Decarbonization of Massachusetts State Facilities

Learn about various studies and strategies that state facilities are undertaking to decarbonize their operations, as well as resources available to support efforts to lead by example.

The decarbonization efforts of Massachusetts state entities are guided by Leading by Example (LBE) Executive Order 594: Decarbonizing and Minimizing Environmental Impacts of State Government. Signed in April 2021, the LBE Order establishes clear goals and directives that prioritize the elimination of onsite fossil fuel emissions from state buildings and the collective state fleet. This Order accelerates the advancement of broader statewide policies that are pushing the entire Commonwealth towards a decarbonized future.

This page focuses on policies, planning efforts, and studies state agencies are undertaking to decarbonize their operations. The LBE Strategic Priorities and Efforts pages provides more specific information related to efficient buildings, clean transportation, renewable and clean energy resources, and other greenhouse gas reduction efforts of state facilities.

What is Decarbonization?

In the context of Leading by Example efforts, decarbonization is the elimination of greenhouse gas emissions from the operation of buildings and vehicles. This primarily occurs through the transition away from fossil fuel combustion (such as that of natural gas, oil, propane, gasoline, and diesel) to the use of low- or zero-carbon fuels or electricity that is sourced from renewable resources. This transition, alongside energy efficiency efforts and the greening of the grid, is expected to result in negligible or zero greenhouse gas emissions.

Statewide planning, requirements, and legislation continue to advance decarbonization across the Commonwealth, with publications such as the 2050 Decarbonization Roadmap and Clean Energy and Climate Plans mapping out the state’s strategy for achieving Net Zero; see the Laws and Policies section below for additional information

The four key pillars of decarbonization for the Commonwealth, per the 2050 Decarbonization Roadmap.

Decarbonizing State Facilities: Targeting Onsite Fossil Fuels

While state entities have made progress in reducing emissions from their operations, about 75% of the reduction in overall emissions can be attributed to the "greening" of the grid, i.e., the increasing amount of renewable generation in the region resulting in decreased emissions intensity from electricity without any direct action required of consumers. Executive Order 594 sets goals and targets for state entities to focus on eliminating the use of onsite fossil fuels - those that are the most challenging to address, are under the direct control of state entities through their operations and decision-making, and that constitute a growing portion of emissions within the state government portfolio​.

Onsite emissions from fossil fuels used at state facilities has decreased by 20% since FY04, while emissions from electricity used at state facilities has decreased by 61%. Emissions reduction from electricity is largely due to the greening of the grid, which has seen a 55% decrease in GHG emissions intensity over the same time period.

The State Building Portfolio

The Massachusetts state building portfolio includes more than 80 million square feet of buildings, including large and small college campuses, correctional facility complexes, 24/7 hospitals and residential care facilities, vehicle depots, and more. There will not be a ‘one-size-fits-all’ approach to decarbonization; different facilities have disparate needs, site conditions, resiliency concerns, and other site-specific challenges that require individualized solutions.

The Division of Capital Asset Management and Maintenance (DCAMM) is a critical leader in the decarbonization of Commonwealth buildings. DCAMM is responsible for overseeing capital planning, new building construction, major renovations, renewable energy projects, and facilities management for over 65 million square feet of Commonwealth buildings. DCAMM’s Energy and Sustainability programs help drive decarbonization of existing buildings and ensuring that new buildings and major renovations are constructed to meet the Massachusetts LEED Plus 2.0 Standard. Other entities in the state portfolio not managed by DCAMM, including quasi-public authorities, certain higher education facilities, and some executive branch facilities, are also working to follow this Standard.

State Entity Decarbonization Plans and Studies

~60%  Of state government emissions are accounted for under completed and in progress decarbonization roadmaps

The decarbonization of complex buildings and campuses necessitates long-term planning to provide a clear understanding of the technologies, investments, strategies, and timelines required. Numerous decarbonization studies are at various stages of implementation across the state portfolio. As of August 2023, 20 state entities (ranging from campuses, prisons, and office buildings) have initiated or completed some form of a decarbonization roadmap. Collectively, these roadmaps cover over 40 million square feet of buildings and represent over 300,000 metric tons of average annual GHG emissions, or roughly 60% of the emissions of the state portfolio, the equivalent of ~58,000 cars on the road.

The list of decarbonization studies, energy plans, and master plans below will be updated as the related requests for proposals and/or results are made publicly available. Note that these studies take many different forms and were not necessarily intended to be implementation design documents; some provide preliminary roadmaps outlining the long-term technologies and strategies needed to achieve decarbonization, while others may provide initial design information. In most cases, additional design and implementation studies will be needed.

Table last updated August 2023.

Facility/Site	Year Study Completed	Description	Consultant/Study Team	Links to Request for Proposals (RFPs) and Final Reports*
UMass Amherst	2021	UMA's study identified a number of strategies to decarbonize operations by 2032. The campus is now in the process of digging wells for ground-source heat pumps, installing onsite solar PV, electrifying their fleet, and more.	MEP Associates (Salas O'Brien), Brailsford & Dunlavey, Competitive Energy Solutions, Greener U	UMass Amherst Carbon Mitigation Task Force Final Report (Feb 2021) UMass Amherst Carbon Zero website
UMass Dartmouth	2021	UMD's study provided a roadmap to decarbonize by 2050 largely through converting from steam to a low-temperature hot water system heated and cooled with ground-source and air-source heat pumps. Efforts are now underway with DCAMM to conduct further analyses and develop project plans for implementation.	Ramboll	RFP UMass Dartmouth Campus Energy Master Plan (Feb 2021)
UMass Lowell	2021	UML's study provided a roadmap to decarbonize by 2050 through building upgrades and, where appropriate, converting to low-temperature hot water systems. UML is actively incorporating the recommendations of their decarbonization plan into capital projects where appropriate.	BR+A	RFP UMass Lowell Alternative Energy Master Plan (June 2021)
Salem State University	2021	SSU's study focused on decarbonizing their North Campus heating and cooling systems by 2040. Like the UMass campuses, this will require a transition from steam to low temperature hot water powered by ground-source heat pumps and other technologies. Efforts are now underway with DCAMM to develop project plans for implementation.	MEP Associates (Salas O'Brien)	RFP Salem State North Campus Clean Energy Feasibility Study (August 2021)
Mass Maritime Academy	2022	DCAMM in conjunction with the Massachusetts Maritime Academy, Completed a decarbonization study of the Buzzards Bay campus that included a process for implementation. Following the study, this project is expected to include comprehensive energy efficiency measures and the construction of geo-exchange infrastructure to support the first phase of the decarbonization plan. The Academy is planning to also install additional renewable energy systems to augment its onsite generation, which will significantly reduce purchase electricity.	Sasaki, van Zelm Engineers	Mass Maritime Master Plan (See Capital projects section on website) Massachusetts Maritime Academy Decarbonization Study (May 2022)
MassPort Authority	2022	The Roadmap to Net Zero (Roadmap) focuses on 100% of the greenhouse gas (GHG) emissions directly controlled by Massport owned facilities and equipment (Scope 1), and purchased electricity (Scope 2), with continued potential influence in areas the Authority does not control (Scope 3). The Roadmap outlines the steps Massport will take to reduce emissions within the decade, directly benefitting neighboring communities and further preparing the Authority for the impacts of climate change.		Roadmap to Net Zero Summary RFQ for Roadmap Implementation (June 2022)
UMass Boston	2023	UMass Boston began a decarbonization study in 2021 aimed at identifying pathways to achieve carbon neutrality by 2050. The plan identified a combination of technologies that would support this goal, including heat pumps and sea water heat exchangers.	BR+A	RFP
UMass Chan Medical School	Underway	UMass Chan Medical launched their decarbonization study in 2022 with the goal to achieve net-zero emissions by 2040, while maintaining resiliency for their critical healthcare systems.	Arup, Greener U	RFP
DCR - Multiple	Underway	DCR staff has conducted a comprehensive review of heating equipment across its portfolio and developed a strategy to replace fossil fuel-based heating equipment with air-source heat pumps and other renewable thermal alternatives as they approach the end of life.	Internal staff

*Final reports may not always be made public

In addition to comprehensive decarbonization studies, state facilities, DCAMM, and other state construction agencies are working to construct high-performing, efficient buildings and reducing energy use intensity and fossil fuel use in existing buildings. See the LBE Strategic Priorities and Efforts pages for more information.

Spotlight on Higher Education Campus Decarbonization Studies (SSU, UMA, UMD, UML)

The first state entities to conduct comprehensive decarbonization studies were Salem State University, UMass Amherst, UMass Dartmouth, and UMass Lowell. While these campuses vary in size, complexity, and the decarbonization targets they aim to meet, their roadmaps include some commonalities. Resources linked below highlight key findings across these roadmaps and takeaways that are potentially applicable to other campus settings.

Learn more about these studies:

• 2020-2021 Massachusetts Public Campus Decarbonization Studies Summary ⇒ Three-page document summarizing the key findings and take-aways from the 2020-2021 campus decarbonization studies.
• 2022 Better Buildings Summit Presentation: Decarbonizing MA State Campuses ⇒ Slide deck presented at the 2022 Better Buildings Summit, summarizing the process the campuses followed to complete their studies and the key recommendations.
• UMass Amherst Carbon Zero Commitment ⇒ Following completion of its decarbonization roadmap, UMA announced 2032 as its target for net-zero emissions. This site acts as the central hub for related efforts.

Decarbonization Tools and Resources

State Entity Climate Action

See links below to other websites that feature state entity decarbonization projects and efforts:

Please contact [e-mail] with any recommended websites, reports, or projects to add to this list.

• High-Performance, Efficient Buildings – This LBE page explores how state agencies, authorities, and campuses are constructing high-performance buildings that prioritize energy and emission reductions, and how these entities are implementing energy efficiency measures at existing buildings to improve building performance.
• LBE Progress (coming soon) – This page includes a comprehensive progress dashboard detailing the emissions and fossil fuel reduction progress the LBE portfolio has made since 2004.
• DCAMM Planning, Design, and Construction Projects – This page includes links to numerous DCAMM projects that include improving building performance, constructing high-performance buildings, and advancing decarbonization efforts of partner state agencies.

Building Decarbonization Planning

• Low Carbon Technology Strategies Toolkit (U.S. Dept of Energy) ⇒ Guidance documents for building retrofits, including recommended technologies and strategies for ten different building types. 
• Decarbonizing HVAC and Water Heating in Commercial Buildings (U.S. Dept of Energy) ⇒ Resources intended to guide commercial buildings towards electrification of heating systems, including guidance on technical, economic, and overall feasibility. Includes a helpful evaluation checklist. 
• Framework for Greenhouse Gas Emissions Reduction Planning: Building Portfolios (U.S. Dept of Energy) ⇒ The goal of this framework is to provide guidance to organizations seeking to reduce GHG emissions for their building portfolios and vehicle fleets. The process described in this framework helps organizations develop an actionable plan that prioritizes emissions reduction measures, identifies solutions, and lays out a phased pathway to achieve deep emissions reductions.
• Empire Building Playbook: An Owner’s Guide to Low Carbon Retrofits (NYSERDA) ⇒  Guide that walks building owners through the process of generating a decarbonization roadmap for their buildings. Highlights case studies, property owner reflections, and economic benefits of high performance buildings.
• Carbon Neutral Buildings Roadmap (NYSERDA) ⇒ Roadmap containing energy efficiency and electrification strategies to improve building comfort and air quality. 
• Building Energy Exchange Resource Library ⇒ Resource library including reports, case studies, and planning tools to electrify and improve the efficiency of a variety of building types. 

Higher Education Campus Planning

• Campus Decarbonization + Fossil Fuel Transition Example Database ⇒ Higher education campuses across the country have started to identify and implement the strategies and technologies needed to decarbonize their operations. This spreadsheet includes basic information on campuses currently undergoing or planning for this transition. The approaches herein may be applicable to Massachusetts state entities.
• Climate Neutral Research Campuses (NREL) ⇒ Climate action planning process overview and planning tool to help research campuses reduce emissions. This webpage gives guidance on implementing different technologies for research campuses.
• Zero Energy University Campuses: A 2018 Progress Update on Reaching Campus Energy Goals (NREL) ⇒ Covers best practices to meet campus energy targets. The paper includes construction contracts, design guidelines, implementing pilot new construction zero energy projects, high-performance district energy systems, and more.

Informational Resources: Renewable Fuels and Clean Heat

• Reclaiming Hydrogen for a Renewable Future (EarthJustice) ⇒ Report highlighting role green hydrogen can play in decarbonized future. .
• Selection of Clean Heating & Cooling Equipment (UMass CEE) ⇒ Information sheet highlighting details of heating and cooling systems: air- and ground-source heat pumps, solar thermal, and modern wood heating.

Laws and Policies

Laws and policies in Massachusetts advancing decarbonization efforts include the following:

• In March 2021, the Baker Administration signed An Act Creating a Next Generation Roadmap for Massachusetts Climate Policy, which strengthened greenhouse gas emissions reduction requirements, increased protections for Environmental Justice communities, authorized the implementation of a new energy efficient building code, and authorized the Commonwealth to procure additional offshore wind energy.
• In August 2022, the Baker Administration signed An Act Driving Clean Energy and Offshore Wind, which further codified Massachusetts' offshore wind procurement targets, directs electric distribution companies to develop modernization plans to prepare for building and transportation sector electrification, set new rebates for zero emission vehicles, and a number of other policies aimed at tracking building emissions and setting decarbonization targets.
• The Massachusetts 2050 Decarbonization Roadmap analyzed pathways for Massachusetts to decarbonize the building, transportation, and energy sectors and to achieve net-zero emissions in 2050.
• The MA 2025 & 2030 Clean Energy and Climate Plan (CECP) provides a comprehensive suite of strategies, policies, and actions the Commonwealth will undertake this decade to reduce statewide GHG emissions by 33% in 2025 and 50% in 2030. The actions outlined will put the Commonwealth on a pathway to achieve net zero emissions by 2050.
• The MA 2050 Clean Energy and Climate Plan (CECP) details the strategies, policies, and actions the Commonwealth will undertake to put the Commonwealth on a pathway to achieve Net Zero greenhouse gas emissions in 2050.
• The Massachusetts Clean Energy and Climate Metrics page provide key information and performance indicators relevant to Massachusetts' greenhouse gas emissions and the Clean Energy and Climate Plans.
• The Commission on Clean Heat was established through Executive Order 596. This Commission explored options to accelerate the deployment of energy efficiency programs and clean heating systems in new and existing buildings and transition existing distribution systems to clean energy. They considered financing mechanisms, incentives, and other regulatory options, including a framework for a cap on greenhouse gas emissions from heating fuels. Policy recommendations have been made available in a final report issued November 2022.
• The 2022-2024 Three Year Energy Efficiency Plan directs the Program Administrators of Mass Save to deliver 845,000 tons of emissions reduction towards the Commonwealth's 2030 greenhouse gas limit. Mass Save commercial programs include prescriptive and custom programs aimed at decarbonizing buildings to help achieve this target.

Date published:	September 1, 2023
Last updated:	September 1, 2023