My latest at streets.mn does the carbon accounting which should have been part of the Draft 2040 Transportation Policy Plan developed by the Met Council.
Thrive MSP 2040, the new regional plan for the 7-county metro adopted by the Metropolitan Council, includes moderately strong language about addressing climate change. But the main implementation tool we’ve seen so far from the Council, the Draft 2040 Transportation Policy Plan, doesn’t go nearly far enough. In fact, it doesn’t even start where it should, with a baseline of emissions.
In this and future posts, I’ll try to do what I think the Draft Transportation Policy Plan should have done – identify where we’re starting from and where we need to go in terms of transportation-related greenhouse gas emissions.
The Metropolitan Council held a public hearing tonight on their draft Transportation Policy Plan. If you care about transit or transportation issues in the region, you should comment (you can do so through October 1). Here are four comments I have on the plan:
Our urban areas are significantly underserved by this plan. Even under the “increased revenue scenario”, we will spend $5 on transit to serve suburban commuters for every $1 we spend on transit improvements to places where transit makes economic sense (see here for my attempt at a geographic breakdown of projects). The Met Council, in the Thrive 2040 plan, has said they want to match transit service to the number of riders and intensity of land use. This plan does not do that.
The plan currently prioritizes projects like Gateway BRT (9,000 riders at $50,000 per rider) over projects like Hennepin Ave BRT (23,000 riders at $896 per rider). This is an example of how our urban areas (that are expected to grow significantly) are underrepresented in this plan.
It’s definitely not all bad. The Met Council for the first time has identified regional priorities for a bicycle network, which will give communities the ability to apply for funds to upgrade their local network if it matches the regional plan. Many of the transit projects identified are much needed improvements (Hennepin, Chicago, West Broadway), but are simply not adequately prioritized.
Solar PV seems to be the current darling of the renewable energy world. But how much “resource” is really out there? How much should cities rely on the development of local solar resources to meet their climate and energy goals? What trade-offs should urban cities make between desirable things like tree canopy and maximizing solar energy resources? GIS tools and new data resources can help begin to answer that question.
Counties and states are beginning to produce LiDAR data more regularly, which provides the building block information needed to analyze solar resources on buildings and elsewhere (see my previous post for a brief intro to LiDAR, or see here). Minnesota happens to have LiDAR for the whole state, and Minneapolis has a climate action goal that references local renewable development, so I’ll focus there.
So how much solar electric potential does Minneapolis have? Enough to supply 773,000 megawatt-hours (MWHs) each year, at the upper bound. That would mean covering every piece of rooftop with good sun exposure and appropriate pitch (southeast to southwest facing or flat) with the best modern PV panels. It would also mean solar installations on 68,351 structures, consisting of over 2.3 million individual panels. Continue reading How much energy could Minneapolis get from solar?→
Our region certainly can’t address this issue alone, but we have a responsibility to do our part. The science also says we can’t wait another ten years to start addressing the problem. However, as this plan is currently written, the specifics on climate response are too ambiguous, and risk being watered down during implementation.The regional plan is one of the state’s most significant pieces of land use and transportation policy. By fully embracing state goals and calling for strong response, this could be a document that makes Minnesota a national leader in climate change response.
Old news, but still worth posting. In October, Xcel Energy filed a report with the Public Utilities Commission defending the cost overruns of upgrading the nuclear power plant in Monticello. Via the Star Tribune:
Xcel filed the report in response to the state Public Utilities Commission’s pledge in August to investigate the Monticello investment. The company said that even with the cost overruns, the project benefits customers — saving an estimated $174 million through the remaining 16 years of its license.
Yet that cost-benefit number relies on a “social cost” comparison between keeping the nuclear plant, which emits no greenhouse gases, vs. generating electricity from a plant that does emit them. State law says utility regulators should consider the cost of greenhouse gas emissions, though they’re not currently regulated. Without carbon-emissions savings, the Monticello upgrade would be a losing proposition, costing customers $303 million extra over its life, according to Xcel’s filing.
In interviews, Xcel executives defended the investment, saying they would make the same decision today, even though the utility world has changed since 2008, when the project began. Natural gas, now a favored fuel for power plants, is low-priced thanks to the fracking boom. And electricity demand has lagged since the recession, dampening the need for new plants.
“If we didn’t have our nuclear plants, we would be taking a big step backward in terms of our CO2 accomplishments,” said Laura McCarten, an Xcel regional vice president.
If you dig into the dockets (CI-13-754), you can find that Xcel’s modeling assumptions include a price on carbon of $21.50 per metric ton starting in 2017.
Regardless of your feelings about nuclear power, a utility stating that the externalities of carbon should be priced when making energy planning/financing decisions is significant. The use of a ‘social cost of carbon’ (SCC) metric at the federal level has (not shockingly) been the point of some contention. The Office of Management and Budget’s SCC is $35/mt in 2015 versus Xcel’s $21 in 2017.
Theoretically, we should start to see this figure or something similar used in all future energy planning decisions (Sherco, cough, cough) in Minnesota. Unless of course, Xcel was only being selective in order to justify recovering this very large expense (and spare the shareholders).
It would be an interesting exercise to apply this Minnesota SCC to land use and transportation infrastructure and planning decisions.
Frankly, we cannot afford to waste more time in a state of denial, saying that maybe this time our national leaders will wake up and take the problem seriously. We need to look for leadership and solutions elsewhere.
More importantly, we need to match our climate solutions to situations where leadership is still effective. We need to find targeted, strategic opportunities to reduce emissions, matching solutions to effective leadership.
But just where are those targeted opportunities?
In the search for effective climate solutions, we need to look for what I call “planet levers”: Places where relatively focused efforts, targeted the right way, can translate into big outcomes. Just like a real lever, the trick is to apply the right amount of force in just the right place, with little opposition.
In the search for planet levers to address climate change, we should look for ways to significantly cut emissions that don’t require grand policy solutions, such as carbon taxes or global cap-and-trade schemes, or the approval of the U.S. Congress or the United Nations. We need practical solutions to substantially cut emissions that work with a handful of nimble actors — including a few key nations, states, cities and companies — to get started.
Focusing on cities presents a particularly good set of levers to address climate change. Cities represent a nexus point of critical infrastructure — for electricity, communications, heating and cooling, and transportation — that are already in desperate need of improvement, and shifting them toward low-carbon “climate smart” technologies is a natural progression. Done right, most of these investments would improve the health, economic vitality, efficiency and livability of cities. Most important, most cities largely avoid the partisan gridlock of our national (and some state) governments, making them an excellent place for making progress.
I agree with Jon that cities are a good place to focus, not only because they have “functioning governments” that aren’t deadlocked, but because they have some key policy levers that can be pulled without a great deal of opposition, without getting a huge number of actors involved (creating potential for gridlock or slow movement), and that could have significant emissions impacts in a short time period.
Here are some of the local climate levers I think we can lean on locally, mostly at the city level.
Community choice aggregation (CCA)
The deregulation of electric utility markets is usually associated with some bad outcomes. However, it can have positive benefits as well. Since July of this year, over 58,000 residents and over 7,000 small business customers in Cleveland have received a 21% savings on their electricity bill AND received electricity from 100% green sources (50% wind, 50% hydro) through the Cleveland Municipal Aggregation Program.
This type of program is made possible by the fact that in deregulated electricity markets, cities can act as bulk purchasers for all or many of their community’s electrical customers. This large buying power allows cities to negotiate good terms – like low rates and high renewable percentages. These programs also don’t require the dismantling or purchasing of local investor-owned utilities. Six states allow CCAs, and to date eight cities have used this authority to secure cleaner, more affordable power for their residents. Most allow customers to opt-out and stay with their existing utility if they choose.
Note: state legislation is required to make CCA a reality.
Community solar (solar gardens)
Most people in Minnesota (some say only a third) have a roof that is good for collecting solar energy. Shading, orientation, structural integrity, and ownership structure are just a few of the potential barriers to putting solar on roofs. Matching the demand for solar with the supply of best locations, developed at a large scale for efficiencies, is something community solar or solar gardens can do. These programs could be a powerful climate lever. According to Midwest Energy News:
The idea is to let customers who can’t or don’t want to install solar panels on their own rooftop instead buy individual panels in a nearby solar development. The electricity generated by a customer’s panels is credited to their utility bill as if they were installed on their home or business.
New legislation makes this possible in Minnesota. In Colorado, where the program has been in place since 2012, 9 megawatts of solar was sold out in 30 minutes. That’s roughly the equivalent of 3,000 single family home-sized systems. Time will tell if this demand by project developers translates into strong demand by consumers.
Solar gardens generally require state policy change (except in the case of a municipal or cooperative utility), but don’t require thousands of people making individual installation decisions, hiring contractors, finding financing, etc. A smaller number of experienced installers can do big projects with (theoretically) lower costs, supported by community interest. Customers can buy-in to solar projects at whatever level they choose (usually bound by a minimum and maximum) but can skip all the installation headaches.
Capturing waste heat from the sewer
This one is my favorite. There is a large supply of wasted heat flowing directly beneath our feet all day because we’ve literally flushed it down the drain. One estimate says we’re flushing away 350 billion kWh of energy each year. That’s more than 35 Minneapolis’ worth of energy every year.
Sewer waste heat recovery systems, or “sewer thermal”, work just like ground-source heat pumps to pre-condition air or water before they are used for heating and cooling (don’t worry, no sewer water or gas gets into your air conditioner). In the Olympic Village neighborhood of Vancouver, sewer waste heat provides 70% of the annual energy demand of a district heating system (natural gas provides the rest). National Geographic has a good overview of the growing attention being paid to sewer thermal.
All major cities have large sewer mains collocated with the highest density development. Tapping this waste heat resource would require digging up those pipes, but it can be done much more easily in conjunction with large new redevelopment projects. And generally, there are few actors: wastewater utilities control the pipes, cities control the right of way.
Making energy use transparent
According to the EPA, the commercial and residential sectors were responsible for 40% of US greenhouse gas emissions from the burning of fossil fuels (which is itself responsible for 79 percent of emissions) in 2011. And in most major cities, it’s the large buildings (usually commercial buildings) that are associated with half or more of the energy consumption and associated greenhouse gas emissions. Making these buildings more energy efficient could be a significant climate lever, but that requires knowing how they are performing now and motivating action from their owners and managers.
Nine cities in the US (and many more internationally) are addressing building energy use by making energy usage information more transparent. Building rating and disclosure policies (typically enacted by cities) require large buildings to use widely adopted benchmarking tools to measure their energy performance, and generally require them to disclose this information, along with a score, to the public.
In New York City, one million residents can now see how much energy and water their apartment buildings consumed. In total, over 2 billion square feet of real estate in New York City is now benchmarking building energy and water performance each year. This information isn’t just for tenants, building owners and managers, real estate professionals, and energy service providers can all use this information to improve the performance of the building stock. In 2012, in their first report on benchmarked buildings, New York City estimated that:
If all comparatively inefficient large commercial buildings were brought up to the median energy use intensity in their category, New York City consumers could reduce energy consumption in large buildings by roughly 18% and GHG emissions by 20%. If all large buildings could improve to the 75th percentile, the theoretical savings potential grows to roughly 31% for energy and 33% for GHG emissions. Since large buildings are responsible for 45% of all citywide carbon emissions, this translates into a citywide GHG emissions reduction of 9% and 15% respectively. Much of this improvement could be achieved very cost-effectively through improved operations and maintenance.
An EPA study also showed that buildings doing benchmarking reduce their energy usage. An analysis of 35,000 large buildings over three years showed that these buildings showed a 7 percent average energy savings. Many of these policies are very new (NYC has only reported results for two years), so time will tell how increased public scrutiny of energy performance influences energy use. But ask any building professional, and they will tell you that the first step to improving efficiency is measuring what is currently being used.
Streetlights typically account for a significant portion of the electricity used by a city government enterprise. For Minneapolis, its 31 percent. Navigant says up to 40% can be typical. Water treatment (for drinking) and wastewater treatment are two other major sources of energy use for cities or regional government entities.
Streetlight retrofits can often be done by a city itself, if they own the lights, or by the utility, which is also sometimes the owner. Retrofits can be quick (a few years), and the paybacks, both in greenhouse gas emissions and cost, can be significant.
These are some examples of “levers” I think can be pulled relatively quickly, and without a great deal of political wrangling. And maybe more importantly, they can be done at the local level, usually by cities. Cities are demonstrating they can and will move on climate, breaking what Jon calls the “cycle of climate inaction”.
There may be other strategies which are essential to addressing climate change, but which require engaging many more stakeholders and/or take significantly more time (an example might be residential building energy retrofits). These strategies may be just as critical, often because they may address issues besides energy and climate – like environmental equity. But if we want to work on a timetable that’s anything close to what they experts call for, we should identify and prioritize these short timeframe, high-impact levers we can pull at home.
Autonomous vehicles may bring a myriad of benefits, but I anticipate that one of the largest may be the actual reduction in the total size of the vehicle fleet. Eventually autonomous vehicles will allow “whistlecar” service, and whether fully autonomous or not would, this service is likely to fundamentally change the ownership model of automobiles. Like present-day car-sharing services or taxis, a whistlecar subscription would mean one car could serve the needs of many people, instead of remaining parked most of the day waiting for its one owner to return. Once you’re done with a car, it can drive off and serve someone else in the vicinity, drive to a charging station (if it’s electric), drive to a garage for service, or perhaps even deliver packages. When you can subscribe to an on-demand travel service available 24-7 (and eventually cheaper than owning a car), many people will choose not to own.
One of the key issues is the idea that utilities want to avoid “stranded assets”, or infrastructure they still have to pay to maintain with a shrinking pool of customers. As some customers get more power from solar, sales of electricity shrink, leaving utilities with the same distribution infrastructure to maintain using less revenue. Some utilities, the latest being a municipal utility in San Antonio profiled by David Roberts, argue they shouldn’t pay customers the “market” rate for electricity their customers generate with rooftop solar, but instead should pay them a wholesale rate, or the same as they pay for other electricity on the grid.
The thinking here is that paying the wholesale price will put renewable energy on an even playing field, and help keep the old utility model more financially whole, since wholesale prices are typically much lower than market prices. For example, the 5-year average wholesale price for electricity in the grid area that serves Minnesota was $53.62 per MWh for the period ending in 2010, according to FERC. This is for the “peak” time of day, meaning the afternoon, which is also the time solar is most productive. That’s equal to roughly 5 cents per kWh, which is the unit at which typical household sales are measured. Last month I paid about 11 cents per kWh to Xcel before taxes, fees and other charges like WindSource.
At 5 cents/kWh, rooftop solar would take a very long time to pay off. Many fewer people would likely choose to install it. However, those in the renewable energy world will tell you that 5 cents/kWh doesn’t pay the owner of a system for some of the benefits solar energy has over wholesale electricity. We should actually be looking at a “value of solar” that includes not just the wholesale energy price, but reimbursement for other values. There is movement right now in Minnesota to legislate that a true “value of solar” be computed for future projects. So what other value does solar energy have that utilities might value?
For one, it can be more efficient. Whenever you transmit electricity or long distances, you lose some due to resistance (heat). EIA estimates these loses at 7% nationally and 7.4% in Minnesota. That means utilities are generating more kWhs than are needed to make up for the losses, and thus the customer is paying more for each kWh. If you’re generating power very close to where you use it, you minimize these losses and the extra generation. Distributed solar energy should actually be valued 7% above wholesale prices by a utility if you think it will reduce these line losses. If you include that 7% bump, 5 cents becomes almost 6 cents per kWh.
The other value is the reduced environmental cost of solar generation. There is plenty of discussion about what the optimal cost of carbon should be, and it all depends on what you adopt as your discount rate. Here is a must-read on discount rates, also by David Roberts. If you think that climate change will have a net drag on the economy in the future, your discount rate is likely low, and the optimal cost of carbon gets up into the $50 to $100/ton range. Carbon levels per unit of electricity produced vary quite a bit across the county, but in Minnesota and parts of the upper Midwest, they averaged 0.738 metric tons per MWh in 2009 (the latest year for which EPA has data). At that rate, a high carbon tax might add between 3.5 and 4.5 cents per kwh.
If you add all this up, (an economically optimal price on carbon, savings from transmission losses, and a wholesale price consistent with the 5-year peak average), you get a value of solar energy between 9.5 and 13 cents per kWh. That’s at or above the market rate I’m paying in Minnesota right now. Check out my extremely messy spreadsheet if you want to see the math.
Keep in mind there are other values of solar energy I haven’t considered in my calculus. The Minnesota House legislation includes the savings from delaying capital investments in distribution infrastructure, savings from not having to build more generation, fuel price hedge value savings (not having to bet on fuel costs), and the value of local employment generated by manufacture and installation of solar energy.
Today at streets.mn,, I review models from other regional governments that have addressed climate change in their efforts. The Met Council could use these as models for the forthcoming ThriveMSP 2040 plan.