sub hamburg greenin local government - gbv · 2012. 8. 9. · development: the noisette community...

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B/114272

GREENINGLOCAL

GOVERNMENT

Legal Strategies for Promoting Sustainability,Efficiency, and Fiscal Savings

•% KEITH H. HIROKAWA & PATRICIA E. SALKIN, EDITORS

Section of State andLocal Government Law

AMERICAN BA8 ASSOCIATION

Summary of Contents

Foreword xvii

Preface xix

About the Editors xxi

About the Contributors xxiii

Part One. Greening Governmental Operations

CHAPTER ONEThe Politics of Greening Governmental Operations 3JaredLang

CHAPTER TWOGovernment Entrepreneurs: Incentivizing Sustainable Businessesas Part of Local Economic Development Strategies 19Jonathan Rosenbloom

CHAPTER THREESustainable Procurement Policies and Practices at the Stateand Local Government Level 43Danielle M. Conway

CHAPTER FOUR

The Legal Implications of Green Policies by Stateand Local Government Employers 75Rosemary Queenan

CHAPTER FIVEPaperless Government: Moving toward Sustainability 99Patricia E. Salkin and Howard F. Gross

Part Two. Creating Green Communities: Land Use Regulationsand Sustainability

CHAPTER SIXSustainable Development Codes 119ChadD. Emerson

in

/"* iv Summary of Con tents

tX CHAPTER SEVEN

P~, Green Buildings and Building Energy Codes 135^ J.CullenHowe

^ CHAPTER EIGHTQ j Green Transportation: Roadblocks and Avenues for Promoting>__ Low-Impact Transportation Choices 159Km. David S. Silverman and Brent O. Denzin

r\ CHAPTER NINE"N̂ . Sustainable Waste Management: Tools for Resource Recovery 177f—i Art von Lehe

r\ CHAPTER TEN/-v Greening the Grid 193^ , Jessica Reinhardt

\T\ CHAPTER ELEVEN*J^ Water Quality and Local Governments: Stormwater Control*~7 and Low Impact Development 217^ Nicole C. Kibert

\T) CHAPTER TWELVEy ^ Use of Conservation Easements by Local Governments 237^H Jessica Owley

CHAPTER THIRTEENUrban Forests as Green Infrastructure 257Keith H. Hirokawa

CHAPTER FOURTEENBuilding Equity into Communities: Sustainability and Climate Justice 277LoraA.Lucero

CHAPTER FIFTEENTribes as Essential Partners in Achieving Sustainable Governance 297Elizabeth Burleson

Part Three. Litigating Green Issues

CHAPTER SIXTEEN:When Cities Sue: The Standing of Municipalities in Nuisance Litigation toCombat Climate Change 319Raymond H. Brescia

Summary of Contents

CHAPTER SEVENTEENPreemption and Green Building Codes 337H. Lawrence Hoyt

CHAPTER EIGHTEEN

Ensuring Government Is Getting the Green Projects Expected 355Patricia E. Salkin and Susan Herendeen

Part Four. Case Studies

CHAPTER NINETEEN

Public, Private, and Nonprofit Collaboration in Sustainable CommunityDevelopment: The Noisette Community Master Plan, North Charleston,South Carolina 373W. Andrew Gowderjr.

CHAPTER TWENTYGreening New Orleans City Government after Katrina 385Brandon David Sousa and Colin Crawford

CHAPTER TWENTY-ONE

Building a Sustainable City: The Miami 21 Zoning Code 413Nancy E. Stroud

Suggestions for Further Reading. 425

Table of Cases 453Index 461

Contents

Foreword xvii

Preface xix

About the Editors xxi

About the Contributors xxiii

Part OneGreening Governmental Operations

CHAPTER ONEThe Politics of Greening Governmental Operations 3JaredLang

Politics of Defining Green Strategies 4

Moving Green Strategies Forward 6Differences with Local Government Size 7

Local Elected Board Interactions 7Local Elected Board and Staff Interactions 10

Staff's Ability to Move Green Strategies Forward 11

Local Government and Community Interactions 12

Staffing Green Initiatives 13Conclusion 14

CHAPTER TWOGovernment Entrepreneurs: Incentivizing Sustainable Businessesas Part of Local Economic Development Strategies 19Jonathan Rosenbloom

Introduction 19Traditional Economic Development Strategies ... 20

Emerging Sustainable Businesses 23Economic Development Meeting the Needs of Sustainable Businesses 26

Why Incentivize Sustainable Businesses? 26

Local Proposals to Incentivize Sustainable Businesses 29

Conclusion 33

Vll

/•*> viii Contents

X[T] CHAPTER THREE[Tj Sustainable Procurement Policies and Practices at the State>^ and Local Government Level 43t—^ Danielle M. Conway

'Zi? Overview of State and Local Government Procurement 43M V Sustainable Procurement at the State and Local Government Level 45h"""1 Sustainable Procurement and State and Local Government/^*S Collateral Policies 46/<-\ Creating Markets for Green Technology, Products, and Services 47

> ^ Promoting More Efficient Use of Public Resources 49

ZL* Implementation of Environmentally Preferable Purchasing Programs 50

Sustainability in the Procurement Process 52^ j Considering Sustainability during Acquisition Planning 54

r\ Reinforcing Sustainability in the Evaluation of Bids or Offers 55

^* Achieving Sustainability at Contract Award and throughout

i-j-i Administration 58

M Promot ing Future Sustainable P rocuremen t Policies a n d Pract ices

2" ^ through Leadership and Tra in ing 61y ^ Conclusion 62^ Appendix. Environmental ly Sensitive Purchas ing ProgramsD"1 by State and Territory 63

•—] CHAPTER FOUR

The Legal Impl icat ions of Green Pol ic ies by Stateand Local Government Employers 75Rosemary Queenan

Introduct ion 75

Potential Implications under the Collective Bargaining Laws 77Alternative Work Schedule Policies as Mandatory Subjects of Bargaining 77

Implementing Green Policies under Management Rights Provisions 79

Potential Legal Challenges under Title VII 80Disparate Treatment 81

Disparate Impact 81

The Business Necessity Defense 83

Compliance with State Law as a Defense 85

Privacy and Disclosure Issues Related to Telecommuting andE-Communication Policies 85Conclusion 88

CHAPTER FIVE

Paperless Government: Moving toward Sustainability 99EDk Patricia E. Salkin and Howard F. Gross

" ' Introduction 99

Contents ix

Paperless Government: A Catalyst for Efficiency 101Legal Considerations and Electronic Records Retention 104

The Evolution of Freedom of Information Laws for Paperless Governments 106

The Legal Weight of Electronic Signatures 107Maintenance of a Dependable and Legally Compliant Security System 108Conclusion 110

Part TwoCreating Green Communities: Land Use Regulations and Sustainability

CHAPTER SIX

Sustainable Development Codes 119Chad D. Emerson

Introduction 119The Historic Practice of Regulating Building Forms 119

A Modern Renewal of Form-Based Regulations: The Seaside Code 121The Expansion of Form-Based Regulations into Municipal Ordinances 122How Form-Based Codes Promote Sustainability 124How Transect-Based Codes Promote Sustainability 126Types of Form-Based and Transect-Based Regulations That Promote

Sustainability 128

Form-Based and Transect-Based Zoning Codes and

Subdivision Regulations 128

Form-Based and Transect-Based Sign Ordinances 130

Form-Based and Transect-Based Light and Noise Ordinances 130

Form-Based and Transect-Based Tree and Landscaping Ordinances 131

Another Approach: Unified Form-Based

and Transect-Based Development Codes 132

Conclusion 133

CHAPTER SEVEN

Green Buildings and Building Energy Codes 135/. Cullen Howe

Introduction 135Green Buildings in General 136Building Energy Codes 138

Energy Policy Act of 1992 138

State Energy Codes 139

Municipal Energy Codes 140

Model Energy Codes 140

Contents

Voluntary and Consensus-Based Building Energy and Green BuildingRating Standards 141

Leadership in Energy and Environmental Design (LEED) 141

EPA's Energy Star Program 144

Other Green Building Rating Systems 144

Selected Municipal Green Building Laws and Initiatives 145Public-Sector Mandates 146

Private-Sector Incentives 146

Multi-sector Mandates 148

Common Legal Obstacles to Implementing MunicipalGreen Building Legislation 149

Nondelegation 150

Antitrust 150

Conclusion 152

CHAPTER EIGHTGreen Transportation: Roadblocks and Avenues for PromotingLow-Impact Transportation Choices 159DavidS. Silverman and Brent O. Denzin

Background 159

Increased Fuel Efficiency 159

Mass Transportation 160

Limit Automobile Use: Transit-Oriented Development

and Pedestrian-Oriented Development 760Initial Steps for Implementing TOD Plans 161Zoning for TOD and POD 162

Overlay Districts 762Increased Residential Density 762Increased Commercial Density 163

Requiring Zoning Compliance with Comprehensive or "Master"Plans

for Land Use 164

Practical and Political Roadblocks and Avenues for TOD 164Barriers to TOD and POD 764Overcoming Political and Practical Barriers 765

Legal Roadblocks and Avenues for TOD 166Legal Roadblocks .....766

Specific Roadblocks Facing TOD Regulations 170Maximum Setbacks 770

Use of Overlay Districts 770

Contents xi

Size and Footprint Caps 777Exactions (Bike Paths, Pedestrian-Oriented Improvements) 777

Working Together: Overlapping Federal, State, Regional, and Local Authority

over Transportation 172Looking Forward: Finding the Road Most Easily Traveled 172

CHAPTER NINESustainable Waste Management: Tools for Resource Recovery 177Art von Lehe

Introduction 177

Where Materials Go 178Economics of Waste Diversion 178

Environmental Implications—Greenhouse Gas Emissions 779

Disposal and/or Diversion 179

Disposal Options 779Tools for Diversion 181

Conclusion 187

CHAPTER TEN

Greening the Grid 193Jessica Reinhardt

Renewable Energy Generation 194Siting/Permitting 194

Other Tools 198

Other Considerations 207Infrastructure 202

Planning 203

Siting 204

Federal versus State Planning and Siting 207

Smart Grid 207

Conclusion 208

CHAPTER ELEVEN

Water Quality and Local Governments: Stormwater Controland Low Impact Development 217Nicole C. Kibert

Introduction 217Water Quantity 277

Water Quality 218

Storm Water Regulation 218Point Source Pollution 218

Nonpoint Source Pollution 279

Contents xi

Size and Footprint Caps 777Exactions (Bike Paths, Pedestrian-Oriented Improvements) 777

Working Together: Overlapping Federal, State, Regional, and Local Authority

over Transportation 172Looking Forward: Finding the Road Most Easily Traveled 172

CHAPTER NINESustainable Waste Management: Tools for Resource Recovery 177Art von Lehe

Introduction 177Where Materials Go 178

Economics of Waste Diversion 178

Environmental Implications—Greenhouse Gas Emissions 779

Disposal and/or Diversion 179Disposal Options 779Tools for Diversion 181

Conclusion 187

CHAPTER TEN

Greening the Grid 193Jessica Reinhardt

Renewable Energy Generation 194Siting/Permitting 794

Other Tools 198

Other Considerations 207Infrastructure 202

Planning ; 203

Siting 204

Federal versus State Planning and Siting 207

Smart Grid 207

Conclusion 208

CHAPTER ELEVENWater Quality and Local Governments: Stormwater Controland Low Impact Development 217Nicole C. Kibert

Introduction 217

Water Quantity 277

Water Quality 218

Storm Water Regulation 218Point Source Pollution 218

Nonpoint Source Pollution 279

xii Contents

Wet Growth 220Low Impact Development 221

Bioretention / Rain Gardens 227Green Roofs 222

Pervious Pavement 223

Case Studies 224Chicago, Illinois: Progressive Environmental Change through Creative Use

of Green Infrastructure 224

Portland, Oregon: Making Green Infrastructure a Policy Priority 226

Sarasota County, Florida: Local Government Leadership 228

Local Government and Local Regulation 230

CHAPTER TWELVEUse of Conservation Easements by Local Governments 237Jessica Owley

Introduction 237Conservation Easement Basics 238Local Governments as Conservation Easement Holders 240

How Local Governments Become Holders 240

Why Local Governments Hold Conservation Easements 247Should Local Governments Act as Holders? 242

Example: Town of Dunn 244

Example: New York City 245

Cautionary Notes for Local Governments Seeking to Hold

Conservation Easements 246

Local Governments as Landowners 248How Local Governments Become Owners of Land Burdened by

Conservation Easements 248

Example: Hogback Mountain 248

Concerns with Local Governments Holding Fee Title

to Land Encumbered by Conservation Easements 249

Local Governments as Conservation Easement Promoters 250Conclusion 251

CHAPTER THIRTEEN

Urban Forests as Green Infrastructure 257Keith H. Hirokawa

Introduction: Urbanization and the Role of Urban Forests 257

Recognizing the Benefits of Trees 258Capturing the Benefits of Urban Trees through Planning and Regulation 260

Legal Considerations for Tree-Protection Authority 260

Tree-Protection Purpose 267

Contents xiii

Urban Forest Planning 267Tree-Protection Regulations 262

Regulatory Coordination 267

Conclusion 268

CHAPTER FOURTEEN

Building Equity into Communities: Sustainability and Climate Justice 277LoraA.Lucero

Introduction 277Looking Back 278

Mitigation versus Adaptation 280The Path to Climate Justice 282

The Necessary Steps 282

Conclusion 287

Appendix A. Principles of Environmental Justice, First NationalPeople of Color Environmental Leadership Summit (1991) 289Appendix B. Bali Principles of Climate Justice (2002) 291

CHAPTER FIFTEENTribes as Essential Partners in Achieving Sustainable Governance 297Elizabeth Burteson

Introduction 297Sustainable Cooperation and Indigenous Peoples 298

Water Rights and Civil Jurisdiction over Non-Indians 299

The Clean Water Act and Tribal Jurisdiction 299

Wild Rice in Wisconsin 300

Montana v. Environmental Protection Agency 302

The Right of the Pueblo to Set High Water-Quality Standards 302

Public Participation: The Means Are the Ends 304

Conclusion 307

Part ThreeLitigating Green Issues

CHAPTER SIXTEENWhen Cities Sue: The Standing of Municipalities in Nuisance Litigation toCombat Climate Change 319Raymond H. Brescia

Introduction 319The Power of Municipalities to Bring Nuisance Actions 320

xiv Contents

Municipal Standing in Recent Nuisance Actions AddressingIllegal Firearms and Predatory Lending 321

Historical Development of Standing 327

Standing in Firearms Litigation 322

Standing in Financial Crisis-Related Litigation 324

Massachusetts v. EPA and the Use of Public Nuisance Law to Address

Climate Change 326Climate Change Litigation after Massachusetts 330Conclusion: The City as Plaintiff, the City as Landowner 332

CHAPTER SEVENTEEN

Preemption and Green Building Codes 337H. Lawrence Hoyt

Introduction 337Preemption of State/Local Laws/Regulations by Federal Law 338Federal Law on Energy Efficiency and the Built Environment 339

Brief Recent Federal Preemption Litigation concerning

State Environmental Regulations 340

State and Local Building Code Provisions—Energy Usage/Efficiency 344

Energy Efficiency Building Code Requirements and

Federal Law Preemption: Where "the Rubber Meets the Sill" 345

The Future of Green Building Codes: Lower Your Objectives? 352

Conclusion 352

CHAPTER EIGHTEENEnsuring Government Is Getting the Green Projects Expected 355Patricia E. Salkin and Susan Herendeen

Introduction 355Mandates and Incentives to Conserve Energy 355

Disputes over Energy Performance of Green Buildings 356

How the LEED-Certification System Drives the Debate 356

Nondelegation Doctrine 357LEED as De Facto Lawmaker 357

LEED Incorporation among Jurisdictions 358

Governments'Measure of Control over Compliance 359

Enforcement of Green Standards 359Compliance Measures across Jurisdictions 359

The Likelihood of Decertification 360

The Law's Obligation to Ensure Accountability

for Environmental Policy and Public Money 367

Contents xv

Part FourCase Studies

CHAPTER NINETEENPublic, Private, and Nonprofit Collaboration in Sustainable CommunityDevelopment: The Noisette Community Master Plan, North Charleston, SouthCarolina 373

W. Andrew Gowderjr.

Introduction 373

The Community Development Team and Guiding Principles 376Structuring the Relationship 378

Community Involvement Model 379

Implementation 382

The Planned Development District at the Navy Yard at Noisette 382

Private Covenants and Design Guides 382

Nonprofits 383

The Rest of the Story: So Far 383

CHAPTER TWENTY

Greening New Orleans City Government after Katrina 385Brandon David Sousa and Colin Crawford

Introduction: Hopes, Dreams, and Realities after the Disaster 385The New Orleans Master Plan 386The Blossoming of Civil Society Post-Katrina 388Water Management 389Energy 392

Energy Smart New Orleans 393

Green Building 394

Solar America Cities and Other Programs 395

Recycling 396Transportation 397

A New Kind of Greenspace for New Orleans: The Lafitte Corridor Greenway 398The Corridor's Historic Roots in the City of New Orleans 399

Adaptive Reuse of the Corridor after Katrina 399

Conclusion 402

xvi Contents

CHAPTER TWENTY-ONEBuilding a Sustainable City: The Miami 21 Zoning Code 413Nancy E. Stroud

Introduction 413The Need for the New Code 414The Process of Adoption 415Sustainability in the Miami 21 Zoning Code 417

The Principles 477Operation of the Code 479

Conclusion 422

Suggestions for Further Reading 425

Table of Cases 453

Index 467