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SB 32
Page 1
Date of Hearing: July 13, 2015
ASSEMBLY COMMITTEE ON NATURAL RESOURCES
Das Williams, Chair
SB 32 (Pavley) – As Amended June 1, 2015
SENATE VOTE: 24-15
SUBJECT: California Global Warming Solutions Act of 2006: emissions limit.
SUMMARY: Requires the Air Resources Board (ARB) to approve statewide greenhouse gas
(GHG) emissions limits equivalent to 40% below the 1990 level by 2030 and 80% below the
1990 level by 2050.
EXISTING LAW:
1) Requires ARB, pursuant to California Global Warming Solutions Act of 2006 (AB 32), to
adopt a statewide GHG emissions limit equivalent to the 1990 level by 2020 and adopt
regulations to achieve maximum technologically feasible and cost-effective GHG emission
reductions.
2) Authorizes ARB to permit the use of market-based compliance mechanisms, applicable from
January 1, 2012 to December 31, 2020, to comply with GHG reduction regulations, once
specified conditions are met. Pursuant to this authority, ARB has adopted a cap-and-trade
regulation which applies to large industrial facilities and electricity generators emitting more
than 25,000 metric tons of CO2 equivalent per year, as well as distributors of fuels, including
gasoline, diesel and natural gas.
THIS BILL:
1) Requires ARB to approve, based on the best available scientific, technological, and economic
assessments, the following statewide limits on GHG emissions, including short-lived climate
pollutants:
a) 40% below the 1990 level by 2030.
b) 80% below the 1990 level by 2050.
2) Authorizes ARB to approve an interim GHG emissions target to be achieved by 2040.
3) States the intent of the Legislature for the Legislature and appropriate agencies to adopt
complementary policies that ensure the long-term emissions reductions adopted pursuant to
the 2030 and 2050 limits advance all of the following:
a) Job growth and local economic benefits in California.
b) Public health benefits for California residents, particularly in disadvantaged
communities.
c) Innovation in technology and energy, water, and resource management practices.
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d) Regional and international collaboration to adopt similar GHG emissions reduction
policies.
FISCAL EFFECT: According to the Senate Appropriations Committee, minor and absorbable
costs to the Cost of Implementation Account to ARB to set the 2050 target and unknown annual
costs, at least in the hundreds of millions of dollars, from various special funds for additional
programs to achieve the required emission reductions.
COMMENTS:
1) Background. The 5th assessment report from the Intergovernmental Panel on Climate
Change (IPCC) notes that atmospheric concentrations of global warming pollutants have
risen to levels unseen in the past 800,000 years. Carbon dioxide concentrations have
increased by 40% since pre-industrial times. There is broad scientific consensus that these
global GHG emission increases are leading to higher air and water temperatures as well as
rising sea levels. Sea level is expected to rise 17 to 66 inches by 2100, and the frequency of
extreme events such as heat waves, wildfires, floods, and droughts is expected to increase.
Pursuant to AB 32, ARB approved the first Scoping Plan in 2008. The Scoping Plan outlined
a suite of measures aimed at achieving 1990-level emissions, a reduction of 80 million metric
tons of CO2 (MMT CO2e). Average emission data in the Scoping Plan reveal that
transportation accounts for almost 40% of statewide GHG emissions, and electricity and
commercial and residential energy sector account for over 30% of statewide GHG emissions.
The industrial sector, including refineries, oil and gas production, cement plants, and food
processors, was shown to contribute 20% of California’s total GHG emissions.
The 2008 Scoping Plan recommended that reducing GHG emissions from the wide variety of
sources that make up the state’s emissions profile could best be accomplished through a capand-trade program along with a mix of other strategies including a low carbon fuel standard
(LCFS), light-duty vehicle GHG standards, expanding and strengthening existing energy
efficiency programs, and building and appliance standards, a 33% Renewable Portfolio
Standard (RPS), and regional transportation-related GHG targets. Pursuant to authority
under AB 32, the ARB adopted a Low Carbon Fuel Standard in 2009, and a cap-and-trade
program, approved on December 13, 2011.
ARB approved an update to the Scoping Plan on May 22, 2014. The update describes
policies, actions, and strategies in the energy, transportation, fuels, agriculture, waste, and
natural lands sectors as a means to continue emissions reductions in each of these sectors.
The update also asserts that California is on track to meet the near-term 2020 GHG limit and
is well positioned to maintain and continue reductions beyond 2020 as required by AB 32.
CO2 remains in the atmosphere for centuries, which makes it the most critical GHG to reduce
in order to limit long-term climate change. However, climate pollutants including methane,
hydrofluorocarbons (HFCs), and soot (black carbon), are relatively short-lived (anywhere
from a few weeks to 15 years), but have much higher global warming potentials than CO2.
New research suggests that aggressively reducing these short-lived climate pollutants in the
short-term, compared to only cutting CO2 emissions, can do more to slow sea level rise and
other climate change impacts in the near-term. SB 605 (Lara, Chapter 523, Statutes of 2014)
requires the ARB to complete a comprehensive strategy to reduce emissions of short-lived
climate pollutants by January 1, 2016.
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2) Executive Orders. In 2005, Governor Schwarzenegger issued Executive Order S-3-05 and
called for GHG emissions reductions to 1990 levels by 2020 and 80% below 1990 levels by
2050.
On April 29, 2015, Governor Brown issued Executive Order B-30-15, which established an
interim statewide GHG emission reduction target to reduce GHG emissions to 40% below
1990 levels by 2030, “in order to ensure California meets its target of reducing greenhouse
gas emissions to 80 percent below 1990 levels by 2050.” The EO also directed all state
agencies with jurisdiction over sources of GHG emissions to implement measures, pursuant
to statutory authority, to achieve reductions of GHG emissions to meet the 2030 and 2050
GHG emissions reductions targets.
3) Author's statement:
SB 32 sets an enforceable greenhouse gas reduction target of 80 percent below 1990
levels by 2050, the level identified by the international scientific community as necessary
to stave off the worst effects of climate change on California's health and safety. The
target is guided by science, but this bill provides the flexibility inherent in the existing
AB 32 framework to adjust pathways to the goal along the way based on changing
technological and economic conditions, and ongoing evaluations of policy efficacy. The
legislation also identifies goals to ensure that greenhouse gas reductions advance job
creation; public health improvement, especially in disadvantaged communities;
innovation; and policy collaboration beyond our borders.
To ensure that the state accomplishes our 2050 target through the most cost-effective
pathway, SB 32 incorporates the Governor’s midterm target of reducing climate pollution
to 40 percent below 1990 levels by 2030.
By simply amending the existing AB 32 framework without any major mechanical
changes to the regulatory implementation process, SB32 ensures that the policy tools
currently being utilized to achieve the existing 2020 greenhouse gas target remain
available for the achievement of targets beyond 2020 – including, but not limited to,
energy efficiency requirements for buildings and appliances, tailpipe emissions standards
for mobile sources, power sector renewable portfolio and emissions performance
standards, sustainable land use policies, fuel-related emissions standards, and market
based mechanisms – to maximize the effectiveness of our climate policies overall.
4) What about-cap and-trade? In addition to requiring ARB to approve 2030 and 2050
statewide GHG emissions limits, this bill makes conforming changes to other sections of AB
32 that refer to the 2020 limit to reflect the commitment to continue the AB 32 program
beyond 2020. However, the bill does not extend the "market-based compliance mechanism"
provision, under which ARB has adopted a cap-and-trade regulation applicable through
2020. The cap-and-trade regulation is a key element in the regulatory program to achieve the
2020 limit and, through the auction of emissions allowances, produces revenues that are
invested in programs to produce additional GHG emission reductions.
5) When will the 2030 and 2050 limits be adopted? Unlike AB 32, which required ARB to
approve the 2020 limit one year after the bill was enacted, this bill provides no deadline for
ARB to approve the 2030 and 2050 limits. Because the 1990 level has already been
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determined by ARB and this bill prescribes the reduction percentages, there is little question
about what the limits will be. The main question is when will ARB approve them?
6) Where will the emission reductions come from? The author and the committee may wish
to consider amending this bill to require ARB to report annually regarding the amounts,
sources and locations of GHG reductions achieved toward the statewide limits.
7) Related legislation. AB 1288 (Atkins), which is pending in the Senate Environmental
Quality Committee, eliminates the December 31, 2020 limit on applicability of a marketbased compliance mechanism under AB 32.
REGISTERED SUPPORT / OPPOSITION:
Support
350 Bay Area
350 Sacramento
Access to Independence
Added Edge
Advanced Energy Economy (AEE)
African American Farmers
American Academy of Pediatrics
American Cancer Society Cancer Action Network, California
American College of Physicians, California Service Chapter
American Farmland Trust
American Heart Association
American Lung Association in California
American Stroke Association
Annie’s
Apricus
Asthma Coalition of Log Angeles County
Audubon California
Autodesk
Azul
Bagito
Bay Area Air Quality Management District
Baz Allergy, Asthma & Sinus Center
Berkeley City Council
Big Sur Land Trust
Biodico Sustainable Biorefineries
Bioenergy Association of California
Biosynthetic Technologies
Blue Sky Biochar
Bonnie J. Adario Lung Cancer Foundation
Breathe California
Building Doctors
Business for Innovative Climate & Energy Policy
C&C Development Co.
CALSTART
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California Bicycle Coalition
California Biodiesel Alliance
California Black Health Network
California Catholic Conference
California Climate and Agriculture Network
California Conference of Directors of Environmental Health
California Energy Efficiency Industry Council
California Energy Storage Alliance
California Equity Leaders Network
California Green Business Network
California Interfaith Power & Light
California League of Conservation Voters
California Municipal Utilities Association
California Nurses Association
Californians Against Waste
California Pan Ethnic Health Network
California Public Health Association
California Ski Industry Association
California Thoracic Society
California Transit Association
California Voices for Progress
California Wind Energy Association
CalTrout
Catholic Charities, Diocese of Stockton
Center for Biological Diversity
Center for Climate Change and Health
Center for Climate Change and Health; Public Health Institute
Center for Climate Protection
Central California Asthma Collaborative
Ceres
ChargePoint
Circulate San Diego
City and County of San Francisco
City Heights Community Development Corporation
City of Agoura Hills, Mayor Weber
City of Calabasas, Mayor, Lucy Martin
City of Lancaster, Mayor, Rex Parris
City of Oxnard
City of Santa Rosa
City of Santa Monica, Mayor, Kevin McKeown
City of Simi Valley, Mayor Huber
City of Thousand Oaks
City of West Hollywood, Mayor Horvath
Clean Power Campaign
Clean Power Finance
Clean Tech San Diego
Clean Water Action
Cleveland National Forest Foundation
Climate Action Reserve
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Climate Parents
Climate Ready Solutions
Climate Resolve
Coalition for Clean Air
Coastal Environmental Right Foundation
Communitas Financial Planning
Communications Workers of America, District 9, AFL-CIO
Consumers Union
County of Los Angeles, Public Health
County of Los Angeles, Supervisor Kuehl
County of Los Angeles, Supervisor Ridley-Thomas
County of Los Angeles, Supervisor Solis
County of Santa Barbara, Board of Supervisors
Covanta
Dignity Health
Distance Learning Consulting
Doctors for Climate Change
Eagle Creek
eBay
Ecogate
Endangered Habitats League
Environment California
Environmental Defense Action Fund (EDAF)
Environmental Defense Fund
Environmental Entrepreneurs
EtaGen
Friends Committee on Legislation of California
Friends of the River
Gap, Inc.
Grand Boulevard Initiative
Greenbelt Alliance
Green Education, Inc.
Harvest Power California
Health Care Without Harm
Health Officers Association of California
House Kombucha
Humane Society of the United States
Klean Kanteen
Land Trust of Santa Cruz County
Large Scale Solar Association
League of Women Voters of California
League of Women Voters of Orange Coast
Levy Strauss & Co.
Liberty Hill Foundation
Los Angeles Business Council
MAAC
Marin Agricultural Land Trust
Marin Clean Energy
Medical Advocates for Healthy Air
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Mercury Press International
Moms Clean Air Force
Mountains Recreation and Conservation Authority
Move LA
National Parks Conservation Association
Natural Resources Defense Council
Nature Conservancy
Nextgen Climate
North Face, The
Pacific Forest Trust
Patagonia, Inc.
Patagonia Works
Peninsula Open Space Trust
Physicians for Social Responsibility, Los Angeles
Physicians for Social Responsibility, San Francisco
Planning and Conservation League
Power2Sustain
Progressive Asset Management
Puma Springs Vineyards
Public Health Institute
Purple Wine & Spirits
Quest
RC Cubed
Regional Asthma Management and Prevention
Releaf
San Diego 350
San Diego Housing Federation
San Francisco Asthma Task Force
Santa Clara County Medical Society
Santa Clara Valley Open Space Authority
Santa Clarita Organization for Planning and the Environment
Sequoia Riverlands Trust
Sidel Systems USA
Sierra Business Council
Sierra Club
Silicon Valley Leadership Group
SmartWool
Sonoma County Agricultural Preservation and Open Space District
Sonoma County Asthma Coalition
Sonoma County Water Agency
South Coast Air Quality Management District
Southern California Public Power Authority
Southwest Wetlands
StopWaste
Sustainable North Bay
Symantec Corporation
Tamalpais Nature Works
TransForm
TreePeople
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Trust for Public Lands
U.S. Green Building Council, California
Union of Concerned Scientists
United States Representative, Adam Schiff
United States Senator, Barbara Boxer
Ventura County Board of Supervisors
Voices for Progress
Wakeland Housing and Development Corporation
Waterplanet Alliance
West Marin Environmental Action Committee
31 individuals
Opposition
African American Farmers of California
Agricultural Council of California
American Alliance Authority & Compliance
American Alliance Drug Testing
American Forest and Paper Association
American Wood Council
Associated Builders and Contractors of California
Building Owners and Managers Association
Brea Chamber of Commerce
California Agricultural Aircraft Association
California Association of Nurseries and Garden Centers
California Building Industry Association
California Business Properties Association
California Cattlemen’s Association
California Chamber of Commerce
California Concrete Pumpers Alliance
California Construction Trucking Association
California Cotton Ginners Association
California Cotton Growers Association
California Dairies Inc.
California Farm Bureau Association
California Fresh Fruit Association
California Independent Oil Marketers Association
California Independent Petroleum Association
California League of Food Processors
California Manufacturers & Technology Association
California Taxpayers Association
California Trucking Association
Camarillo Chamber of Commerce
Chambers of Commerce Alliance of Ventura and Santa Barbara Counties
Coalition of American Latino Truckers
Family Business Association
Fullerton Chamber of Commerce
Greater Bakersfield Chamber of Commerce
Greater Fresno Chamber of Commerce
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Heavy-Haul Conference
Inland Empire Economic Partnership
International Council of Shopping Centers
Irvine Chamber of Commerce
Kern County Board of Supervisors
Los Angeles County Business Federation
NAIOP – Commercial Real Estate Development Association
National Federation of Independent Business
National Hmong American Farmers
Nisei Farmers League
Orange County Business Council
Oxnard Chamber of Commerce
Rancho Cordova Chamber of Commerce
Redondo Beach Chamber of Commerce
San Jose Silicon Valley Chamber of Commerce
Santa Maria Valley Chamber of Commerce and Visitor Bureau
Simi Valley Chamber of Commerce
South Bay Association of Chambers of Commerce
Southwest California Legislative Council
Torrance Chamber of Commerce
Valley Industry and Commerce Association
Western Agricultural Processors Association
Western Growers Association
Western Plant Health Association
Western States Petroleum Association
Western Trucking Alliance
Analysis Prepared by: Lawrence Lingbloom / NAT. RES. / (916) 319-2092