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HomeMy WebLinkAboutAgenda - 05-21-1997 - 10d 1 ORANGECOUNTY BOARD OF COMMISSIONERS ACTION AGENDA ITEM ABSTRACT Meeting Date: September 21, 1997 Action Agenda Item # /0_d SUBJECT: Report on Town of Chapel Hill Energy Policy and Energy Ordinance/Resolution DEPARTMENT: County Manager PUBLIC HEARING: Yes No ATTACHMENT(S): BUDGET AMENDMENT: Yes No County Engineer's report INFORMATION CONTACT: Chapel Hill Energy Policy County Engineer Extension 2303 Draft Chapel Hill Energy Ordinance Draft Chapel Hill Energy Resolution TELEPHONE NUMBERS: Hillsborough - 732-8181 Durham - 688-7331 Mebane - 227-2031 Chapel Hill - 967-9251/968-4501 PURPOSE: To present the Town of Chapel Hill's adopted and proposed energy policy and procedures to the BOCC for its review and consideration for use as a potential guide for developing County and Board of Education policies and procedures that will assure energy efficient design and construction in new or renovation building construction funded by the County. BACKGROUND: The Chapel Hill Citizens' Energy Task Force was created by the Chapel Hill Town Council in February 1992. It was initially charged with preparing a specific plan to upgrade Town buildings with energy efficient lighting. The task force was also charged with making other recommendations to the Council with regard to other measures that could produce energy savings. In September 1995, the task force recommended that the Town adopt a proposed Town Energy Policy applicable to all new and existing Town buildings. The proposed policy was referred to the Town Manager and staff for review. During the time period between September 1995 and January 1997, the task force and Town staff worked to reach a consensus on a recommendation for the Energy Policy. The policy document resulting from this consensus was presented to the Chapel Hill Town Council on March 3, 1997, and was adopted. Concurrently with the development and presentation of the Energy Policy, the Energy Task Force was working to develop an Energy Conservation Ordinance. The purpose of the ordinance was to ensure that buildings built or substantially renovated by the Town itself would be built in the most environmentally sound manner and 2 ti incorporate the most up-to-date energy efficient technology. The proposed ordinance was presented to the Chapel Hill Town Council in November 1996. The Council referred the proposed ordinance to the Town Manager and Town Attorney for review. Within the review process ongoing discussion, suggestions and negotiations have been taking place between Town staff and the task force. This has resulted in a number of changes in the language in the proposed ordinance. Ultimately, however,the task force and Town staff came to an impass about whether an energy ordinance or an energy conservation resolution should be presented to the Town Council. There were also several unresolved differences in regard to responsibilities for various tasks outlined in the proposed resolution and ordinance. These differences were scheduled to be presented to the Town Council for a decision on May 12, 1997. RECOMMENDATION: The Manager recommends that the Board review the attached material and advise staff if the Board wishes to: a)incorporate a similar energy policy, ordinance or resolution within County policies and procedures use;b)have staff develop a draft of energy policies, ordinances, resolutions, etc., to be brought back to the Board for its review, comment or approval at a later date. 3 MEMORANDUM TO: County Commissioners John Link, County Manager FROM: Paul Thames,PE, County Engineer DATE: May 15, 1997 SUBJECT: Town of Chapel Hill Energy Policy and Energy Ordinance/Resolution The Chapel Hill Citizens' Energy Task Force was created by the Chapel Hill Town Council in February 1992. It was charged with preparing a specific plan to upgrade Town buildings with energy efficient lighting. The charge of the task force was later expanded to include making recommendations to the Council with regard to other measures that could promote energy efficiency and the use of renewable energy. In September 1995, the task force recommended that the Town adopt a proposed Town Energy Policy applicable to all new and existing Town buildings. The proposed policy was referred to the Town Manager and staff for review. During the time period between September 1995 and January 1997, the task force and Town staff worked to reach a consensus on a recommendation for the Energy Policy. The policy document resulting from this consensus was presented to the Chapel Hill Town Council at its 3 March 1997 meeting at which time it was adopted. During the time frame in which the Energy Policy was being developed and approved, the Energy Task Force was working to create an Energy Conservation Ordinance which was also intended to be applicable to all new and existing Town buildings. The purpose of the ordinance was to require(insofar as Town Council-imposed financial constraints and investment payback standards would allow)that buildings built or substantially renovated by the Town itself be built in the most environmentally sound manner and incorporate the most up-to-date energy efficient technology. The proposed ordinance was presented to the Chapel Hill Town Council in November 1996. The Council referred the proposed ordinance to the Town Manager and Town Attorney for review and scheduled a public hearing. In February 1997, the Town Manager and Attorney reported back to the Town Council with a number of recommended changes to the task force recommendations. Most of the recommended changes were incorporated into the language of task force's recommended ordinance. However, there were three recommended changes to which the task force took exception: 1)Town staff recommended that a resolution be used in lieu of an ordinance to accomplish energy conservation goals; 2) staff recommended that the Town's existing consultant selection policy be used to chose an architect in lieu of the task force recommendation that it be allowed to choose one member of the consultant selection committee; and 3) Town staff recommended that the Town Manager be responsible for monitoring and reporting a new or renovated building's energy efficiency performance to the Town Council in lieu of the task force recommendation to require the project architect to monitor and report on the energy efficiency. Perhaps the most critical of these differences was the use of an ordinance or a resolution to achieve energy goals. Town staff, particularly the Town Attorney, contended that the Town could be putting Town staff, selection committee members and elected officials at risk of a criminal charge if the Town failed to select a consultant with the best energy efficient design credentials or otherwise failed inadvertently to comply with the terms of the ordinance. At its meeting of 12 May 1997, the Chapel Hill adopted the proposed Energy Conservation Ordinance with minor revisions to the language of the ordinance. A text of the ordinance with the revisions is not available as of this writing. 4 Elements of both the proposed ordinance and resolution where there was little or no disagreement between staff and task force proposed language or intent included: a) overall energy savings goals; b) energy savings features and strategies; and c) architectural design consultant selection criteria. The overall energy savings goal was to ensure that any new building consumes thirty percent less energy than the maximum allowed under the standards set by the NC Building Code in effect as of 1 February 1997. The preferred energy savings features and strategies, which were explicitly specified in the proposed ordinance and resolution, included solar orientation(building layout), daylighting, use of special glass, use of insulation in excess of code requirements, use of renewable energy for heating air and swimming pools and cooling, water conservation, landscape shading and wind block strategies, use of energy efficient motors and lighting, use of energy management systems, location of parking areas to minimize heat absorption, and the use of materials and colors which will decrease cooling loads. The architectural consultant selection process required that an architect (or firm)must demonstrate expertise in energy efficient building design by means of a previously designed building incorporating the energy savings strategies and techniques listed above. The ordinance and resolution also required that the project architect show justification for failing to incorporate any of the listed energy savings techniques and strategies in the building design. It was suggested by the Energy Task force that Orange County would benefit by adopting a similar ordinance or resolution to guide design of its own buildings as well as those of both the Orange County and Chapel Hill-Carrboro school systems. The school systems, by virtue of their ongoing programs of constructing large buildings(far in excess of anything proposed by the Town[s] and County combined) and potential for significant energy use and conservation,were deemed an important domain for the imposition of mandatory energy design requirements. The draft energy efficiency ordnance and resolution have not been reviewed in any detail by County staff other than the County Engineer. Nonetheless, it would appear to be a reasonable expectation that County staff could have much the same concern as that of Chapel Hill staff relative to the choice of using a resolution or an ordinance as an instrument of strategy to achieve energy efficiency. A specific example relative to consultant selection comes immediately to mind: in selecting a consultant for design of a new or expanded jail, should a consultant be selected on the basis of experience with jail construction or energy efficiency design. Under the requirement of the draft Chapel Hill ordinance, it would be required by law that a design consultant having the requisite energy efficiency expertise but no jail design experience be selected over a consultant having jail design expertise but little or no track record for energy efficient design and construction. There may be other issues of concern which would need to be analyzed and evaluated by the BOCC and County staff. County staff will, of course, review the proposed and adopted ordinance and the proposed resolution and provide comments to the BOCC as per the Board's instruction. If I may provide any additional information or clarification, please advise. 5 _. 3 Energy Policy: Town of Chapel Hill Introduction: The cost of energy represents a significant portion of the Town budget. In fact, the cost of electricity,natural gas and motor fuels for all funds is about $920,000 per year. In addition to these direct costs, our energy consumption has certain negative effects on the environment, particularly air quality, depletes our natural resources and constitutes an economic loss to our community. In view of the above, the Town of.Chapel Hill adopts the energy policy described herein. 1. Purpose: The purpose of this policy is to ensure that the municipal government of the Town of Chapel Hill is a responsible, effective and efficient user of energy. The daily operations of a municipal government require the use of a great deal of energy to heat and cool our buildings, to light our work areas and to fuel the automobiles, trucks and buses that we use to deliver essential services to the public. We will always be a large consumer of energy; however, we can and should take steps to eliminate waste and minimize our energy costs and consumption and utilize renewable energy resources where we can do so without compromising the quality of our service delivery. 2. Responsibility for Energy Management: The Town Manager is responsible for the effective and efficient use of all Town resources, including energy resources. The Town Manager may delegate the authority for such management to various other members of the staff. At the discretion of the Town Manager a "Town Energy Manager" may be appointed from among the existing staff to coordinate energy management tasks among the staff. As the need arises, the Town Manager may appoint AD HOC staff working groups to concentrate on various aspects of this policy. 3. Goals an&Objectives: The primary objective of this policy is to improve energy efficiency in all Town operations while maintaining the high quality of municipal services. a. Measuring Energy Usage. The first energy management priority of the Town Manager is to develop standard procedures for accurately measuring the Town's energy use and establishing a baseline from which to measure progress toward the goal of increased energy efficiency. Possible measures of effectiveness could be BTUs per square foot for buildings, miles per gallon for various classes of vehicles and total BTU's per citizen. This effort will include development of a series of graphic representations of the Town's energy use suitable for inclusion in the Town Manager's quarterly report. These graphic reports will include electricity, natural gas,water and motor fuels. b. Strategic Energy Management Plan. The Town Manager, in consultation with the Citizen's Energy Task Force, is charged with developing a Strategic Energy Management Plan for the Town of-Chapel Hill. This plan should cover no less than a five year period and will be updated annually. The initial plan shall be prepared for submission with the Town ' f 6 z 4 Manager's fiscal year 1996/1997 annual report to the Council. The strategic plan should. discuss the other key goals and objectives of this policy including, but not limited to, the following: 1) Development of Specific Energy Use Reduction Goals 2) Continuation of the on-going lighting retrofit program. 3) Development of demand-limiting strategies such as, operation of emergency back- up generators during periods of peak electrical demand 4) Preparation for the energy impacts associated with the requirement to introduce higher volumes of outside air into HVAC system in response to new Federal indoor air quality standards. 5) Exploration of alternative funding strategies for financing energy efficiency projects. 6) Improving the efficiency of HVAC systems Town-wide. 7) Development of enhanced preventive maintenance measures to optimize the operation of energy consuming systems such as, periodic scheduled replacement of HVAC . filters. 8) Review of the rate schedules of public utilities including Duke Power, Orange Water and Sewer Authority, and Public Service Gas Company to ensure that the Town is billed under the most favorable rate schedule. 9) Identification of technical training and educational opportunities for Town staff members involved in energy management. 4. Coordination with the Citizens' Energy Task Force: The Citizens' Energy Task Force was initially appointed by Council to develop a plan for the Town to take advantage of energy efficient lighting technology. The charge of the Citizens' Energy Task Force was later expanded to include making recommendations to the Council for other measures that can be taken to promote energy efficiency and use of renewable energy. This policy envisions that the Citizens' Energy Task Force will continue to operate until such time as the Town Council deems its work is completed. The Town Manager will continue to provide a staff representative to the Citizens' Energy Task Force. 5. Design Review: Energy efficiency issues will be considered during the staff design review on all local government buildings planned for construction within the planning and permitting jurisdiction of the Town of Chapel Hill. In the case of new building construction planned by the 7 5 Town of Chapel Hill, the review of requests for qualifications for Architects and Engineers and. the screening and selection of project architects will include the issue of experience with energy efficient designs, emerging energy efficient technologies and renewable energy applications. 6. Intergovernmental Coordination: From time to time, opportunities will arise to share information and experience with other governmental entities about emerging energy efficient technologies, energy conservation practices and renewable energy applications. The Town Manager will coordinate the Town's participation in cooperative energy conservation efforts with the State Government and other local governments. At a minimum, this effort will include considering energy conservation in design reviews of planned new schools in the Chapel Hill-Canboro School District. Similar cooperative efforts with Orange County, the Town of Carrboro, the University of North Carolina and other neighboring jurisdictions may be undertaken as opportunities arise. 8 6 ` CITIZEN'S ENERGY TASK FORCE RECOMMENDATION AN ORDINANCE AMENDING THE TOWN CODE (ENERGY CONSERVATION IN DESIGN AND OPERATION OF NEW AND RENOVATED TOWN BUILDINGS) BE IT ORDAINED by the Town Council of Chapel Hill that the Council hereby amends the Town Code by adding a new Article VII. ENERGY CONSERVATION IN DESIGN AND OPERATION OF NEW AND RENOVATED TOWN BUILDINGS to Chapter 5. BUILDINGS AND BUILDING REGUALTIONS, to read as follows: ARTICLE VII. ENERGY CONSERVATION IN DESIGN AND OPERATION OF NEW AND RENOVATED TOWN BUILDINGS Sec. 5-107. Intent It is the intent of the Council to comply with the applicable provisions of G.S. Chapter 143, Article 3B, Energy Conservation In Public Facilities; and to ensure that buildings built or substantially renovated by the Town of Chapel Hill are built in the most environmentally sound way. The Comprehensive Plan for the Town of Chapel Hill says that, "The Town shall encourage site planning, landscaping, and' structure design which maximizes the potential for energy conservation by reducing the demand for artificial heating, cooling, ventilation and lighting, and facilitating the use of solar and other energy resources." It is the intent of the Council to provide the citizens and employees of the Town of Chapel Hill with new and renovated buildings which will give the optimum comfort, ensure the durability of investments for the taxpayer, consider the health of building occupants and provide the greatest awareness possible of the environmental impacts of what we do. Sec. 5-108. Energy Conservation Goals in Building Design. Any buildings built with Town funds shall be designed to achieve a goal of using at least 30% less energy than required by the North Carolina State Building Codes in effect as of February 1, 1997, as long as the estimated energy savings exceed the marginal cost of the energy saving features over the expected life of the building and subject to fiscal constraints established by the Council. In order to avoid increased cost of operation, care shall be taken to avoid complex systems that would require extensive technical training of personnel. Acceptable methods for energy use analysis can be found in Energy Efficient County Facilities For Wake County. A copy of this document is on file and available for loan from the Internal Services Division, Chapel Hill Public Works Department. Sec. 5-109. Qualification of Architects. In order to be selected to design a Town building, an architect has to demonstrate that the architectural firm has previously designed a building using some or all of the techniques listed herein. The architect chosen for any building must incorporate the conditions of this article in the building design or show justification why not. To help ensure compliance with this article, at least one member of each architectural selection review panel shall be a recognized energy professional nominated by the Citizens' 9 7 Energy Task Force. The Citizens' Energy Task Force shall maintain a list, updated annually, of qualified volunteer energy professionals including of brief summary of their qualifications and experience. For projects where the estimated cost of architectural and engineering services is less that $30,000, the manager is authorized to select a panel member from the list. For projects where the estimated cost of architectural and engineering services is $30,000 or more, the Manager shall solicit a nomination from the Citizen's Energy Task Force to identify the selection panel member. Sec. 5-110. Energy Performance Monitoring and Reporting. For major construction projects or substantial renovations of exiting buildings (construction costs of $200,000 or more and/or architectural fees of $30,000 or more) the architect's contract shall require the architect to monitor the energy performance of the building and assist the staff in optimizing energy use of the building during the first year. Twelve months after completion of the project, the architect shall be required to prepare a written report on the performance of the building in relation to the requirements of this article and to present their report to the Council at a regularly scheduled business meeting. For smaller projects the Town Manager may either require these services of the architect or assign similar responsibilities to the staff project manager. The Town Manager's annual report to Council will include a section reporting the energy consumption performance of each Town building. Sec. 5-111. Use of Energy Efficient Technologies in Town Buildings. Energy saving features, including but not limited to the following, shall be considered for new Town buildings and major renovations of existing buildings. Design documents shall include an explanation of how the features listed below are incorporated into the design or, for those features not incorporated, an explanation of the financial or operational reasons why the feature was omitted from the design. a. Solar orientation, with the long axis facing south b. Use of daylighting c. Use of appropriate glass for minimizing heating and cooling loads d. Insulation beyond minimum standards e.,Use of renewable energy for heating and cooling f. Use of renewable energy for heating and swimming pools g. Use of water conservation measures including dual water systems if available h. Landscaping for summer cooling effect and for blocking winter winds i. Use of energy efficient motors j. Use of energy efficient lighting k. Use of energy management systems 1. Parking areas designed to limit heat absorption m. Use of building materials and color to decrease cooling load This the 12' day of May, 1997. 4 10 MANAGER'S RECOMMENDATION A RESOLUTION ESTABLISHING THE TOWN POLICY ON ENERGY CONSERVATION IN DESIGN AND OPERATION OF NEW AND RENOVATED TOWN BUILDINGS WHEREAS, the Citizens' Energy Task Force, on November 26, 1996, recommended that the Town adopt certain energy conservation procedures with regard to the design and operation of new and renovated Town buildings; and WHEREAS, it is the intent of the Council to comply with the applicable provisions of G.S. Chapter 143, Article 3B, Energy Conservation In Public Facilities; and WHEREAS, it is the intent of the Council to ensure that buildings built or substantially renovated by the Town of Chapel Hill are built in the most environmentally sound way; and WHEREAS, it is the intent of the Council to provide the citizens and employees of the Town of Chapel Hill with new and renovated buildings which will give the optimum comfort, ensure the durability of investments for the taxpayer, consider the health of building occupants and provide the greatest awareness possible of the environmental impacts of what we do; NOW, THEREFORE, BE IT RESOLVED by the Council of the Town of Chapel Hill that, 1. Any buildings built with Town funds shall be designed to achieve a goal of using at least 30% less energy than required by the North Carolina State Building Codes in effect as of February 1. 1997, as long as the estimated energy savings exceed the marginal cost of the energy saving features over the expected life of the building and subject to fiscal constraints established by the Council. In order to avoid increased cost of operation, care shall be taken to avoid complex systems that would require extensive technical training of personnel. Acceptable methods for energy use analysis can be found in Energy Efficient County Facilities For Wake County. A copy of this document is on file and available for loan from the-Internal Services Division, Chapel Hill Public Works Department. 2. In order to be selected to design a Town building, an architect has to demonstrate that the architectural firm has previously designed a building using some or all of the techniques listed herein. The architect chosen for any building must incorporate the conditions of this resolution in the building design or show justification why not. 3. The Manager will report to the Council twelve months after the completion of the building as to the performance of the building in relation to the requirements of this resolution. The Town Manager's annual report to Council will include a section reporting the energy consumption performance of each Town building. 4. Energy saving features, including but not limited to the following, shall be considered for new Town buildings and major renovations of existing buildings. Design documents shall include an explanation of how the features listed below are incorporated into the design or, for those features not incorporated, an explanation of the financial or operational reasons why the feature was omitted from the design. � 11 5 a. Solar orientation, with the long axis facing south b. Use of daylighting c. Use of appropriate glass for minimizing heating and cooling loads d. Insulation beyond minimum standards e. Use of renewable energy for heating and cooling f. Use of renewable energy for heating and swimming pools g. Use of water conservation measures including dual water systems if available h. Landscaping for summer cooling effect and for blocking winter winds i. Use of energy efficient motors j. Use of energy efficient lighting k. Use of energy management systems 1. Parking areas designed to limit heat absorption m. Use of building materials and color to decrease cooling load This the 12''day of May, 1997.