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CITY OF GLENDALE, CALIFORNIA
REPORT TO THE CITY COUNCIL
AGENDA ITEM
Report: Ordinance of the City of Glendale, California, Amending the Glendale Building and Safety Code Volume IX to Adopt Local Amendments to the 2022 Edition of the California Building and Energy Code to require projects in single-family homes, duplexes and townhomes involving replacement or alteration (but not repair) of an existing air conditioning system or installation of new air conditioning systems must either include a heat pump space conditioner as the primary heating system, or install specific energy efficiency measures in addition to a new air conditioner.
1. Ordinance Amending the Glendale Building and Safety Code, Volume IX, to Adopt Local Amendments to the 2022 Edition of the California Building and Energy Code.
COUNCIL ACTION
Item Type: Ordinance
Approved for August 26, 2025 calendar
EXECUTIVE SUMMARY
In 2022, Glendale adopted local Reach Codes requiring all-electric new construction, photovoltaic (PV) systems, and electric vehicle (EV) charging infrastructure. Following a 2023 court ruling overturning Berkeley’s natural gas ban, the City suspended enforcement of the all-electric requirement in June 2024 but continued PV, EV, and electric-readiness provisions.
In April 2025, the City Council began exploring an Air Conditioner to Heat Pump (AC2HP) Reach Code for existing single-family homes, duplexes, and townhomes. On August 12, 2025, Council directed staff to introduce an ordinance based on modified CALGreen voluntary provisions—that would require installation of a heat pump as the primary heating source; or permit the gas furnace to be retained, but require installation of additional energy-efficiency upgrades where an air conditioning system (not including 8a2
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repair of existing systems) is being replaced or added. The ordinance aims to reduce greenhouse gas emissions by promoting high-efficiency heat pump technology and aligns with state climate goals, the City’s General Plan Safety Element, recently adopted Climate Action and Adaptation Plan (CAAP). Compliance requirements vary depending on whether existing ducts are reused or replaced, with specific duct sealing, airflow, and insulation standards.
Furthermore, the Council requested staff develop a heat pump rebate program with direct payments to eligible residents (as opposed to utility bill statement credits)—designed to cover the cost difference between a heat pump and a standard air conditioner replacement and that the rebate program be considered together with the reach code ordinance. At the August 19, 2025, City Council meeting, the ordinance was introduced. 8a3
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RECOMMENDATION
The City Council introduce an ordinance amending the Glendale Building and Safety Code, Volume IX, to include local reach code amendments to the 2022 Edition of the California Building Energy Code pertaining to heat pumps.
ANALYSIS
In 2022, Glendale adopted local Reach Codes covering building electrification, photovoltaic (PV) systems, and electric vehicle (EV) charging through amendments to the 2022 California Building and Energy Code. These required all-electric new construction (with limited waivers), PV installations for most non-residential and multifamily buildings, and EV charging infrastructure in most new developments.
Following a 2023 federal court ruling striking down Berkeley’s natural gas ban, Glendale’s City Council suspended enforcement of its all-electric new construction requirement in June 2024 but continued enforcing PV, EV, and electric-readiness provisions. In April 2025, Council directed staff to explore a new Air Conditioner to Heat Pump (AC2HP) Reach Code requiring heat pumps or other energy-efficiency upgrades in existing single-family homes when air conditioning systems are installed or replaced.
At the City Council meeting of August 12, 2025, City Council directed staff to introduce an AC2HP Reach Code (Exhibit 1) in accordance with the CalGreen voluntary code provisions for existing single-family buildings (houses, duplexes and townhomes) that would require installation of a heat pump as the primary heating source, or other energy conservation improvements, in cases where an existing air conditioning system is altered or replaced, or where an air conditioning system is added, and which clarifies that the ordinance does not apply to an air conditioning system repair.
Additionally, Council directed Glendale Water and Power staff to bring a heat pump rebate program to the City Council for consideration at the time of adoption of the reach code ordinance, and that such rebate program be (i) based on direct payment to qualified residents as opposed to a bill credit, and (ii) that the rebate address the cost differential between a standard heat pump replacement and an air conditioner replacement.
Proposed Ordinance
The proposed ordinance would amend the 2022 California Energy Code, Title 24, Part 6, as adopted, amended and codified under Glendale Building and Safety Code Volume IX to include, as mandatory, an amended version of the voluntary requirements of the 2025 Title 24, Part 11 California Green Building Standards Code (CALGreen), Section A4.204.1.1 for heat pump space conditioning alterations in single family homes.
CALGreen includes both mandatory and voluntary measures. Jurisdictions may adopt the voluntary measures as mandatory requirements. If the requirements affect the 8a4
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California Energy Code, as the proposed ordinance does, they must be found to be cost effective and must require that buildings be designed to use less energy than the standard California Energy Code. The attached study commissioned by the California Codes and Standards Program (Exhibit 2) has found that the proposed requirements are cost effective and will result in a reduction in Long-Term System Cost (LSC) energy relative to the existing building.
Staff has proposed a modified version of the CALGreen Code that would encourage the installation of a heat pump space conditioning system at the time an air conditioner is replaced or added to an existing home. The proposed ordinance is based on the CALGreen code but has been modified to facilitate implementation. As proposed, a project may comply with the ordinance by either installing a heat pump space conditioner and no other measures other than those that are required under the California Energy Code, or maintain a gas furnace as the primary heating source and install additional energy efficiency measures above what is required under the California Energy Code.
There are several different ways a project could comply. The simplest way would be to install a heat pump (an air conditioner that is also configured to function as a space heater). This could be done either by replacing the furnace with a heat pump system (with or without a furnace) to serve as the air handler for the heat pump, and as a back- up heating system. California Energy Code requirements would apply; these vary depending upon whether the duct system is replaced at the same time.
Alternatively, a project could comply by installing an air conditioner but rely on a gas furnace for space heating. Again, certain California Energy Code requirements would apply when replacing an air conditioner. In addition, this alternative would require other energy efficiency measures.
Table 1 presents compliance requirements for heat pump systems under two scenarios, one using the existing ducts, the other with new ducts. Table 2 presents compliance requirements for systems that still use furnaces as the primary heating source, under the same duct scenarios.
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Table 1. Summary of Requirements if Using a Heat Pump
(for both heating and cooling)
Ducts State Code Requirements Additional Local Code
Requirements
Existing
Duct sealing (10% leakage)
Airflow efficiency (300 CFM/ton)
Refrigerant charge verification
None
New
Duct sealing (5% leakage)
Airflow efficiency (350 CFM/ton)
Fan efficacy (0.58 W/CFM)
Refrigerant charge verification
Attic insulation (R-49)
Air sealing
R-8 Duct insulation
None
Note: When installing a heat pump, a homeowner may also opt to keep the existing furnace or install a new furnace to provide supplemental heating only (below 35°F) Table 2. Summary of Requirements if Using a Furnace
(for heating and an air-cooled air conditioner for cooling) Ducts State Code Requirements Additional Local Code
Requirements
Existing
Duct sealing (10% leakage)
Airflow efficiency (300 CFM/ton)
Refrigerant charge verification
Fan efficacy (0.45 watts/CFM)
Attic insulation (R-49)
Air sealing
New
Duct sealing (5% leakage)
Airflow efficiency (350 CFM/ton)
Fan efficacy (0.45 W/CFM)
Refrigerant charge verification
Attic Insulation (R-49)
Air sealing
R-8 Duct insulation
Fan efficacy (0.35 watts/CFM)
Impacts
There are some incremental costs associated with converting to a heat pump, but these costs are offset by utility bill savings over the lifetime of the equipment and the initial investment differential will be incentivized through the GWP rebate program. From a societal perspective, the incremental costs are more than offset by the savings that accrue to all utility billpayers (e.g., reductions in utility infrastructure costs). The 8a6
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incremental cost, that is the amount over what would otherwise be needed to just replace the air conditioner and comply with the 2025 California Energy Code, depends on whether the furnace is replaced at the same time as the air conditioner. The lifetime of a furnace and air conditioner are about the same, 10-15 years, so it often makes economic sense to replace both if the furnace is near the end of its life. In this scenario, the cost of the furnace replacement is assumed as part of the base project cost.
Alternatively, a heat pump could be configured to operate as the primary heating source using the air handler in the existing furnace and using the furnace for supplemental heating on very cold days.
The costs may be offset by federal tax credits in the amount of 30% off total project costs up to $2,000. Additionally, Glendale Water and Power staff are bringing a heat pump rebate program to the City Council for consideration at the time of adoption of the reach code ordinance. The heat pump rebate program will be presented to City Council August 26, 2025, to consider with the adoption of the AC2HP Reach Code.
In terms of greenhouse gas emissions, heat pumps can provide significant reductions.
This is because heat pumps are far more efficient than gas furnaces (and electric resistance heat) and because an ever-increasing amount of electricity in California is derived from low-carbon energy sources.
Exceptions
The proposed Ordinance offers two general exceptions. The first is for situations where the electrical panel capacity is insufficient to meet the load of a heat pump. The second is where the heat pump would need to be sized more than 12,000 Btu/hr (1 ton) over the air conditioner that would be installed in order to meet the heating load. This exception would pertain to colder California climate zones and would not be normally utilized in Glendale. There are also exceptions in the proposed ordinance to the duct sealing and airflow requirements that specify alternative methods of compliance. All applicable exceptions in the California Energy Code also apply.
Newly adopted State legislation (AB 130) and Critical Timing Impacting Adoption of Local Reach Code Amendments to the Residential Building Code On June 30, 2025, the Legislature adopted, and the Governor signed into law, Assembly Bill (AB) 130 (formerly AB 306); AB 130 became immediately effective.
Among other things, AB 130 restricts local jurisdictions from adopting local amendments to the residential building code for the next two code cycles, between October 1, 2025, and June 1, 2031, subject to limited exceptions, including changes related to home hardening and health safety.
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Staff has evaluated the various implications of AB 130, including on how the City may proceed with adopting an AC2HP Reach code before the October 1, 2025 restrictions take effect. AB 130 would allow the City may adopt a reach code that encourages the use of a heat pump or dual-fuel system (a heat pump combined with a furnace), when an air conditioner is replaced or installed in existing single-family homes, duplexes or townhomes if the proposed local changes are “substantially equivalent to changes or modification that were previously filed [with the California Building Standards Commission] by the governing body of the city or county and were in effect as of September 30, 2025” (Emphasis added).(AB 130, Section 29, amending Health & Safety Code §17958(b)(1) “Exception 1”). Compliance with this provision entails adopting a reach code in sufficient time to take effect before September 30, 2025.
There are two pathways to accomplish this:
1. Amend the 2022 Energy Code
Adopt a reach code based on the existing 2022 Energy Code so that it “will be in effect” before September 30, 2025. Then, when the City adopts the 2025 Building Standards (which it must do before the end of the year) the City can use AB 130, Exception 1 to adopt a reach code on the 2025 Energy Code that is “substantially similar” to the one adopted before September 30, 2025. The City Council would be required to adopt findings that the 2025 reach code is substantially similar. This is the process staff is recommending.
2. 2025 Code Pathway
Propose the reach code in the 2025 Building Standards Code adoption process scheduled to occur before the end of 2025. The second option requires the City to show that the proposed changes are: i) “necessary to implement a local code amendment that is adopted to align with a general plan approved on or before June 10, 2025” (the proposed reach code aligns with the City’s Safety Element), ii) that “permits mixed fuel residential construction consistent with federal law”, e.g. compliance with the federal Energy Policy and Conservation Act (EPCA), (the reach code allows mixed-fuel options and therefore does not conflict with EPCA), and, iii) incentivizes “all-electric construction as part of an adopted greenhouse gas emissions reduction strategy” (the AC2HP is an all-electric option that is incentivized through energy cost savings and installation cost rebates). Staff has evaluated this option and believes the reach code would comply with all the requirements of this exception.
With respect to Option 1 (amending the 2022 Building Standards Code), there is time to introduce and adopt the reach code by August 31, 2025, so that it becomes effective before the end of September; however, if the reach code is scheduled for adoption after August 31, 2025, it would need to be adopted on an urgency basis in order to be effective before September 30, 2025.
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The proposed reach code ordinance would be submitted to the CEC and CBSC immediately upon adoption; however, their approval is not required for the ordinance to become effective, but the reach code could not be enforced until CEC and CBSC approval is obtained.
Should Council approve staff’s recommendations, work would proceed on the timeline provided in Table 4 below.
Table 3. Schedule and Next Steps
Task Timeframe
Ordinance Introduction (Attachment 1) and submittal to the California Energy Commission and California
Building Standards Commission
8/19/2025
Ordinance Adoption(Attachment 1) and submittal to the
California Energy Commission and California Building
Standards Commission
8/26/2025
Ordinance goes into effect 9/25/2025
Receive approval from the California Energy
Commission and California Building Standards
Commission approves for filing
TBD
STAKEHOLDERS/OUTREACH
Staff presented DRAFT reach code language to the August 7, 2025, Sustainability Commission meeting and received recommendations and direction from the Commission.
Staff provided a copy of the reach code model language to the Community Development Building Official and the GWP Clean Energy Officer in June 2025. Staff presented the proposed ordinance to the City Council at the August 12, 2025, meeting.
FISCAL IMPACT
There is no fiscal impact associated with this report.
ENVIRONMENTAL REVIEW (CEQA/NEPA)
The City Council finds and determines that this Ordinance is exempt from review under the California Environmental Quality Act (California Public Resources Code §§15000, et seq., "CEQA"), and the regulations promulgated thereunder (14 California Code of Regulations §§15000, et seq., the "CEQA Guidelines") because it consists of revisions and clarifications to an existing code of construction-related regulations and specification of procedures related thereto being taken for enhanced protection of the environment and 8a9
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while there may be added infrastructure resulting from the implementation of the Reach Codes, it does not have the potential to cause significant effects on the environment; to the contrary, the transition from fossil fuel sources is part of the State of California’s overall plan to decrease GHG emissions from stationary and transportation sources. Adoption of the Ordinance is categorically exempt in accordance with CEQA Guidelines §15305 as a minor alteration in land use limitations which do not result in any changes in land use or density and is exempt under CEQA Guidelines §15308 as an action taken by a regulatory agency as authorized by California law to assure maintenance or protection of the environment.
CAMPAIGN DISCLOSURE
This item is exempt from campaign disclosure requirements.
ALTERNATIVES TO STAFF RECOMMENDATION
1: Do not introduce an Ordinance Amending the Glendale Building and Safety Code to Adopt Local Amendments to the 202 Edition of the California Building and Energy Code. 2: Introduce the Ordinance Amending the Glendale Building and Safety Code, Volume IX, to Adopt Local Amendments to the 2025 Edition of the California Building and Energy Code after October 1, 2025 using the General Plan Exemption set forth in AB 130.. 3: The City Council may consider any alternates not presented by staff.
ADMINISTRATIVE ACTION
Submitted by:
John Takhtalian, Assistant City Manager
Prepared by:
David Jones, Sustainability Officer
Approved by:
Roubik R. Golanian, P.E., City Manager
EXHIBITS/ATTACHMENTS
1. Ordinance of the City of Glendale, California, amending the Glendale Building and Safety Code Volume IX to adopt local amendments to the 2022 Edition of the California Building and Energy Code.
2. 2025 Single Family AC to Heat Pump Cost-Effectiveness Study.