In an unprecedented move, the Governor of Maryland has proposed legislation that would make Maryland the first state in the U.S. to ration energy use in existing buildings. House Bill 49, titled Environment – Building Energy Performance Standards – Compliance and Reporting, seeks to reduce greenhouse gas emissions by imposing caps on energy consumption for buildings based on their Energy Use Intensity (EUI).
While the proposal’s goal aligns with the Governor’s efforts to combat global warming, it has sparked significant controversy due to its impact on residents, businesses, and the broader State economy.
Understanding EUI
EUI measures how much energy (e.g., from grid electricity, natural gas consumption, and even solar panels on site) a building uses per unit of area. It’s calculated by dividing the total energy used by a building, over a year, by its total floor area, resulting in a unit like “kBtu/ft²/year” (thousand British thermal units per square foot per year), expressed as a number.
It is actually not that hard. By way of example, the U.S. EPA advises a bank branch has a median EUI of “88.3,” a pre K thru 12 school 48.5, and a hospital 234.3.
By way of interpretation, a lower EUI value indicates a more energy efficient building. The concept of EUI is attributed to the Lawrence Livermore Lab which developed the metric to compare the energy performance of GSA buildings.
However Maryland proposes to misuse the federal government diagnostic tool to establish numeric caps, setting a maximum EUI for particular uses from multifamily residential to hospitals and more, in an attempt to force a reduction in energy consumption in buildings, rationing power used by each building and penalizing those who fail.
The Controversy Around Energy Rationing
Despite its ostensibly innocuous name, HB 49 has faced criticism for introducing energy rationing, a term that conjures images of scarcity during wartime and odd and even day gasoline purchases during the 1973 Arab oil embargo. While the bill avoids using the word “rationing,” it proposes restricting energy use in existing and new buildings over 35,000 square feet.
Understand, rationing allows each person to have only a fixed amount of a particular commodity, like power, usually during times of scarcity, such as during a war, and we know of no instance rationing has been used by a state government as proposed in Maryland.
A Legislative Workaround?
The bill also does not mention that similar efforts last year to put caps on EUI were halted by the Maryland General Assembly’s Joint Committee on Administrative, Executive, and Legislative Review (AELR). Lawmakers expressed concerns that the EUI provisions of the then proposed Maryland’s Building Energy Performance Standards (BEPS) regulations overstepped the authority granted by the legislature in the 2002 Climate Solutions Now Act.
Additionally, funding for EUI target development was frozen in the 2024 state budget pending detailed reports from the Maryland Department of the Environment. Some legislators argue that HB 49 is an “end around” these legislative actions, pushing through a controversial policy without addressing prior concerns.
Economic and Environmental Implications
HB 49 fails to address what one legislator has described as “that this proposal may ration power for as many as 40% of the State’s residents, from low and moderate income families in apartment buildings in Baltimore City to senior citizens residing in condominium buildings in Montgomery County.” Moreover, “.. a multi family building landlord telling a resident they must turn off their stove or their heat to have the building comply with this law is a nonstarter.” And a western Maryland legislator said, “while MDE is keeping the EUI values a secret [they are not in the bill], there is no one number for multifamily residential that makes sense in an Ocean City condo and a Frostburg garden apartment building.” Additionally, a business group has estimated that more than 70% of Maryland’s businesses are tenants in covered buildings and will be subject to rationing.
But be clear, this new law will not apply to energy used in the vast majority of government buildings that will be exempt from EUI rationing.
Why would the Maryland Governor propose Maryland be the first state to ration energy use and why now with the shift in national sentiment and new U.S. Presidential and Congress? Those in the know explain the driver for this bill is not global warming but because Maryland consumes about 40% more electricity than it generates, and that amount is increasing. Maryland needs to produce more electricity to meet its needs but there is no meaningful plan to do that (.. the Don Quixote dream of power from windmills in the ocean off the coast of Ocean City, Maryland is certain to fail).
Last year all of the new solar and other renewable energy sources that came online in Maryland did not even equal the State’s electricity load growth; so the State will need to import a larger percentage of its energy this year than last and into the future. Or, with this bill the Governor can legislate that less electricity can be used in the future; really?
Maybe too much inside baseball for a blog post, but of great import, the Governor’s bill to regulate “site” EUI as opposed to “source” EUI is simply wrong if, the goal is truly reducing GHG emissions because Maryland is and will remain a net importer of electricity (.. but, as proposed, this new EUI law will burden Maryland covered building owners but does nothing about the emissions from an electric generating plants in Tennessee that supply Maryland buildings?).
The government agency that is supposed to do energy planning, the Maryland Energy Administration has been coopted from being “the chief energy authority in the State” when that energy office in Maryland government was created in 1973 to, under the current Governor appointed Director, being the climate change office seeking to improve the environment, “power plants, transmission lines, substations, pipelines for natural gas and petroleum, and storage facilities” be damned.
State Budget Deficit
While some public officials claim none of this has anything to do with filling the State budget deficit, there are purportedly outsized penalties for failure to comply, termed an “alternative compliance fee” for “the building’s failure to meet energy use intensity targets.” The penalty will be later announced by the Maryland Department of the Environment after the bill is law.
In addition, the bill provides all covered buildings will be assessed a new yearly fee (i.e., a new real property tax) to fund the program including the annual reporting by building owners; also in an amount to be announced later. So, building owners will have to pay for the sword of Damocles over their heads.
The Bigger Picture
Proponents argue that the Maryland Governor’s bold initiative is necessary to combat global warming. However, others warn that rationing is wrong and will lead to unintended consequences, including economic inequities and a backlash against government overreach.
With all of that observed, it is difficult to conceive of any scenario where a court will not find this regulation of EUI is preempted by federal law and as such void and unenforceable.
Balancing the need for sustainable practices with the realities of Maryland’s energy infrastructure and economy is a complex challenge. As the Maryland General Assembly debates this controversial bill, a broader question remains: Can the state achieve its ambitious greenhouse gas reduction goals (.. and should it?) without unfairly burdening its residents and businesses?
Only time, and perhaps the legislature, will tell.
In any event, reading HB 49 is a good education in legislating.