The Commonwealth of Massachusetts
Executive Office of Energy and Environmental Affairs
100 Cambridge Street, Suite 900
Boston, MA 02114
Charles D. Baker
GOVERNOR
Karyn E. Polito
LIEUTENANT GOVERNOR

Matthew A. Beaton
SECRETARY

Tel: (617) 626-1000
Fax: (617) 626-1181
http://www.mass.gov/eea

February 9, 2018
By U.S. Mail & Email
Cannabis Control Commission
101 Federal Street, 13th Floor
Boston, MA 02110
Dear Chairman Hoffman and Commissioners:
The Executive Office of Energy and Environmental Affairs (EEA) appreciates this opportunity
to offer comments and proposed additions to the draft regulations issued by the Cannabis Control
Commission pursuant to G. L. c. 94G, §§ 1-21. We offer the following comments on behalf of
EEA and its constituent agencies affected by the regulations, including the Department of Energy
Resources (DOER), the Department of Environmental Protection (MassDEP), and the
Massachusetts Department of Agricultural Resources (MDAR).
General Comments
We offer these comments with the recognition that in undertaking to formulate a comprehensive
regulatory scheme for an entirely new industry, the Commission is taking on an enormous task
and that the expedited timeline that the statute has set for completion of this work adds to the
Commission’s challenge. This will inevitably require that the Commission prioritize its work so
that regulatory provisions that are necessary and essential to a successful launching of the adult
use marijuana market are resolved in the few months that remain before the Commission must
begin licensing marijuana establishments.
The Legislature has clearly indicated the importance of establishing definitive energy efficiency
and environmental standards as a condition for licensure. Accordingly, Chapter 94G places
energy and environmental standards for licensure within the category of policy decisions that the
Commission must address in regulation rather than among those areas the Commission may in its
discretion choose to address. See G. L. c. 94G, § 4(a½)(xxxiv). We are concerned, however, that
the Commission’s draft regulations leave those standards unspecified, and we therefore strongly
recommend that the Commission amend the draft regulations to ensure that substantive energy
efficiency and environmental standards are established prior to initial licensure. We suggest that
in the limited time remaining before the initial regulations must be issued, the Commission focus

 on finalizing these standards and clarifying other mandatory elements of the adult use regulations
and postpone consideration of other elements or licensing classes that the Commission is not
required to consider either by statute or, as a practical matter, in order to meet the July 1, 2018
target date for initiating retail sales of adult use marijuana.
Experience from other states has shown that the energy usage of marijuana establishments,
especially large-scale, indoor facilities engaged in cultivation, is extraordinarily high.1 This
raises concerns about the carbon footprint of this new industry and the corresponding negative
effects this will produce on the Commonwealth’s ability to meet its Global Warming Solution
Act (GWSA) goals. Massachusetts has been ranked #1 for energy efficiency by the American
Council for an Energy-Efficient Economy (ACEEE) for seven years. We believe that it is
important to continue our leadership and that the regulations must therefore set substantive
minimum efficiency standards to counteract the high energy usage of this new industry.
We note that other states that have legalized adult use of cannabis have missed the opportunity to
set meaningful energy guidelines for the marijuana industry. This oversight has resulted in the
negative consequences shown by the experience of cities like Denver, which has seen a troubling
increase in energy use from marijuana cultivators.2 The main energy driver in cultivation is high
intensity lighting, which runs 12-24 hours every day, uses inefficient technology usually found in
old street lights, and requires significant cooling to offset the heat from the lights. Setting energy
standards that encourage the use of LED lighting will reduce the need for cooling and
significantly reduce energy use by cultivators. We propose below a number of other suggestions
that will encourage this new industry to reduce its carbon footprint and become civic partners in
achieving the Commonwealth’s energy and environmental goals.
Specific Comments
1.

Energy Efficiency and Environmental Standards

The draft regulations intend to establish certain class-specific operating requirements for
Marijuana Cultivation (935 CMR 500.120(L)) and Marijuana Product Manufacturers (935 CMR
500.130(C)) relating to energy efficiency and environmental matters, as required by G.L. c. 94G,
§ 4(a½)(xxxiv). To do so, the draft language states generally that marijuana cultivators and
marijuana product manufacturers must satisfy “minimum energy efficiency and equipment
standards established by the Commission” and must meet “all applicable environmental laws,
regulations, permits and other applicable approvals.”
While this general requirement states the proper obligation, the draft language in 935 CMR
500.120(L) and 935 CMR 500.130(C) does not in fact specify any substantive energy efficiency
standards that will apply as a condition of initial licensure. Instead, those provisions defer
decision-making on this important issue by signaling that the Commission will establish energy
efficiency and equipment standards at some future time.
1

See Marijuana Industry, Far from Green, Is a Power Hog, Providence Journal (Aug. 5, 2017),
available at http://www.providencejournal.com/news/20170805/marijuana-industry-far-fromgreen-is-power-hog.
2
Marijuana Grow Houses Boost Denver Power Demand, Complicating Efficiency Plans, Utility
Dive, available at https://www.utilitydive.com/news/marijuana-grow-houses-boost-denverpower-demand-complicating-efficiency-pl/401751/.

 We believe it is critical to establish basic standards by regulation at the time of initial licensure,
as required by Chapter 94G, even if further details are later added through consideration of “best
management practices” identified by the working group established under St. 2017, c. 55,
§ 78(c). Setting minimum energy efficiency and equipment standards at the time of initial
licensure will ensure that applicants will take energy consumption into account when designing
and constructing newly licensed facilities. This has obvious advantages over putting operators in
the position of possibly needing to retrofit designs during the license renewal process in order to
meet standards that have been put in place since the time they commenced operations. In view of
the large capital investment required to construct cultivation facilities, the regulated entities
should be given clear, up front notice of the minimum standards that the Commission will
require as a condition of licensure.
EEA therefore recommends that regulations include specific efficiency and equipment standards
for marijuana cultivators in 935 CMR 500.120(L). In view of the lower anticipated energy usage
by marijuana manufacturers, it would be reasonable for the Commission to omit the reference to
specific efficiency and equipment standards in 935 CMR 500.130(C), provided that the
regulations add to section 935 CMR 500.105, which covers all classes of marijuana
establishments, a universal requirement that all marijuana establishments demonstrate
consideration of energy efficiency and conservation measures and implementation measures as
part of the initial licensing evaluation. Finally, EEA recommends adding language to clearly tie
the license application requirements in 935 CMR 500.101 to 500.103 to the operating
requirements set forth in later sections.
To incorporate these recommendations, EEA proposes the specific language changes below.
a. Modify the first sentence of 935 CMR 500.120(L) (Additional Operational Requirements
for Marijuana Cultivators) as follows:
(1) A marijuana cultivator shall satisfy minimum energy efficiency and equipment
standards established by the Commission and meet all applicable environmental laws,
regulations, permits and other applicable approvals, including those related to water
quality and solid and hazardous waste management disposal, prior to obtaining a final
license under 935 CMR 500.103(B). , and to use additional best management
practices as determined by the working group established under section 78(b) of
chapter 55 of the acts of 2017 to reduce energy and water usage, engage in energy
conservation and mitigate other environmental impacts.
(2) Marijuana cultivators shall be subject to the following minimum energy efficiency
and equipment standards:
(a) The building envelope for all facilities, except greenhouses, must meet minimum
Massachusetts Building Code requirements and all Massachusetts amendments
(780 CMR), IECC Section C.402 or ASHRAE Chapters 5.4 and 5.5.
(b) The Lighting Power Densities (LPD) for cultivation space must not exceed 36
watts per square foot of canopy, unless otherwise determined in guidelines issued
by the Commission.
(c) Heating Ventilation and Air Conditioning (HVAC) and dehumidification systems
must meet Massachusetts Building Code requirements and all Massachusetts
amendments (780 CMR), IECC Section C.403 or ASHRAE Chapter 6.

 (d) Safety protocols must be established and documented to protect workers and
consumers (e.g., eye protection near operating grow light).
(e) Requirements (b) and (c) shall not be required if an indoor marijuana cultivator is
generating 100% or more of the onsite load from a renewable resource.
(f) The Commission may further define these standards, or create reasonable
exemptions or modifications, through guidelines issued in consultation with the
working group established under section 78(b) of chapter 55 of the acts of 2017,
including but not limited to provisions for greenhouses and agricultural buildings.
(3) A marijuana cultivator must also demonstrate consideration of the following factors
as part of its operating plan and application for licensure:
(a) Identification of potential energy use reduction opportunities (including but not
limited to natural lighting, heat recovery ventilation and energy efficiency
measures), and a plan for implementation of such opportunities;
(b) Consideration of opportunities for renewable energy generation, including, where
applicable, submission of building plans showing where energy generators could
be placed on the site, and an explanation of why the identified opportunities were
not pursued, if applicable;
(c) Strategies to reduce electric demand (such as lighting schedules, active load
management, and energy storage); and
(d) Engagement with energy efficiency programs offered pursuant to M.G.L. c. 25,
§ 21, or through municipal lighting plants.
b. Modify the second sentence of 935 CMR 500.120(L) (Additional Operational
Requirements for Marijuana Cultivators) as follows:
(4) A marijuana cultivator shall adopt and use additional best management practices as
determined by the Commission, in consultation with the working group established
under section 78(b) of chapter 55 of the acts of 2017, to reduce energy and water
usage, engage in energy conservation and mitigate other environmental impacts, and
shall provide annual energy reporting to the Commission. If minimum standards or
best management practices are not established by the time of an application for initial
licensure, a marijuana cultivator must satisfy such standards or best management
practices as a condition of license renewal, in addition to any the terms and conditions
of any environmental permit regulating the licensed activity.
c. Insert at the end of 935 CMR 500.105 (General Operational Requirements for Marijuana
Establishments):
(R) Energy Efficiency and Conservation
A marijuana establishment must demonstrate consideration of the following factors as
part of its operating plan and application for licensure:
a. Identification of potential energy use reduction opportunities (such as natural
lighting and energy efficiency measures), and a plan for implementation of such
opportunities;
b. Consideration of opportunities for renewable energy generation, including, where
applicable, submission of building plans showing where energy generators could
be placed on the site, and an explanation of why the identified opportunities were
not pursued, if applicable;

 c. Strategies to reduce electric demand (such as lighting schedules, active load
management, and energy storage); and
d. Engagement with energy efficiency programs offered pursuant to M.G.L. c. 25,
§ 21, or through municipal lighting plants.
d. Modify 935 CMR 500.130(C) (Additional Operational Requirements for Marijuana
Product Manufacturers) as follows:
A marijuana product manufacturer shall satisfy minimum energy efficiency and
equipment standards established by the Commission and meet all applicable
environmental laws, regulations, permits and other applicable approvals, including those
related to water quality and solid and hazardous waste management disposal, and to adopt
and use additional best management practices as determined by the Commission, in
consultation with the working group established under section 78(b) of chapter 55 of the
acts of 2017, to reduce energy and water usage, engage in energy conservation and
mitigate other environmental impacts. If minimum standards or best management
practices are not established by the time of an application for initial licensure, a
marijuana cultivator must satisfy such standards or best management practices as a
condition of license renewal, in addition to any the terms and conditions of any
environmental permit regulating the licensed activity.
e. Insert at the end of 935 CMR 500.101(A)(3) (Application Requirements for New
Applicants):
The Management and Operation Profile submitted in accordance with this subsection
(A)(3) shall demonstrate compliance with the operational requirements set forth in 935
CMR 500.105 to 500.145.
f. Insert at the end of 935 CMR 500.101(B)(5) (Application Requirements for RMD
Priority Applicants):
The Management and Operation Profile submitted in accordance with this subsection
(B)(5) shall demonstrate compliance with the operational requirements set forth in 935
CMR 500.105 to 500.145.
g. Insert at the end of 935 CMR 500.103(A)(1)(a)(i) (Inspections under Provisional
License):
. . . and a description of plans to ensure that the Marijuana Establishments will be
compliant with requirements of the Americans with Disabilities Act (ADA) Accessibility
Guidelines and the operational requirements set forth in 935 CMR 500.105 to 500.145.
h. Modify the second sentence of 935 CMR 500.103(B) (Final License) as follows:
. . . All information described in 935 CMR 500.000 that is not available at the time of
submission, must be provided to and approved by the Commission, and must demonstrate
compliance with the operational requirements set forth in 935 CMR 500.105 to 500.145,
before Marijuana Establishments may receive a final license.

 2. Leadership Rating
The draft regulations at 935 CMR 500.040 set forth a leadership rating program for marijuana
establishments and marijuana-related businesses. EEA recommends that the factors considered in
designating a facility as an “energy and environmental leader” be expanded to reflect the
facility’s active use of renewable energy and associated credits.
EEA recommends the specific language changes below.
a. Modify 500.040(C)(3) as follows:
(3) Energy and Environmental Leader: in the year preceding the date of application for a
leader rating:
(a) The licensee has met or exceeded its energy and environmental impact goals for its
registration period; and
(b) The licensee has consistently documented and complied with best management
practices for energy use, waste disposal and environmental impact.;
(c) The licensee has documented that renewable energy credits representing 100% of the
licensee’s energy usage have been retired; and
(d) The licensee has labeled all their products as being produced using 100% renewable
energy.
3. Waste Disposal
Based on earlier discussions between the Commission and MassDEP, we understand that the
waste disposal standards in 935 CMR 500.105(L) will be amended to reflect the revisions
proposed by MassDEP and consistent with its regulations. A copy of these proposed revisions, as
discussed with the Commission, is appended as Attachment A to this letter. MassDEP and
MDAR look forward to continuing discussions about ways in which disposal methods can be
modified to allow for reuse of marijuana waste for other permitted uses, including manufacturing
of fabric, paper or rope, subject to all applicable registrations, permits and other regulations
governing such uses.
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Thank you again for the opportunity to comment on the Commission’s draft regulations. EEA
and its agencies would be happy to meet with you to discuss the issues raised in this letter, or
otherwise assist the Commission as it works towards final promulgation of the regulations.
Very truly yours,
/s/ Tori T. Kim__
Tori T. Kim
General Counsel

 ATTACHMENT A
MassDEP Comments on Waste Disposal
935 CMR 500.105(L). Recycling, Waste Handling Diversion and Disposal 
(1) All recyclables and waste, including organic waste composed of or containing finished marijuana and 
Marijuana products, shall be stored, secured, and managed in accordance with applicable state and local 
statutes, ordinances, and regulations. 
(2) Liquid waste containing marijuana or by‐products of marijuana processing shall be disposed of in 
compliance with all applicable state and federal requirements, including but not limited to, 
requirements for discharge of pollutants into surface water (314 CMR 3.00),or groundwater 
(Massachusetts State Clean Waters Act, G.L. c. 21, §§ 26 – 53;, 314 CMR 3.00: Surface Water Discharge 
Permit Program;, 314 CMR 5.00: Groundwater Discharge Permit Program;, 314 CMR 12.00: Operation, 
Maintenance and Pretreatment Standards for Wastewater Treatment Works and Indirect Dischargers;, 
the federal Clean Water Act, 33 U.S.C. 1251 et seq., and the National Pollutant Discharge Elimination 
System Permit Regulations at 40 CFR Part 122), septic systems (G.L. c. 21A, § 13, 310 CMR 15.000: The 
State Environmental Code, Title 5;), and sewers (314 CMR 7.00), or disposed of in : Sewer System 
Extension and Connection Permit Program), or stored pending disposal in an industrial wastewater 
holding tank in accordance with 314 CMR 18.00, Industrial Wastewater Holding Tanks and Containers. 
(3) SolidOrganic wastematerial, recyclable material and solid waste generated at a Marijuana 
Establishment shall be divertedredirected or disposed of as follows. 
(a) Incineration in a commercial or municipal combustor Organic material and recyclable 
material shall be divertedredirected from disposal in accordance with the waste disposal bans 
described at 310 CMR 19.017. 
(b) To the greatest extent feasible: 
 (i) Any recyclable material as defined in 310 CMR 16.02 shall be recycled in a manner 
approved by the Commission; and 
(ii) Any portion(s) of the marijuana waste which can be used for fabric, paper, rope or 
other purposes is sent for such use in accordance with Department of Agricultural 
Resources regulations and guidance; and finally, 
(ii) Any remaining marijuana waste shall be ground and incorporated wastemixed with 
other organic material as defined in 310 CMR 16.02 such that the resulting mixture 
renders the marijuana waste unusable for its original purpose. Once such marijuana 
waste has been rendered unusable, the mixture may be composted or digested at an 
aerobic or anaerobic digester at an operation that is in compliance with the 
requirements of 310 CMR 16.00. 

 (c) Grinding and incorporating theSolid waste containing marijuana waste generated at a 
Marijuana Establishment may be ground up and mixed with solid wastes such that the resulting 
mixture renders the marijuana waste unusable for its original purposes. Once such marijuana 
waste has been rendered unusable, it may be brought to a solid waste managementtransfer 
facility or a solid waste disposal facility (e.g.i.e. landfill or incinerator) that holds a valid permit 
issued by the DEP or by the appropriate state agency in the state in which the facility is located.   
(4) No fewer than two Marijuana Establishment Agents must witness and document how the marijuana 
waste is disposed or otherwise handled (recycled, composted, etc.) in accordance with 935 CMR 
500.105(L).  When marijuana or Marijuana products or waste is disposed or divertedredirecthandled, 
the Marijuana Establishment must create and maintain a written or electronic record of the date, the 
type and quantity disposed of or handledredirected, the manner of disposal or other handlingdiversion, 
the location of disposal or other handlingdiversion, and the names of the two Marijuana Establishment 
Agentspersons present during the disposal or other handlingdiversion, with their signatures. Marijuana 
Establishments shall keep disposalthese records for at least twothree years.  This period shall 
automatically be extended for the duration of any enforcement action and may be extended by an order 
of the Commission.