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HomeMy WebLinkAboutStaff Report 2306-16023. Update and Discussion on Undergrounding of the Electrical Distribu�on System and Electrifica�on Goals Item No. 3. Page 1 of 7 Utilities Advisory Commission Staff Report From: Dean Batchelor, Director Utilities Lead Department: Utilities Meeting Date: October 11, 2023 Staff Report: 2306-1602 TITLE Update and Discussion on Undergrounding of the Electrical Distribution System and Electrification Goals RECOMMENDATION This report is for information and discussion only with no recommended action BACKGROUND History of the Undergrounding Program The underground program in Palo Alto began in 1965 with the completion of the first underground district on Oregon Expressway. Since that time, 44 Underground Districts have been completed under Rule and Regulation 17 - Conversion of Electric and Communication Facilities to Underground. (Attachment A)1 Is the Underground Conversion Project map showing completed and proposed Underground Districts. The main purpose of the program was to remove overhead electric and telecommunication lines to improve the visual appearance of the City. Forming Underground Districts Underground Districts are formed by a vote of Council to enact an ordinance amending the Municipal Code to establish the borders of the underground district. This process is outlined in the City of Palo Alto Municipal Code Section 12.16 – Underground Utilities. At the time the underground district is formed, the Municipal Code establishes when all overhead facilities must be undergrounded and removed. There are exceptions to the undergrounding that are specified Section 12.16.050 of the Municipal Code (Exceptions) (includes overhead transmission facilities, streetlights, etc.) 11 Attachment A – Map https://www.cityofpaloalto.org/files/assets/public/v/1/agendas-minutes- reports/reports/city-manager-reports-cmrs/attachments/10-11-2023-id-2306-1602-attachment-a-map.pdf Item No. 3. Page 2 of 7 Types of Underground Districts There are three types of underground districts established in Rule and Regulation 17: Areas of General Public Interest and Benefit (Section B), Areas of Primarily of Local Public Benefit (Section C), and Areas Insufficient Public Benefit to Qualify Under Section B or Section C. General Public Interest and Benefit Undergrounding (Section B) The typical process for a General Public Benefit undergrounding project is for staff to review areas for undergrounding that would qualify as general benefit project and make a proposal for the budget process. Staff then inform the residents affected of the intent to form an underground district and holds a public meeting to explain the project and answer questions from the public. After the meeting, staff conducts an informal survey to ascertain the interest of the community. The results of the survey are provided to the Council at the time of underground district formation where the Council will enact an ordinance determining that the project is a General Benefit Underground District. The City is responsible for funding and construction of facilities in the street and the homeowner is responsible for the service connection on the property. Most underground districts have been formed as general benefit projects. Primarily of Local Public Benefit (Section C) This type of underground district is initiated by a request from a community representative on behalf of a group of residents. The residents are responsible for creating an assessment district to fund their portion of the district. Council will determine if the district meets the criteria for this type of underground district and amend the Municipal Code by passing an ordinance. Residents are responsible for 50% of the cost of infrastructure in the street excluding the cost of transformers and equipment. Insufficient Public Benefit to Qualify Under Section B or Section C This type of underground district is initiated by a request from a community representative on behalf of a group of residents or from an individual. The Utility Director reviews and approves this type of underground district. The residents are responsible for creating an assessment district to fund their portion of the district. Residents are responsible for funding at least 75% of the infrastructure in the street excluding transformers and equipment. The share borne by CPAU is determined by the Electrical Engineering Manager based on their calculation of the benefit to CPAU. Ownership of Poles and Third-Party Attachments Most of the approximately 6000 poles in the City are jointly owned by the City and AT&T. Approximately 200 poles are jointly owned by the City, AT&T, and PG&E. The ownership in these poles is governed by two joint pole agreements that were established in the early 20th Century. Each pole has allocated space as follows: joint use area at the bottom of the pole, communication attachments in the middle, and electrical space at the top of the pole. Item No. 3. Page 3 of 7 Comcast is attached to the poles in the AT&T communication space through an agreement with AT&T. Other third-party attachments, such as wireless communication facilities, gain access to the poles through a master license agreement with the City, when the facilities are in the electric owned space on the pole, or through AT&T if they are attached in the communications space on the pole. Impact of the Formation of Underground Districts on AT&T and Third Parties When the City creates an underground district all parties on the pole are required to underground their facilities and the poles must be removed. AT&T financial participation in an underground district is governed by Rule 32 established by the California Public Utilities Commission. If a proposed project has been determined by AT&T to meet the requirements for full participation in an underground district, AT&T funds the cost of the undergrounding of their lines. If the project does not meet the requirement for full funding the cost must be funded either by the resident or the City. At this time, only small sections of the pole lines in the City would meet the tariff requirements for full AT&T participation. 2 Third parties that do not have ownership rights to the pole and are not regulated by CPUC rules are responsible for funding their own costs arising out of an undergrounding project. Joint Construction of Underground Facilities The installation of underground infrastructure for all utilities is coordinated between the affected parties through a Joint Trench Master Agreement. To facilitate the joint trenching process, the City coordinates the amendment of the master agreement. The City typically takes the lead and coordinates the design of the conduit infrastructure facilities, awards the contract and manages the construction of the infrastructure facilities. The cost is then allocated to each party in the joint trench based on the percentage of the trench allocated to each party. Underground districts require extensive staff resources to coordinate due to the following: at least three utility companies are involved in the design, property owners must construct the service infrastructure, and the difficulties of installing electrical equipment in the Public Right- of-Way in the front of residential properties. An Underground District takes a minimum of three years from inception to pole removal, and sometimes can take over five years to reach completion. Electrical Distribution System The electric distribution system is comprised of 116 miles of overhead and 195 miles of underground circuits. Ten miles of the overhead circuits in the fire risk areas of the foothills are currently being undergrounded to reduce the risk of electrical ignition of wildfire and to eliminate the need for Public Safety Power Shutoffs (PSPS). 2 Rule 32 https://www.cityofpaloalto.org/files/assets/public/v/4/community-services/parks-and-open- space/2021/open-space-and-park-regulations-revisions_posted-04.25.23.pdf Item No. 3. Page 4 of 7 After completion of the Foothills undergrounding there will be approximately 106 miles of overhead distribution lines in the heavily developed residential areas of Palo Alto. For reference, the estimated number of residential units in the City is 28,500. Of these units, approximately 62% (16,700) of the units are single family residential. It is estimated that 12% (2,000) of the City’s residential structures are currently served from undergrounded facilities leaving 14,000 structures with overhead service. The total estimated number of residential, multifamily residential, and commercial structures that would need to be undergrounded in the City is approximately 18,000. ANALYSIS Estimated Cost and Timeline to Underground 106 Miles of Overhead Lines Based on estimates provided by the CPUC on undergrounding costs, the current estimate for developed residential areas is between $4 to $6 million per mile for the electrical system conversion. This results in a cost of between $425 and $640 million to convert the entire overhead system to underground. In addition to these costs, there would be the cost of the conversion of AT&T’s network and the cost of installing services on the customer’s property. It is estimated that the cost of undergrounding AT&T’s facilities is 30% of the electrical costs, resulting in costs ranging from $125 to $190 Million. Costs for homeowner conversion are estimated to be $6,000 to $10,000 per home, resulting in an additional $95 to $160 Million. This would result in a total cost impact on the community of between $645 and $990 Million. The costs of undergrounding projects have been increasing rapidly, especially in California, where the investor-owned utilities are installing thousands of miles of underground facilities in fire prone rural areas. In addition, Palo Alto is in a high cost of living area and has tight controls on construction impacts to the community which increases design and construction costs. These factors will continue to put upward pressure on undergrounding costs. The estimated number of homes that the City Utilities Department could convert to underground on an annual basis is approximately 1000 homes. Based on the estimated 18,000 residential, multi-family, and commercial structures the estimated timeline for completion of this project would be at least 18 years. The estimate of 1000 homes per year is based on the following: the amount of engineering work that would be required to coordinate with third parties and design underground electrical systems, time required to coordinate with individual residents on the installation of services and on the location of pad-mounted equipment, and the acceptable level of the construction impacts on residents. The earliest estimated date to complete an accelerated undergrounding project would be 2048 due to the grid modernization, and bond financing processes. Status of the Underground Program In 2010 a report went to Utilities Advisory Commission (UAC) regarding alternatives that could be taken to accelerate the Underground Program. This ultimately led to a UAC recommendation Item No. 3. Page 5 of 7 to form an advisory group for community engagement that went to the Finance Committee which recommended consideration from the Council. This recommendation was sent to the City Council on March 18, 2013 in CMR #3529. This recommendation was rejected by a vote of the Council. This resulted in the general underground program continuing in areas where AT&T could get reimbursement under the CPAU Rule 32. The latest Underground District Map is shown in Attachment A3. This map shows the areas that were undergrounded during new/conversion construction, areas undergrounded through an undergrounding district, and the proposed projects currently being considered for undergrounding. It is likely that the near-term undergrounding projects will be delayed due to heavy workload related to electrification, fiber to the premises, and new customer work. Electrification and Undergrounding The City Council has established a sustainability goal to reduce emissions 80% below 1990 levels by 2030 (the "80x30" goal) and achieve carbon neutrality by 2030. To reach this goal, residents must convert the energy source for their homes from gas to electric and replace gas power vehicles with electric powered vehicles. To accommodate the conversion to electric energy sources, the electric utility needs to double distribution transformer capacity, increase the size of secondary conductors, increase substation capacity and increase system interconnections to improve reliability on the network. The estimated cost of the work to upgrade the existing overhead and underground systems, circuit ties, and electric substations is between $200 and $300 million. The overhead electric system portion of the upgrade is estimated to be between $150 and $220 Million. The Utilities Department is currently developing plans to upgrade the entire overhead distribution system by the end of 2026. This will eliminate most system loading restrictions on 88% of the residents that choose to convert their homes and vehicles to electric energy sources. The remainder of the homes that are in underground areas will have system capacity increased by the end of 2030. The delayed timeline for the 12% of customers on the underground system is due to increased design and construction requirements to upgrade the existing underground systems. In the case where the overhead system was converted to underground as part of the transition to all-electric homes, the system capacity on the entire system would not be available until at least 2041. In addition, to reach full electrification this change would increase utility costs to between $495 and $770 million in the short -term. In the long-term, the coordination of undergrounding and electrification could result in savings of between $150 and $220 Million due to the elimination of the overhead upgrades to accommodate electrification. 3 Attachment A – Map https://www.cityofpaloalto.org/files/assets/public/v/1/agendas-minutes- reports/reports/city-manager-reports-cmrs/attachments/10-11-2023-id-2306-1602-attachment-a-map.pdf Item No. 3. Page 6 of 7 The Council adopted policies to prioritize the climate protection goal of reducing carbon emissions by 2030. Undergrounding of electric facilities cannot be combined with electrification in time to meet the 2030 goal for carbon emissions due to the large increase in work scope. In addition, the cost of City-wide undergrounding will require an expansion of funding sources to finance the project. Due to the current policies in place, staff are focusing on completing the work to support the climate protection goals of the City. Undergrounding of the electric facilities is a program that has wide support in the community. The existing policy should be reviewed in the future to determine if the City-wide undergrounding program should be revised to facilitate faster implementation. STAKEHOLDER ENGAGEMENT Over the years, staff has presented reports to the UAC and City Council on the various aspects of the undergrounding program. Table 1 lists the most recent reports and subject of each. Prepared for Meeting Date Title Staff Report Links Utilities Advisory Commission January 16, 2016 Report on Current Status of the Electric Overhead to Undergrounding Conversion Program https://www.cityofpaloalto.org/files/assets/public/v/1/agendas- minutes-reports/agendas-minutes/utilities-advisory- commission/archived-agenda-and-minutes/agendas-and-minutes- 2016/01-13-2016-special-meeting/item-2_underground- conversion-program-update-jrm-edits-1-4-16-page-2-revised.pdf City Council March 18, 2013 Community Engagement on Citywide Electric Undergrounding https://www.cityofpaloalto.org/files/assets/public/v/1/agendas- minutes-reports/reports/city-manager-reports-cmrs/year- archive/2013/final-staff-report-id-3529_community-engagement- on-citywide-electric-undergrounding.pdf Finance Committee December 18, 2012 Community Engagement on Citywide Electric Undergrounding https://www.cityofpaloalto.org/files/assets/public/v/1/agendas- minutes-reports/reports/city-manager-reports-cmrs/year- archive/2012/staff-report-id-3247_community-engagement-on- city-wide-elec-undergrounding.pdf Utilities Advisory Commission September 5, 2012 Recommendation on an Advisory Body Structure to Solicit Public Input on the City of Palo Alto Utilities’ Electric Undergrounding Policy https://www.cityofpaloalto.org/files/assets/public/v/1/agendas- minutes-reports/agendas-minutes/utilities-advisory- commission/archived-agenda-and-minutes/agendas-and-minutes- 2012/09-05-2012-meeting/item-1_6051763-uac-rpt-electric- undergrounding-policy-final.pdf Finance Committee November 15, 2011 Update Report on Electric Undergrounding https://www.cityofpaloalto.org/files/assets/public/v/1/agendas- minutes-reports/reports/city-manager-reports-cmrs/year- archive/2011/id-2096-3.pdf Utilities Advisory Commission September 7, 2011 Report on the Status and Future Alternatives to Consider for Completion of the https://www.cityofpaloalto.org/files/assets/public/v/1/agendas- minutes-reports/agendas-minutes/utilities-advisory- commission/archived-agenda-and-minutes/agendas-and-minutes- 2011/09-07-11-meeting/item-1_uac-rpt-undergrounding-sept- 2011_3-3-6.pdf Item No. 3. Page 7 of 7 Electric Overhead to Underground Conversion Program Utilities Advisory Commission January 6, 2010 Report on Current Status and Future Alternatives to Consider for the Continuing of the Electric Overhead to Undergrounding Conversion Program https://www.cityofpaloalto.org/files/assets/public/v/1/agendas- minutes-reports/agendas-minutes/utilities-advisory- commission/archived-agenda-and-minutes/agendas-and-minutes- 2010/01-06-2010-meeting/item-3_elec-ovrhead-undergrnding- convrn-prgrm.pdf ATTACHMENTS Attachment A: Map APPROVED By: Dean Batchelor, Director of Utilities Tomm Marshall, Assistant Director of Electric 8*',675,&7 8*',675,&7 8*',675,&7  8*',675,&7 8*',675,&7 352326('81'(5*5281'',675,&76 8*',675,&7 8*',675,&7 8*',675,&7 8*',675,&7 8*',675,&7 8*',675,&7 8*',675,&7 8*',675,&7 8*',675,&7 8*',675,&7 8*',675,&7 8*',675,&7       1$                        8*',675,&7  8*',675,&7 8*',675,&7 8*',675,&7 8*',675,&7 8*',675,&7 8*',675,&7 8*',675,&7 8*',675,&7 8*',675,&7 8*',675,&7 8*',675,&7 8*',675,&7 8*',675,&7 8*',675,&7 8*',675,&7 8*',675,&7 8*',675,&7  8*',675,&7 8*',675,&7    8*',675,&7 (;,67,1*81'(5*5281'',675,&76     8*',675,&7  (/(&75,&(1*,1((5,1* 87,/,7,(6'(3$570(17 &,7<2)3$/2$/72  $8* 8*',675,&7 8*',675,&7 8*',675,&7  8*',675,&7   5' )227 + , / /  ( ; 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