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525 Golden Gate Avenue
San Francisco, CA 94102
T 415.554.0725
[email protected]
DATE:
TO:
MEMORANDUM
December 5, 2022
Commissioner Newsha Ajami, President
Commissioner Sophie Maxwell, Vice President
Commissioner Tim Paulson
Commissioner Tony Rivera
Commissioner Kate Stacy
THROUGH: Dennis J. Herrera, General Manager
FROM:
RE:
Barbara Hale, Assistant General Manager, Power
Ramon Abueg, Deputy AGM, Power Operations
�
Richard Stephens, Power Utility Field Services Manag�
Grace Kay, Power Regulatory and Legislative Affairs Manager� Matthew C. Ho, Power Distribution Engineering Manager
Update on Street and Pedestrian Lighting Programs
Attached is the semi-annual update on the street and pedestrian lighting programs and activities that the San Francisco Public Utilities Commission Power Enterprise has performed to date.
OUR MISSION: To provide our customers with high-quality, efficient and reliable water, power and sewer services in a manner that values environmental and community interests and sustains the resources entrusted to our care.
London N. Breed
Mayor
Newsha AJaml
President
Sophie Maxwell
Vice President
Tim Paulson
Commissioner
Tony Rivera
Commissioner
Kate Stacy
Comm1SS1oner
Dennis J. Herrera
General Manager
For MH
Street & Pedestrian Lighting Update, December 2022 2
San Francisco Public Utilities Commission
Street and Pedestrian Lighting Programs
December 2022
Street & Pedestrian Lighting Update, December 2022 3
TABLE OF CONTENTS
1. EXECUTIVE SUMMARY ...................................................................................................... 4
2. ILLUMINATION SYSTEMS .................................................................................................. 6 a. Streetlight Pole Assessment and Rehabilitation .............................................................. 6 b. Operations & Maintenance Performance ........................................................................ 6 Table 2.1 – Streetlight Operations & Maintenance Performance ............................... 6 c. LED Streetlight Conversion ............................................................................................ 6 Figure 2.1 – LED Fixture ........................................................................................... 7 Figure 2.2 – City Streetlights Eligible for LED Conversion ......................................... 7 d. Street and Pedestrian Lighting Improvements ................................................................ 7 Private Developer Installed Streetlights .................................................................... 7 Tabl
e 2.2 – Private Development Projects ................................................................ 9 Figure 2.3 – 1 de Haro – Private Project ................................................................... 9 Figure 2.4 – Treasure Island Redevelopment Project ............................................... 9 Series Loop Conversion...........................................................................................10 Tabl
e 2.3 – City Owned Series Loop Conversions ...................................................10 e. Coordination with Other City Agencies ..........................................................................10 Table 2.4 –Streetlights Installed in Collaboration with Other City Agencies ..............11 f. Mission Bay Streetlight Pole Issues ...............................................................................11
3. WIRELESS TELECOMMUNICATIONS SYSTEMS .............................................................12 a. Distributed Antenna Systems (DAS) ..............................................................................12 Existing Master License Agreements .......................................................................12 5G Network Deployment and the Digital Transformation:.........................................13 Fi
gure 3.1 – 4G Installation on Streetlight Pole ........................................................13 Figure 3.2 – 4G + 5G Installation on Utility Pole.......................................................14
4. POLE USE POLICY ............................................................................................................14 a. Established Use Policy ..................................................................................................14 Figure 4.1 – Pole Use Banners on Streetlight Pole ..................................................15 b. Time-Limited Waiver ......................................................................................................15
5. REGULATORY EFFORTS ..................................................................................................16 a. Large Increases in PG&E’s General Rate Case for Streetlights .....................................16 b. PG&E Seeking to Terminate Wholesale Service to San Francisco’s Streetlights and Unmetered Load and Convert Hetch Hetchy Power Customers to PG&E Retail Customers17
6. SUBSEQUENT PLANS .......................................................................................................18 a. Helicore Foundation Technology ...................................................................................18 Figure 6.1 – Helicore Field Installation .....................................................................19 Figure 6.2 – Helicore Details ....................................................................................19 b. SFPUC Streetlight Standard Drawings ..........................................................................20 Figure 6.3 – SFPUC Standard Streetlight Drawing ..................................................20 c. Market Street Improvements .........................................................................................20 Path of Gold Lighting ...............................................................................................20 Fi
gure 6.4 – Control Module for Path of Gold RGB Lighting .....................................21 Better Market Street project, Traffic Signal Improvements .......................................21
Street & Pedestrian Lighting Update, December 2022 4
1. EXECUTIVE SUMMARY
The San Francisco Public Utilities Commission (SFPUC) Street and Pedestrian Light Programs (The Program) are administered and operated by the Power Enterprise. The Program consists of four components – illumination systems, wireless telecommunications systems, pole use policy, and energy regulatory and legislative compliance – to serve the City and County of San Francisco (City) and ensure public safety with attention to the interests of the community. The Program succeeds through the cooperative work of Power Enterprise’s Utility Field Service, Distribution Engineering, and Regulatory and Legislative Affairs departments.
Illumination systems include upgrading and improving aging streetlight systems, supporting new streetlight implementation in compliance with City standards and references, updating City standards and guidelines, and coordinating with other City agencies regarding streetlight related matters. Utility field staff and streetlight engineers are working to ensure stability in the municipal lighting apparatus for all of San Francisco.
Wireless telecommunications systems focus on Distributed Antenna Systems (DAS) and adopting next generation 5G netw ork technology. To this end, SFPUC, the offices of the City Attorney, and Mayor of San Francisco are developing new plans and procedures in order to deploy the new 5G Technology , providing more coverage throughout the City by facilitating the attachment of new network equipment to streetlight poles.
The Pole Use Policy supports social and economic development, promotes benefits of products or services, and provides a means for collecting environmental data. The program has worked with Civic Center Community Benefit District (CBD), Department of Public Works (DPW), private banner and flag companies, for example, to review and install planter baskets, banners and signs, and also researchers and scientists to deploy sensors to document air quality in the City.
Finally, regulatory and legislative compliance ensures awareness of regulatory and legislative policies affecting streetlighting services, including rates , a dvocating for San Francisco’s interests, and confirming future plans are in compliance w ith Federal Energy Regulatory Commission (FERC) and California Public Utilities Commission (CPUC) requirements.
Street & Pedestrian Lighting Update, December 2022 5
In the ongoing disturbance to our society wrought by the COVID -19 lock down of 2020 , Street and Pedestrian Light Programs continue to serve the public unceasingly. For Fiscal Year-End 2021-2022 to date , The Program has continued to make progress on illumination, telecommunication, pole use, and energy regulations.
Utility Field Services have rehabilitated an additional 109 poles and assessed a total of 48,220 poles by way of SF311 reports as well as DPW’s X1104 for the Sidewalk Improvement Restoration Program (SIRP). Furthermore, an additional 294 fixtures were converted to LEDs under the LED Streetlight Conversion project. Streetlight engineering has added 17 lights to the City while 143 pole installations are in- progress. Also, 633 aging SFPUC -owned series loop poles were replaced with 59 poles still ongoing. Streetlight engineering continues to support other city agencies, and has activated 199 light fixtures with 962 fixtures still under coordination.
In addition to pursuing a solution for the Mission Bay streetlight pole issues, streetlight engineers have implemented the new Helicore foundation technology (see page 18 for details), as well as developed new SFPUC streetlight drawings standards.
The Distributed Antenna Systems (DAS) program continues to work on finalizing the new 5G master license agreements (MLA) and supporting carriers through interruptions in existing wireless telecommunications systems and quickly solving power issues to ensure continuous coverage throughout the City. As of October 31, 2022, there are 1,544 powered DAS sites on SFPUC-owned poles.
The Pole Use P olicy, due to new structural analysis requirements effective February 2022, has continued to support applicants by granting a time-limited waiver for existing applicants who are in the process of completing the requirements. Some permitees which have received the waiver include Golden State Warriors, the Comfort Women Justice Coalition, SF Symphony, Downtown SF Night Lights, SF Marin Food Bank, SF Travel Association, SF Jazz season 10, YBCA, Asian Art Museum, SF Opera, SFMOMA, Presidio Tunnel, and Third Baptist Church. In addition, Brightline has installed Aerosolized Black Carbon Devices (ABCDs) sensors to measure Nitrogen Dioxide (NO
2) levels.
Regulatory and legislative affairs have taken notice of large increases in PG&E’s rates for streetlights and is responding to PG&E’s termination of wholesale service to San Francisco’s streetlights and unmetered loads.
Street & Pedestrian Lighting Update, December 2022 6
2. ILLUMINATION SYSTEMS
a. Streetlight Pole Assessment and Rehabilitation
Power Utility Field Services started the Streetlight Pole Assessment and Rehabilitation project in January 2015. 23,931 poles have been assessed, of which 743 poles were immediately replaced as of October 31, 2022 due to their severely deteriorated condition.
b. Operations & Maintenance Performance
For SFPUC-owned streetlights, Power Enterprise’s Utility Field Services is responsible for routine operations and maintenance, as well as repair work such as pole knock downs.
Table 2.1 below shows the Utility Field Services’ performance on the requested inspections, field assessments, outages and pole knockdown repairs. Streetli ght work associated with DPW’s X1104 for the Sidewalk Improvement Restoration Program (SIRP) and non-SIRP are also shown in Table 2.1 below.
Activities Quantity
1. Streetlight Outages Repaired 1128
2. Streetlight Pole Knock Downs Replaced 34
3. DPW - X1104 Work Orders Completed 26
4. Request For Information/Notice Of Intent addressed 140
5. SF311 Cases received for streetlights 4,114
6. USAN requests for inspection services 42,778
Total 48,220
Table 2.1 – Streetlight Operations & Maintenance Performance, FYE22 to date
c. LED Streetlight Conversion
As of October 31, 2022, approximately 22,294 decorative/cobra head/post top fixtures have been converted to LEDs, which accounts for 83% of total SFPUC-owned streetlight assets.
The LED streetlight conversion from High Pressure Sodium (HPS) fixtures is complete. Field crews are currently convert ing decorative LEDs and resolving cobra head LED discrepancies on an as-needed basis . Decorative fixtures will continue to be converted through 2023 . Figure 2 .2 shows the implemented conversions in green and the yet -to-be converted City-owned fixtures in yellow.
Street & Pedestrian Lighting Update, December 2022 7
Figure 2.1 – LED Fixture
Map Legend
☼ Cobrahead - LED Conversion Complete
☼ Decorative – Will be converted to LED
Figure 2.2 – City Streetlights Eligible for LED Conversion1
d. Street and Pedestrian Lighting Improvements
Private Developer Installed Streetlights
When private developers propose to install streetlights in the Public Right of Way, SFPUC Streetlight Engineers review and approve the plans. SFPUC also ensures
1 Streetlights (arcgis.com) , accessible from the SFPUC website at Street and Pedestrian Lighting | SFPUC, includes an interactive version of this map.
Street & Pedestrian Lighting Update, December 2022 8
that the new streetlights are operational prior to accepting ownership of the streetlights on behalf of the City. Table 2.2 lists the descriptions of Private Developer projects, the number of proposed streetlights to be installed by the project, and current status of the project.
Private Development Projects
Streetlight
Quantity Status
1 1028 Market Street 1 Complete
2 1169 Market Street 2 Complete
3 300 Grant Avenue 2 Complete
4 691 China Basin Street 1 Complete
5 75 Howard Street 4 Complete
6 827 Kearny Street 1 Complete
7 88 Broadway Street/735 Davis Street 1 Complete
8 833 Bryant Street 5 Complete
9 1001 Van Ness 1 In-Process
10 1180 Evans Street 4 In-Process
11 1225 Dolores Street 1 In-Process
12 1550 Evans Street 13 In-Process
13 1580 Pacific Avenue 1 In-Process
14 160 Folsom Street (Transbay Block 1) 17 In-Process
15 160 Hahn Street 1 In-Process
16 1601 Market Street 14 In-Process
17 1990 Folsom Street 1 In-Process
18 2 Henry Adams Street 2 In-Process
19 200 Rhode Island Street 8 In-Process
20 2000 Bryant Street 7 In-Process
21 2060 Folsom Street 1 In-Process
22 2340 San Jose Avenue 2 In-Process
23 300 De Haro Street 3 In-Process
24 300 Kansas Street 1 In-Process
25 3001 24th Street 3 In-Process
26 3150 California Street 1 In-Process
27 319 Bayshore Boulevard 1 In-Process
28 332 Bradford Street 1 In-Process
29 333 12th Street 2 In-Process
30 345 4th Street 1 In-Process
31 400 China Basin Street 1 In-Process
32 4200 Geary Boulevard 1 In-Process
33 529 Powell Street 1 In-Process
34 531 Bryant Street 2 In-Process
35 555 Larkin Street 1 In-Process
Street & Pedestrian Lighting Update, December 2022 9
36 681 Florida Street 2 In-Process
37 75 Arkansas Street 4 In-Process
38 801 Brannan Street 12 In-Process
39 88 Arkansas Street 3 In-Process
40 950 Market Street 6 In-Process
41 950 Tennessee Street 6 In-Process
42 99 Ocean Avenue 1 In-Process
43 Annie Alley Plaza 4 In-Process
44 Sutter Health CPMC 7 In-Process
45 TZK Hotel on Broadway 6 In-Process
Total 160 Table 2.2 – Private Development Projects, FYE22 to date
Figure 2.3 – 1 de Haro – Private Project
Figure 2.4 – Treasure Island Redevelopment Project
Street & Pedestrian Lighting Update, December 2022 10
Series Loop Conversion
Low voltage conversion of the 5,000- volt (high voltage) series loops and associated change-out of the existing Incandescent lights to LED is being performed by Power Enterprise’s Utility Field Services crews in specific locations of San Francisco. 91.5% of the high voltage streetlights have been converted as shown in Table 2.3 below.
From the previous fiscal year, Utility Field Services continue to convert outdated series loops, and as of October 31, 2022 two loops remain to be converted. Due to community feedback, SFPUC is planning a capital project improvement to reuse the existing conduits and conductors, and install utility pole -mounted transformers as part of the Sherwood loop conversion.
Series Loop Conversion Locations
Streetlight
Quantity Status
1 Portola Drive 19 Complete
2 Lakeshore – West of Sunset Blvd 46 Complete
3 Lakeshore – East of Sunset Blvd 105 Complete
4 Montgomery (Greenwich to Alta) 11 Complete
5 Junipero Serra (19th Ave to Ocean Ave) 37 In-Process
6 Sherwood (Casitas to Lansdale Ave) 22 In-Process
7 Aquatic Park (Larkin to Polk) 3 Complete
8 Alemany Blvd (Putnam to Stonybrook St) 59 Complete
9 Alemany Blvd (Stonybrook to Mission St) 34 Complete
10 Forest Hill/Golden Gate Heights (Noriega, Ortega,
Pacheco, Funston)
56 Complete
11 Van Ness Ave Series Loop Conversion 300 Complete
Total 692
Table 2.3 – City Owned Series Loop Conversions, FYE22 to date
e. Coordination with Other City Agencies
SFPUC S
treetlight staff also collaborates with various City agencies to improve street lighting in the Public Right of Way Agencies including the Planning Department, Public Works and Municipal Transportation Agency . Table 2.4 lists the various streetlights that were and are being installed in collaboration with other City Agencies through Stre et Improvement, Streetscape, and Redevelopment Projects.
Collaborations with Other City Agencies
(Streetscapes/Redevelopments)
Streetlight
Quantity Status
1 2148J Folsom Streetscape (2nd to Spear Street) 51 Complete 2 2943J VL Curb Ramps #13 (25th/Vermont) 1 Complete
Street & Pedestrian Lighting Update, December 2022 11
3 5M Phase 1 & 2 34 Complete
4 Pier 70 74 Complete
5 Sunnydale 1A1 & 1A2 39 Complete
6 1099I Transbay Park 12 In-Process
7 1207I Minna/Natoma Streetscape 24 In-Process
8 1171I Geneva and Mission 21 In-Progress
9 1248I Transit U Improvements 2 In-Process
10 1253I/2378J Market Octavia Living Alleys 4 In-Process 11 1254 Fern Alley West Improvements 3 In-Process
12 1261I Western Addition Pedestrian Lighting Phase 1 54 In-Process 13 1832J Richland Bridge 8 In-Process
14 2485J Upper Market Corridor Safety Improvements 12 In-Process 15 2620J Harrison Streetscape 52 In-Process
16 2652J 19th Avenue 28 In-Process
17 2752J Better Market Street 5 In-Process
18 2852J Muni Forward Sacramento/Powell 2 In-Process
19 2908J Golden Gate Park 9th Ave Gateway 1 In-Process 20 2949J Potrero Gateway Loop 3 In-Process
21 2955J Folsom Streetscape (11th to 2nd Street) 165 In-Process 22 2961J 6th Street Pedestrian Safety Project 37 In-Process 23 2970J Joice Alley Improvements 3 In-Process
24 2996J Elk Street and Sussex Pedestrian Safety 1 In-Process 25 3006J Alemany Interchange Improvements 3 In-Process 26 Mission Rock 62 In-Process
27 Potrero Hope Phase 2 43 In-Process
28 Sunnydale 1A3 24 In-Process
29 Treasure Island Redevelopment 211 In-Process
30 Upper Haight Streetscape 109 In-Process
31 Yerba Buena Island Redevelopment 73 In-Process
Total 1161
Table 2.4 –Streetlights Installed in Collaboration with Other City Agencies, FYE22 to date
SFPUC Streetlight Engineers are working diligently and closely with interagency project counterparts to help ensure that photometrics studies and layout plans are reviewed early in the design phases so that construction is compliant with SFPUC streetlight requirements.
f. Mission Bay Streetlight Pole Issues
In April 2021, the SFPUC received public complaints regarding potentially hazardous conditions with several Mission Bay streetlight pole attachments. Utility Field Services crews investigated the issue and found that some luminaire arms unexpectedly detached from the
Street & Pedestrian Lighting Update, December 2022 12
poles along Terry Francois Boulevard, China Basin Street, El Dorado Street and Long Bridge Street.
After making the situation safe, SFPUC staff met with the Department of Public Works (DPW), the City Attorney’s office, the pole manufacturer, and the banner applicant s to discuss the cause of the arm failures. The pole manufacturer confirmed that these poles were not designed for any use other than the luminaires. The poles were designed to only account for the luminaire loads only and not for any other uses.
For public safety reasons, SFPUC requested DPW to remove the banners until a structural analysis could be performed on the pole’s infrastructure, showing when it is safe to attach banners.
Furthermore, UFS inspected every pole of that type and ensured that such incidents will not reoccur. SFPUC is working with the Department of Public Works on a policy to include a requirement that vendors perform structural, wind, and foundation analys es before permitting the installation of banners on the various pole types.
In July 2022, an investigative report was issued by Engineering Systems Inc. ( ESi) concerning the arm fracture analysis. The report is under review by DPW.
3. WIRELESS TELECOMMUNICATIONS SYSTEMS
a. D istributed Antenna Systems (DAS)
Existing Master License Agreements
The SFPUC owns approximately 30,000 streetlight poles, many of which are suitable sites for installing equipment to enhance wireless telecommunications services in San Francisco. The DAS Program is a revenue- generating program to license existing SFPUC Poles for outdoor distributed antenna systems. The antennas are installed and operated by wireless telecommunications carriers using licensed spectrum and third-party hosts certified by the Federal Communications Commission (FCC).
There are currently four (4) carriers that have 12 -year license agreements to attach the wireless telecommunications devices to City-owned streetlight poles:
1. Verizon (works with the SFPUC directly or via Extenet, Modus or CBR),
2. T- Mobile (works directly or through Extenet),
3. AT&T (through Modus or Extenet), and
4. Sprint (through Mobilitie or Extenet).
Street & Pedestrian Lighting Update, December 2022 13
A DAS layer was added to the Power Enterprise’s Geographic Information System (GIS) maps which indicate the streetlight poles that have been licensed by various carriers. As of October 31, 2022, there are 1,544 powered DAS sites on City-owned poles. As previously reported, potential revenues could total $70 million for these 12-year agreements.
However, the FCC issued an Order in September 2018 that limits the amount that municipalities may charge in permit and license fees for small wireless facilities on utility or other poles in the public right -of-way. In August 2020, the Ninth Circuit Court of Appeals upheld the FCC’s directive which result ed in a reduction in license fee revenue. The new licenses and fees will not be in effect until a new Citywide Master License Agreement is fully executed. The existing licenses and fees for the operating sites continue. The SFPUC currently charges approximately $5,400 per pole per year in license fees for 2022. The new MLA would greatly reduce DAS revenues as the new license fee would be set at $270 per pole per year.
5G Network Deployment and the Digital Transformation:
Supporting the up grade to 5G will help the City modernize its telecommunications infrastructure and provide communications technology to all residents. 5G allows superior transmission speeds, lower latency, and greater capacity to users , all of which can contribute to economic development and the well-being of residents.
Figure 3.1 – 4G Installation on Streetlight Pole
Street & Pedestrian Lighting Update, December 2022 14
Figure 3.2 – 4G + 5G Installation on Utility Pole
4. POLE USE POLICY
a. Established Use Policy
The SFPUC’s Pole Use Policy governs municipal and non- profit use of City -owned streetlight poles. The policy identifies a comprehensive review process of streetlight pole use requests from applicants, such as City agencies, community groups, business dist ricts and other non-profit entities.
The SFPUC adopted the Streetlight Pole Use Policy to streamline and regulate the use of City-owned streetlight poles in San Francisco. Street and sidewalk illumination are the most important use of streetlight poles—no other pole use may compromise street and sidewalk lighting operations and maintenance. The policy lists pole use priorities in the following order:
1. SFPUC use for street lighting
2. Use by other city agencies for utility or other municipal purposes
3. Decorative use by city agencies or community groups
Street & Pedestrian Lighting Update, December 2022 15
Figure 4.1 – Pole Use Banners on Streetlight Pole
The review criteria include structural impact on the streetli ght pole, physical impact on lighting performance and communication infrastructure, existing and proposed pole uses, electrical load, public support, and public benefit.
b. Time-Limited Waiver
As of February 2022, pole use policy requires structural analysis to ensure that poles and foundations can support all attachments. Some applicants were unprepared and needed more time to coordinate. SFPUC has continued to support the applicants by granting a time- limited waiver for those who are in the process of completing the requirements.
Permits under time-limited waiver until January 1, 2023 include:
1. SF Warriors
2. SFMade
3. Lakeside Village on Ocean
4. Comfort Women Justice Coalition
5. SF Symphony
6. Downtown SF Night Lights
7. Neighborhood CBD
8. SF Marin Food Bank
9. Shop & Dine in the 49
10. SF Travel Association
11. SF Jazz Season 10
Street & Pedestrian Lighting Update, December 2022 16
12. Jewish Community Center
13. SF General Hospital
14. YBCA
15. Asian Art Museum
16. SF Opera
17. SFMOMA
18. Brightline
5. R EGULATORY EFFORTS
a. Large Increases in PG&E’s General Rate Case for Streetlights
Of the approximately 50,000 streetlights in San Francisco , approximately 40% of the streetlights are owned and maintained by PG&E. Although PG&E owns these streetlight s, they are powered with electricity supplied by SFPUC with Hetch Hetchy Power . PG&E bills SFPUC for the operations and maintenance (non -energy) costs for these streetlights under the jurisdiction of the CPUC, which regulates PG&E’s operations.
As part of PG&E 2020 Phase 2 General Rate Case ( GRC) filing with the CPUC, PG&E proposed changes to streetlight costs. PG&E, the California Street Light Association (CALSLA), and San Francisco negotiated a settlement of streetlight costs and filed a motion for adoption of that settlement in February 2021. CPUC Decision (D.) 21- 11-016, issued on November 18 , 2021, adopted the provisions of this settlement. The decision adopted the settlement agreement to phase- in cost increases over of a 12 year -period, with costs moving by 1/12 of the way to the full cost each year. The full cost for San Francisco is estimated at $2,600,000. This amount is $840,000 higher (48%) than the $1,7600,000 that the SFPUC would have otherwise paid if the rate formula from the previous 2017 GRC were to remain in effect. In other words, San Francisco’s streetlight rates for PG&E -owned and maintained streetlights will increase by about 4% annually for the next 12 years. At the same time, as part of the settlement agreement, PG&E discontinued charging the SFPUC an Incremental Facility Charge (IFC) for non -decorative streetlight s, and halved the IFC for decorative streetlight s (fro m $12.768/month to $6.226/month). The IFC is a charge approved by the CPUC to encourage conversion of streetlight to LEDs.
On February 18, 2022, PG&E filed Advice Letter 6509- E which reflected the changes in streetlight rates that arose from the settlement discussed in the previous paragraph. As of March 1, 2022, the monthly facility charges increased by 4% (from ~$147,000 to ~$153,000/month), which represents the first of 12 increases anticipated over the next 12 - years. At the same time, the monthly IFC decreased by 99% (from ~$147,000 to $1,000/month), representing a significant saving to the City. Put together, the total monthly facility charges that the City has to pay for PG&E -owned and maintained streetlights have decreased by 21% over the last year from ~$195,000/month to ~$155,000/month.
Street & Pedestrian Lighting Update, December 2022 17
On June 30, 2021, PG&E filed its 2023 Phase 1 GRC filing with the CPUC, Application (A.) 21-06-021, which as proposed would increase overall gas and electric distribution and generation base revenue requirement by 36% relative to 2022 revenues. This requested increase is one of the largest requests PG&E has made. The average PG&E customer’s electric bill, which includes electric energy procurement and other costs included in the GRC request, would increase by 18.9% (in 2023), and the average street lighting rates would increase by 9.6% based on existing revenue allocation methods.
PG&E identifies expense forecasts of $61 million for 5 streetlight programs contained in the GRC application for 2023- 2026. PG&E expects to finish the San Francisco Regulated Output Streetlight R eplacements for $10.2 million by 2024. Additionally, PG&E plans to continue the Decorative Streetlights Replacement Program and continue to re -inspect and refurbish unsafe Decorative Streetlight s in San Francisco for a forecasted cost of $4.0 million. San Francisco should also benefit from two PG&E system -wide programs: the ongoing LED Streetlight Conversion Program which has a forecasted cost of $32.5 million and the ongoing Non- Wood Streetlight Pole Replacement Program for a forecasted cost of $6.3 million. PG&E projects ongoing costs of around $2.0 million per year for its Streetlight Burnout Replacement Program.
b. PG&E Seeking to Terminate Wholesale Service to San Francisco’s Streetlights and Unmetered Load and Convert Hetch Hetchy Power Customers to PG&E Retail Customers
While the CPUC regulates PG&E’s operations of PG&E -owned streetlights, the Federal Energy Regulatory Commission (FERC) regulates the interconnection between PG&E’s distribution grid and Hetch Hetchy Power customers. On September 15, 2020, PG&E filed proposed revisions to its Wholesale Distribution Tariff (WDT) on file with the Federal Energy Regulatory Commission (FERC). Under PG&E’s WDT, the City has the right to access PG&E’s distribution grid to serve its customers and power municipal facilities, including streetlights. However, since the City’s transition to receiving service under the WDT in 2015, PG&E has continued to violate the terms of its open- access Tariff and has en forced it in a way that has resulted in significant challenges for the City in providing Hetch Hetchy Power to its customers.
PG&E’s revisions to its WDT filing (“WDT3”), which went into effect on April 15, 2021, are highly detrimental to wholesale customers taking service under this tariff. Along with denying secondary service for new connections, PG&E eliminated the current billing arrangement based on an agreed- upon formula for streetlights and other unmetered loads and required that these small loads be connected at primary service and metered. Under this requirement, the City would either have to install primary facilities to continue serving its streetlights or have them be served by PG&E as retail customers.
Since installing primary intervening facilities to serve streetlights would be both extremely cost- and space-prohibitive, the City would be unable to continue powering its streetlights as
Street & Pedestrian Lighting Update, December 2022 18
it has been authorized to do since the passage of the Raker Act in 1913. The City would either have to pay higher rates under PG&E retail tariffs or spend in excess of $1 billion for large primary equipment that is unnecessary for safety or reliability and perform City -wide disruptive construction.
On December 13, 2021 , PG&E filed notices at FERC to terminate service to the City’s unmetered load, effective January 31, 2022. The City protested and FERC issued an order suspending the effective date until July 12, 2022. The City and PG&E negotiated an interim tariff and service agreement waiver (“waiver agreement”) to address the treatment of unmetered loads while parties litigate this issue before FERC in the WDT3 proceeding.
Under this waiver agreement, the City will continue to serve its existing unmetered loads.
However, per the WDT3 requirements now in effect, all new unmetered loads will be required to apply for PG&E retail service. Upon conclusion of the WDT3 proceeding, the prevailing party will then be made “whole”, meaning that the losing party will pay the difference between the FERC wholesale and PG&E retail rates, and unmetered load delivery points would then be transferred to the appropriate jurisdictional service.
In addition, the wireless telecommunications industry filed a protest at FERC with regard to the changes to PG&E’s wholesale unmetered load service and are seeking an interim solution similar to the waiver agreement the City negotiated with PG&E. Under the Distributed Antenna Systems Program, the City licenses some of its streetlight poles and SFMTA poles to wireless carriers to install antennas and related equipment. The City has been providing power to those facilities, which the SFPUC can no longer do under WDT3.
The industry filed the protest because wireless carriers are concerned that the additional costs and delays that will occur if they must obtain electric retail service from PG&E will hinder their efforts to roll out 5G service in San Francisco. The parties are now in settlement discussions supervised by a FERC Administrative Law Judge.
6. SUBSEQUENT PLANS
a. Helicore Foundation Technology
Streetlight engineering has begun working with Helicore, an innovative, patented streetlight foundation system that is rec ognized nationwide. The Helicore foundation is a spread- footing helical anchoring system, utilizing steel plate and piles, which is designed to be long- lasting and does not require a conventional concrete pier -style foundation. As a result, foundation installation time is minimized, which decreases streetlight downtime, disruptions to vehicular and pedestrian traffic, and underground utility rerouting. In addition, in the event of a streetlight knockdown, light poles can be replaced quickly and easily.
The first implementation of Helicore’s technology was on Junipero Serra Boulevard in early 2022. Furthermore, o n Aug 29, 2022, Helicore representative s and Utility Field Services staff assessed 3 sites for possible pilot installations: Great Highway, Lake Merced Drive, and
Street & Pedestrian Lighting Update, December 2022 19
Brotherhood Way. Training is currently in-progress, and SFPUC UFS has purchased 40 sets of foundation material for use once training has been completed.
Figure 6.1 – Helicore Field Installation
Figure 6.2 – Helicore Details
Street & Pedestrian Lighting Update, December 2022 20
b. SFPUC Streetlight Standard Drawings
As previously mentioned, streetlight standards are reliant on DPW drawings which provide a constraint on issuing revisions, updates to the new standards, or modification. Streetlight engineering are in the process of creating SFPUC standard streetlight drawings. The streetlight standard drawings will be in SFPUC title blocks. Some plans in progress include splicing details, concrete poles in residential areas, streetlight s on utility -owned wooden poles, and manhole and handhold specifications.
Figure 6.3 – SFPUC Standard Streetlight Drawing
c. Market Street Improvements
Path of Gold Lighting
Distribution Engineering is undergoing work with consultants to evaluate deployment of Red, Blue, and Green LEDs to the P ath of Gold lights on Market Street. The statement of work includes replacing existing high-pressure sodium fixtures with new LEDs which allows colo r changes in accordance with various themes on Market St. much like the exterior lighting on City Hall and Coit Tower.
Street & Pedestrian Lighting Update, December 2022 21
Figure 6.4 – Control Module for Path of Gold RGB Lighting
Better Market Street project, Traffic Signal Improvements
Streetlight engineering are working with DPW on Better Market Street P hase 1. The scope of work under this project will revisit and improve intersection lighting on adjacent intersections with Market St. The Path of G old poles and fixtures themselves will not be modified under this project.