global Warming Solutions Act of 2006
ARB California Air Resources Board
BAAQMD Bay Area Air Quality Management District
C/CAG City/County Association of Governments of San Mateo County
CAP climate action plan
CAPPA Climate and Air Pollution Planning Assistant
CEC California Energy Commission
CEQA California Environmental Quality Act
CO2 carbon dioxide
CO2e carbon dioxide equivalent
CPUC California Public Utilities Commission
EIR environmental impact review
EV electric vehicle
GHG greenhouse gas
ICLEI ICLEI – Local Governments for Sustainability
kWh kilowatt hour
MFD multifamily dwelling
MPO metropolitan planning organization
MT metric ton
PACE property-assessed clean energy
PCE Peninsula Clean Energy
PG&E Pacific Gas and Electric Company
ppm parts per million
PV photovoltaic
RPS renewable portfolio standard
US EPA United States Environmental Protection Agency
TOD transit-oriented development
VMT vehicle miles traveled
City of Millbrae Climate Action Plan page 101
Appendix B. State Policy and Regulatory Context
The State of California (State) has been a leader in developing and implementing policies and
regulations to directly address the risk of severe climate change. Below is a summary of key
state-wide legislation aimed to reduce greenhouse gas (GHG) emissions. There are many
supporting pieces of legislation and other related initiatives that are sector specific. These are
more fully described in Chapter 3.
Assembly Bill 32, the California Global Warming Solutions Act of 2006
In September 2006, the California legislature passed Assembly Bill (AB) 32, which set the goal
of reducing GHG emissions back to 1990 levels by 2020. AB 32 finds and declares that “global
warming poses a serious threat to economic well-being, public health, natural resources and the
environment of California.” The legislation granted authority to the California Air Resources
Board (ARB) to establish multiple mechanisms (regulatory, reporting, voluntary and market) to
achieve quantifiable reductions in GHG emissions to meet the state-wide goal.
Senate Bill 32, the California Global Warming Solutions Act of 2006 Emissions Limit
In September 2016, the California legislature approved Senate Bill (SB) 32, which extends the
State’s targets for reducing greenhouse gases from 2020 to 2030. Under SB 32, the State will
reduce GHG emissions 40% below 1990 levels by 2030. The bill piggybacks on AB 32, the
California Global Warming Solutions Act of 2006, which calls for California to reduce
greenhouse gas emissions to 1990 levels by 2020. Governor Jerry Brown set the targets
contained in SB 32 in an executive order in 2015. SB 32 codifies the targets set by the
executive order.
Assembly Bill 197, State Air Resources Board Greenhouse Gases Regulations
In September 2016, the California State Legislature approved AB 197, a bill linked to SB 32,
which increases legislative oversight over the California Air Resources Board and directs the
California Air Resources Board to prioritize disadvantaged communities in its climate change
regulations, and to evaluate the cost-effectiveness of measures it considers. AB 197 requires
the ARB to "protect the State's most impacted and disadvantaged communities [and] consider
the social costs of the emissions of greenhouse gases" when developing climate change
programs. The bill also adds two new legislatively appointed non-voting members to the ARB,
increasing the Legislature's role in the ARB's decisions.
Senate Bill 350, Clean Energy and Pollution Reduction Act of 2015
In October 2015, SB 350 was signed into law, establishing new clean energy, clean air, and
GHG reduction goals for 2030 and beyond. SB 350 codifies Governor Jerry Brown’s aggressive
clean energy goals and establishes California’s 2030 GHG reduction target of 40% below 1990
levels. To achieve this goal, SB 350 increases California’s renewable electricity procurement
City of Millbrae Climate Action Plan page 102
goal from 33% by 2020 (legislation originally enacted in 2002) to 50% by 2030. Renewable
resources include wind, solar, geothermal, wave, and small hydroelectric power. In addition, SB
350 requires the State to double state-wide energy efficiency savings in electricity and natural
gas end uses by 2030 from a base year of 2015.
Senate Bill 100, The 100% Clean Energy Act of 2018
In September 2018, Governor Brown signed SB 100, requiring the State’s load serving entities
(including energy utilities and community choice energy programs) to procure energy generated
100% from renewable resources by 2045. At the same time, Governor Brown also signed
Executive Order B-55-18, requiring California to achieve carbon neutrality as soon as possible,
and no later than 2045, and to maintain negative emissions thereafter.
California Energy Efficiency Strategic Plan of 2008
In September 2008, the California Public Utilities Commission (CPUC) adopted California’s first
Long Term Energy Efficiency Strategic Plan, presenting a single roadmap to achieve maximum
energy savings across all major groups and sectors in California. The Strategic Plan was
subsequently updated in January 2011 to include a lighting chapter. The Strategic Plan sets
goals of all new residential construction and all new commercial construction in California to be
zero net energy (ZNE) by 2020 and 2030, respectively. In 2018, the California Energy
Commission voted to adopt a policy requiring all new homes in California to incorporate rooftop
solar. This change will go into effect in January 2020 with the adoption of the 2019 Title 24
Code and is a step towards the State achieving its goal of all residential new construction being
ZNE by 2020. Additionally, the Strategic Plan sets goals of 50% of existing commercial building
to be retrofit to ZNE by 2030 and all new State buildings and major renovations to be ZNE by
2025.
Senate Bill 1275, Charge Ahead Initiative
In September 2014, Senate Bill 1275 was signed into law, establishing a State goal of one
million zero-emissions and near-zero-emissions vehicles in service by 2020 and directing the Air
Resources Board to develop a long-term funding plan to meet this goal. SB 1275 also
established the Charge Ahead California Initiative requiring planning and reporting on vehicle
incentive programs and increasing access to and benefits from zero-emissions vehicles for
disadvantaged, low-income, and moderate-income communities and consumers.
Assembly Bill 1493, the Pavley Bill
In 2002, the California State Legislature enacted Assembly Bill 1493 (aka “the Pavley Bill”),
which directs the Air Resources Board to adopt standards that will achieve "the maximum
feasible and cost-effective reduction of greenhouse gas emissions from motor vehicles," taking
into account environmental, social, technological, and economic factors. In September 2009, the
ARB adopted amendments to the “Pavley” regulations to reduce GHG emissions in new
passenger vehicles from 2009 through 2016. The Pavley Bill is considered to be the national
City of Millbrae Climate Action Plan page 103
model for vehicle emissions standards. In January of 2012, the ARB approved a new emissions-
control program for vehicle model years 2017 through 2025. The program combines the control
of smog, soot, and greenhouse gases and the requirement for greater numbers of zero-
emission vehicles into a single package of standards called Advanced Clean Cars.
Assembly Bill 117, Community Choice Aggregation
Assembly Bill 117 establishes the creation of Community Choice Aggregation (CCA) that fosters
clean and renewable energy markets. CCA allows cities and counties to aggregate the buying
power of individual jurisdictions. The California CCA markets were created as an answer to the
brownouts and energy shortages of the early 2000’s. AB 117 was passed in 2002 as an answer
to California’s increased energy independency by incorporating more alternative and renewable
energy sources into its energy portfolio. With AB 117, municipalities can provide alternative
energy choices to their local carrier (e.g. the Pacific Gas and Electric Company, PG&E). Marin
Clean Energy was the first CCA in the State of California to go online with a 50% to 100% clean
energy portfolio in 2010. Peninsula Clean Energy (PCE) was created in February 2016 when all
20 towns/cities in San Mateo County, plus the County of San Mateo, voted unanimously to form
a Joint Powers Authority to administer the program. PCE is a public, locally-controlled electricity
provider that gives PG&E customers in San Mateo County the choice of having 50% to 100% of
their electricity supplied from clean, renewable sources at competitive rates. CCAs are
governed by the California Public Utilities Commission (CPUC). SB 790 further ensures fair and
transparent competition by creating a code of conduct and guiding principles for entrants into
the CCA field.
Senate Bill 375, GHG Reduction
In September 2008, Senate Bill 375 was signed into law to provide emissions reduction goals
related to vehicle miles traveled on a regional planning level. The bill seeks to align regional
transportation planning efforts with regional GHG emissions reduction targets and land use and
housing allocations. SB 375 requires metropolitan planning organizations (MPOs) to adopt a
sustainable communities strategy or alternative planning strategy. The California Air Resources
Board, in consultation with the MPOs, set a per capita GHG emissions reduction target for
passenger cars and light trucks in the San Francisco Bay Area of 7% below 2005 levels by
2020, and 15% below 2005 levels by 2035.
Senate Bill 97, CEQA Guidelines for Addressing GHG Emissions
The California Environmental Quality Act (CEQA) requires public agencies to review the
environmental impacts of proposed projects, including General Plans, Specific Plans, and
specific kinds of development projects. In February 2010, the California Office of Administrative
Law approved the recommended amendments to the State CEQA Guidelines for addressing
GHG emissions. The amendments were developed to provide guidance to public agencies
regarding the analysis, mitigation, and effects of GHG emissions in draft CEQA documents.
City of Millbrae Climate Action Plan page 104
Bay Area Air Quality Management District CEQA Guidelines
The Bay Area Air Quality Management District (BAAQMD) encourages local governments to
adopt a GHG Reduction Strategy that is consistent with AB 32 goals. The GHG Reduction
Strategy may streamline environmental review of community development projects. According
to the BAAQMD, if a project is consistent with a GHG Reduction Strategy, then it can be
presumed that the project will not have significant GHG impacts. This approach is consistent
with the following State CEQA Guidelines, Section 15183.5.a:
“Lead agencies may analyze and mitigate the significant impacts of greenhouse gas
emissions at a programmatic level, such as…a plan to reduce greenhouse gas
emissions. Later project-specific environmental documents may tier from and/or
incorporate by reference that existing programmatic review. Project-specific
environmental documents may rely on an [Environmental Impact Report] containing a
programmatic analysis of greenhouse gas emissions.”
This Plan provides a foundation for future development efforts in the City of Millbrae. It is
expected that environmental documents for future development projects will identify and
incorporate all applicable voluntary and mandatory measures from this Plan for projects
undergoing CEQA review.
City of Millbrae Climate Action Plan page 105
Appendix C. Regional Efforts
The following are current regional efforts promoting greenhouse gas (GHG) reductions.
City/County Association of Governments of San Mateo County (C/CAG). C/CAG is a
council of governments consisting of the County of San Mateo (County) and its 20 cities. The
organization deals with topics such as transportation, air quality, stormwater runoff, hazardous
waste, solid waste and recycling, climate change, land use near airports, abandoned vehicle
abatement, and issues that affect quality of life in general. C/CAG supports a number of
sustainability initiatives including the following:
San Mateo County Energy Watch. This program is a local government partnership
between the Pacific Gas and Electric Company (PG&E) and C/CAG to promote energy
efficiency in schools, municipalities, businesses, and non-profit organizations. The
program is managed and staffed by the County of San Mateo Office of Sustainability.
Climate Ready San Mateo County. This program out of the County Office of
Sustainability is helping better prepare the County in the face of a changing climate. The
initiative brings together non-profit and community-based organizations, local
government, businesses, and other key partners to foster information sharing, expand
our community’s understanding of climate-related risks, and collectively find solutions to
make San Mateo County climate ready.
Congestion Management Agency. C/CAG serves as the Congestion Management
Agency for San Mateo County, identifying strategies in response to future transportation
needs, developing procedures to alleviate and control congestion, and promoting
countywide solutions.
Sustainable Communities Strategy/Regional Transportation Plan. C/CAG is
collaborating with local governments in San Mateo County as well as regional agencies
to develop a Sustainable Communities Strategy (SCS) in compliance with the
requirements of Senate Bill 375. The SCS will facilitate more focused development in
priority development areas near public transit stations. The aim of the San Mateo County
SCS is to better integrate land use with public transportation in order to reduce GHG
emissions.
Bay Area Regional Energy Network (BayREN). BayREN is a collaboration of the nine Bay
Area counties led by the Association of Bay Area Governments (ABAG). The BayREN Home+
Program offers cash rebates for energy efficiency home improvements for single family homes,
along with certified contractors and support through the process. BayREN also has energy
efficiency programs for multi-family buildings and businesses.
City of Millbrae Climate Action Plan page 106
Peninsula Clean Energy (PCE). PCE, the County’s official electricity provider, was created in
February 2016 when all 20 towns/cities in San Mateo County, plus the County of San Mateo,
voted unanimously to form a Joint Powers Authority to administer the program. PCE is a public,
locally-controlled electricity provider that gives PG&E customers in San Mateo County the
choice of having 50% to 100% of their electricity supplied from clean, renewable sources at
competitive rates. CCAs are governed by the California Public Utilities Commission (CPUC).
Millbrae is a part of PCE and has opted for the ECO100 option (100% renewable option) for all
City-owned accounts.
Joint Venture: Silicon Valley Network. Established in 1993, Joint Venture: Silicon Valley
Network provides analysis and action on issues affecting the local economy and quality of life.
The organization brings together established and emerging leaders from business, government,
academia, labor, and the broader community to spotlight issues and work toward innovative
solutions. Joint Venture is dedicated to promoting climate-friendly activities that help the local
economy and improve the quality of life in Silicon Valley.
PG&E’s Resources. PG&E offers municipal governments access to standardized information
on community energy use. Community Inventory Reports provide community energy use details
and can assist with sustainability planning and GHG inventories.
Sustainable San Mateo County (SSMC). SSMC was established in 1992 by a group of San
Mateo County citizens who sought to create a broader awareness of the sustainability concept.
SSMC supports multiple programs to promote energy efficiency, alternative transportation, and
education on sustainability concepts that focus on the intersections of the environment, the
economy, and social equity. SSMC’s core programs include an Indicators Report, produced
annually since 1997, and the Sustainable San Mateo County Sustainability Awards Program,
held annually since 1999.
Sustainable Silicon Valley (SSV). SSV is a collaboration of businesses, governments, and non-
governmental organizations that are identifying and addressing environmental and resource
pressures in Silicon Valley. As its first initiative, SSV engages Silicon Valley organizations to work
towards a goal of reducing regional carbon dioxide emissions 20% below 1990 levels by 2010.
SSV’s Net Positive Bay Area 2050 goals are to 1) produce more renewable energy than we
consume, 2) sequester more carbon than we emit, and 3) optimize water resources to ensure
water resilience. Their current strategy focuses on facilitating measure projects, education, events
and polices that deliver solutions by activating SSV’s member network to reach the Net Positive
Bay Area goals.
City of Millbrae Climate Action Plan page 107
Appendix D: 10 Steps to Reduce Your Carbon
Footprint
Modified from coolclimate.org
1. Change Your Commute
Did you know that one third of the carbon dioxide (CO2) produced in the U.S. is from the
transportation of people or goods? Pick one day a week to walk, bike, take public
transportation, or carpool to work or when you run errands. Learn of the many programs
and resources offered at commute.org. Silicon Valley Bicycle Coalition
(bikesiliconvalley.org) has great resources and can help plan your bike commute.
Another resource for planning trips via public transportation is 511.org. If possible, live
close to your workplace and talk to your employer about working from home or
subsidizing the costs of public transportation. When driving, remember to combine
several car trips into one trip and avoid idling. Additionally, you can get better fuel
efficiency by following the speed limit. Exceeding the speed limit by just 5 mph during
highway travel results in an average fuel economy loss of 6%.
2. Be a Better Consumer
Did you know that the average American generates about 4.4 pounds of trash each day?
To reduce the amount of trash you generate, follow these easy steps. Use reusable
coffee mugs, water bottles, and shopping bags. If you forget your mug or bag at the
store, buy a new reusable mug or bag and keep the extra one in your purse or car for
the next time you are out. Alternatively, set aside $1 each time you forget your mug or
bag; depending on your memory, you will save enough funds to purchase a reusable
item sooner or later. Also, reuse as many things as possible and recycle at home, work,
and school.
3. Grow & Shop Local
The shorter the distance your food travels to
your plate or a product travels to your home, the
fewer greenhouse gases produced. Declare one
day a week to be a "buy local day" and eat
foods produced within 50 miles of your house.
Participate in community-supported agriculture
and community-supported fishery programs and
shop at farmer’s markets.
Buy certified organic foods. Also buy produce
and fish labeled “As Fresh As It Gets,” signifying that it was grown or harvested in San
City of Millbrae Climate Action Plan page 108
Mateo County. Support restaurants and businesses accredited by the “As Fresh As It
Gets” campaign, signifying that they use county-grown produce, fish, and other products.
For a list of in-season produce and fish, farmer’s market locations, and accredited
businesses and restaurants, visit freshasitgets.com. Better yet, grow your own food at
home or buy a plot at the City’s community garden.
4. Dry Up Household Water Consumption
Did you know that water-related energy use consumes 19% of California's electricity,
30% of its natural gas, and 88 billion gallons of diesel fuel every year? To reduce your
water consumption at home, turn off your water when it's not being used, take shorter
showers, stop unseen leaks by reading your meter, install low-flow shower heads* and
aerators* on your faucets, install and use water-efficient landscaping and irrigation
methods (for example, plant native and drought tolerant plants and/or install permeable
surfaces and drip irrigation systems), and use EnergyStar appliances. Learn more about
water-wise gardening at bayareagardening.org and throug h the Bay-Friendly Gardening
Program (stopwaste.org/preventing-waste/residents/gardening) which provides
resources for selecting plants, conserving water, and fostering soil health. Also attend
City-sponsored workshops and pick up free water saving devices at City Hall.*
5. Unplug It
Did you know that appliances, chargers, home theater equipment, stereos, and
televisions use electricity even when their power is off? Eliminating this "leaking"
electricity could save you 6-26% on your average monthly electricity bill. Take a walking
tour of your home, unplug seldom-used appliances, and install power strips so that the
power to frequently used items can be easily turned off.
6. Change the Lights
Replace any incandescent light bulbs that remain in your home with light emitting diodes
(LEDs) or compact fluorescent lights (CFLs). CFLs contain hazardous mercury— be
sure to recycle them properly as hazardous waste. LEDs do not contain mercury. LEDs
also save 30-50% more electricity and can last 5 times longer than CFLs. Replacing
one incandescent light bulb with a CFL can save $30 or more in electricity costs over the
bulb’s lifespan.
7. Set your Thermostat for the Season
Set your thermostat in winter to 68°F or less during the daytime, and 55°F before going
to sleep, or when you are away for the day, to save 5–20% of your space-heating costs.
During the summer, set thermostats to 78°F degrees or more to save 5–20% of your
cooling costs. For an easy fix, purchase an inexpensive programmable thermostat that
makes these changes for you.
City of Millbrae Climate Action Plan page 109
8. Increase Energy Efficiency at Home
Did you know that you can save up to 350 pounds of CO2 and $150 per year at home by
simply keeping air filters clean? To determine more ways to increase energy efficiency,
take advantage of the resources offered through San Mateo County Energy Watch and
the Bay Area Regional Energy Network (BayREN). When you are ready to purchase an
appliance, purchase an EnergyStar appliance. To reduce carbon emissions associated
with energy use, install or purchase alternative energy for your electricity needs. Also,
opt for the ECO100 renewable energy option at Peninsula Clean Energy, Millbrae’s
electricity provider, at peninsulacleanenergy.com.
9. Stop Unwanted Services
Did you know that junk mail production in the U.S. consumes as much energy as 2.8
million cars? In order to substantially reduce your junk mail, you need to reduce access
to your name and address so that it won't be traded, rented, or sold to companies who
send you unwanted mail. To be removed from mailing lists, catalogs, telemarketing calls,
go to bayarearecycling.org/stop-junk-mail.
10. Eat Less Meat
Nitrous oxide (N20), 300 times more potent than CO2, is generated from meat, egg, and
dairy production. Globally, meat production contributes almost a fifth of total greenhouse
gas emissions. This includes methane (CH4) emissions from the animals themselves
and deforestation to create new pastureland. Eating less meat is an easy way to reduce
your carbon footprint. Try picking one day a week to go meatless. One less beef meal
each week saves 300 pounds of CO2 a year and a vegan diet (no meat, eggs or dairy)
saves 3,000 pounds of CH4 a year. Even eating chicken instead of beef or pork can
greatly reduce your footprint. On a per calorie basis, chicken production results in less
than 5% of the greenhouse gas emissions of beef.
Go the extra step and encourage your friends and family to reduce their carbon footprint!
Resources:
• Cool California carbon calculator and resources for households, small businesses, local
governments, and schools:
o coolcalifornia.org/small-business
o coolcalifornia.org/household
o coolcalifornia.org/schools
• Drive Clean Buying Guide: www.driveclean.ca.gov
• Plug-In Electric Vehicle Guide: driveclean.arb.ca.gov/pev
• Bay Area Regional Network (BayREN): bayren.org
• Learn more about the City of Millbrae’s environmental programs and opportunities at
ci.millbrae.ca.us/sustainablemillbrae.
City of Millbrae Climate Action Plan page 110
Appendix E. Summary of Funding Sources
For implementation of the Climate Action Plan (Plan), the City of Millbrae (City) must evaluate
strategies for financing climate protection actions and provide adequate, reliable, and consistent
long-term program funding. This appendix provides an overview of available funding sources to
help determine appropriate potential program funding sources and funding levels to support
existing and new programs outlined in this Plan. Other funding sources may be available that
are not listed here.
Federal Funding
Federal Transportation Investment Generating Economic Recovery (TIGER) Grant
https://www.transportation.gov/tiger
https://ops.fhwa.dot.gov/Freight/infrastructure/tiger/
The Better Utilizing Investments to Leverage Development (BUILD) Transportation
Discretionary Grant Program, (previously known as the Transportation Investment Generating
Economic Recovery (TIGER) Discretionary Grants program), was first created by the American
Investment and Recovery Act (ARRA) of 2009. Cities can apply for a BUILD grant to fund road,
rail, transit and port projects that will have a significant impact on their local or regional
communities.
State Funding
Energy Conservation Assistance Act (ECAA) Program Loans
http://www.energy.ca.gov/efficiency/financing/index.html
Since 1979, more than $399 million has been allocated to more than 850 recipients through
ECAA Program Loans. The program offers loans with a 1% interest rate to finance energy
efficiency improvements. The maximum loan amount is $3 million per application. Eligible
projects include lighting system upgrades, pumps and motors, streetlights and LED traffic
signals, energy management systems and equipment controls, building insulation, energy
generating including renewable and combined heat and power projects, HVAC equipment,
water and wastewater treatment equipment and load shifting projects.
Energy Upgrade CaliforniaTM
https://energyupgradeca.org
The Energy Upgrade California program helps residential and commercial consumers and the
building industry to access available rebate programs and financing options for energy efficiency
and renewable energy projects. It is supported by an alliance of the California Public Utilities
City of Millbrae Climate Action Plan page 111
Commission (CPUC), the California Energy Commission, utilities, regional energy networks,
local governments, businesses, and non-profit organizations. Funding comes from investor-
owned utility customers under the auspices of the CPUC.
Utility Rebate Programs
The Pacific Gas and Electric Company (PG&E) offers a full suite of energy efficiency rebate
programs to support its customers in saving energy and money.
• Rebates for households: https://www.pge.com/en_US/residential/save-energy-
money/savings-solutions-and-rebates/rebates-by-product/rebates-by-product.page?
• Rebates for small and medium businesses: https://www.pge.com/en_US/small-medium-
business/save-energy-and-money/rebates-and-incentives/product-rebates.page
• Rebates for large businesses: https://www.pge.com/en_US/large-business/save-energy-
and-money/business-solutions-and-rebates/product-rebates.page
Below are some of the PG&E programs.
PG&E Marketplace
https://marketplace.pge.com/
Search this website to find the most energy efficient products on the market.
San Mateo County Energy Watch Program
http://www.smcenergywatch.org
The San Mateo County Energy Watch (SMCEW) Program is a local government partnership
between PG&E and the City/County Association of Governments of San Mateo County
(C/CAG), and is administered by San Mateo County’s Office of Sustainability. SMCEW partners
with the non-profit, Ecology Action, to provide no-cost technical services to eligible San Mateo
County local governments, schools, non-profits, and businesses. SMCEW provides
coordination, outreach, and educational resources to help guide community members through
the implementation process.
PG&E Residential Appliance Rebates
https://www.pge.com/en_US/residential/save-energy-money/savings-solutions-and-
rebates/rebates-by-product/rebates-by-product.page?
PG&E offers rebates to customers who purchase qualifying energy efficient appliances,
including clothes washers, gas storage water heaters, electric heat pump water heaters, and
variable speed pool pumps/motors.
City of Millbrae Climate Action Plan page 112
PG&E Commercial Appliance Rebates
https://www.pge.com/en_US/small-medium-business/save-energy-and-money/rebates-and-
incentives/product-rebates.page
PG&E offers rebates to business customers on hundreds of products including refrigeration
units, lighting fixtures, heating systems, food service appliances, boilers and water heaters, and
insulation. More information and a complete list of products eligible for rebates is available at
the link above.
PG&E Home Energy Efficiency Improvements Rebates
https://www.pge.com/en_US/residential/save-energy-money/savings-solutions-and-
rebates/rebates-by-product/rebates-by-product.page
PG&E offers rebates to customers who make energy efficiency improvements when remodeling
their homes. Currently PG&E offers a rebate of up to $0.20 per square foot for cool roof
installations and $0.15 per square foot of attic and wall installations. Additionally, PG&E has
rebates for homeowners who upgrade their home’s heating and cooling systems. Rebates are
available for installing energy efficient furnaces (up to $300), air conditioning units (up to $50),
and whole house fans (up to $100). Finally, PG&E will provide up to $400 in rebates to
customers who test and seal their home’s duct system.
Local Energy Programs Available to Residents and Businesses
California Youth Energy Services
https://risingsunopp.org/
While this service is not currently available in Millbrae, it is a program that could be utilized by
the City or businesses in the future. Since 2000, Rising Sun Center for Opportunity has run
California Youth Energy Services (CYES), a summer youth employment and community
efficiency retrofit program in the Bay Area. CYES hires young people (ages 15-22) and trains
them to become Energy Specialists, serving their communities with a Free Green House Call.
Energy Specialists install free energy and water saving devices and provide personalized
recommendations and education for further savings in homes. CYES provides services to all
community members regardless of income. However, it was designed to serve hard-to-reach
residents including renters, non-English speaking households, and low-moderate income
households. This program provides youth with opportunities for training and meaningful
employment, which are often not adequately available to them. CYES youth receive
employability skills training, paid summer employment, and the foundation for a green career.
City of Millbrae Climate Action Plan page 113
Other Funding Opportunities
American Forests Program
https://www.americanforests.org/priorities/climate/
American Forests is a non-profit organization founded in 1875 that promotes forest
conservation. American Forests is committed to building vibrant cities through urban forests
and greenspace.
California ReLeaf Urban Forestry Grant Program
http://californiareleaf.org/programs/grants
The California ReLeaf Urban Forestry grant program provides funding to assist non-profit and
community-based groups throughout California with urban forestry projects. The program is
funded through a contract with the California Department of Forestry and Fire Protection (CAL
FIRE).
Large Landscape Water Audits
http://bawsca.org/conserve/programs/audits
As a member of the Bay Area W ater Supply and Conservation Agency (BAWSCA), the City
participates in the large landscape water budget program. This program includes monthly
distribution of landscape water budgets for select large irrigation accounts. A key component of
the program is ongoing monitoring/tracking of actual water use and estimated water savings for
the sites surveyed. If you have water conservation related questions, please call the City’s
Water Resources & Conservation Program at 650- 259-2348 or visit
www.ci.millbrae.ca.us/waterconservation.
Waste Audits
http://www.ssfscavenger.com
http://www.ci.millbrae.ca.us/recycling
The South San Francisco Scavenger Company offers a free waste audit for its business
customers, and will visit one’s facility to advise on the recommended size and type of bins for
the business and make other recommendations to reduce waste generated. To make an
appointment, call (650) 589-4020. The City’s Recycling & Waste Prevention Program also
provides services to businesses to reduce waste. Learn more at the links included above.
City of Millbrae Climate Action Plan page 114
Appendix F. Adaptation Planning for Climate Impacts
Effective adaptation planning and management entails dealing with uncertainty. Climate
adaptation involves taking practical actions to manage risks from climate impacts, protect
communities, and strengthen the resilience of the economy. It is a long-term process that should
allow immediate action when necessary and adjust to changing conditions and new knowledge.
The City of Millbrae (City) plans to initiate an inclusive planning process that ensures the
resulting actions are feasible and widely accepted. Adaptation will likely be an ongoing process
of planning, prioritization, and specific project implementation.
Chapter 1.3.1, Rising Sea Levels, describes various local and countywide activities that are
currently underway or in the planning phases to mitigate the local effects of sea level rise. The
City has also implemented green infrastructure planning and programs. The San Francisco Bay
Regional Water Quality Control Board Municipal Regional Stormwater National Pollutant
Discharge Elimination System Permit regulates pollutants in stormwater runoff from municipal
storm drain systems throughout San Mateo and other counties. All permitees were required to
create and implement a Green Infrastructure Plan.
Millbrae City Council adopted a Green Infrastructure Plan in September 2019 as a cost-
effective, resilient approach to managing water quality that also provides climate change
benefits. Green infrastructure encompasses many different types of stormwater measures that
mimic natural hydrologic processes including filtration, infiltration, detention, and
evapotranspiration. It uses plants, soils, and other elements to mimic the natural water cycle
and capture rainwater. Examples of green infrastructure include stormwater planters or bio-
retention areas, infiltration systems, permeable pavement, green roofs, green walls, green
gutters, and stormwater trees.
Green infrastructure provides multiple community benefits such as: improving water quality—
before discharging stormwater to the Bay or ocean, it removes pollutants like sediment and
trash, reducing the effect of urbanization on local creeks and waterways; mitigating the heat
island effect; providing climate change resilience; reducing localized flooding; promoting natural
ground infiltration and groundwater recharge; increasing biodiversity and habitat for native
plants and animals; and enhancing property and neighborhood economic vitality and aesthetics.
The Green Infrastructure Plan describes how over time the City will transition its existing “gray”
(i.e., traditional) infrastructure to “green” infrastructure. Some of the projects include: the San
Anselmo Green Street Project; Richmond and Laurel Safe Routes to School/GI Project; Millbrae
History Museum and Fire Station No. 38 Landscape Improvement; Transit Center to Spur Trail
Connection and Pedestrian/Bicycle Safety Improvements Project; and the Community Center
Redevelopment Project.
City of Millbrae Climate Action Plan page 115
Five important steps to effective adaptation planning are summarized below. The City is in the
process of conducting steps 1-3, and has plans to conduct steps 4 and 5 in the near future.
1. Increase Public Awareness; Engage and Educate the Community
It is critical that the public understand the magnitude of the challenge of climate change
and why action is needed. The adaptation planning process should be inclusive of all
stakeholders. Local outreach campaigns are needed to promote awareness of the
dangers of heat exposure and recommend low-cost and GHG-reducing adaptation
strategies. These efforts should leverage similar efforts undertaken at the regional,
State, and federal levels.
2. Assess Vulnerability
Understanding vulnerability to sea level rise and other climate change impacts is critical
to developing effective adaptation strategies. A detailed vulnerability analysis should be
performed to assess potential climate change impacts to infrastructure and natural
systems. Future vulnerability of assets and infrastructure can then be assessed using
conceptual models of shore response to sea level rise. Shore response models can be
applied to one or more climate change scenarios and planning horizons, and a strategy
for adapting can be developed with due consideration to priorities and time frames. Both
short-term and long-term adaptation strategies should be identified. Level of risk can be
categorized in terms of likelihood of damage within the forecasting period and the
severity of the damages. This allows planners to prioritize their response to sea level
rise. The vulnerability assessment can also provide a framework for agency and
community education and participation, feed into other planning documents, and identify
funding needs.
3. Establish Goals, Criteria, and Planning Principles
Engage with stakeholders to establish planning priorities, determine decision criteria,
and build community support for taking action. Rank physical and natural assets for
preservation efforts. Where possible, look for situations where a mitigation action has
adaptation co-benefits (e.g., planting trees to reduce urban heat islands while
sequestering carbon and providing habitat).
4. Develop Adaptation Plan
Identify specific strategies, develop actions (e.g. projects) and cost estimates, and
prioritize actions to increase local resilience of City infrastructure and critical assets,
including natural systems like wetlands and urban forests. Look for synergies between
City of Millbrae Climate Action Plan page 116
natural processes and engineering solutions. There is a continuum of strategies
available to manage sea level rise, ranging from coastal armoring (levees, seawalls,
etc.), to elevated development, to a managed retreat, and abandonment of low-lying
development. An adaptation plan should include a prioritized list of actions with a
timeline, capital expenditure plan, and framework for monitoring and adaptive
management.
5. Ongoing Monitoring and Adaptive Management
Reassess climate change vulnerabilities on a regular basis and modify actions
accordingly. This includes monitoring the effectiveness of current policies, strategies,
and actions and keeping up with changing science, funding opportunities, and regulatory
actions.
A menu of potential adaptation strategies and measures is provided in Table 27.
Table 27. Adaptation Strategies and Measures
Climate Change
Impacts Sample Adaptation Measures
Sea Level Rise
Risks to existing facilities,
natural systems, private
property, and public
infrastructure
• Educate and engage the community on the need for long-
range planning
• Partner or collaborate with other jurisdictions and agencies to
increase awareness and build community support for actions
• Identify funding mechanisms and seek public-private
partnerships where interests converge
• Use natural backshore wave-buffering processes to reduce
wave erosion and run-up on levees
• Increase or maintain the buffering capacity of tidal wetlands to
protect against storm surges and keep pace with sea-level rise
• Move levees further inland to allow marshes and mudflats to
naturally transgress landward
• Protect and restore wetlands that provide vital habitat and
carbon storage, and allow for landward migration of habitat
over time
• Make modifications to low-lying wastewater treatment facilities.
Consider opportunities for integrating wastewater treatments
and wetlands
• Avoid new development in areas at risk based on sea level
projections
• Do coastal armoring with levees and seawalls to protect vital
infrastructure from erosion, inundation, and flooding
City of Millbrae Climate Action Plan page 117
Climate Change
Impacts Sample Adaptation Measures
Extreme Heat Events
Risks to public health and
infrastructure
• Identify vulnerable communities and develop emergency
preparedness plan
• Establish cooling centers, especially for vulnerable populations
• Reduce urban heat islands through use of cool roofs and other
reflective surfaces
• Do targeted tree planting and enact new requirements for
shading in new parking lots and other large paved areas
• Reduce risk of wildfires through fuel reduction in the urban-
wildland interface
Regional Drought
Risks to reliable water
supply, and potential
conflicts between urban and
agriculture users
• Increase capacity for community water storage
• Promote local water conservation
• Make water conservation a top priority for agriculture in the
region
• Conduct water reclamation and reuse projects
Increased Flooding and
Severe Weather Events
Risks to public health,
private property, public
infrastructure, and
ecosystems
• Integrate local flood management plans with adaptation
planning
• Identify vulnerable communities and develop emergency
preparedness plans
• Establish local land use policies that decrease flood risk; avoid
building in high-risk areas
• Make modifications to stormwater system routing and storage.
Develop storage areas for peak flows
• Maximize use of bioswales and permeable surfaces in both
greenscape and hardscape areas to improve aquifer recharge
and mitigate flooding from stormwater
Air Quality and Other
Public Health Concerns • Restrict use of fireplaces and open fires on high-risk days
• Monitor potential threats to public health, including new
diseases, and develop public awareness
Threats to Species,
Ecosystems, and
Ecosystem Services
• Design urban forest program to improve biodiversity, provide
heat relief, and sequester carbon
• Preserve wetlands, salt marshes, and other critical coastal
habitats
City of Millbrae Climate Action Plan page 118
Climate Change
Impacts Sample Adaptation Measures
Risks to Local Agriculture
and Food Supply • Promote conservation of local agricultural land
• Promote the use of public and private land and rooftops for
producing food
• Promote the planting of fruit and nut trees
• Support local farmers markets by providing incentives such as
reduced costs for permits and support in attaining electronic
benefit transfer (EBT) point-of-sale terminals
• Provide incentives and remove regulatory obstacles to
encourage animal husbandry and local food production and
distribution
• Provide and promote educational opportunities for residents at
all levels of the educational system (preschool through college)
to gain skills in organic gardening; fruit production; animal
husbandry; food preservation and cooking; and affordable,
healthy eating
• Develop a city-run or city-supported food gleaning program
that organizes volunteers or compensates workers to collect
food from trees and shrubs on land owned by cities or within
cities to distribute through food banks and other local
distribution channels
• Reduce food waste by implementing a local composting where
all food scraps, food-soiled paper, waxed cardboard, wood
crates and landscape trimmings from markets, restaurants,
homes, hotels, and schools, would be collected and made
available for distribution to rural or urban gardeners
City of Millbrae Climate Action Plan page 119
Appendix G. Historic GHG Inventories and Forecast
Table 28: Historic Emissions (2005-2017)
Sector
2005
Emissions
(MTCO2e)
2010
Emissions
(MTCO2e)
2013
Emissions
(MTCO2e)
2014
Emissions
(MTCO2e)
2015
Emissions
(MTCO2e)
2016
Emissions
(MTCO2e)
2017
Emissions
(MTCO2e)
Residential 32,405 32,319 30,959 25,650 25,281 23,474 21,969
Commercial/Industrial 27,633 27,664 26,974 26,669 27,273 TBD* TBD*
Transportation 88,057 80,101 80,381 80,075 89,382 78,449 77,565
Generated Waste 2,486 2,184 2,056 2,071 2,068 1,849 1,964
Wastewater 62 530 1,610 1,137 1,550 1,492 843
Water N/A 311 243 242 196 131 100
TOTAL 150,643 143,108 142,222 135,845 145,750 TBD* TBD*
*At the time of publishing this report, reliable 2016 and 2017 data on commercial/industrial natural gas consumption was not available. For
this reason, total commercial/industrial sector emissions and total emissions from all sectors are listed as “to be determined” in above table
for those years. Between 2015 and 2017, total electricity emissions decreased from 19,409 MT CO2e to 7,401 MT CO2e, a 62% decrease.
This decrease was largely due to the launch of Peninsula Clean Energy.
Table 29: Historic Emissions Percent Change Compared to 2005 Baseline (2010-2017)
Sector
2010: %
Change
Emissions
from Baseline
2013: %
Change
Emissions
from Baseline
2014: %
Change
Emissions
from Baseline
2015: %
Change
Emissions
from Baseline
2016: %
Change
Emissions
from Baseline
2017: %
Change
Emissions
from Baseline
Residential -0.3% -4% -21% -22% -28% -32%
Commercial/Industrial +0.1% -2% -3% -1% TBD* TBD*
Transportation -9% -9% -9% +2% -11% -12%
Generated Waste -12% -17% -17% -17% -26% -21%
Wastewater** N/A +204% +115% +192% +182% +59%
Water** N/A -22% -22% -37% -58% -68%
TOTAL -5% -6% -10% -3% TBD* TBD*
* At the time of publishing this report, reliable 2016 and 2017 data on commercial/industrial natural gas consumption was not available. For
this reason, percent change in total commercial/industrial sector emissions compared to a 2005 baseline are listed as “to be determined” in
above table for those years. Between 2010 and 2017, total electricity emissions decreased from 21,981 MT CO2e to 7,401 MT CO2e, a 66%
decrease. This decrease was largely due to the launch of Peninsula Clean Energy.
** All % changes above measured against 2005 baseline, with exception of wastewater and water (2010 baseline).
City of Millbrae Climate Action Plan page 120
Table 30: 2015 Emissions and Business-as-usual Emissions Projections by Sector
Sector 2015 Emissions
(MTCO2e)
Annual growth rate:
2015-->2030
2030 Emissions
(MTCO2e)
Residential 25,281 0.66% 27,920
Commercial/Industrial 27,273 2.27% 38,177
Transportation 89,382 0.62% 98,042
Generated Waste 2,068 1.42% 2,556
Wastewater 1,550 1.42% 1,915
Water 196 1.42% 243
TOTAL 145,750 0.99% 168,853
Table 31: Emissions Forecast Inputs
Sector Year Data Data Source
Residential (Households) 2015 8,263 ABAG
2030 9,126 ABAG
Commercial/Industrial (Jobs) 2015 6,622 ABAG
2030 9,270 ABAG
Transportation (Daily VMT)
2015 306,247 MTC
2035 348,578 MTC
City of Millbrae Climate Action Plan page 121
Recent Trends in Community-wide Greenhouse Gas Emissions: 2015-2017
At the time of publication of this report, calendar year 2015 represented the most recent fully
complete community-wide greenhouse gas emissions inventory. Inventories for 2016 and 2017
were partially complete at the time of publication, but complete data on commercial/industrial
natural gas consumption is still pending. As a result, complete comparisons between 2016 and
2017 emissions with previous years and the baseline year are not able to be made. However,
some information can be gleamed from the partially complete 2016 and 2017 community-wide
inventories. Most notably, between 2015 and 2017, total electricity emissions decreased from
19,409 MT CO2e to 7,401 MT CO2e, a 62% decrease. This decrease was largely due to the
launch of Peninsula Clean Energy. The 62% decrease in overall electricity emissions was also
partially driven by a decrease in total non-residential electricity consumption from 57,470,605
kWh to 45,254,874 kWh, a 21% decrease. Total electricity emissions have decreased 66%
since 2010. Transportation emissions also decreased 13% between 2015 and 2017, driven by a
decrease in vehicle miles traveled (VMT) and an increase in electric vehicles and fuel-efficient
vehicles.
The 2015 community-wide greenhouse gas inventory shows that Millbrae had experienced a
7.3% increase in community-wide emissions from 2014 to 2015. This overall increase in
emissions from 2014 to 2015 is driven in large part by a 37% increase in “local roads” VMT
within Millbrae, according to Caltrans36. This large percentage change in local roads VMT is
largely explained by a change in how the Caltrans model accounted for the total mileage of local
roads in individual jurisdictions. Prior to 2015, the model relied on information from local
agencies to estimate the total mileage of local roads in each city. As of 2015, the model used a
new Linear Referencing System which links the Federal Highway Performance Monitoring
System attributes to geospatial data for all public roads. The local roads mileage in Millbrae
according to the Linear Referencing System is significantly higher than the local road mileage
previously provided by local agencies.
In San Mateo County, five cities saw an increase in local roads VMT of at least 15% from 2014
to 2015 (including Millbrae) and five cities saw a decrease in local roads VMT of at least 15%
from 2014 to 2015. The total change in local roads VMT from 2014 to 2015 aggregated for the
entire County was a 3.8% increase. Despite this increase in overall emissions from 2014 to
2015 in Millbrae, the City’s emissions have decreased 3.2% since 2005.
36 Caltrans, California Public Road Data 2015,
https://dot.ca.gov/-/media/dot-media/programs/research-innovation-system-information/documents/california-public-road-
data/prd2015-a11y.pdf (June 2017).
City of Millbrae Climate Action Plan page 122
Appendix H. Baseline GHG Inventory Updates
Introduction
This appendix serves to update the 2005 baseline community-wide inventory completed by the
City of Millbrae with assistance from ICLEI – Local Governments for Sustainability (ICLEI). This
appendix provides the information needed to update the 2005 calendar year inventory and
provides the summary of emissions used for the City’s baseline that is found in the City’s
Climate Action Plan (Plan).
Background
The City of Millbrae, a leader in sustainability, completed a baseline community-wide and
municipal operations greenhouse gas (GHG) inventory in 2008 with support from ICLEI. This
inventory was completed for the baseline year of 2005. The City and ICLEI completed much of
the work on the inventory prior to the publication of some key GHG protocols, such as the Local
Government Operations Protocol (LGOP). This first inventory is the basis of the City’s final
baseline inventory used in the City’s Plan. The report from this first inventory is titled City of
Millbrae Greenhouse Gas Emissions Report: 2005 Community Emissions Inventory & 2004-
2005 Municipal Operations Emissions Inventory (December 2008), and will be referred to as
“the initial baseline inventory report” in this Appendix. The data and calculations are stored in
an Excel workbook titled “Master Millbrae Data 12-12-08_Tweaker.xls,” which will be referred to
as “the baseline inventory workbook” in this Appendix.
In 2010, the City received a community-wide GHG inventory for 2005 as part of a countywide
effort led by the City/County Association of Governments of San Mateo County (C/CAG), with
assistance from ICLEI, to complete community-wide inventories for every jurisdiction in San
Mateo County. As part of that project, ICLEI produced emissions data and calculated emissions
for Millbrae for the 2005 baseline year, but a detailed report was not completed because the
City already had the initial report from ICLEI. ICLEI provided a standard template that
documented the methodologies used for the calculations for the C/CAG project. The
calculations for this second inventory are stored in two Excel workbooks. One is called “Millbrae
Emissions Summary.xls”; this file shows the total calculated emissions for each sector in the
community-wide inventory. The second file is called “Millbrae Inventory GHG Tracking.xls’; this
file contains some of the raw data, emission factors, conversion factors, etc. used in the
calculations. The second inventory is referred to as “the County’s community-wide inventory” in
this Appendix.
City of Millbrae Climate Action Plan page 123
Methodology
To develop this appendix of baseline GHG inventory updates, the City compared the two
inventories mentioned above. The inventories were also compared to methodologies found in
LGOP and other best practice GHG inventory protocols available. Portions of both the initial
baseline inventory report and the County’s community-wide inventory were used to create this
final inventory for the City.
A summary of the results from the initial baseline inventory report, along with updated results, is
presented in Table 32. The updated results in the column titled “Updated 2005 Inventory
Emissions” comprise the community-wide emissions baseline that is used in the City’s Plan. A
description of each change made to create the updated results is provided below.
One of the major changes made between the initial baseline inventory report and the updated
version is that municipal operations are not included as a separate category in the updated
version. In the initial baseline inventory report, emissions from municipal operations were
calculated and reported separately, and then municipal emissions were subtracted from the
appropriate community-wide sector. For example, emissions from the municipal fleet were
calculated, and then subtracted from the community-wide transportation sector. This subtraction
was completed to avoid double-counting; all municipal operation emissions were then included
and reported within a separate sector. In the updated version, all emissions from municipal
operations are included with other community-wide emissions in the appropriate sectors. For
example, emissions from electricity and natural gas usage in municipal buildings are included in
the commercial energy use sector in the updated version, and emissions from the municipal
fleet are included in the transportation sector in the updated version. Including emissions from
municipal operations in broader community-wide sectors is now a common practice for local
government inventories.
The City’s Plan thus includes a complete community-wide inventory that includes all municipal
operations emissions in each sector as appropriate. The community-wide inventory is the basis
for the City’s GHG emissions baseline, emissions forecast, and GHG reduction target in this
Plan.
The City of Millbrae will continue to track emissions from municipal operations in an inventory
that is separate from the community-wide inventory. The City has greater control over these
emissions than the community-wide emissions, and will track municipal operations emissions as
part of a larger effort to lead by example and to reduce the environmental impacts of the City’s
activities.
City of Millbrae Climate Action Plan page 124
Table 32: Sectors and Emissions in the GHG Inventory
Sector Emissions Sources Energy Types
Initial
Baseline
Inventory
Emissions
(MTCO2e)
Updated
2005
Inventory
Emissions
(MTCO2e)
Increase or
Decrease in
Emissions
(MTCO2e)
Residential Energy and water use in
residential buildings
Electricity
Natural gas 32,405 32,405 No change
Commercial
Energy and water use in
commercial, government
and institutional buildings
Electricity
Natural gas 20,122 23,738 +3,616
District Government
(Electricity and Gas)
Energy and water use in
district government buildings
Electricity
Natural gas 2,493 0 -2,493
Direct Access –
Electricity Only
Energy and water use in
industrial facilities, and
processes
Electricity 2,727 3,895 +1,168
Transportation and
Land Use
All road vehicles
Public transportation
Light rail
Off-road vehicles/equipment
Passenger heavy duty rail
Gasoline
Diesel
Compressed natural gas
Liquefied natural gas
Biodiesel
62,141 88,057 +25,916
Waste Landfills
Waste stream Landfill gas (methane) 2,553 2,486 -67
Wastewater 37 Process emissions from
wastewater treatment
Not an energy type:
these are Fugitive and
Process Emissions
62 62 No change
Additional Municipal
Operations37
Energy and water use in
municipal buildings, fuel
used in vehicles,
refrigerants, and solid waste
sent to the landfill
Electricity
Natural gas
Gasoline
Diesel
Compressed natural gas
Liquefied natural gas
Biodiesel
1,579 0 -1,579
TOTAL: 124,082 150,643 +34,322
The Commercial Sector and the District Government Sector
The Commercial sector and the District Government sector in the initial baseline inventory
report include emissions from natural gas and electricity purchased from the Pacific Gas and
Electric Company (PG&E) and consumed in non-residential buildings or other infrastructure,
such as outdoor lighting or water pumps. The initial baseline inventory report included emissions
for the Commercial and District Government sectors separately. In the initial baseline inventory
report, the Commercial sector is comprised of non-residential buildings in the City, with the
exception that the government buildings are included in other sectors. The District Government
sector represents all district government electricity and natural gas accounts within incorporated
37 In the original 2005 baseline inventory, wastewater emissions were included with other municipal operations emissions in a category
called “City Government (All Municipal Operations).” For the purposes of Table 32, emissions from wastewater treatment were
subtracted from the total emissions that were reported for the City Government sector in the original inventory. The remaining
emissions that were originally reported under the City Government sector are shown in Table 32 under the sector for “Additional
Municipal Operations.”
City of Millbrae Climate Action Plan page 125
Millbrae, such as Bay Area Rapid Transit (BART), school districts, hospital districts, water or
sewer Districts, district fairs, public utility districts, community service districts, cemetery
districts, mosquito abatement districts and park districts. Emissions were calculated based on
data provided by PG&E for electricity and natural gas consumption purchased from PG&E
within the City’s boundaries for the non-residential accounts. Note that electricity and natural
gas consumed in non-residential buildings that was not purchased from PG&E are not included
in any of these sectors but are included in the Direct Access sectors.
For the initial baseline inventory report, data were also collected for electricity and natural gas
consumption in Millbrae’s City-owned facilities and infrastructure. These emissions were
reported separately in the Municipal Operations sector. A summary of the emissions reported
for the Commercial and District Government sectors is provided in Table 33 below. Table 33
also shows the emissions from natural gas and electricity consumption that were reported within
the Municipal Operations sector.
The total emissions shown in Table 33, which represent emissions from all the non-residential
buildings and infrastructure in Millbrae that purchase electricity and natural gas from PG&E, are
23,738 metric tons carbon dioxide equivalents (MTCO2e). This equals the updated inventory
results for the Commercial sector shown in Table 32. Thus, the changes for the Commercial,
District Government, and Municipal Operations sectors shown in Table 32 are not due to errors
or changes to the calculations, but rather represent a change in how the emissions are
categorized. Instead of including all emissions from PG&E-purchased natural gas and electricity
in non-residential buildings and infrastructure in three separate sectors (Commercial, District
Government, and a portion of the Municipal Operations sector), the updated inventory includes
these emissions in the Commercial sector.
The emission factors used to calculate emissions have not changed. The emission factor for
electricity is described in note number 1 on the top of page 31 of the initial baseline inventory
report and is the correct emission factor. The emission factors for natural gas were also correct,
based on a review of the emission factors that were used for calculations and reported in the
baseline inventory workbook. However, these emission factors were reported incorrectly in the
initial baseline inventory report. But because the correct emission factor was used for the
calculations, no change is needed.
City of Millbrae Climate Action Plan page 126
Table 33: Initial GHG Inventory Results in Non-Residential Buildings and Infrastructure
Sector Emissions Sources Energy
Types
Initial
Baseline
Inventory
Emissions
(MTCO2e)
Location of Data in the
Initial Baseline Inventory
Report
Commercial
Energy and water use in
commercial and
institutional buildings
Electricity
Natural gas 20,122 Table 1, page 20
District Government
(Electricity and Gas)
Energy and water use in
district government
buildings
Electricity
Natural gas 2,493 Table 1, page 20
Municipal Operations
Energy and water use in
City government buildings
(natural gas used at the
wastewater treatment
plant is not included)
Electricity
Natural gas 467 Table 15, page 53
Municipal Operations
Energy use in streetlights,
traffic signals, and
outdoor lighting
Electricity 329 Table 17, page 63
Municipal Operations
Natural gas use at the
wastewater treatment
plant
Natural gas 22 Table 19, page 66
Municipal Operations
Energy use at the
wastewater treatment
plant (electricity only) and
electricity use in water
pumps, lift stations, and
irrigation equipment
Electricity 305 Table 20, page 67
Total: 23,738
The Direct Access Sectors for Electricity and Natural Gas
In the initial baseline inventory report, 2,727 MTCO2e were reported for Direct Access
electricity. According to the report, in 2005, Direct Access customers (electricity customers that
purchase electricity directly from power generation facilities, which is delivered through the
transmission lines of public or private utilities) accounted for 10.76% of the total electricity usage
for all users in San Mateo County. This number was provided by the California Energy
Commission (CEC) and was used to estimate Direct Access electricity usage within
incorporated Millbrae in the initial baseline inventory. Direct Access natural gas consumption
and related emissions are included in the Commercial sector.
The CEC subsequently provided information that Direct Access was 20.89% of “non-residential”
electricity consumption in San Mateo County in 2005. This percentage was used to calculate the
updated emissions from Direct Access electricity consumption that are shown in Table 32.
City of Millbrae Climate Action Plan page 127
The emission factors used to calculate electricity emissions also have been updated. The initial
inventory baseline report states that emission factors for NERC Region 13 (Western Systems
Coordinating Council/CNV Region) were used; aggregated to CO2e, this factor is 0.6866
pounds per kilowatt-hour (kWh). The updated results use emission factors that equal 0.95853
pounds per kWh. Instead of using an emission factor for NERC Region 13, the updated
emission factors were calculated from total California in-state and imported electricity emissions
divided by total consumption in megawatt-hours (MWh). Emissions data used are from
California Air Resources Board, Greenhouse Gas Inventory, 1990-2004 (November 17, 2007
version), available at http://www.arb.ca.gov/cc/inventory/data/data.htm. The emission factors
that were used are also found in the Local Government Operations Protocol, Appendix G, Table
G.6, page 174. The updated emission factors are more specific to California, and thus more
accurate than the emission factors used in the initial baseline inventory report.
The original and updated data for Direct Access electricity consumption and associated
emissions are shown in Table 34 below.
Table 34: Direct Access Electricity and Natural Gas Consumption and Emissions
Sector
Original
Consumption
Data
Initial Baseline
Inventory
Emissions
(MTCO2e)
Updated
Consumption
Data
Updated 2005
Inventory
Emissions
(MTCO2e)
Direct Access –
Electricity Only 8,470,823 kWh 2,727 8,931,183 kWh 3,895
Total: 2,727 3,895
Note that the emission factors shown in Table 35 were used to calculate the updated results.
City of Millbrae Climate Action Plan page 128
Table 35: Direct Access Emission Factors
Sector GHG Emission Factor
Direct Access – Electricity Only
CO2 958.49 lbs/MWh
Calculated from total in-state and imported
electricity emissions divided by total
consumption in MWh; emissions from
California Air Resources Board,
Greenhouse Gas Inventory, 1990-2004
(November 17, 2007 version), available at
http://www.arb.ca.gov/cc/inventory/data/dat
a.htm and also found in the Local
Government Operations Protocol, Appendix
G, Table G.6, pages 174.
CH4 0.029 lbs/MWh
N20 0.011 lbs/MWh
The Transportation and Land Use Sector
Emissions from the transportation sector are grouped into three categories: on-road vehicle
emissions, off-road vehicle emissions, and Caltrain emissions. The on-road vehicle emissions
are further divided into two categories: emissions from vehicles on local roads, and emissions
from vehicles on State highways. Emissions from on-road vehicles on State highways and from
Caltrain have not been updated but remain the same as those shown in the initial baseline
inventory report.
Emissions from local roads were based on incorrect data in the initial baseline inventory report
and have been corrected based on the proper data. Also, the initial baseline inventory report did
not include off-road emissions. These emissions have been added to total transportation
emissions using the data, methodology and assumptions provided below.
On-Road Vehicle Emissions from Local Roads
Emissions from local roads are based on the estimated vehicle miles traveled (VMT) on those
roads. The initial baseline inventory report states that 2005 VMT data was obtained from
Caltrans, which compiled and published state-wide data. The data source, 2005 California
Public Road Data, is provided in the initial baseline inventory report on page 32 and is found at
https://dot.ca.gov/-/media/dot-media/programs/research-innovation-system-
information/documents/california-public-road-data/prd2005-a11y.pdf.
According to the backup spreadsheet for the initial baseline inventory report, titled “Master
Millbrae Data 12-12-08_Tweaker.xls,” local road VMT is listed as 54.04 daily VMT and is shown
in units of 1,000 (see the worksheet called “Community Transport Raw Data”.) Thus, annual
VMT is 54,040 daily VMT multiplied by 365 days/year, equal to 19,724,600 VMT/year. This
number is shown on the worksheet called “Community Transport Entry Data”. However, this
annual VMT number is incorrect. The source file listed 54.04 miles of maintained local roads,
but the actual daily VMT (in 1,000s) is 165.87. Thus, the correct annual VMT number for local
City of Millbrae Climate Action Plan page 129
roads is approximately 61,000,000 VMT/year (165.87 daily VMT in 1000s * 1000 * 365
days/year).
The updated results use the corrected number of 61,000,000 VMT/year on local roads. The
emission factors and other assumptions used to calculate emissions from local roads are shown
on page 32 of the initial baseline inventory report. These emission factors and assumptions
have not changed.
Off-Road Emissions
Off-road emissions were not included in the initial baseline inventory report because these
emissions were considered “de minimis,” which are typically defined as emissions that are
approximately 3% or less of a total entity’s GHG inventory. Certain GHG accounting protocols
allow de minimis emissions to be estimated or excluded from the inventory. The newer LGOP
guidelines do not recommend excluding de minimis emissions. These emissions have been
calculated as follows.
Data on total countywide emissions from off-road equipment came from the Bay Area Air
Quality Management District’s (BAAQMD’s) report “Source Inventory of Bay Area Greenhouse
Gas Emissions” with a base year of 2007, as there is no report for 2005 and no other reliable
way to quantify off-road emissions in 2005.38 Emissions were divided into two categories—
emissions from lawn and garden equipment and emissions from construction, industrial, and
light commercial equipment.
Emissions per household were calculated using BAAQMD’s data on countywide emissions from
lawn and garden equipment and the total amount of households countywide. To calculate
emissions from lawn and garden equipment generated in the City of Millbrae, emissions per
household were multiplied with the number of households in the City.39
Emissions per job were calculated using BAAQMD’s data on countywide emissions from
construction, industrial, and light commercial equipment and the total amount of jobs
countywide. To calculate emissions from construction, industrial, and light commercial
equipment generated in the City of Millbrae, emissions per job were multiplied with the number
of jobs in the city. The data used to calculate off-road emissions are shown in Table 36.
38 Bay Area Air Quality Management District, “Source Inventory of Bay Area Greenhouse Gas Emissions”, report base year: 2007,
Table Q, http://www.baaqmd.gov/Divisions/Planning-and-Research/Emission-Inventory-and-Air-Quality-Related/Emission-
Inventory/~/media/64A8751292F44BEEAD56B7569B68DB27.ashx (2010), 25.
39 The number of households and jobs in the City of Millbrae are from Association of Bay Area Governments data, in particular the
Projections 2007 report, Jason Munkres, Regional Planner, ABAG, jasonm@abag.ca.gov.
City of Millbrae Climate Action Plan page 130
Table 36: Off-Road Emissions
Category
Unit of
Measure
Total
Countywide
Emissions
Total Units
Countywide
Emissions
per Unit
Units in
Jurisdiction
Jurisdictions’
Emissions
(MTCO2e)
Lawn and
Garden
Equipment
Households 14,182 260,000 ~0.055 7,980 435
Construction,
Industrial,
and Light
Commercial
Equipment
Jobs 255,468 337,350 ~0.757 6,880 5,210
Total: 5,645
Summary of Transportation Emissions
Table 37 shows the summary of transportation emissions reported in the initial baseline
inventory report and the emissions reported in the updated inventory. The largest changes
between the initial baseline inventory report and the updated version are the addition of off-road
emissions (5,645 MTCO2e/year) and the increase in on-road vehicle emissions from local roads
(19,928 MTCO2e/year) due to an error in the raw data used to calculate these emissions. Both
of these changes are described in more detail in the preceding sections.
Note that the initial baseline inventory report calculated a total of 62,484 MTCO2e/year in the
transportation sector (see Table 5 on page 18 of the initial baseline inventory report). However,
the total reported transportation emissions were 62,141 MTCO2e/year (see Table 1 on page 15
of the initial baseline inventory report). This discrepancy in the transportation emissions reported
in Table 1 and recalculated in Table 5 is because the emissions from the municipal fleet were
calculated at 344 MTCO2e/year (see Table 13 on page 24 of the initial baseline inventory
report). The municipal fleet emissions were subtracted from the sector total of 62,484
MTCO2e/year to reach 62,141 MTCO2e/year. Similar to the Commercial and District
Government sectors, municipal fleet emissions are not subtracted from the updated inventory
results because municipal emissions are not shown as a separate sector in the updated
inventory.
City of Millbrae Climate Action Plan page 131
Table 37: Summary of Transportation Emissions Changes
Sector
Emissions
sources Energy types
Initial
Baseline
Inventory
Emissions
(MTCO2e)
Updated
2005
Inventory
Emissions
(MTCO2e)
Increase or
Decrease in
Emissions
(MTCO2e)
Transportation and
Land Use: On-road
vehicles
(State highways)
All road
vehicles
Gasoline
Diesel
Compressed
natural gas
Liquefied natural
gas
Biodiesel
51,981 51,981 No change
Transportation and
Land Use: On-road
vehicles
(local roads)
9,630 29,558 +19,928
Transportation and
Land Use: Off-road
vehicles
Off-road
vehicles/
equipment
Gasoline
Diesel
Propane
0 5,645 +5,645
Transportation and
Land Use: Caltrain
Passenger
heavy duty
rail
Diesel 873 873 No Change
Transportation and
Land Use: Municipal
Fleet
All road
vehicles
Gasoline
Diesel
Compressed
natural gas
Liquefied natural
gas
Biodiesel
-344 0 +344
Total: 62,141 88,057 +25,916
Waste Sector
The waste sector is comprised of two types of waste: landfilled solid waste and alternative daily
cover (ADC). These two waste types, associated waste tonnages, and estimated GHG
emissions are shown in Table 38.
City of Millbrae Climate Action Plan page 132
Table 38: Summary of Waste Sector Emissions Changes
Sector
Waste
Generation
Data (tons)
Initial Baseline
Inventory
Emissions
(MTCO2e)
Updated 2005
Inventory
Emissions
(MTCO2e)
Increase or
Decrease in
Emissions
(MTCO2e)
Waste –
Landfilled Solid
Waste
13,481 2,461 2,461 No change
Waste - ADC 1,347 92 25 -67
Total: 14,828 2,553 2,486 -67
Similar to the Commercial, District Government, and Transportation sectors, the initial baseline
inventory report calculated community-wide emissions from the waste sector and then
subtracted the calculated waste emissions from municipal operations. The waste sector
emissions are calculated at 2,553 MTCO2e/year but reported at 2,466 MTCO2e/year (Table 1 on
page 15 of the initial baseline inventory report). Municipal operations waste emissions are
reported at 87 MTCO2e/year (Figure 4 on page 23 of the initial baseline inventory report). Thus,
the municipal operations waste emissions were subtracted from the total calculated waste
emissions to reach the total reported waste emissions.
As evident from Table 38, the emissions calculated for ADC decreased by 67 MTCO2e/year.
Both the initial baseline inventory report and the County’s community-wide inventory used the
same raw data on waste generation data and used similar methodologies to calculate
emissions. Also, both inventories used a version of the U.S. Environmental Protection Agency’s
Waste Reduction Model (WARM) contained within the ICLEI Clean Air and Climate Protection
(CACP) software to calculate emissions from waste disposal. The calculations are not
documented since they occurred in the ICLEI software, and only the inputs and outputs of the
model are reported. However, some of the assumptions used in the County’s community-wide
inventory are different than the assumptions used in the initial baseline inventory, which could
have affected the calculation of emissions from ADC.
The differing assumptions relate to the composition of the waste deposited in the landfills. Both
the initial baseline inventory report and the County’s community-wide inventory cite the same
source for these assumptions, which is a state-wide waste composition study completed by the
California Integrated Waste Management Board (CIWMB). The County’s community-wide
inventory included assumptions that are more similar to the data in the CIWMB report than the
assumptions in the initial baseline inventory report. Thus, the County’s community-wide
inventory is assumed to be more accurate than the initial baseline inventory report.
City of Millbrae Climate Action Plan page 133
Municipal Operations Sector
As noted earlier in this appendix, the updated inventory does not report emissions from
municipal operations as a separate sector, but rather includes these emissions in the
appropriate community-wide sectors. Thus, this sector is omitted from the updated inventory.