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Urban Efficiency: A Global Survey of Building Energy Efficiency Policies in Cities Contents Foreword from C40 Cities Climate Leadership Group Foreword from Tokyo Metropolitan Government Executive Summary 1. A macro view of city-level policies 2. Objectives and methodology 3. Policy maps and global trends 3.1 Overview 3.2 Global trends illustrated by policy maps 3.2.1 Building energy codes 3.2.2 Reporting and benchmarking of energy performance data 3.2.3 Mandatory auditing and retro-commissioning 3.2.4 Emissions trading schemes 3.2.5 Green building rating and energy performance labelling 3.2.6 Financial incentives 3.2.7 Non-financial incentives 3.2.8 Awareness raising programmes 3.2.9 Promoting green leases 3.2.10 Voluntary leadership programmes 3.2.11 Government leadership 3.2.12 Other 4. Experiences from frontrunner cities 4.1 Overview 4.2 Case studies 4.2.1 Hong Kong 4.2.2 Houston 4.2.3 Melbourne 4.2.4 New York City 4.2.5 Philadelphia 4.2.6 San Francisco 4.2.7 Seattle 4.2.8 Singapore 4.2.9 Sydney 4.2.10 Tokyo 4.3 Analysis 4.3.1 Key characteristics 4.3.2 Inputs during design and implementation phase 4.3.3 Results and impacts 4.3.4 Success factors 4.3.5 Key challenges 4.3.6 Future perspectives 5. Conclusions Acknowledgements Appendices 1. List of web-based databases including information on energy efficiency policies and/or action worldwide 2. Policy map - City-led programmes 3. Questionnaire sent to cities for case studies 4. Metrics for accounting for multiple benefits of building energy efficiency 5. List of cities pictured on the cover and contents page Foreword Buildings shape the iconic skylines of our global megacities. For many of these cities, buildings also hold the key to tackling climate change. Building energy use is one of the leading sources of greenhouse gas (GHG) emissions in cities almost half of the emissions from member cities of the C40 Cities Climate Leadership Group (C40) come from energy consumed in buildings1. The importance of building energy efficiency is indisputable. It cuts emissions, it cuts energy bills, and it can bring a whole host of additional benefits: healthier workplaces, new jobs and greater energy security, to name but a few. However, although the benefits of efficient buildings are obvious, time and resources are often in short supply in city administrations, and city officials need to know quickly what has worked in other cities, and how exactly it was achieved. And, if they run up against barriers, they need allies. Tokyo co-leads a network of cities committed not only to tackling energy efficiency in their own buildings, but also to collaborating with others so they can take faster action, and have more impact. The Private Building Efficiency Network is one of 15 networks run by C40, a group of the worlds megacities taking action on climate change together. Each network links officials working on a different aspect of climate change, such as waste or transport. Cities in the Private Building Efficiency Network are already pioneering new policies for their buildings, often moving faster than nations or regions. Despite this, there is an evidence gap on what is happening at the city level. It was through discussions with fellow members of the Network that Tokyo saw the need to capture best practice from cities around the world, and share it. The resulting report, Urban Efficiency: A Global Survey of Building Energy Efficiency Policies in Cities, is a compelling example of C40 cities collaborating, freely sharing their information for the collective good. It was made possible by the foresight and generosity of the Tokyo Metropolitan Government, and C40 is privileged to be a partner. For a city just starting out in energy efficiency, this report offers a menu of possibilities. For a city in the midst of implementation, its a guide to finding solutions to common challenges. For a city that has just completed a programme, its an inspiration of where to go next. For the rest of the world, its concrete proof of how C40 cities are leading the way on climate change solutions. Zoe Sprigings, C40, Head of the Energy Initiative 1 C40 Climate Leadership Group and Arup (2011) Climate Action in Megacities 1.0. 1Foreword In Tokyo, we take the challenge of climate change very seriously. The Tokyo Metropolitan Government has set a target to reduce citywide greenhouse gas (GHG) emissions by 25% and energy consumption by 20% below 2000 levels by 2020. Carbon emissions from the building sector account for a significant portion of Tokyos total emissions, and so our climate change policy and programmes focus on the building sector as a matter of course. To achieve these targets, promoting energy efficiency in existing buildings is essential. In 2010 we introduced a cap-and-trade carbon emissions scheme which sets mandatory targets for large buildings. This has been successfully implemented. Nonetheless, more work is still needed to encourage smaller buildings and residential buildings to use energy efficiently. Information and experiences from other major cities are very relevant to us, and participating in C40s Private Building Efficiency Network provides us with a wonderful opportunity to learn. Moreover, given an increasing urban population and growing emissions from buildings, city alliances to promote energy efficiency in buildings seem crucial for tackling climate change globally. Therefore, Tokyo sees great value in being a part of the Private Building Efficiency Network and is happy to be a lead city with Sydney. This Network continues to grow and now has dozens of active members, spanning Asia, Oceania, Africa, Europe, Latin America and North America. Member cities are learning from one another through webinars, conference calls, the sharing of useful documents and materials, and undertaking joint research and projects to extend our knowledge. Meeting in person in Houston (2013) and Tokyo (2014) has helped to build mutual trust among members, which leads to quality discussions and precious information sharing. The research for this Urban Efficiency report was initially conducted by the Tokyo Metropolitan Government in preparation for the 2014 C40 Tokyo workshop, in order to enable a discussion about various private sector building energy efficiency policies. Through documenting the experiences of cities, we can identify our common issues and challenges, and also get inspired by great ideas which we can then take home and implement in our cities. We really hope this report will be a great reference not only for the Network members, but also for other colleagues in cities around the world who also recognise the importance of building energy efficiency. Yuko Nishida, Bureau of Environment, Tokyo Metropolitan Government 2Executive Summary Urban Efficiency: A Global Survey of Building Energy Efficiency Policies in Cities is a resource for city officials around the world as they design new policies for building energy efficiency, or review existing ones. The research should help close the evidence gap regarding city-level activity in building energy efficiency. As such, it is designed to be accessible to those working in the field in general, including researchers. The Urban Efficiency reports specific objectives are: to begin to capture the range of different policies being implemented in cities around the world; to obtain detailed information on the necessary conditions, opportunities and potential challenges when introducing and implementing such initiatives; and to analyse what approaches have been successful in which context and why. This research is not an exhaustive study of all cities promoting building energy efficiency policies. Instead, it focuses on a readily available selection of pioneering cities that are active members of the C40 Cities Climate Leadership Groups Private Building Efficiency Network. C40 is a unique coalition of large cities around the world committed to addressing climate change locally and globally. Within the C40 are smaller working groups or networks of cities focused on specific topics. A combination of methods was used to produce this research: literature review, written questionnaires, semi-structured telephone interviews and analysis of key documents. The report is organised into chapters focusing on broader trends followed by specific city case studies. Chapter 1, A macro view of city-level policies, provides an overview of global trends in building energy efficiency among C40 cities, illustrated with findings from C40s landmark research report, Climate Action in Megacities 2.0. Chapter 2, Objectives and methodology, sets out more detail regarding the rationale of this research, and how it was executed. Chapter 3, Policy maps and global trends, identifies global trends in city-led initiatives for building energy efficiency as highlighted in case studies from Chicago, Hong Kong, Houston, Johannesburg, London, Melbourne, New York City, Philadelphia, Portland, San Francisco, 3Seattle, Singapore, Stockholm, Sydney, Tokyo, and Toronto. Twelve policy elements are documented in two policy maps, one for new buildings and one for existing buildings. See Table 3.1 Definition of policy elements for more information. The key conclusions are as follows: Building energy codes Many cities around the world develop their own codes for new buildings and major renovations that are broader or more stringent than national or state codes. In the US, for example, some cities set codes that are stricter or wider in scope than the state codes. Australian cities follow state codes, while European cities implement the national energy codes required by European Union (EU) directive requirements or stricter energy codes. For instance, when building on city-owned land, Stockholm applies stricter energy codes through civil contracts between the City and the builders. In Japan, as the national code has yet to be mandated, Tokyo has its own more ambitious requirement of submitting a plan with minimum energy efficiency performance specifications for large facilities. Energy code application and enforcement is still rare for existing buildings, with the exception of those undergoing major renovations. However, some cities set minimum standards for building equipment to help bridge the gap. Reporting and benchmarking of energy performance data Reporting and benchmarking is a rather new but increasingly popular area of activity in city programmes, with the majority of initiatives targeting large buildings. Disclosure policies vary from city to city. A number of US cities are implementing reporting and benchmarking legislation, whereas Tokyo is undertaking reporting efforts aimed at smaller buildings on top of mandatory reporting required of large buildings under its Emissions Trading Scheme. In European cities, Energy Performance Certificates required by EU directives are playing a similar role. Some cities are also encouraging benchmarking without reporting obligations. Mandatory auditing and retro-commissioning Many cities require periodic auditing and/or retro-commissioning every three to ten years, mainly for large commercial buildings (with some exceptions). The coverage varies from an exclusive focus on the building cooling systems to one that addresses the entire building, including both tenant and common areas. It is noteworthy that audits and retro-commissioning are often mandated along with reporting and benchmarking schemes. 4Emissions trading schemes The pioneering emissions trading scheme in Tokyo is a mandatory cap-and-trade programme with an emissions reduction target. Tokyos cap-and-trade scheme is unique in that it was developed by and is managed by the city, being focused on buildings1. Green building rating and energy performance labelling A number of cities incorporate green building and energy performance standards into planning or permitting processes, adopt them as prerequisite for financial or non-financial incentives, and utilise them in the design of new developments or the renovation of municipal buildings. Financial incentives Although financial incentives for energy efficiency in new buildings are rare, many cities operate schemes focused on existing buildings, with a wide array of choices offered from city governments or national or state agencies. Additionally, utilities often provide energy efficiency grants and rebates, sometimes in response to regulation. Non-financial incentives Common forms of non-financial incentives include an expedited permit process and allowances for extra floor area in the case of new green building developments. As a further trend, cities often use existing green building certifications as a criteria for minimum levels of energy efficiency. Awareness raising programmes Apart from extensive online information focused on green buildings, energy efficient operations or energy efficiency retrofits, many cities offer information via free or subsidised energy audits or assessments, guidebooks or seminars. Also, many US cities have developed weatherization programmes targeting low-income households, which cover not only low-cost weatherization improvements to the building envelope but also heating, cooling and electrical system upgrades and appliances. Promoting green leases Some cities promote green leases to tackle the split incentive problems separating 1 Since 2013, some Chinese cities not surveyed in this report have been targeting buildings (amongst other sectors) through pilot emissions trading schemes. 5building owners and tenants. The standard approach of cities has been to promote toolkits that recommend certain green lease provisions in order to improve the environmental performance of the building. Voluntary leadership programmes Cities encourage voluntary action amongst city businesses and residents in a wide variety of ways, including voluntary design guidelines, flagship development projects, friendly competitions, and voluntary projects developed in partnership with the commercial or residential sector. Competitions and voluntary projects are often coupled with energy assessments or recommendations and advice on available financial incentives. Participants are expected to lead by example and share their experiences with the wider public. Government leadership City governments can also lead by example, and many are. The most common approach includes requiring compliance with green building standards for the construction or renovation of government buildings. The disclosure of energy performance data from government buildings is also occurring in several leading cities. In addition, cities are using municipal buildings as testing sites for innovative technology, inviting industry to trial new green building technology on city buildings before marketing it more broadly. Other Cites are engaged in a number of other initiatives related to building energy efficiency,
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