Existing law, the California Building Standards Law, establishes the California Building Standards Commission (commission) within the Government Operations Agency. Existing law requires the commission to approve and adopt building standards and to codify those standards in the California Building Standards Code. Existing law requires the commission to publish, or cause to be published, editions of the code in its entirety every 3 years, and to publish, or cause to be published, supplements as necessary in the intervening period. Existing law requires all state agencies that adopt or propose to adopt a building standard to submit the building standard to the commission for approval and adoption.

Existing law establishes the Department of Housing and Community Development (department) in the Business, Consumer Services, and Housing Agency. Existing law, the State Housing Law, requires the department to propose the adoption, amendment, or repeal of building standards to the commission and to adopt, amend, or repeal rules and regulations for the protection of the health, safety, and general welfare of the occupant and the public relating to specified residential structures, as provided, which apply throughout the state.

This bill would declare it to be the established policy of the state that all dwelling units, as defined, are required to be able to attain and maintain a safe maximum indoor temperature. The bill would require all relevant state agencies to consider this state policy when revising, adopting, or establishing policies, programs, and criteria, including grant criteria, that are relevant to achieving the state policy and, beginning January 1, 2027, when revising, adopting, or establishing regulations that are relevant to achieving this state policy.

Existing law, the California Building Standards Law, establishes the California Building Standards Commission (commission) within the Government Operations Agency. Existing law requires the commission to approve and adopt building standards and to codify those standards in the California Building Standards Code. Existing law requires the commission to publish, or cause to be published, editions of the code in its entirety every 3 years, and to publish, or cause to be published, supplements as necessary in the intervening period. Existing law requires all state agencies that adopt or propose to adopt a building standard to submit the building standard to the commission for approval and adoption.

Existing law establishes the Department of Housing and Community Development (department) in the Business, Consumer Services, and Housing Agency. Existing law, the State Housing Law, requires the department to propose the adoption, amendment, or repeal of building standards to the commission and to adopt, amend, or repeal rules and regulations for the protection of the health, safety, and general welfare of the occupant and the public relating to specified residential structures, as provided, which apply throughout the state.

This bill would declare it to be the established policy of the state that all dwelling units, as defined, are required to be able to attain and maintain a safe maximum indoor temperature. The bill would require all relevant state agencies to consider this state policy when revising, adopting, or establishing policies, programs, and criteria, including grant criteria, that are relevant to achieving the state policy and, beginning January 1, 2027, when revising, adopting, or establishing regulations that are relevant to achieving this state policy.

Existing law, the California Building Standards Law, establishes the California Building Standards Commission (commission) within the Department of General Services. Existing law requires the commission to approve and adopt building standards and to codify those standards in the California Building Standards Code. Existing law requires the commission to publish, or cause to be published, editions of the code in its entirety every 3 years, and to publish, or cause to be published, supplements as necessary in the intervening period. Existing law requires all state agencies that adopt or propose to adopt a building standard to submit the building standard to the commission for approval and adoption.

Existing law establishes the Department of Housing and Community Development (department) in the Business, Consumer Services, and Housing Agency. Existing law, the State Housing Law, requires the department to propose the adoption, amendment, or repeal of building standards to the commission and to adopt, amend, or repeal rules and regulations for the protection of the health, safety, and general welfare of the occupant and the public relating to specified residential structures, as provided, which apply throughout the state.

This bill would declare it to be the established policy of the state that all dwelling units, as defined, are required to be able to attain and maintain a safe maximum indoor temperature. The bill would require all relevant state agencies to consider this state policy when revising, adopting, or establishing policies, programs, and criteria, including grant criteria, that are relevant to achieving the state policy and, beginning January 1, 2027, when revising, adopting, or establishing regulations that are relevant to achieving this state policy.

Existing law, the California Building Standards Law, establishes the California Building Standards Commission (commission) within the Department of General Services. Existing law requires the commission to approve and adopt building standards and to codify those standards in the California Building Standards Code. Existing law requires the commission to publish, or cause to be published, editions of the code in its entirety every 3 years, and to publish, or cause to be published, supplements as necessary in the intervening period. Existing law requires all state agencies that adopt or propose to adopt a building standard to submit the building standard to the commission for approval and adoption.

Existing law establishes the Department of Housing and Community Development (department) in the Business, Consumer Services, and Housing Agency. Existing law, the State Housing Law, requires the department to propose the adoption, amendment, or repeal of building standards to the commission and to adopt, amend, or repeal rules and regulations for the protection of the health, safety, and general welfare of the occupant and the public relating to specified residential structures, as provided, which apply throughout the state.

This bill would declare it to be the established policy of the state that all dwelling units, as defined, are required to be able to attain and maintain a safe maximum indoor temperature. The bill would require all relevant state agencies to consider this state policy when revising, adopting, or establishing policies, programs, and criteria, including grant criteria, that are relevant to achieving the state policy and, beginning January 1, 2027, when revising, adopting, or establishing regulations that are relevant to achieving this state policy.

Existing law, the California Building Standards Law, establishes the California Building Standards Commission (commission) within the Department of General Services. Existing law requires the commission to approve and adopt building standards and to codify those standards in the California Building Standards Code. Existing law requires the commission to publish, or cause to be published, editions of the code in its entirety every 3 years, and to publish, or cause to be published, supplements as necessary in the intervening period. Existing law requires all state agencies that adopt or propose to adopt a building standard to submit the building standard to the commission for approval and adoption.

Existing law establishes the Department of Housing and Community Development (department) in the Business, Consumer Services, and Housing Agency. Existing law, the State Housing Law, requires the department to propose the adoption, amendment, or repeal of building standards to the commission and to adopt, amend, or repeal rules and regulations for the protection of the health, safety, and general welfare of the occupant and the public relating to specified residential structures, as provided, which apply throughout the state.

This bill would declare it to be the established policy of the state that all dwelling units, as defined, are required to be able to attain and maintain a safe maximum indoor temperature. The bill would require all relevant state agencies to consider this state policy when revising, adopting, or establishing policies, programs, regulations, and criteria, including grant criteria, that are relevant to achieving the state policy. policy and, beginning January 1, 2027, when revising, adopting, or establishing regulations that are relevant to achieving this state policy.

Existing law, the California Building Standards Law, establishes the California Building Standards Commission (commission) within the Department of General Services. Existing law requires the commission to approve and adopt building standards and to codify those standards in the California Building Standards Code. Existing law requires the commission to publish, or cause to be published, editions of the code in its entirety every 3 years, and to publish, or cause to be published, supplements as necessary in the intervening period. Existing law requires all state agencies that adopt or propose to adopt a building standard to submit the building standard to the commission for approval and adoption.

Existing law establishes the Department of Housing and Community Development (department) in the Business, Consumer Services, and Housing Agency. Existing law, the State Housing Law, requires the department to propose the adoption, amendment, or repeal of building standards to the commission and to adopt, amend, or repeal rules and regulations for the protection of the health, safety, and general welfare of the occupant and the public relating to specified residential structures, as provided, which apply throughout the state.

Existing law, the California Building Standards Law, establishes the California Building Standards Commission (commission) within the Department of General Services. Existing law requires the commission to approve and adopt building standards and to codify those standards in the California Building Standards Code. Existing law requires the commission to publish, or cause to be published, editions of the code in its entirety every 3 years, and to publish, or cause to be published, supplements as necessary in the intervening period. Existing law requires all state agencies that adopt or propose to adopt a building standard to submit the building standard to the commission for approval and adoption.

Existing law establishes the Department of Housing and Community Development (department) in the Business, Consumer Services, and Housing Agency. Existing law, the State Housing Law, requires the department to propose the adoption, amendment, or repeal of building standards to the California Building Standards Commission commission and to adopt, amend, or repeal rules and regulations for the protection of the health, safety, and general welfare of the occupant and the public relating to specified residential structures, as provided, which apply throughout the state.

This bill would require the Department of Housing and Community Development department to research, develop, and propose for adoption by the California Building Standards Commission commission for the next triennial update of the California Building Standards Code that occurs on or after January 1, 2026, standards that may include, among other things, the use of mechanical ventilation, to achieve a maximum safe indoor air temperature of 82 degrees Fahrenheit for newly constructed residential dwelling units.

The bill would state the intent of the Legislature to enact legislation relating to the consideration by state agencies and departments of a state policy on a safe maximum indoor temperature in all residential dwellings, and for state agencies and departments to revise, adopt, or establish policies, regulations, and grant criteria, as applicable, pertinent to a safe maximum indoor temperature in all residential dwellings.

Existing law, the California Building Standards Law, establishes the California Building Standards Commission within the Department of General Services. Existing law requires the commission to approve and adopt building standards and to codify those standards in the California Building Standards Code. Existing law requires the commission to publish, or cause to be published, editions of the code in its entirety every 3 years, and to publish, or cause to be published, supplements as necessary in the intervening period. Existing law requires all state agencies that adopt or propose to adopt a building standard to submit the building standard to the commission for approval and adoption. Among other things, existing law required the State Energy Resources Conservation and Development Commission, also known as the Energy Commission, on or before January 1, 2019, and in consultation with the Contractors State License Board, local building officials, and other stakeholders, to approve a plan that promotes compliance with specified regulations relating to building energy efficiency standards in the installation of central air conditioning and heat pumps, as specified.

Existing law establishes the Department of Housing and Community Development in the Business, Consumer Services, and Housing Agency. Existing law, the State Housing Law, requires the department to propose the adoption, amendment, or repeal of building standards to the California Building Standards Commission and to adopt, amend, or repeal rules and regulations for the protection of the health, safety, and general welfare of the occupant and the public relating to specified residential structures, as provided, which apply throughout the state.

This bill would require the Department of Housing and Community Development to research, develop, and propose for adoption by the California Building Standards Commission for the next triennial update of the California Building Standards Code that occurs on or after January 1, 2026, standards that may include, among other things, the use of mechanical ventilation, to achieve a maximum safe indoor air temperature of 82 degrees Fahrenheit for newly constructed residential dwelling units.

The bill would require the California Building Standards Commission and the Department of Housing and Community Development, on or before an unspecified date, to each submit a report to the Legislature that includes the standards described above, subject to specified requirements.

The bill would state the intent of the Legislature that, among other things, the commission modify how baseline rates are calculated for high-heat climate zones to support affordable maintenance of a residential maximum indoor air temperature of 82 degrees Fahrenheit that results in the average electric bill of households in high-heat climate zones not exceeding 5% of household income. to enact legislation relating to the consideration by state agencies and departments of a state policy on a safe maximum indoor temperature in all residential dwellings, and for state agencies and departments to revise, adopt, or establish policies, regulations, and grant criteria, as applicable, pertinent to a safe maximum indoor temperature in all residential dwellings.

(1)Existing law, the California Building Standards Law, establishes the California Building Standards Commission within the Department of General Services. Existing law requires the commission to approve and adopt building standards and to codify those standards in the California Building Standards Code. Existing law requires the commission to publish, or cause to be published, editions of the code in its entirety every 3 years, and to publish, or cause to be published, supplements as necessary in the intervening period. Existing law requires all state agencies that adopt or propose to adopt a building standard to submit the building standard to the commission for approval and adoption. Among other things, existing law required the State Energy Resources Conservation and Development Commission, also known as the Energy Commission, on or before January 1, 2019, and in consultation with the Contractors State License Board, local building officials, and other stakeholders, to approve a plan that promotes compliance with specified regulations relating to building energy efficiency standards in the installation of central air conditioning and heat pumps, as specified.

Existing law establishes the Department of Housing and Community Development in the Business, Consumer Services, and Housing Agency. Existing law, the State Housing Law, requires the department to propose the adoption, amendment, or repeal of building standards to the California Building Standards Commission and to adopt, amend, or repeal rules and regulations for the protection of the health, safety, and general welfare of the occupant and the public relating to specified residential structures, as provided, which apply throughout the state.

This bill would require the Department of Housing and Community Development, on or before the next rulemaking cycle for the triennial update to the California Building Standards Code, adopted after January 1, 2026, to develop Development to research, develop, and propose for adoption, passive and active strategies, adoption by the California Building Standards Commission for the next triennial update of the California Building Standards Code that occurs on or after January 1, 2026, standards that may include, among other things, the use of mechanical ventilation, to achieve a maximum safe indoor air temperature of 82 degrees Fahrenheit for newly constructed residential dwelling units, and to share those passive and active strategies with the California Building Standards Commission. units.

The bill would require the California Building Standards Commission and the Department of Housing and Community Development, on or before an unspecified date, to each submit a report to the Legislature that includes the passive and active strategies standards described above, subject to specified requirements.

(2)Existing law requires the Energy Commission to establish and administer a statewide incentive program for low-carbon building technologies, as provided.

This bill would require the Energy Commission and other relevant departments to develop an inventory of incentive programs that provide incentives for alternative and low-energy cooling strategies, as provided.

(3)The California Constitution establishes the Public Utilities Commission and authorizes the commission to establish rules for all public utilities, subject to control by the Legislature. Existing law requires the commission to designate a baseline quantity of gas and electricity that is necessary to supply a significant portion of the reasonable energy needs of the average residential customer. Existing law requires the commission to establish a standard limited allowance that is in addition to the baseline quantity, as provided, of gas and electricity for residential customers dependent on life-support equipment. Existing law requires every electrical and gas corporation to file a schedule of rates and charges providing baseline rates, as provided.

The bill would state the intent of the Legislature that, among other things, the commission modify how baseline rates are calculated for high-heat climate zones to support affordable maintenance of a residential maximum indoor air temperature of 82 degrees Fahrenheit that results in the average electric bill of households in high-heat climate zones not exceeding 5% of household income.

(1)Existing law, the California Building Standards Law, establishes the California Building Standards Commission within the Department of General Services. Existing law requires the commission to approve and adopt building standards and to codify those standards in the California Building Standards Code. Existing law requires the commission to publish, or cause to be published, editions of the code in its entirety every 3 years, and to publish, or cause to be published, supplements as necessary in the intervening period. Existing law requires all state agencies that adopt or propose to adopt a building standard to submit the building standard to the commission for approval and adoption. Among other things, existing law requires required the State Energy Resources Conservation and Development Commission, also known as the Energy Commission, on or before January 1, 2019, and in consultation with the Contractors State License Board, local building officials, and other stakeholders, to approve a plan that promotes compliance with specified regulations relating to building energy efficiency standards in the installation of central air conditioning and heat pumps, as specified.

Existing law establishes the Department of Housing and Community Development in the Business, Consumer Services, and Housing Agency. Existing law, the State Housing Law, requires the department to adopt, amend, or repeal rules and regulations for the protection of the health, safety, and general welfare of the occupant and the public relating to specified residential structures, as provided, which apply throughout the state.

This bill would require the California Building Standards Commission, on or before July 1, 2026, and in consultation with the State Energy Resources Conservation and Development Commission, to adopt Department of Housing and Community Development, on or before the next rulemaking cycle for the triennial update to the California Building Standards Code, adopted after January 1, 2026, to develop and propose for adoption, passive and active strategies, including that may include, among other things, the use of mechanical ventilation, to achieve a maximum safe indoor air temperature of 82 degrees Fahrenheit for newly constructed residential dwelling units. The bill would also require the Department of Housing and Community Development, on or before July 1, 2026, and in consultation with the State Energy Resources Conservation and Development Commission, to develop a load calculation methodology for meeting both minimum heating requirements and cooling maximum temperatures in residential dwelling units in all climate zones in the state, as specified. units, and to share those passive and active strategies with the California Building Standards Commission.

The bill would require the California Building Standards Commission to approve and adopt building standards, as part of the next triennial update to the California Building Standards Code, adopted after January 1, 2026, that include the passive and active strategies adopted, and the methodology developed, as described above. The bill would require the California Building Standards Commission and the Department of Housing and Community Development, on or before January 1, 2027, an unspecified date, to each submit a report to the Legislature that includes the passive and active strategies and the methodology, respectively, described above, subject to specified requirements.

(3)The California Constitution establishes the Public Utilities Commission and authorizes the commission to establish rules for all public utilities, subject to control by the Legislature. Existing law requires the commission to designate a baseline quantity of gas and electricity that is necessary to supply a significant portion of the reasonable energy needs of the average residential customer, as specified, and to develop a separate baseline quantity for all-electric residential customers, as defined. customer. Existing law requires the commission to establish a standard limited allowance that is in addition to the baseline quantity, as provided, of gas and electricity for residential customers dependent on life-support equipment. Existing law requires every electrical and gas corporation to file a schedule of rates and charges providing baseline rates, as provided.

The bill would state the intent of the Legislature to enact legislation relating to the calculation of baseline quantities in high-heat climate zones determined by the Public Utilities Commission. that, among other things, the commission modify how baseline rates are calculated for high-heat climate zones to support affordable maintenance of a residential maximum indoor air temperature of 82 degrees Fahrenheit that results in the average electric bill of households in high-heat climate zones not exceeding 5% of household income.

(1)Existing law, the California Building Standards Law, establishes the California Building Standards Commission within the Department of General Services. Existing law requires the commission to approve and adopt building standards and to codify those standards in the California Building Standards Code. Existing law requires the commission to publish, or cause to be published, editions of the code in its entirety every 3 years, and to publish, or cause to be published, supplements as necessary in the intervening period. Existing law requires all state agencies that adopt or propose to adopt a building standard to submit the building standard to the commission for approval and adoption. Among other things, existing law requires the State Energy Resources Conservation and Development Commission, on or before January 1, 2019, and in consultation with the Contractors State License Board, local building officials, and other stakeholders, to approve a plan that promotes compliance with specified regulations relating to building energy efficiency standards in the installation of central air conditioning and heat pumps, as specified.

Existing law establishes the Department of Housing and Community Development in the Business, Consumer Services, and Housing Agency. Existing law, the State Housing Law, requires the department to adopt, amend, or repeal rules and regulations for the protection of the health, safety, and general welfare of the occupant and the public relating to specified residential structures, as provided, which apply throughout the state.

This bill would require the California Building Standards Commission, on or before July 1, 2026, and in consultation with the State Energy Resources Conservation and Development Commission, to adopt passive and active strategies, including the use of mechanical ventilation, to achieve a maximum safe indoor air temperature of 82 degrees Fahrenheit for newly constructed residential dwelling units. The bill would also require the Department of Housing and Community Development, on or before July 1, 2026, and in consultation with the State Energy Resources Conservation and Development Commission, to develop a load calculation methodology for meeting both minimum heating requirements and cooling maximum temperatures in residential dwelling units in all climate zones in the state, as specified.

The bill would require the California Building Standards Commission to approve and adopt building standards, as part of the next triennial update to the California Building Standards Code, adopted after January 1, 2026, that include the passive and active strategies adopted, and the methodology developed, as described above. The bill would require the California Building Standards Commission and the Department of Housing and Community Development, on or before January 1, 2027, to each submit a report to the Legislature that includes the passive and active strategies and the methodology, respectively, subject to specified requirements.

(2)The California Constitution establishes the Public Utilities Commission and authorizes the commission to establish rules for all public utilities, subject to control by the Legislature. Existing law requires the commission to designate a baseline quantity of gas and electricity that is necessary to supply a significant portion of the reasonable energy needs of the average residential customer, as specified, and to develop a separate baseline quantity for all-electric residential customers, as defined.

The bill would state the intent of the Legislature to enact legislation relating to the calculation of baseline quantities in high-heat climate zones determined by the Public Utilities Commission.

 UNFINISHED BUSINESS 

Bill No: SB 655

Author: Stern (D), et al.

Amended: 10/10/25

Vote: 21

SENATE HOUSING COMMITTEE: 10-0, 4/29/25

AYES: Wahab, Arreguín, Cabaldon, Caballero, Cortese, Durazo, Gonzalez, Grayson, Ochoa Bogh, Padilla

NO VOTE RECORDED: Seyarto

SENATE APPROPRIATIONS COMMITTEE: 6-0, 5/23/25

AYES: Caballero, Seyarto, Cabaldon, Grayson, Richardson, Wahab

NO VOTE RECORDED: Dahle

SENATE FLOOR: 39-0, 6/4/25

AYES: Allen, Alvarado-Gil, Archuleta, Arreguín, Ashby, Becker, Blakespear, Cabaldon, Caballero, Cervantes, Choi, Cortese, Dahle, Durazo, Gonzalez, Grayson, Grove, Hurtado, Jones, Laird, Limón, McGuire, McNerney, Menjivar, Niello, Ochoa Bogh, Padilla, Pérez, Richardson, Rubio, Seyarto, Smallwood-Cuevas, Stern, Strickland, Umberg, Valladares, Wahab, Weber Pierson, Wiener

NO VOTE RECORDED: Reyes

ASSEMBLY FLOOR: 66-5, 9/9/25 - See last page for vote

SUBJECT: Dwelling units: indoor temperature

SOURCE: Author

DIGEST:

This bill declares it is the established policy of the state that all dwelling units be able to attain and maintain a safe maximum indoor temperature, as specified, and provides that this bill does not expand any obligation of the state to provide a safe maximum indoor temperature or require the expenditure of additional resources to develop infrastructure beyond the obligations that existing under existing program requirements.

Assembly Amendments

of 9/4/25 require all relevant state agencies to consider the state policy for safe maximum indoor temperature within their policies and programs, as specified.

ANALYSIS:

Existing law:

1. Establishes the California Building Standards Commission (CBSC) within the Department of General Services, and requires the commission to approve and adopt building standards and to codify those standards in the California Building Standards Code. Requires CBSC to publish editions of the code in its entirety once every three years. In the intervening period, the CBSC must publish supplements as necessary.
2. Requires CBSC to receive proposed building standards from a state agency for consideration in an 18-month code adoption cycle. Requires CBSC to adopt regulations governing the procedures for 18-month code adoption cycle, which must include adequate provision of the following:
   1. Public participation in the development of standards;
   2. Notice in written form to the public of the compiled building standards with justifications;
   3. Technical review of the proposed building standards and accompanying justification by advisory boards appointed by CBSC; and
   4. Time for review of recommendations by the advisory boards prior to CBSC taking action.

1. Requires proposed building standards that are submitted to CBSC for consideration to be accompanied by an analysis completed by the appropriate state agency that justifies approval based on criteria, as specified.
2. Requires the California Department of Housing and Community Development (HCD) to propose the adoption, amendment, or repeal of building standards to CBSC for residential buildings, including hotels, motels, lodging houses, apartment houses, dwellings, buildings, and structures.

This bill:

1. Declares the established policy of the state be that all dwelling units, defined as a structure or the part of a structure used as a home, residence, or sleeping place by one person who maintains a household or by two or more persons who maintain a common household, be able to attain and maintain a safe maximum indoor temperature.
2. Requires every relevant state agency, including but not limited to, the California Environmental Protection Agency, HCD, Office of Land Use and Climate Innovation, Public Utilities Commission, State Energy Resources Conservation and Development Commission, State Air Resources Board, State Department of Health Care Services, State Department of Public Health (CDPH), and Strategic Growth Council, to consider the state policy described above as follows:
3. When revising, adopting, or establishing policies, programs, and criteria, including grant criteria, relevant to achieving this state policy.
4. Beginning January 1, 2027, when revising, adopting, or establishing regulations relevant to achieving this state policy.

3) Provides that this bill does not expand any obligation of the state to provide a safe maximum indoor temperature or require the expenditure of additional resources to develop infrastructure beyond the obligations that existing under existing program requirements.

Comments

Author statement. “As Californians face the growing impacts of climate change, extreme heat is among the most alarming and deadly. These spikes in heat are not just uncomfortable – they are life threatening. Vulnerable populations including our elderly, children, those with preexisting health conditions, and low income individuals where access to cooling resources may be limited, are disproportionately affected. SB 655 codifies a maximum safe indoor temperature that new California residences must be able to maintain. As the state explores resources to meet our climate goals, it must also build homes intentionally and strategically to refuge Californians from extreme heat.”

State action plan. In response to concerns about the dangerous impacts of extreme heat, the Governor’s Office released “Protecting Californians from Extreme Heat: A State Action Plan to Build Community Resilience” in April 2022.^[1] This plan, known as the California Extreme Heat Action Plan (EHAP), includes 13 goals under the categories of building public awareness and notification; strengthening community services and response; increasing the resilience of our built environment; and utilizing nature-based solutions. Areas of near-term focus include implementing a statewide public health monitoring system for early identification, monitoring, and tracking of heat illness events; accelerating readiness and protection of communities most impacted by extreme heat; protecting vulnerable populations through codes, standards, and regulations; expanding economic opportunity and building a climate smart workforce that can operate under, and address, extreme heat; increasing public awareness to reduce risks posed by extreme heat; and protecting natural and working lands, ecosystems, and biodiversity from the impacts of extreme heat.

Establishing building standards for protections against heat. Although California building standards have long specified that newly constructed residential dwelling units must be able to maintain a minimum indoor air temperature, there is no requirement for a maximum indoor air temperature. Recent legislation (AB 2597, Bloom, 2022) would have required HCD to develop, propose, and submit to the CBSC mandatory standards for adequate residential cooling for both new and existing units. AB 2597 was parked by the author in the Senate Housing Committee, due to concerns about placing onerous requirements on housing providers, circumventing the state regulatory process for building code adoption, and placing significant challenges on the electric grid capacity due to more air conditioners.

Stemming from that conversation, legislation enacted as part of the budget agreement that year (AB 209, Committee on Budget, 2022) included a provision requiring HCD to provide recommendations to the Legislature by January 1, 2025 to help ensure that residential dwelling units can maintain safe indoor temperature.

HCD report. As required by AB 209, HCD recently released “Policy Recommendations: Recommended Maximum Safe Indoor Temperature” to the Legislature.^[2] The report notes that its policy recommendations are aligned with many of the goals identified in the 2022 EHAP discussed above. The report recommends that the state consider a general maximum safe indoor air temperature of 82 degrees Fahrenheit for residential dwelling unit, to be implemented by methods including building standards for newly constructed residential dwelling units, and/or incentive programs for retrofitting existing residential dwelling units, manufactured homes, and mobile homes. The report recommends the following:

• 1. For newly constructed residential units:
     1. Direct HCD to propose building standards that require newly constructed residential dwelling units to be designed and constructed to maintain a maximum indoor air temperature of 82 degrees Fahrenheit.
     2. Establish incentive programs for passive and low energy cooling strategies focusing on the use of cool roofs, cool walls, window shading, building shading, and landscaping. In developing these programs, evaluate the use of modeling predictions of future weather data rather than historical weather data.
  2. For existing residential units, mobile homes, and manufactured homes:
     1. Establish incentive programs to encourage broader adoption and use of fans or whole house ventilation systems.
     2. Establish incentive programs to encourage the use of room evaporative coolers [commonly known as “swamp coolers”] in warmer climate zones.
     3. Establish incentive programs to encourage the use of air conditioning, with current heat pump technology, where feasible and cost effective.
     4. Establish incentives for weatherization and passive and low energy cooling retrofit strategies.
  3. For newly constructed manufactured homes:

1. Submit a petition to the US Department of Housing and Urban Development’s Manufactured Housing Consensus Committee to consider applying the recommendations of this report to newly constructed manufactured homes.

State policy for maximum safe indoor temperature. This bill is modeled after similar existing declarations, such as the state’s declared policies that every human being has the right to safe, clean, affordable, and accessible water, and that every human being has the right to access sufficient affordable and healthy food. Also similar to existing declarations, this bill requires relevant state agencies to consider this policy moving forward when revising, adopting, or establishing policies, programs, criteria, and regulations relevant to achieving the policy. Unlike other bills, this one provides that this bill does not expand any obligation of the state to provide a safe maximum indoor temperature or require the expenditure of additional resources to develop infrastructure beyond the obligations that existing under existing program requirements.

FISCAL EFFECT: Appropriation: No Fiscal Com.: Yes Local: No

According to the Assembly Appropriations Committee:

1. HCD anticipates minor and absorbable General Fund (GF) costs.
2. CDPH indicates GF costs of $180,000 in fiscal year 2026-27 and annually thereafter, for one position to integrate considerations and mechanisms to maintain a safe maximum indoor air temperature when revising, adopting, or establishing relevant policies, programs, regulations, and criteria.
3. GF costs of an unknown, but potentially significant amount to other specified state agencies to consider this state policy while revising or establishing policies, programs, criteria, and regulations that impact achieving a safe maximum indoor temperature.
4. Potential future GF cost pressures to achieve, through adopted building standards and incentive programs, a maximum safe indoor air temperature for newly constructed residential dwelling units, and eventually all residential dwellings.

SUPPORT: (Verified 9/9/25)

Building Decarbonization Coalition
Building Electrification Institute
California Center for Movement Legal Services
California Democratic Party
California Environmental Voters (formerly Clcv)
California Rural Legal Assistance Foundation
Center for Community Action & Environmental Justice
Center on Race, Poverty & the Environment
Central California Environmental Justice Network
Central Valley Air Quality Coalition
Cleanearth4kids.org
Coalition for Economic Survival
Courage California
Greenfield Walking Group
Healing and Justice Center
Housing Now!
Inland Equity Community Land Trusts
Inner City Law Center
Interfaith Movement for Human Integrity
Leadership Counsel Action
Leadership Counsel for Justice & Accountability
Local Clean Air Energy Alliance
Madera Coalition for Community Justice
National Resources Defense Council
Regional Asthma Management and Prevention
Sierra Club
So Cal Trash Army
Starting Over INC.
Strategic Actions for a Just Economy
Tenants Together
Todec Legal Center
Usgbc California
Western Center on Law & Poverty

OPPOSITION: (Verified 9/9/25)

Southern California Rental Housing Association

ARGUMENTS IN SUPPORT: A large coalition of environmental, tenants’ rights, and anti-poverty organizations state, “Extreme heat is a huge and growing risk to Californians” and “As temperatures rise and heat waves become longer and more intense, deaths in California could rise to 11,300 a year by 2050, and much higher mortality when the increasing number of older persons is also considered.”

ARGUMENTS IN OPPOSITION: The Southern California Rental Housing Association, writing on a prior version of the bill, states that “[t]his bill places unrealistic expectations on landlords and developers at a time when we are already grappling with historic inflation in construction costs, labor shortages, supply chain challenges, and mounting regulatory burdens.”

ASSEMBLY FLOOR: 66-5, 9/9/25

AYES: Addis, Aguiar-Curry, Ahrens, Alanis, Alvarez, Arambula, Ávila Farías, Bains, Bauer-Kahan, Bennett, Berman, Boerner, Bonta, Bryan, Calderon, Caloza, Carrillo, Chen, Connolly, Davies, Elhawary, Fong, Gabriel, Garcia, Gipson, Jeff Gonzalez, Mark González, Haney, Harabedian, Hart, Irwin, Jackson, Kalra, Krell, Lackey, Lee, Lowenthal, McKinnor, Muratsuchi, Nguyen, Ortega, Pacheco, Papan, Patel, Patterson, Pellerin, Petrie-Norris, Ramos, Ransom, Celeste Rodriguez, Michelle Rodriguez, Rogers, Blanca Rubio, Schiavo, Schultz, Sharp-Collins, Solache, Soria, Stefani, Valencia, Wallis, Ward, Wicks, Wilson, Zbur, Rivas

NOES: DeMaio, Dixon, Ellis, Gallagher, Macedo

NO VOTE RECORDED: Castillo, Flora, Hadwick, Hoover, Johnson, Quirk-Silva, Sanchez, Ta, Tangipa

Prepared by: Alison Hughes / Housing / (916) 651- 4124

7/16/26 16:27:18

**** END ****

1. Protecting Californians From Extreme Heat: A State Action Plan to Build Community Resilience ↑

2. Policy Recommendations: Recommended Maximum Safe Indoor Air Temperature (ca.gov) ↑

 UNFINISHED BUSINESS  

Bill No: SB 655

Author: Stern (D), et al.

Amended: 9/4/25 in Assembly

Vote: 21

SENATE HOUSING COMMITTEE: 10-0, 4/29/25

AYES: Wahab, Arreguín, Cabaldon, Caballero, Cortese, Durazo, Gonzalez, Grayson, Ochoa Bogh, Padilla

NO VOTE RECORDED: Seyarto

SENATE APPROPRIATIONS COMMITTEE: 6-0, 5/23/25

AYES: Caballero, Seyarto, Cabaldon, Grayson, Richardson, Wahab

NO VOTE RECORDED: Dahle

SENATE FLOOR: 39-0, 6/4/25

AYES: Allen, Alvarado-Gil, Archuleta, Arreguín, Ashby, Becker, Blakespear, Cabaldon, Caballero, Cervantes, Choi, Cortese, Dahle, Durazo, Gonzalez, Grayson, Grove, Hurtado, Jones, Laird, Limón, McGuire, McNerney, Menjivar, Niello, Ochoa Bogh, Padilla, Pérez, Richardson, Rubio, Seyarto, Smallwood-Cuevas, Stern, Strickland, Umberg, Valladares, Wahab, Weber Pierson, Wiener

NO VOTE RECORDED: Reyes

ASSEMBLY FLOOR: 47-5, 9/9/25 – Roll call not available.

SUBJECT: Dwelling units: indoor temperature

SOURCE: Author

DIGEST:

This bill declares it is the established policy of the state that all dwelling units be able to attain and maintain a safe maximum indoor temperature, as specified, and provides that this bill does not expand any obligation of the state to provide a safe maximum indoor temperature or require the expenditure of additional resources to develop infrastructure beyond the obligations that existing under existing program requirements.

Assembly Amendments

of 9/4/25 require all relevant state agencies to consider the state policy for safe maximum indoor temperature within their policies and programs, as specified.

ANALYSIS:

Existing law:

1. Establishes the California Building Standards Commission (CBSC) within the Department of General Services, and requires the commission to approve and adopt building standards and to codify those standards in the California Building Standards Code. Requires CBSC to publish editions of the code in its entirety once every three years. In the intervening period, the CBSC must publish supplements as necessary.
2. Requires CBSC to receive proposed building standards from a state agency for consideration in an 18-month code adoption cycle. Requires CBSC to adopt regulations governing the procedures for 18-month code adoption cycle, which must include adequate provision of the following:
   1. Public participation in the development of standards;
   2. Notice in written form to the public of the compiled building standards with justifications;
   3. Technical review of the proposed building standards and accompanying justification by advisory boards appointed by CBSC; and
   4. Time for review of recommendations by the advisory boards prior to CBSC taking action.

1. Requires proposed building standards that are submitted to CBSC for consideration to be accompanied by an analysis completed by the appropriate state agency that justifies approval based on criteria, as specified.
2. Requires the California Department of Housing and Community Development (HCD) to propose the adoption, amendment, or repeal of building standards to CBSC for residential buildings, including hotels, motels, lodging houses, apartment houses, dwellings, buildings, and structures.

This bill:

1. Declares the established policy of the state be that all dwelling units, defined as a structure or the part of a structure used as a home, residence, or sleeping place by one person who maintains a household or by two or more persons who maintain a common household, be able to attain and maintain a safe maximum indoor temperature.
2. Requires every relevant state agency, including but not limited to, the California Environmental Protection Agency, HCD, Office of Land Use and Climate Innovation, Public Utilities Commission, State Energy Resources Conservation and Development Commission, State Air Resources Board, State Department of Health Care Services, State Department of Public Health (CDPH), and Strategic Growth Council, to consider the state policy described above as follows:
3. When revising, adopting, or establishing policies, programs, and criteria, including grant criteria, relevant to achieving this state policy.
4. Beginning January 1, 2027, when revising, adopting, or establishing regulations relevant to achieving this state policy.

3) Provides that this bill does not expand any obligation of the state to provide a safe maximum indoor temperature or require the expenditure of additional resources to develop infrastructure beyond the obligations that existing under existing program requirements.

Comments

Author statement. “As Californians face the growing impacts of climate change, extreme heat is among the most alarming and deadly. These spikes in heat are not just uncomfortable – they are life threatening. Vulnerable populations including our elderly, children, those with preexisting health conditions, and low income individuals where access to cooling resources may be limited, are disproportionately affected. SB 655 codifies a maximum safe indoor temperature that new California residences must be able to maintain. As the state explores resources to meet our climate goals, it must also build homes intentionally and strategically to refuge Californians from extreme heat.”

State action plan. In response to concerns about the dangerous impacts of extreme heat, the Governor’s Office released “Protecting Californians from Extreme Heat: A State Action Plan to Build Community Resilience” in April 2022.^[1] This plan, known as the California Extreme Heat Action Plan (EHAP), includes 13 goals under the categories of building public awareness and notification; strengthening community services and response; increasing the resilience of our built environment; and utilizing nature-based solutions. Areas of near-term focus include implementing a statewide public health monitoring system for early identification, monitoring, and tracking of heat illness events; accelerating readiness and protection of communities most impacted by extreme heat; protecting vulnerable populations through codes, standards, and regulations; expanding economic opportunity and building a climate smart workforce that can operate under, and address, extreme heat; increasing public awareness to reduce risks posed by extreme heat; and protecting natural and working lands, ecosystems, and biodiversity from the impacts of extreme heat.

Establishing building standards for protections against heat. Although California building standards have long specified that newly constructed residential dwelling units must be able to maintain a minimum indoor air temperature, there is no requirement for a maximum indoor air temperature. Recent legislation (AB 2597, Bloom, 2022) would have required HCD to develop, propose, and submit to the CBSC mandatory standards for adequate residential cooling for both new and existing units. AB 2597 was parked by the author in the Senate Housing Committee, due to concerns about placing onerous requirements on housing providers, circumventing the state regulatory process for building code adoption, and placing significant challenges on the electric grid capacity due to more air conditioners.

Stemming from that conversation, legislation enacted as part of the budget agreement that year (AB 209, Committee on Budget, 2022) included a provision requiring HCD to provide recommendations to the Legislature by January 1, 2025 to help ensure that residential dwelling units can maintain safe indoor temperature.

HCD report. As required by AB 209, HCD recently released “Policy Recommendations: Recommended Maximum Safe Indoor Temperature” to the Legislature.^[2] The report notes that its policy recommendations are aligned with many of the goals identified in the 2022 EHAP discussed above. The report recommends that the state consider a general maximum safe indoor air temperature of 82 degrees Fahrenheit for residential dwelling unit, to be implemented by methods including building standards for newly constructed residential dwelling units, and/or incentive programs for retrofitting existing residential dwelling units, manufactured homes, and mobile homes. The report recommends the following:

• 1. For newly constructed residential units:
     1. Direct HCD to propose building standards that require newly constructed residential dwelling units to be designed and constructed to maintain a maximum indoor air temperature of 82 degrees Fahrenheit.
     2. Establish incentive programs for passive and low energy cooling strategies focusing on the use of cool roofs, cool walls, window shading, building shading, and landscaping. In developing these programs, evaluate the use of modeling predictions of future weather data rather than historical weather data.
  2. For existing residential units, mobile homes, and manufactured homes:
     1. Establish incentive programs to encourage broader adoption and use of fans or whole house ventilation systems.
     2. Establish incentive programs to encourage the use of room evaporative coolers [commonly known as “swamp coolers”] in warmer climate zones.
     3. Establish incentive programs to encourage the use of air conditioning, with current heat pump technology, where feasible and cost effective.
     4. Establish incentives for weatherization and passive and low energy cooling retrofit strategies.
  3. For newly constructed manufactured homes:

1. Submit a petition to the US Department of Housing and Urban Development’s Manufactured Housing Consensus Committee to consider applying the recommendations of this report to newly constructed manufactured homes.

State policy for maximum safe indoor temperature. This bill is modeled after similar existing declarations, such as the state’s declared policies that every human being has the right to safe, clean, affordable, and accessible water, and that every human being has the right to access sufficient affordable and healthy food. Also similar to existing declarations, this bill requires relevant state agencies to consider this policy moving forward when revising, adopting, or establishing policies, programs, criteria, and regulations relevant to achieving the policy. Unlike other bills, this one provides that this bill does not expand any obligation of the state to provide a safe maximum indoor temperature or require the expenditure of additional resources to develop infrastructure beyond the obligations that existing under existing program requirements.

FISCAL EFFECT: Appropriation: No Fiscal Com.: Yes Local: No

According to the Assembly Appropriations Committee:

1. HCD anticipates minor and absorbable General Fund (GF) costs.
2. CDPH indicates GF costs of $180,000 in fiscal year 2026-27 and annually thereafter, for one position to integrate considerations and mechanisms to maintain a safe maximum indoor air temperature when revising, adopting, or establishing relevant policies, programs, regulations, and criteria.
3. GF costs of an unknown, but potentially significant amount to other specified state agencies to consider this state policy while revising or establishing policies, programs, criteria, and regulations that impact achieving a safe maximum indoor temperature.
4. Potential future GF cost pressures to achieve, through adopted building standards and incentive programs, a maximum safe indoor air temperature for newly constructed residential dwelling units, and eventually all residential dwellings.

SUPPORT: (Verified 9/9/25)

Building Decarbonization Coalition
Building Electrification Institute
California Center for Movement Legal Services
California Democratic Party
California Environmental Voters (formerly Clcv)
California Rural Legal Assistance Foundation
Center for Community Action & Environmental Justice
Center on Race, Poverty & the Environment
Central California Environmental Justice Network
Central Valley Air Quality Coalition
Cleanearth4kids.org
Coalition for Economic Survival
Courage California
Greenfield Walking Group
Healing and Justice Center
Housing Now!
Inland Equity Community Land Trusts
Inner City Law Center
Interfaith Movement for Human Integrity
Leadership Counsel Action
Leadership Counsel for Justice & Accountability
Local Clean Air Energy Alliance
Madera Coalition for Community Justice
National Resources Defense Council
Regional Asthma Management and Prevention
Sierra Club
So Cal Trash Army
Starting Over INC.
Strategic Actions for a Just Economy
Tenants Together
Todec Legal Center
Usgbc California
Western Center on Law & Poverty

OPPOSITION: (Verified 9/9/25)

Southern California Rental Housing Association

ARGUMENTS IN SUPPORT: A large coalition of environmental, tenants’ rights, and anti-poverty organizations state, “Extreme heat is a huge and growing risk to Californians” and “As temperatures rise and heat waves become longer and more intense, deaths in California could rise to 11,300 a year by 2050, and much higher mortality when the increasing number of older persons is also considered.”

ARGUMENTS IN OPPOSITION: The Southern California Rental Housing Association, writing on a prior version of the bill, states that “[t]his bill places unrealistic expectations on landlords and developers at a time when we are already grappling with historic inflation in construction costs, labor shortages, supply chain challenges, and mounting regulatory burdens.”

Prepared by: Alison Hughes / HOUSING / (916) 651-4124

9/9/25 14:56:08

**** END ****

1. Protecting Californians From Extreme Heat: A State Action Plan to Build Community Resilience ↑

2. Policy Recommendations: Recommended Maximum Safe Indoor Air Temperature (ca.gov) ↑

SENATE THIRD READING

STR Bill Id:SB 655

Author:(Stern)

As Amended Ver:September 4, 2025

Majority vote

SUMMARY

Declares it to be the established policy of the state that all dwelling units shall be able to attain and maintain a safe maximum indoor temperature, and requires all state agencies to consider this policy when revising, adopting, or establishing policies, programs, regulations, and criteria that are relevant to achieving this state policy.

Major Provisions

1. Declares it to be the established policy of the state that all dwelling units, as specified, shall be able to attain and maintain a safe maximum indoor temperature.
2. Requires all relevant state agencies, including but not limited to, the California Environmental Protection Agency, Department of Housing and Community Development (HCD), Office of Land Use and Climate Innovation, Public Utilities Commission, Energy Commission, Air Resources Board, Department of Health Care Services, California Department of Public Health (CDPH), and Strategic Growth Council to consider the state policy in 1) above for both of the following:
   1. When revising, adopting, or establishing policies, programs, and criteria, including grant criteria, that are relevant to achieving this state policy; and
   2. Beginning January 1, 2027, when revising, adopting, or establishing regulations that are relevant to achieving this state policy.
3. Provides that the provisions of this bill do not expand any obligation of the state to provide a safe maximum indoor temperature or to require the expenditure of additional resources to develop infrastructure beyond the obligations that may exist under 2) above.

COMMENTS

Extreme Heat and Residential Indoor Temperature Challenges: While current housing law generally provides for the right to heat during times of extreme cold, it does not guarantee cooling during heat events. Heat exposure can cause a variety of health impacts including heat cramps, heat exhaustion, heat stroke, exacerbation of respiratory illnesses, and can even lead to death. In fact, heat causes more reported deaths per year on average in the US than any other weather hazard. A heat wave in 2006 led to 140 deaths as well as 16,000 more emergency room visits and 1,100 more hospitalizations as compared to similar time periods without a heat wave. The California Department of Public Health in 2023 reported 395 excess deaths in California during a 10-day heat wave in September 2022. Due to climate change, this extreme weather will become more common – the California Fourth Climate Change Assessment estimates that by 2050, urban heat-related deaths could double or triple due to rising temperatures. In addition, lower income communities are hotter than wealthier communities, and California metro areas have a larger temperature disparity between their poorest and wealthiest areas than any other state in the southwest.

State Action Plan: In response to concerns about the dangerous impacts of extreme heat, the Governor's Office released "Protecting Californians from Extreme Heat: A State Action Plan to Build Community Resilience" in April 2022. This plan, known as the California Extreme Heat Action Plan (EHAP), includes 13 goals under the categories of building public awareness and notification; strengthening community services and response; increasing the resilience of our built environment; and utilizing nature-based solutions. Areas of near-term focus include implementing a statewide public health monitoring system for early identification, monitoring, and tracking of heat illness events; accelerating readiness and protection of communities most impacted by extreme heat; protecting vulnerable populations through codes, standards, and regulations; expanding economic opportunity and building a climate smart workforce that can operate under, and address, extreme heat; increasing public awareness to reduce risks posed by extreme heat; and protecting natural and working lands, ecosystems, and biodiversity from the impacts of extreme heat.

Recent Efforts to Create a Cooling Standard: In 2022, AB 2597 (Bloom) of 2022 would have required HCD to develop, propose, and submit mandatory building standards for adequate residential cooling for both new and existing units. AB 2597 was held by the author in the Senate Housing Committee due to concerns about placing onerous requirements on housing providers, circumventing the state regulatory process for building code adoption, and placing significant challenges on the electric grid due to more air conditioners running during peak energy demand times and during hot weather in general. Stemming from that conversation, legislation enacted as part of the budget agreement in 2022 AB 209, (Committee on Budget) Chapter 251, Statutes of 2022 included a provision requiring HCD to provide recommendations to the Legislature to help ensure that residential dwelling units can maintain a safe indoor temperature.

AB 209 Report: As required by AB 209, HCD recently released "Policy Recommendations: Recommended Maximum Safe Indoor Temperature" to the Legislature. The report notes that its policy recommendations are aligned with many of the goals identified in the 2022 EHAP discussed above. The report recommends that the state consider a general maximum safe indoor air temperature of 82 degrees Fahrenheit for residential dwelling unit, to be implemented by methods including building standards for newly constructed residential dwelling units, and/or incentive programs for retrofitting existing residential dwelling units, manufactured homes, and mobilehomes. The report recommends the following for newly constructed residential units:

1. Direct HCD to propose building standards that require newly constructed residential dwelling units to be designed and constructed to maintain a maximum indoor air temperature of 82 degrees Fahrenheit.
2. Establish incentive programs for passive and low energy cooling strategies focusing on the use of cool roofs, cool walls, window shading, building shading, and landscaping. In developing these programs, evaluate the use of modeling predictions of future weather data rather than historical weather data.

For existing residential units, mobilehomes, and manufactured homes, the following:

1. Establish incentive programs to encourage broader adoption and use of fans or whole house ventilation systems.
2. Establish incentive programs to encourage the use of room evaporative coolers (commonly known as "swamp coolers") in warmer climate zones.
3. Establish incentive programs to encourage the use of air conditioning, with current heat pump technology, where feasible and cost effective.
4. Establish incentives for weatherization and passive and low energy cooling retrofit strategies.

This bill declares it to be the state's policy that all dwelling units be able to attain and maintain a safe maximum indoor temperature (but does not establish or otherwise reference a specific temperature). This policy declaration is modeled after a similar declaration of water policy that every human being has the right to safe, clean, affordable, and accessible water adequate for human consumption, cooking, and sanitary purposes.

This bill, similar to the aforementioned water policy, also requires all state agencies to consider the indoor temperature policy when revising, adopting, or establishing any policies, programs, regulations, and grant criteria that are relevant to achieving the policy. The author indicates the intention of this subdivision is to require state agencies that have jurisdiction over policies, regulations, or programs that affect cooling standards, incentives, or other tools the state may be using to address extreme heat in residential settings to incrementally incorporate this new policy declaration into those policies, regulations, or programs as they are being issued or updated.

According to the Author

"As Californians face the growing impacts of climate change, extreme heat is among the most alarming and deadly. These spikes in heat are not just uncomfortable. They are life threatening. Vulnerable populations including our elderly, children, those with preexisting health conditions, and low income individuals where access to cooling resources may be limited, are disproportionately affected. The State must address and prepare for extreme heat, promote energy efficiency, and secure safe and healthy housing for all Californians. This bill unifies relevant state efforts around the common-sense goal of refuge from extreme heat in one's own home. When residential dwelling units can maintain a safe indoor temperature, it greatly mitigates heat-related illnesses and death- a worthy and necessary goal for California to achieve."

Arguments in Support

According to a coalition of supporters, including Leadership Council Action, the Western Center on Law and Poverty, the Sierra Club, and Tenants Together, "California has a minimum residential indoor temperature standard to protect people from the cold, yet there are no complementary mechanisms designed to provide broad protections from dangerous indoor heat. This gap in our programs and policies puts the most vulnerable Californians at serious risk of illness and death from extreme heat. … SB 655 will establish a critical policy statement and goal that all people in California should be able to be safe from the impacts and risks of extreme heat in their own homes. And it will create a common-sense approach to achieving this goal by ensuring that state agencies - through their existing and ongoing efforts to address and prepare for extreme heat, promote energy efficiency, and secure safe and healthy housing - consider how best to address extreme heat in homes through those ongoing efforts."

Arguments in Opposition

The Southern California Rental Housing Association writes in opposition that the bill's policy standard is vague and unenforceable and raises significant concerns regarding expectations for landlords and developers, that it may lay groundwork for future regulatory burdens in the form of cooling mandates to be imposed on existing housing, and that the bill may conflict with other work local governments are now required to perform to incorporate extreme heat into their general plans' safety elements.

FISCAL COMMENTS

According to the Assembly Committee on Appropriations:

1. HCD anticipates minor and absorbable General Fund (GF) costs.
2. CDPH indicates GF costs of $180,000 in fiscal year 2026-27 and annually thereafter, for one position to integrate considerations and mechanisms to maintain a safe maximum indoor air temperature when revising, adopting, or establishing relevant policies, programs, regulations, and criteria.
3. GF costs of an unknown, but potentially significant amount to other specified state agencies to consider this state policy while revising or establishing policies, programs, criteria, and regulations that impact achieving a safe maximum indoor temperature.
4. Potential future GF cost pressures to achieve, through adopted building standards and incentive programs, a maximum safe indoor air temperature for newly constructed residential dwelling units, and eventually all residential dwellings.

VOTES

SENATE FLOOR: 39-0-1

YES: Allen, Alvarado-Gil, Archuleta, Arreguín, Ashby, Becker, Blakespear, Cabaldon, Caballero, Cervantes, Choi, Cortese, Dahle, Durazo, Gonzalez, Grayson, Grove, Hurtado, Jones, Laird, Limón, McGuire, McNerney, Menjivar, Niello, Ochoa Bogh, Padilla, Pérez, Richardson, Rubio, Seyarto, Smallwood-Cuevas, Stern, Strickland, Umberg, Valladares, Wahab, Weber Pierson, Wiener

ABS, ABST OR NV: Reyes

ASM HOUSING AND COMMUNITY DEVELOPMENT: 10-0-2

YES: Haney, Patterson, Ávila Farías, Caloza, Garcia, Kalra, Lee, Quirk-Silva, Wicks, Wilson

ABS, ABST OR NV: Ta, Tangipa

ASM APPROPRIATIONS: 11-0-4

YES: Wicks, Arambula, Calderon, Caloza, Elhawary, Fong, Mark González, Ahrens, Pacheco, Pellerin, Solache

ABS, ABST OR NV: Sanchez, Dixon, Ta, Tangipa

UPDATED

VERSION: September 4, 2025

CONSULTANT: Nicole Restmeyer / H. & C.D. / (916) 319-2085 FN: 0001671

SENATE THIRD READING

STR Bill Id:SB 655

Author:(Stern)

As Amended Ver:September 02, 2025

Majority vote

SUMMARY

Declares it to be the established policy of the state that all dwelling units shall be able to attain and maintain a safe maximum indoor temperature, and requires all state agencies to consider this policy when revising, adopting, or establishing policies, programs, regulations, and criteria that are relevant to achieving this state policy.

Major Provisions

1. Declares it to be the established policy of the state that all dwelling units, as specified, shall be able to attain and maintain a safe maximum indoor temperature.
2. Requires all relevant state agencies, including but not limited to, the California Environmental Protection Agency, Department of Housing and Community Development (HCD), Office of Land Use and Climate Innovation, Public Utilities Commission, Energy Commission, Air Resources Board, Department of Health Care Services, California Department of Public Health (CDPH), and Strategic Growth Council to consider the state policy in 1) above for both of the following:
   1. When revising, adopting, or establishing policies, programs, and criteria, including grant criteria, that are relevant to achieving this state policy; and
   2. Beginning January 1, 2027, when revising, adopting, or establishing regulations that are relevant to achieving this state policy.
3. Provides that the provisions of this bill do not expand any obligation of the state to provide a safe maximum indoor temperature or to require the expenditure of additional resources to develop infrastructure beyond the obligations that may exist under 2) above.

COMMENTS

Extreme Heat and Residential Indoor Temperature Challenges: While current housing law generally provides for the right to heat during times of extreme cold, it does not guarantee cooling during heat events. Heat exposure can cause a variety of health impacts including heat cramps, heat exhaustion, heat stroke, exacerbation of respiratory illnesses, and can even lead to death. In fact, heat causes more reported deaths per year on average in the US than any other weather hazard. A heat wave in 2006 led to 140 deaths as well as 16,000 more emergency room visits and 1,100 more hospitalizations as compared to similar time periods without a heat wave. The California Department of Public Health in 2023 reported 395 excess deaths in California during a 10-day heat wave in September 2022. Due to climate change, this extreme weather will become more common – the California Fourth Climate Change Assessment estimates that by 2050, urban heat-related deaths could double or triple due to rising temperatures. In addition, lower income communities are hotter than wealthier communities, and California metro areas have a larger temperature disparity between their poorest and wealthiest areas than any other state in the southwest.

State Action Plan: In response to concerns about the dangerous impacts of extreme heat, the Governor's Office released "Protecting Californians from Extreme Heat: A State Action Plan to Build Community Resilience" in April 2022. This plan, known as the California Extreme Heat Action Plan (EHAP), includes 13 goals under the categories of building public awareness and notification; strengthening community services and response; increasing the resilience of our built environment; and utilizing nature-based solutions. Areas of near-term focus include implementing a statewide public health monitoring system for early identification, monitoring, and tracking of heat illness events; accelerating readiness and protection of communities most impacted by extreme heat; protecting vulnerable populations through codes, standards, and regulations; expanding economic opportunity and building a climate smart workforce that can operate under, and address, extreme heat; increasing public awareness to reduce risks posed by extreme heat; and protecting natural and working lands, ecosystems, and biodiversity from the impacts of extreme heat.

Recent Efforts to Create a Cooling Standard: In 2022, AB 2597 (Bloom) of 2022 would have required HCD to develop, propose, and submit mandatory building standards for adequate residential cooling for both new and existing units. AB 2597 was held by the author in the Senate Housing Committee due to concerns about placing onerous requirements on housing providers, circumventing the state regulatory process for building code adoption, and placing significant challenges on the electric grid due to more air conditioners running during peak energy demand times and during hot weather in general. Stemming from that conversation, legislation enacted as part of the budget agreement in 2022 AB 209, (Committee on Budget) Chapter 251, Statutes of 2022 included a provision requiring HCD to provide recommendations to the Legislature to help ensure that residential dwelling units can maintain a safe indoor temperature.

AB 209 Report: As required by AB 209, HCD recently released "Policy Recommendations: Recommended Maximum Safe Indoor Temperature" to the Legislature. The report notes that its policy recommendations are aligned with many of the goals identified in the 2022 EHAP discussed above. The report recommends that the state consider a general maximum safe indoor air temperature of 82 degrees Fahrenheit for residential dwelling unit, to be implemented by methods including building standards for newly constructed residential dwelling units, and/or incentive programs for retrofitting existing residential dwelling units, manufactured homes, and mobilehomes. The report recommends the following for newly constructed residential units:

1. Direct HCD to propose building standards that require newly constructed residential dwelling units to be designed and constructed to maintain a maximum indoor air temperature of 82 degrees Fahrenheit.
2. Establish incentive programs for passive and low energy cooling strategies focusing on the use of cool roofs, cool walls, window shading, building shading, and landscaping. In developing these programs, evaluate the use of modeling predictions of future weather data rather than historical weather data.

For existing residential units, mobilehomes, and manufactured homes, the following:

1. Establish incentive programs to encourage broader adoption and use of fans or whole house ventilation systems.
2. Establish incentive programs to encourage the use of room evaporative coolers (commonly known as "swamp coolers") in warmer climate zones.
3. Establish incentive programs to encourage the use of air conditioning, with current heat pump technology, where feasible and cost effective.
4. Establish incentives for weatherization and passive and low energy cooling retrofit strategies.

This bill declares it to be the state's policy that all dwelling units be able to attain and maintain a safe maximum indoor temperature (but does not establish or otherwise reference a specific temperature). This policy declaration is modeled after a similar declaration of water policy that every human being has the right to safe, clean, affordable, and accessible water adequate for human consumption, cooking, and sanitary purposes.

This bill, similar to the aforementioned water policy, also requires all state agencies to consider the indoor temperature policy when revising, adopting, or establishing any policies, programs, regulations, and grant criteria that are relevant to achieving the policy. The author indicates the intention of this subdivision is to require state agencies that have jurisdiction over policies, regulations, or programs that affect cooling standards, incentives, or other tools the state may be using to address extreme heat in residential settings to incrementally incorporate this new policy declaration into those policies, regulations, or programs as they are being issued or updated.

According to the Author

"As Californians face the growing impacts of climate change, extreme heat is among the most alarming and deadly. These spikes in heat are not just uncomfortable. They are life threatening. Vulnerable populations including our elderly, children, those with preexisting health conditions, and low income individuals where access to cooling resources may be limited, are disproportionately affected. The State must address and prepare for extreme heat, promote energy efficiency, and secure safe and healthy housing for all Californians. This bill unifies relevant state efforts around the common-sense goal of refuge from extreme heat in one's own home. When residential dwelling units can maintain a safe indoor temperature, it greatly mitigates heat-related illnesses and death- a worthy and necessary goal for California to achieve."

Arguments in Support

According to a coalition of supporters, including Leadership Council Action, the Western Center on Law and Poverty, the Sierra Club, and Tenants Together, "California has a minimum residential indoor temperature standard to protect people from the cold, yet there are no complementary mechanisms designed to provide broad protections from dangerous indoor heat. This gap in our programs and policies puts the most vulnerable Californians at serious risk of illness and death from extreme heat. … SB 655 will establish a critical policy statement and goal that all people in California should be able to be safe from the impacts and risks of extreme heat in their own homes. And it will create a common-sense approach to achieving this goal by ensuring that state agencies - through their existing and ongoing efforts to address and prepare for extreme heat, promote energy efficiency, and secure safe and healthy housing - consider how best to address extreme heat in homes through those ongoing efforts."

Arguments in Opposition

The Southern California Rental Housing Association writes in opposition that the bill's policy standard is vague and unenforceable and raises significant concerns regarding expectations for landlords and developers, that it may lay groundwork for future regulatory burdens in the form of cooling mandates to be imposed on existing housing, and that the bill may conflict with other work local governments are now required to perform to incorporate extreme heat into their general plans' safety elements.

FISCAL COMMENTS

According to the Assembly Committee on Appropriations:

1. HCD anticipates minor and absorbable General Fund (GF) costs.
2. CDPH indicates GF costs of $180,000 in fiscal year 2026-27 and annually thereafter, for one position to integrate considerations and mechanisms to maintain a safe maximum indoor air temperature when revising, adopting, or establishing relevant policies, programs, regulations, and criteria.
3. GF costs of an unknown, but potentially significant amount to other specified state agencies to consider this state policy while revising or establishing policies, programs, criteria, and regulations that impact achieving a safe maximum indoor temperature.
4. Potential future GF cost pressures to achieve, through adopted building standards and incentive programs, a maximum safe indoor air temperature for newly constructed residential dwelling units, and eventually all residential dwellings.

VOTES

SENATE FLOOR: 39-0-1

YES: Allen, Alvarado-Gil, Archuleta, Arreguín, Ashby, Becker, Blakespear, Cabaldon, Caballero, Cervantes, Choi, Cortese, Dahle, Durazo, Gonzalez, Grayson, Grove, Hurtado, Jones, Laird, Limón, McGuire, McNerney, Menjivar, Niello, Ochoa Bogh, Padilla, Pérez, Richardson, Rubio, Seyarto, Smallwood-Cuevas, Stern, Strickland, Umberg, Valladares, Wahab, Weber Pierson, Wiener

ABS, ABST OR NV: Reyes

ASM HOUSING AND COMMUNITY DEVELOPMENT: 10-0-2

YES: Haney, Patterson, Ávila Farías, Caloza, Garcia, Kalra, Lee, Quirk-Silva, Wicks, Wilson

ABS, ABST OR NV: Ta, Tangipa

ASM APPROPRIATIONS: 11-0-4

YES: Wicks, Arambula, Calderon, Caloza, Elhawary, Fong, Mark González, Ahrens, Pacheco, Pellerin, Solache

ABS, ABST OR NV: Sanchez, Dixon, Ta, Tangipa

UPDATED

VERSION: September 02, 2025

CONSULTANT: Nicole Restmeyer / H. & C.D. / (916) 319-2085 FN: 0001472

Date of Hearing: August 20, 2025

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Buffy Wicks, Chair

SBPCA Bill Id:SB 655

Author:(Stern) – As Amended Ver:July 17, 2025

Urgency: No State Mandated Local Program: No Reimbursable: No

SUMMARY:

This bill declares it is the established policy of the state that all dwelling units be able to attain and maintain a safe maximum indoor temperature, and requires all relevant state agencies to consider this policy when revising, adopting, or establishing relevant policies, programs, criteria, and regulations.

Specifically, this bill:

1. Declares the established policy of the state be that all dwelling units, defined as a structure or the part of a structure used as a home, residence, or sleeping place by one person who maintains a household or by two or more persons who maintain a common household, be able to attain and maintain a safe maximum indoor temperature.
2. Requires every relevant state agency, including but not limited to, the California Environmental Protection Agency, Department of Housing and Community Development (HCD), Office of Land Use and Climate Innovation, Public Utilities Commission, State Energy Resources Conservation and Development Commission, State Air Resources Board, State Department of Health Care Services, State Department of Public Health (CDPH), and Strategic Growth Council, to consider the state policy described above as follows:
3. When revising, adopting, or establishing policies, programs, and criteria, including grant criteria, relevant to achieving this state policy.
4. Beginning January 1, 2027, when revising, adopting, or establishing regulations relevant to achieving this state policy.

FISCAL EFFECT:

1. HCD anticipates minor and absorbable General Fund (GF) costs.
2. CDPH indicates GF costs of $180,000 in fiscal year 2026-27 and annually thereafter, for one position to integrate considerations and mechanisms to maintain a safe maximum indoor air temperature when revising, adopting, or establishing relevant policies, programs, regulations, and criteria.
3. GF costs of an unknown, but potentially significant amount to other specified state agencies to consider this state policy while revising or establishing policies, programs, criteria, and regulations that impact achieving a safe maximum indoor temperature.
4. Potential future GF cost pressures to achieve, through adopted building standards and incentive programs, a maximum safe indoor air temperature for newly constructed residential dwelling units, and eventually all residential dwellings.
5. Unlike other similar declarations of state policy, this bill does not contain language specifying this declaration does not expand any obligation of the state or require the expenditure of additional resources. Absent this language, it is possible the bill’s provisions could be interpreted by a court to require the state to ensure the policy at the state’s expense. The likelihood of such a decision is unknown. If such a decision were to occur, the costs to the state could be significant.

COMMENTS:

1. Purpose. The author seeks to protect vulnerable persons from extreme heat events by helping to ensure adequate cooling in residential buildings. According to the author:

As Californians face the growing impacts of climate change, extreme heat is among the most alarming and deadly. Vulnerable populations including our elderly, children, those with preexisting health conditions, and low income individuals where access to cooling resources may be limited, are disproportionately affected. The State must address and prepare for extreme heat, promote energy efficiency, and secure safe and healthy housing for all Californians. This bill unifies relevant state efforts around the common-sense goal of refuge from extreme heat in one’s own home.

1. Background. Research shows that heat-related health impacts affect almost exclusively lower-income and disadvantaged communities, persons with disabilities, and seniors. Existing state law requires every residential building to include adequate heating, but not adequate cooling.

Existing law requires HCD to provide recommendations to the Legislature to help ensure residential dwelling units can maintain a safe indoor temperature. HCD recently released its report to the Legislature. Aligning with goals identified in the Governor’s 2022 California Extreme Heat Action Plan, the report recommended the state consider a general maximum safe indoor air temperature of 82 degrees Fahrenheit for residential dwelling units, implemented through updated building standards for newly constructed residential dwelling units, and incentive programs for retrofitting existing residential dwelling units, manufactured homes, and mobilehomes.

This bill declares it is the state’s policy that all dwelling units be able to attain and maintain a safe maximum indoor temperature. The bill but does not establish or otherwise reference a specific temperature.

This bill is modeled after similar existing declarations, such as the state’s declared policies that every human being has the right to safe, clean, affordable, and accessible water, and that every human being has the right to access sufficient affordable and healthy food. Also similar to existing declarations, this bill requires relevant state agencies to consider this policy when revising, adopting, or establishing policies, programs, criteria, and regulations relevant to achieving the policy.

Unlike existing declarations of state policy, this bill does not include language specifying its declaration of state policy does not expand any obligation of the state or require the expenditure of additional resources.

1. Prior Legislation. AB 2597 (Bloom), of the 2021-22 Legislative Session, would have required HCD to develop, propose, and submit mandatory building standards for adequate residential cooling for both new and existing units. AB 2597 was held in the Senate Housing Committee.

Analysis Prepared by: Jennifer Swenson / APPR. / (916) 319-2081

Date of Hearing: July 16, 2025

ASSEMBLY COMMITTEE ON HOUSING AND COMMUNITY DEVELOPMENT

Matt Haney, Chair

SBPCA Bill Id:SB 655

Author:(Stern) – As Amended Ver:June 16, 2025

SENATE VOTE: 39-0

SUBJECT: Dwelling units: indoor temperature

SUMMARY: Declares it to be the established policy of the state that all dwelling units, as specified, shall be able to attain and maintain a safe maximum indoor temperature, and requires all state agencies to consider this policy when revising, adopting, or establishing policies, programs, regulations, and criteria, including grant criteria, that are relevant to achieving this state policy.

EXISTING LAW:

1. Deems any building or portion thereof in which there exists a lack of adequate heating, to an extent that endangers the life, limb, health, property, safety, or welfare of the occupants of the building, nearby residents, or the public, to be a substandard building. (Health and Safety Code Section 17920.3(a)(6))
2. Deems a dwelling untenantable if it substantially lacks heating facilities that conformed with applicable law at the time of installation or that are maintained in good working order. (Civil Code Section 1941.1(a)(4))
3. Requires every dwelling unit and guest room used or offered for rent or lease to be provided with heating facilities capable of maintaining a minimum room temperature of 70 degrees at a point three feet above the floor in all habitable rooms, and when the heating facilities are not under the control of the tenant or occupant of the building owner and/or manager, shall provide that heat at a minimum temperature of 70 degrees, 24 hours a day. Requires these facilities to be installed and maintained in a safe condition and in accordance with Chapter 37 of the Uniform Building Code, the Uniform Mechanical Code, and other applicable laws. Prohibits unvented fuel burning heaters and requires all heating devices or appliances to be of an approved type. (California Code of Regulations, 25 CCR § 34)
4. Declares it to be the established policy of the state that every human being has the right to safe, clean, affordable, and accessible water adequate for human consumption, cooking, and sanitary purposes. (Water Code (WAT) Section 106.3(a))
5. Requires all relevant state agencies, including the Department of Water Resources, the State Water Resources Control Board, and the State Department of Public Health, to consider the state policy in 4) above when revising, adopting, or establishing policies, regulations, and grant criteria when those policies, regulations, and criteria are pertinent to the uses of water described in 4) above. (WAT 106.3(b))
6. Provides that 4) and 5) above do not expand any obligation of the state to provide water or to require the expenditure of additional resources to develop water infrastructure beyond the obligations that may exist pursuant to 3) above. (WAT 106.3(c))

FISCAL EFFECT: Unknown.

COMMENTS:

Author’s Statement: According to the author, “As Californians face the growing impacts of climate change, extreme heat is among the most alarming and deadly. These spikes in heat are not just uncomfortable. They are life threatening. Vulnerable populations including our elderly, children, those with preexisting health conditions, and low income individuals where access to cooling resources may be limited, are disproportionately affected. The State must address and prepare for extreme heat, promote energy efficiency, and secure safe and healthy housing for all Californians. This bill unifies relevant state efforts around the common-sense goal of refuge from extreme heat in one’s own home. When residential dwelling units can maintain a safe indoor temperature, it greatly mitigates heat-related illnesses and death- a worthy and necessary goal for California to achieve.”

Extreme Heat and Residential Indoor Temperature Challenges: While current housing law generally provides for the right to heat during times of extreme cold, it does not guarantee cooling during heat events. Heat exposure can cause a variety of health impacts including heat cramps, heat exhaustion, heat stroke, exacerbation of respiratory illnesses, and can even lead to death. In fact, heat causes more reported deaths per year on average in the US than any other weather hazard.^[1] A heat wave in 2006 led to 140 deaths as well as 16,000 more emergency room visits and 1,100 more hospitalizations as compared to similar time periods without a heat wave. The California Department of Public Health in 2023 reported 395 excess deaths in California during a 10-day heat wave in September 2022. Due to climate change, this extreme weather will become more common – the California Fourth Climate Change Assessment estimates that by 2050, urban heat-related deaths could double or triple due to rising temperatures. In addition, lower income communities are hotter than wealthier communities, and California metro areas have a larger temperature disparity between their poorest and wealthiest areas than any other state in the southwest.^[2],[3]

State Action Plan: In response to concerns about the dangerous impacts of extreme heat, the Governor’s Office released “Protecting Californians from Extreme Heat: A State Action Plan to Build Community Resilience” in April 2022.^[4] This plan, known as the California Extreme Heat Action Plan (EHAP), includes 13 goals under the categories of building public awareness and notification; strengthening community services and response; increasing the resilience of our built environment; and utilizing nature-based solutions. Areas of near-term focus include implementing a statewide public health monitoring system for early identification, monitoring, and tracking of heat illness events; accelerating readiness and protection of communities most impacted by extreme heat; protecting vulnerable populations through codes, standards, and regulations; expanding economic opportunity and building a climate smart workforce that can operate under, and address, extreme heat; increasing public awareness to reduce risks posed by extreme heat; and protecting natural and working lands, ecosystems, and biodiversity from the impacts of extreme heat.

Recent Efforts to Create a Cooling Standard: In 2022, AB 2597 (Bloom) would have required HCD to develop, propose, and submit mandatory building standards for adequate residential cooling for both new and existing units. AB 2597 was held by the author in the Senate Housing Committee due to concerns about placing onerous requirements on housing providers, circumventing the state regulatory process for building code adoption, and placing significant challenges on the electric grid due to more air conditioners running during peak energy demand times and during hot weather in general. Stemming from that conversation, legislation enacted as part of the budget agreement in 2022 (AB 209, Committee on Budget) included a provision requiring HCD to provide recommendations to the Legislature to help ensure that residential dwelling units can maintain a safe indoor temperature.

AB 209 Report: As required by AB 209, HCD recently released “Policy Recommendations: Recommended Maximum Safe Indoor Temperature” to the Legislature.^[5] The report notes that its policy recommendations are aligned with many of the goals identified in the 2022 EHAP discussed above. The report recommends that the state consider a general maximum safe indoor air temperature of 82 degrees Fahrenheit for residential dwelling unit, to be implemented by methods including building standards for newly constructed residential dwelling units, and/or incentive programs for retrofitting existing residential dwelling units, manufactured homes, and mobilehomes. The report recommends the following for newly constructed residential units:

• Direct HCD to propose building standards that require newly constructed residential dwelling units to be designed and constructed to maintain a maximum indoor air temperature of 82 degrees Fahrenheit.
• Establish incentive programs for passive and low energy cooling strategies focusing on the use of cool roofs, cool walls, window shading, building shading, and landscaping. In developing these programs, evaluate the use of modeling predictions of future weather data rather than historical weather data.

For existing residential units, mobilehomes, and manufactured homes, the following:

• Establish incentive programs to encourage broader adoption and use of fans or whole house ventilation systems.
• Establish incentive programs to encourage the use of room evaporative coolers (commonly known as “swamp coolers”) in warmer climate zones.
• Establish incentive programs to encourage the use of air conditioning, with current heat pump technology, where feasible and cost effective.
• Establish incentives for weatherization and passive and low energy cooling retrofit strategies.

This bill declares it to be the state’s policy that all dwelling units be able to attain and maintain a safe maximum indoor temperature (but does not establish or otherwise reference a specific temperature). This policy declaration is modeled after a similar declaration of water policy that every human being has the right to safe, clean, affordable, and accessible water adequate for human consumption, cooking, and sanitary purposes, as referenced in existing law above.

This bill, similar to the aforementioned water policy, also requires all state agencies to consider the indoor temperature policy when revising, adopting, or establishing any policies, programs, regulations, and grant criteria that are relevant to achieving the policy. The author indicates the intention of this subdivision is to require state agencies that have jurisdiction over policies, regulations, or programs that affect cooling standards, incentives, or other tools the state may be using to address extreme heat in residential settings to incrementally incorporate this new policy declaration into those policies, regulations, or programs as they are being issued or updated.

Arguments in Support: According to a coalition of supporters, including Leadership Council Action, the Western Center on Law and Poverty, the Sierra Club, and Tenants Together, “California has a minimum residential indoor temperature standard to protect people from the cold, yet there are no complementary mechanisms designed to provide broad protections from dangerous indoor heat. This gap in our programs and policies puts the most vulnerable Californians at serious risk of illness and death from extreme heat. … SB 655 will establish a critical policy statement and goal that all people in California should be able to be safe from the impacts and risks of extreme heat in their own homes. And it will create a common-sense approach to achieving this goal by ensuring that state agencies - through their existing and ongoing efforts to address and prepare for extreme heat, promote energy efficiency, and secure safe and healthy housing - consider how best to address extreme heat in homes through those ongoing efforts.”

Arguments in Opposition: The Southern California Rental Housing Association writes in opposition that the bill’s policy standard is vague and unenforceable and raises significant concerns regarding expectations for landlords and developers, that it may lay groundwork for future regulatory burdens in the form of cooling mandates to be imposed on existing housing, and that the bill may conflict with other work local governments are now required to perform to incorporate extreme heat into their general plans’ safety elements.

Committee Amendments: Staff recommends the bill be amended as follows:

1. Name specific state agencies and departments that are of particular relevance to the temperature policy in the bill, specifically HCD, the Office of Land Use and Climate Innovation, and the Energy Commission; and
2. Phase in the requirement to consider the temperature policy for regulations on January 1, 2027, as the rulemaking process is lengthy and enacting this requirement with a January 1, 2026 date may disrupt pending rulemaking packages or cause agencies to have to withdraw or reissue legally required notices or reopen comment periods.

Related Legislation:

AB 209 (Committee on Budget), Chapter 251, Statutes of 2022: Required HCD to provide recommendations to the Legislature to help ensure that residential dwelling units can maintain a safe indoor temperature.

AB 2579 (Bloom) of 2022 would have required HCD to develop, propose, and submit mandatory building standards for adequate residential cooling for both new and existing units. The bill was

AB 685 (Eng), Chapter 524, Statutes of 2012: Declared that it is the established policy of the state that every human being has the right to safe, clean, affordable, and accessible water adequate for human consumption, cooking, and sanitary purposes. Required all relevant state agencies, including the Department of Water Resources, the State Water Resources Control Board, and the State Department of Public Health, to consider this state policy when revising, adopting, or establishing policies, regulations, and grant criteria when those policies, regulations, and grant criteria are pertinent to the uses of water.

REGISTERED SUPPORT / OPPOSITION:

Support

Access Reproductive Justice

Association for Energy Affordability

Building Decarbonization Coalition

Building Electrification Institute

California Center for Movement Legal Services

California Environmental Justice Alliance Action

California Green New Deal Coalition

California Rural Legal Assistance Foundation

Center for Community Action and Environmental Justice

Center on Race, Poverty & the Environment

Central California Asthma Collaborative

Central California Environmental Justice Network

Central Valley Air Quality Coalition

Centro Binacional para el Desarrollo Indigena Oaxaqueño

Clean Water Action

Climate Resolve

Coalition for Economic Survival

Cómite Cívico del Valle

Community Action to Fight Asthma

Courage California

Healing and Justice Center

Health in Partnership

Hmong Innovating Politics

Housing Now!

Impactful Freedom

Inland Empire Prism Collective

Inner City Law Center

Interfaith Movement for Human Integrity

Leadership Counsel Action

Legal Aid of Sonoma County

Local Clean Energy Alliance

Los Angeles County Board of Supervisors

Madera Coalition for Community Justice

Natural Resources Defense Council

Pesticide Action and Agroecology Network

PODER

Pueblo Unido CDC

Regional Asthma Management and Prevention

Rising Sun Center for Opportunity

SGV Casita

Sierra Club California

So Cal Trash Army

Starting Over Strong

Starting Over

Strategic Actions for a Just Economy

Tenants Together

TODEC Legal Center

Unidos por el Valle Central

USGBC California

Western Center on Law & Poverty

Individuals (1)

Opposition

Southern California Rental Housing Association

Analysis Prepared by: Nicole Restmeyer / H. & C.D. / (916) 319-2085

1. https://oehha.ca.gov/media/epic/downloads/19humanhealth_14jan2019.pdf ↑

2. https://www.latimes.com/california/story/2021-10-28/extreme-heat-built-environment-equity ↑

3. Dialesandro, John; et al. Dimension of thermal Inequity: Neighborhood Social Demographics and Urban Heat in the Southwestern U.S. (Int. J. Environ. Res. Public Health, 2021). https://www.mdpi.com/1660-4601/18/3/941 ↑

4. Protecting Californians From Extreme Heat: A State Action Plan to Build Community Resilience, https://www.gov.ca.gov/2022/04/28/california-releases-extreme-heat-action-plan-to-protect-communities-from-rising-temperatures/ ↑

5. Policy Recommendations: Recommended Maximum Safe Indoor Air Temperature, https://www.hcd.ca.gov/sites/default/files/docs/policy-and-research/plan-report/ab-209-policy-recommendations.pdf ↑

 THIRD READING  

Bill No: SB 655

Author: Stern (D)

Amended: 5/23/25

Vote: 21

SENATE HOUSING COMMITTEE: 10-0, 4/29/25

AYES: Wahab, Arreguín, Cabaldon, Caballero, Cortese, Durazo, Gonzalez, Grayson, Ochoa Bogh, Padilla

NO VOTE RECORDED: Seyarto

SENATE APPROPRIATIONS COMMITTEE: 6-0, 5/23/25

AYES: Caballero, Seyarto, Cabaldon, Grayson, Richardson, Wahab

NO VOTE RECORDED: Dahle

SUBJECT: Residential building standards: indoor temperature

SOURCE: Author

DIGEST:

This bill requires the Department of Housing and Community Development (HCD) to develop, research, and propose for adoption by the California Building Standards Commission (CBSC), standards to achieve a maximum safe indoor air temperature of 82 degrees Fahrenheit for newly constructed residential dwelling units.

ANALYSIS:

Existing law:

1. Establishes the CBSC within the Department of General Services, and requires the commission to approve and adopt building standards and to codify those standards in the California Building Standards Code. Requires CBSC to publish editions of the code in its entirety once every three years. In the intervening period, the CBSC must publish supplements as necessary.
2. Requires CBSC to receive proposed building standards from a state agency for consideration in an 18-month code adoption cycle. Requires CBSC to adopt regulations governing the procedures for 18-month code adoption cycle, which must include adequate provision of the following:
   1. Public participation in the development of standards;
   2. Notice in written form to the public of the compiled building standards with justifications;
   3. Technical review of the proposed building standards and accompanying justification by advisory boards appointed by CBSC; and
   4. Time for review of recommendations by the advisory boards prior to CBSC taking action.

1. Requires proposed building standards that are submitted to CBSC for consideration to be accompanied by an analysis completed by the appropriate state agency that justifies approval based on criteria, as specified.
2. Requires HCD to propose the adoption, amendment, or repeal of building standards to CBSC for residential buildings, including hotels, motels, lodging houses, apartment houses, dwellings, buildings, and structures.

This bill requires HCD, on or before the next rulemaking cycle for the triennial update to the California Building Standards Code adopted after January 1, 2026, to develop, research, and propose for adoption, standards that may include but are not limited to the use of mechanical ventilation, natural ventilation, shading, and cooling techniques, to achieve a maximum safe indoor air temperature of 82 degrees Fahrenheit for newly constructed residential dwelling units.

Background

Building standards. The California Building Standards Law establishes the process for adopting state building standards by CBSC. Statewide building standards are intended to provide uniformity in building across the state. The CBSC's duties include the following: receiving proposed building standards from state agencies for consideration in each triennial and intervening building code adoption cycle; reviewing and approving building standards submitted by state agencies; adopting building standards for state buildings where no other state agency is authorized by law; and publishing the approved building standards in the California Building Standards Code.

There are approximately 20 state agencies that develop building standards and propose them for adoption to the CBSC. After the proposal of building standards by state agencies, the standards undergo a public vetting process. A code advisory committee composed of experts in a particular scope of code reviews the proposed standards, followed by public review. The proposing agency considers feedback and may then amend the standards and re-submit them to the CBSC for consideration. HCD is responsible for the standards for residential buildings, hotels and motels. The California Building Code and California Residential Code govern general standards for multifamily and single-family residential construction.

Updates and changes to building standards are adopted on two timelines: through the triennial code adoption cycle which occurs every three years, and through the intervening code adoption cycle which provides an update to codes 18 months after the publication of the triennial codes. Regulatory activities for each cycle begin over two years before the effective date of the codes. The standards adopted in the current intervening code cycle will be effective on July 1, 2024 and the next triennial cycle's standards will be effective on January 1, 2026.

As a matter of practice, the Legislature typically offers guidelines or directs agencies to consider certain standards, rather than requiring adoption of specific standards, in order to provide flexibility and allow for subject matter experts to determine appropriateness and weigh the many considerations that must be evaluated when recommending new or modified building standards through the public regulatory process.

Comments

Author statement. “As Californians face the growing impacts of climate change, extreme heat is among the most alarming and deadly. These spikes in heat are not just uncomfortable – they are life threatening. Vulnerable populations including our elderly, children, those with preexisting health conditions, and low income individuals where access to cooling resources may be limited, are disproportionately affected. SB 655 codifies a maximum safe indoor temperature that new California residences must be able to maintain. As the state explores resources to meet our climate goals, it must also build homes intentionally and strategically to refuge Californians from extreme heat.”

Extreme heat. Extreme heat exposure can cause a variety of health impacts including heat cramps, heat exhaustion, heat stroke, exacerbation of respiratory illnesses, and can even lead to death.^[1] In fact, heat causes more reported deaths per year on average in the US than any other weather hazard.^[2] A heat wave in 2006 led to 140 deaths as well as 16,000 more emergency room visits and 1,100 more hospitalizations as compared to similar time periods without a heat wave. Due to climate change, this extreme weather will become more common. In addition, disenfranchised communities are hotter than wealthier communities. In fact, California metro areas have a larger temperature disparity between their poorest and wealthiest areas than any other state in the southwest.^[3],[4]

State action plan. In response to concerns about the dangerous impacts of extreme heat, the Governor’s Office released “Protecting Californians from Extreme Heat: A State Action Plan to Build Community Resilience” in April 2022.^[5] This plan, known as the California Extreme Heat Action Plan (EHAP), includes 13 goals under the categories of building public awareness and notification; strengthening community services and response; increasing the resilience of our built environment; and utilizing nature-based solutions. Areas of near-term focus include implementing a statewide public health monitoring system for early identification, monitoring, and tracking of heat illness events; accelerating readiness and protection of communities most impacted by extreme heat; protecting vulnerable populations through codes, standards, and regulations; expanding economic opportunity and building a climate smart workforce that can operate under, and address, extreme heat; increasing public awareness to reduce risks posed by extreme heat; and protecting natural and working lands, ecosystems, and biodiversity from the impacts of extreme heat.

Establishing building standards for protections against heat. Although California building standards have long specified that newly constructed residential dwelling units must be able to maintain a minimum indoor air temperature, there is no requirement for a maximum indoor air temperature. Recent legislation (AB 2597 (Bloom) of 2022) would have required HCD to develop, propose, and submit to the CBSC mandatory standards for adequate residential cooling for both new and existing units. AB 2597 was parked by the author in the Senate Housing Committee, due to concerns about placing onerous requirements on housing providers, circumventing the state regulatory process for building code adoption, and placing significant challenges on the electric grid capacity due to more air conditioners.

Stemming from that conversation, legislation enacted as part of the budget agreement that year (AB 209, Committee on Budget, Chapter 251, Statutes of 2022) included a provision requiring HCD to provide recommendations to the Legislature by January 1, 2025 to help ensure that residential dwelling units can maintain safe indoor temperature.

HCD report. As required by AB 209, HCD recently released “Policy Recommendations: Recommended Maximum Safe Indoor Temperature” to the Legislature.^[6] The report notes that its policy recommendations are aligned with many of the goals identified in the 2022 EHAP discussed above. The report recommends that the state consider a general maximum safe indoor air temperature of 82 degrees Fahrenheit for residential dwelling unit, to be implemented by methods including building standards for newly constructed residential dwelling units, and/or incentive programs for retrofitting existing residential dwelling units, manufactured homes, and mobile homes. The report recommends the following:

For newly constructed residential units:

• Direct HCD to propose building standards that require newly constructed residential dwelling units to be designed and constructed to maintain a maximum indoor air temperature of 82 degrees Fahrenheit.
• Establish incentive programs for passive and low energy cooling strategies focusing on the use of cool roofs, cool walls, window shading, building shading, and landscaping. In developing these programs, evaluate the use of modeling predictions of future weather data rather than historical weather data.

For existing residential units, mobile homes, and manufactured homes:

• Establish incentive programs to encourage broader adoption and use of fans or whole house ventilation systems.
• Establish incentive programs to encourage the use of room evaporative coolers [commonly known as “swamp coolers”] in warmer climate zones.
• Establish incentive programs to encourage the use of air conditioning, with current heat pump technology, where feasible and cost effective.
• Establish incentives for weatherization and passive and low energy cooling retrofit strategies.

For newly constructed manufactured homes:

• Submit a petition to the US Department of Housing and Urban Development’s Manufactured Housing Consensus Committee to consider applying the recommendations of this report to newly constructed manufactured homes.

By requiring HCD to develop and propose building standards to the CBSC to require a specific maximum safe indoor air temperature for newly constructed housing units, this bill seeks to implement the first recommendation outlined above.

Amendments. This bill was amended in the Senate Appropriations Committee to delete a requirement for HCD and the CBSC to submit a report to the Legislature on the standards proposed under this bill.

According to the Senate Appropriations Committee:

• Staff estimates HCD costs of approximately $195,000 annually for 1.0 PY of limited-term staff for two to three years to research, develop, and propose building standards to the CBSC. There could be some additional workload to review the building standards every 18 months through the intervening code cycle. (General Fund)
  
• The CBSC indicates that costs to review building standards proposed by HCD in the 2027 triennial cycle would be minor and absorbable. (Building Standards Administration Revolving Fund)

FISCAL EFFECT: Appropriation: No Fiscal Com.: Yes Local: No

SUPPORT: (Verified 5/23/25)

Building Decarbonization Coalition
Building Electrification Institute
California Center for Movement Legal Services
California Environmental Voters (formerly CLCV)
California Rural Legal Assistance Foundation
Center for Community Action & Environmental Justice
Center on Race, Poverty & the Environment
Central California Environmental Justice Network
Central Valley Air Quality Coalition
Coalition for Economic Survival
Courage California
Greenfield Walking Group
Healing and Justice Center
Housing Now!
Inland Equity Community Land Trusts
Inner City Law Center
Interfaith Movement for Human Integrity
Leadership Counsel Action
Leadership Counsel for Justice & Accountability
Local Clean Air Energy Alliance
Madera Coalition for Community Justice
National Resources Defense Council
Regional Asthma Management and Prevention
Sierra Club
So Cal Trash Army
Starting Over INC.
Strategic Actions for a Just Economy
Tenants Together
Todec Legal Center
Usgbc California
Western Center on Law & Poverty

OPPOSITION: (Verified 5/23/25)

Southern California Rental Housing Association

ARGUMENTS IN SUPPORT: A large coalition of environmental, tenants’ rights, and anti-poverty organizations states, “Extreme heat is a huge and growing risk to Californians” and “As temperatures rise and heat waves become longer and more intense, deaths in California could rise to 11,300 a year by 2050, and much higher mortality when the increasing number of older persons is also considered.”

ARGUMENTS IN OPPOSITION: The Southern California Rental Housing Association states that “[t]his bill places unrealistic expectations on landlords and developers at a time when we are already grappling with historic inflation in construction costs, labor shortages, supply chain challenges, and mounting regulatory burdens.”

Prepared by: Erin Riches / HOUSING / (916) 651-4124

5/27/25 13:24:04

**** END ****

1. SCAG Extreme Heat and Public Health Report. September 2020. https://scag.ca.gov/sites/main/files/file-attachments/extremeheatpublichealthreportfinal_09302020.pdf?1634674354 ↑

2. California Office of Environmental Health Hazard Assessment. Heat-related mortality and morbidity. Feb. 2019. https://oehha.ca.gov/media/epic/downloads/19humanhealth_14jan2019.pdf ↑

3. Barboza, Tony; Vives, Ruben. Poor Neighborhoods bear the brunt of extreme heat, “legacies of racists decision making”. (LA Times, October 2021). https://www.latimes.com/california/story/2021-10-28/extreme-heat-built-environment-equity ↑

4. Dialesandro, John; et al. Dimension of thermal Inequity: Neighborhood Social Demographics and Urban Heat in the Southwestern U.S. (Int. J. Environ. Res. Public Health, 2021). https://www.mdpi.com/1660-4601/18/3/941 ↑

5. Protecting Californians From Extreme Heat: A State Action Plan to Build Community Resilience ↑

6. Policy Recommendations: Recommended Maximum Safe Indoor Air Temperature (ca.gov) ↑

SENATE COMMITTEE ON APPROPRIATIONS

Senator Anna Caballero, Chair

2025 - 2026 Regular Session

SB 655 (Stern) - Residential building standards: indoor temperature

Bill Summary:

SB 655 would require the Department of Housing and Community Development (HCD) to research, develop, and propose for adoption by the California Building Standards Commission (CBSC), standards to achieve a maximum safe indoor temperature of 82 degrees Fahrenheit for newly constructed residential dwelling units.

*********** ANALYSIS ADDENDUM – SUSPENSE FILE ***********

The following information is revised to reflect amendments

adopted by the committee on May 23, 2025

Fiscal Impact:

• Staff estimates HCD costs of approximately $195,000 annually for 1.0 PY of limited-term staff for two to three years to research, develop, and propose building standards to the CBSC. There could be some additional workload to review the building standards every 18 months through the intervening code cycle. (General Fund)
  
• The CBSC indicates that costs to review building standards proposed by HCD in the 2027 triennial cycle would be minor and absorbable. (Building Standards Administration Revolving Fund)

Author Amendments:

Delete the requirement for HCD and the CBSC to submit a report to the Legislature that includes the building standards.

-- END --

SENATE COMMITTEE ON

Senator Anna Caballero, Chair

2025 - 2026 Regular Session

SB 655 (Stern) - Residential building standards: indoor temperature

Bill Summary:

SB 655 would require the Department of Housing and Community Development (HCD) to research, develop, and propose for adoption by the California Building Standards Commission (CBSC), standards to achieve a maximum safe indoor temperature of 82 degrees Fahrenheit for newly constructed residential dwelling units.

Fiscal Impact:

• Staff estimates HCD costs of approximately $195,000 annually for 1.0 PY of limited-term staff for two to three years to research, develop, and propose building standards to the CBSC, and to compile the standards into a report to the Legislature. There could be some additional workload to review the building standards every 18 months through the intervening code cycle. (General Fund)
  
• The CBSC indicates that costs to review building standards proposed by HCD in the 2027 triennial cycle would be minor and absorbable, but costs to compile the standards into a report to the Legislature would require approximately 0.25 PY of staff time at a one-time cost of approximately $64,000. (Building Standards Administration Revolving Fund)

Background:

Existing law, the California Building Standards Law, authorizes the BSC to approve and adopt building standards through a triennial rulemaking process to revise and update the California Building Standards Code. There are approximately twenty state agencies that develop building standards for submittal to the BSC for review, approval, and adoption. HCD is responsible for proposing building standards to the BSC for residential buildings including, hotels, motels, lodging houses, apartment houses, dwellings, buildings and structures. In the absence of a designated state agency, the BSC is required to adopt specific building standards, as prescribed. Building standards take effect 180 days after they are published, unless a different date is specified. The most recent update to the California Building Standards Code, the 2022 Triennial Edition, is effect from January 1, 2023 until December 31, 2025.

Proposed Law:

SB 655 would require HCD to research, develop, and propose for adoption by the CBSC for the next triennial update of the California Building Standards Code that occurs after January 1, 2026, standards that may include the use of mechanical ventilation, natural ventilation, shading, and cooling techniques, to achieve a maximum safe indoor temperature of 82 degrees Fahrenheit for newly constructed residential dwelling units.

The bill would require both HCD and the CBSC to submit a report to the Legislature that includes those standards developed and proposed for adoption by an unspecified date.

SB 655 also includes uncodified language expressing the Legislature’s intent to enact legislation relating to the consideration by state agencies and departments of a state policy on a safe maximum indoor temperature in all residential dwellings, and for state agencies and departments to revise, adopt, or establish policies, regulations, and grant criteria pertinent to a safe maximum indoor temperature in all residential dwellings.

Related Legislation:

AB 209 (Committee on Budget), Chap. 251/2022, included a requirement for HCD to submit policy recommendations to the Legislature by January 1, 2025 to help ensure that residential dwelling units can maintain safe indoor temperature, as specified.

AB 2597 (Bloom), which died in the Senate Housing Committee without a hearing in 2022, would have required HCD to develop, propose, and submit to the CBSC mandatory standards for adequate residential cooling for both new and existing residential dwelling units, as specified.

Staff Comments:

In response to concerns about the dangerous impacts of extreme heat, the Governor’s Office released “Protecting Californians from Extreme Heat: A State Action Plan to Build Community Resilience” in April 2022. This plan, known as the California Extreme Heat Action Plan (EHAP), includes 13 goals under the categories of building public awareness and notification; strengthening community services and response; increasing the resilience of our built environment; and utilizing nature-based solutions. Areas of near-term focus include a provision calling for protecting vulnerable populations through codes, standards, and regulations.

Although California building standards have long specified that newly constructed residential dwelling units must be able to maintain a minimum indoor air temperature, there is no current requirement for a maximum indoor air temperature. Legislation enacted as part of the 2022 budget agreement (AB 209, Committee on Budget, 2022) included a provision requiring HCD to provide recommendations to the Legislature by January 1, 2025 to help ensure that residential dwelling units can maintain safe indoor temperature. HCD subsequently released “Policy Recommendations: Recommended Maximum Safe Indoor Temperature” to the Legislature. Among other things, this report recommends that the state consider a general maximum safe indoor air temperature of 82 degrees Fahrenheit for residential dwelling unit, to be implemented by methods including building standards for newly constructed residential dwelling units, and/or incentive programs for retrofitting existing residential dwelling units, manufactured homes, and mobile homes. This bill seeks to implement the report’s recommendation.

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SENATE COMMITTEE ON HOUSING

Senator Aisha Wahab, Chair

2025 - 2026 Regular

Bill No: SB 655 Hearing Date: 4/22/25

SUBJECT: Residential building standards: indoor temperature

DIGEST: This bill requires the Department of Housing and Community Development (HCD) to develop, research, and propose for adoption by the California Building Standards Commission (CBSC), standards to achieve a maximum safe indoor air temperature of 82 degrees Fahrenheit for newly constructed residential dwelling units.

ANALYSIS:

Existing law:

1. Establishes the CBSC within the Department of General Services, and requires the commission to approve and adopt building standards and to codify those standards in the California Building Standards Code. Requires CBSC to publish editions of the code in its entirety once every three years. In the intervening period, the CBSC must publish supplements as necessary.
2. Requires CBSC to receive proposed building standards from a state agency for consideration in an 18-month code adoption cycle. Requires CBSC to adopt regulations governing the procedures for 18-month code adoption cycle, which must include adequate provision of the following:
   1. Public participation in the development of standards;
   2. Notice in written form to the public of the compiled building standards with justifications;
   3. Technical review of the proposed building standards and accompanying justification by advisory boards appointed by CBSC; and
   4. Time for review of recommendations by the advisory boards prior to CBSC taking action.

1. Requires proposed building standards that are submitted to CBSC for consideration to be accompanied by an analysis completed by the appropriate state agency that justifies approval based on criteria, as specified.
2. Requires HCD to propose the adoption, amendment, or repeal of building standards to CBSC for residential buildings, including hotels, motels, lodging houses, apartment houses, dwellings, buildings, and structures.

This bill:

1. Requires HCD, on or before the next rulemaking cycle for the triennial update to the California Building Standards Code adopted after January 1, 2026, to develop, research, and propose for adoption, standards that may include but are not limited to the use of mechanical ventilation, natural ventilation, shading, and cooling techniques, to achieve a maximum safe indoor air temperature of 82 degrees Fahrenheit for newly constructed residential dwelling units.
2. Requires HCD and the CBSC, on or before an unspecified date, to each submit a report to the Legislature that includes the standards developed and proposed for adoption.

Background

Building standards. The California Building Standards Law establishes the process for adopting state building standards by CBSC. Statewide building standards are intended to provide uniformity in building across the state. The CBSC's duties include the following: receiving proposed building standards from state agencies for consideration in each triennial and intervening building code adoption cycle; reviewing and approving building standards submitted by state agencies; adopting building standards for state buildings where no other state agency is authorized by law; and publishing the approved building standards in the California Building Standards Code.

There are approximately 20 state agencies that develop building standards and propose them for adoption to the CBSC. After the proposal of building standards by state agencies, the standards undergo a public vetting process. A code advisory committee composed of experts in a particular scope of code reviews the proposed standards, followed by public review. The proposing agency considers feedback and may then amend the standards and re-submit them to the CBSC for consideration. HCD is responsible for the standards for residential buildings, hotels and motels. The California Building Code and California Residential Code govern general standards for multifamily and single-family residential construction.

Updates and changes to building standards are adopted on two timelines: through the triennial code adoption cycle which occurs every three years, and through the intervening code adoption cycle which provides an update to codes 18 months after the publication of the triennial codes. Regulatory activities for each cycle begin over two years before the effective date of the codes. The standards adopted in the current intervening code cycle will be effective on July 1, 2024 and the next triennial cycle's standards will be effective on January 1, 2026.

As a matter of practice, the Legislature typically offers guidelines or directs agencies to consider certain standards, rather than requires the adoption of specific standards, in order to provide flexibility and allow for subject matter experts to determine appropriateness and weigh the many considerations that must be evaluated when recommending new or modified building standards through the public regulatory process.

Comments

1. Author statement. “As Californians face the growing impacts of climate change, extreme heat is among the most alarming and deadly. These spikes in heat are not just uncomfortable – they are life threatening. Vulnerable populations including our elderly, children, those with preexisting health conditions, and low income individuals where access to cooling resources may be limited, are disproportionately affected. SB 655 codifies a maximum safe indoor temperature that new California residences must be able to maintain. As the state explores resources to meet our climate goals, it must also build homes intentionally and strategically to refuge Californians from extreme heat.”
2. Extreme heat. Extreme heat exposure can cause a variety of health impacts including heat cramps, heat exhaustion, heat stroke, exacerbation of respiratory illnesses, and can even lead to death.^[1] In fact, heat causes more reported deaths per year on average in the US than any other weather hazard.^[2] A heat wave in 2006 led to 140 deaths as well as 16,000 more emergency room visits and 1,100 more hospitalizations as compared to similar time periods without a heat wave. Due to climate change, this extreme weather will become more common. In addition, disenfranchised communities are hotter than wealthier communities. In fact, California metro areas have a larger temperature disparity between their poorest and wealthiest areas than any other state in the southwest.^[3],[4]
3. State action plan. In response to concerns about the dangerous impacts of extreme heat, the Governor’s Office released “Protecting Californians from Extreme Heat: A State Action Plan to Build Community Resilience” in April 2022.^[5] This plan, known as the California Extreme Heat Action Plan (EHAP), includes 13 goals under the categories of building public awareness and notification; strengthening community services and response; increasing the resilience of our built environment; and utilizing nature-based solutions. Areas of near-term focus include implementing a statewide public health monitoring system for early identification, monitoring, and tracking of heat illness events; accelerating readiness and protection of communities most impacted by extreme heat; protecting vulnerable populations through codes, standards, and regulations; expanding economic opportunity and building a climate smart workforce that can operate under, and address, extreme heat; increasing public awareness to reduce risks posed by extreme heat; and protecting natural and working lands, ecosystems, and biodiversity from the impacts of extreme heat.
4. Establishing building standards for protections against heat. Although California building standards have long specified that newly constructed residential dwelling units must be able to maintain a minimum indoor air temperature, there is no requirement for a maximum indoor air temperature. Recent legislation (AB 2597, Bloom, 2022) would have required HCD to develop, propose, and submit to the CBSC mandatory standards for adequate residential cooling for both new and existing units. AB 2597 was parked by the author in the Senate Housing Committee, due to concerns about placing onerous requirements on housing providers, circumventing the state regulatory process for building code adoption, and placing significant challenges on the electric grid capacity due to more air conditioners.

Stemming from that conversation, legislation enacted as part of the budget agreement that year (AB 209, Committee on Budget, 2022) included a provision requiring HCD to provide recommendations to the Legislature by January 1, 2025 to help ensure that residential dwelling units can maintain safe indoor temperature.

1. HCD report. As required by AB 209, HCD recently released “Policy Recommendations: Recommended Maximum Safe Indoor Temperature” to the Legislature.^[6] The report notes that its policy recommendations are aligned with many of the goals identified in the 2022 EHAP discussed above. The report recommends that the state consider a general maximum safe indoor air temperature of 82 degrees Fahrenheit for residential dwelling unit, to be implemented by methods including building standards for newly constructed residential dwelling units, and/or incentive programs for retrofitting existing residential dwelling units, manufactured homes, and mobile homes. The report recommends the following:

a) For newly constructed residential units:

1. Direct HCD to propose building standards that require newly constructed residential dwelling units to be designed and constructed to maintain a maximum indoor air temperature of 82 degrees Fahrenheit.

1. Establish incentive programs for passive and low energy cooling

strategies focusing on the use of cool roofs, cool walls, window shading, building shading, and landscaping. In developing these programs, evaluate the use of modeling predictions of future weather data rather than historical weather data.

b) For existing residential units, mobile homes, and manufactured homes:

1. Establish incentive programs to encourage broader adoption and use of fans or whole house ventilation systems.
2. Establish incentive programs to encourage the use of room evaporative coolers [commonly known as “swamp coolers”] in warmer climate zones.
3. Establish incentive programs to encourage the use of air conditioning, with current heat pump technology, where feasible and cost effective.
4. Establish incentives for weatherization and passive and low energy cooling retrofit strategies.

c) For newly constructed manufactured homes:

1. Submit a petition to the US Department of Housing and Urban Development’s Manufactured Housing Consensus Committee to consider applying the recommendations of this report to newly constructed manufactured homes.

By requiring HCD to develop and propose building standards to the CBSC to require a specific maximum safe indoor air temperature for newly constructed housing units, this bill seeks to implement the first recommendation outlined above.

1. Opposition concerns. The Southern California Rental Housing Association states that “[t]his bill places unrealistic expectations on landlords and developers at a time when we are already grappling with historic inflation in construction costs, labor shortages, supply chain challenges, and mounting regulatory burdens.”

Related/Prior Legislation:

AB 209 (Committee on Budget, Chapter 251, Statutes of 2022) – budget trailer legislation that included a requirement for HCD to submit policy recommendations to the Legislature by January 1, 2025 to help ensure that residential dwelling units can maintain safe indoor temperature, as specified.

AB 2597 (Bloom, 2022) – would have required HCD to develop, propose, and submit to the CBSC mandatory standards for adequate residential cooling for both new and existing residential dwelling units. This bill died in the Senate Housing Committee.

FISCAL EFFECT: Appropriation: No Fiscal Com.: Yes Local: No

POSITIONS: (Communicated to the committee before noon on Wednesday,

April 23, 2025.)

SUPPORT:

Building Decarbonization Coalition

Building Electrification Institute

California Center for Movement Legal Services

California Environmental Voters (formerly Clcv)

California Rural Legal Assistance Foundation

Center for Community Action & Environmental Justice

Center on Race, Poverty & the Environment

Central California Environmental Justice Network

Central Valley Air Quality Coalition

Coalition for Economic Survival (CES)

Courage California

Greenfield Walking Group

Healing and Justice Center

Housing Now!

Inland Equity Community Land Trusts

Inner City Law Center

Interfaith Movement for Human Integrity

Leadership Counsel Action

Leadership Counsel for Justice & Accountability

Local Clean Air Energy Alliance

Madera Coalition for Community Justice

National Resources Defense Council

Regional Asthma Management and Prevention

Sierra Club

So Cal Trash Army

Starting Over INC.

Strategic Actions for a Just Economy

Tenants Together

Todec Legal Center

Usgbc California

Western Center on Law & Poverty

OPPOSITION:

Southern California Rental Housing Association

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1. SCAG Extreme Heat and Public Health Report. September 2020. https://scag.ca.gov/sites/main/files/file-attachments/extremeheatpublichealthreportfinal_09302020.pdf?1634674354 ↑

2. California Office of Environmental Health Hazard Assessment. Heat-related mortality and morbidity. Feb. 2019. https://oehha.ca.gov/media/epic/downloads/19humanhealth_14jan2019.pdf ↑

3. Barboza, Tony; Vives, Ruben. Poor Neighborhoods bear the brunt of extreme heat, “legacies of racists decision making”. (LA Times, October 2021). https://www.latimes.com/california/story/2021-10-28/extreme-heat-built-environment-equity ↑

4. Dialesandro, John; et al. Dimension of thermal Inequity: Neighborhood Social Demographics and Urban Heat in the Southwestern U.S. (Int. J. Environ. Res. Public Health, 2021). https://www.mdpi.com/1660-4601/18/3/941 ↑

5. Protecting Californians From Extreme Heat: A State Action Plan to Build Community Resilience ↑

6. Policy Recommendations: Recommended Maximum Safe Indoor Air Temperature (ca.gov) ↑