HomeMy WebLinkAboutcc - SoCalGas (Reach Code) 8/19/2019W1111111 S o C a I G a s
A Sempra Energy utility
August 9, 2019
Chris Read
Sustainability Manager
Office DfSustainability
City ofSan Luis Obispo
9O0Palm Street
San Luis Obispo, CA934Ul
Building Code
Dear Mr. Read,
Sharon Tomkins
Vice President, Strategy aEngagement
555 W.Fifth Street, GCT u1C5
Los Angeles, CA 900 13
Email: STomkins@socalgas.com
Southern California Gas Company (SoCalGas) appreciates the opportunity to comment on the
City of San Luis Obispo's proposed Draft Local Amendments to the 2019 California Building
Code ("Reach Code"). The City is one of many other cities and counties currently evaluating
advanced sustainability goals and targets, especially regarding greenhouse gas emission
reductions, energy efficiency/conservation, and climate adaption considerations. We strongly
believe that solutions proposed in furtherance of achieving these goals should not only be
evaluated interms Ofpotential local environmental benefits, but also interms Ofeconomic
feasibility, customer adoptability, and overall contribution to broader State sustainability goals
and targets. Further, such evaluation should be based on comprehensive, unbiased data that
accurately reflects real-world conditions.
Local jurisdictions attempting to pass building reach codes are required to apply to the
California Energy Commission (CEC) for approval and include supporting analysis demonstrating
that 1) their proposed standards are more energy efficient than current State building code
standards and 2\that the local standards are DOIL-effeotive.zThe City ofSan Luis Obispo in
looking 3tthis issue iSusing analyses prepared byFrontier Energy, Inc. and K8iStiB[uC8[i&
Associates, LLC for Pacific Gas and Electric Company, titled "2019 Energy Efficiency Ordinance
Cost- Effective n ess Study2" and "2019 Nonresidential New Construction Reach Code Cost
' California Energy Commission. Local Ordinances Exceeding the 2016 Building Energy Efficiency Standards.
2Frontier Energy, Inc., Misti Bruceri & Associates, LLC. 2019 Cost -Effectiveness Study: Low -Rise Residential New
Construction. August 2019
Effectiveness Study'," as a sources to satisfy the cost-effectiveness requirement for approval of
their proposed Reach Code. Each analysis document concludes that all -electric building models
for both residential and nonresidential new construction to be the most cost-effective and
energy efficient building options, thereby seeming to validate the City's proposed Reach Code
that favors all -electric construction for new buildings. The data, however, used to reach these
conclusions is flawed, as discussed in a summary below and further expanded on the Concern
Detail section attachment .
• Use of PG&E gas infrastructure costs in SoCalGas territory — Because SoCalGas is the
sole provider of gas service to the City of San Luis Obispo, the City should not rely on a
cost-effectiveness analysis that uses infrastructure cost estimates provided by PG&E to
determine incremental customer costs for a mixed fuel home. PG&E's provided
estimates are approximately three times greater than SoCalGas' infrastructure costs.
• Use of an unsubstantiated and flawed study to support affordability analysis — the
analysis relies on the flawed conclusions of E3's Deep Decarbonization study that
contains inaccurate projections of utility gas rate increases and underestimates.
electricity rate increases. For example, it does not take into account wildfire damage
recover costs or system infrastructure expansion costs
• Inaccurate valuation of the societal costs of electrical infrastructure and societal
benefits of gas infrastructure —The cost-effectiveness analysis overlooks the
vulnerability of electric infrastructure to climate change impacts and how such impacts
affect energy reliability to residents. it also does not account for the public health and
environmental impacts from the fires caused by electric infrastructure.
Overall, the cost-effectiveness analysis appears to be designed to reach a predetermined
conclusion to support building electrification as the optimal pathway to decarbonize buildings,
which is reflected in the language of the City's Reach Code. Large scale, economy -wide cost
impacts to City residents and businesses should be based on robust and broad technical
support and analysis, which as discussed above and in the attachment, the current cost-
effectiveness study does not do .
We support the city's goal to reduce its carbon emissions but do not believe an all -electric
scenario achieves that and places unnecessary costs on residents. We have enclosed a copy of
our white -paper, which provides a high-level policy discussion of a broad-based approach to
help California achieve its ambitious climate change goals.
3 Frontier Energy, Inc., Misti Bruceri & Associates, LLC. 2019 Nonresidential New Construction Reach Code Cost
Effectiveness Study. July 2019
2
Sincerely,
Sharon Tomkins
Vice President, Strategy & Engagement
Concern Details
Below we elaborate further on these points and request that the City redo the analysis to
incorporate these additional comments.
As stated above, the cost -benefit analysis only uses gas infrastructure cost estimates from
PG&E to calculate incremental costs to mixed fuel residences. This is inappropriate as SoCalGas
is the only utility responsible for providing gas service to the City of San Luis Obispo, not
PG&E. Therefore, the City should have used an analysis that included infrastructure cost
estimates from SoCalGas, which are considerably lower than PG&E's provided estimates. For
example, the cost-effectiveness analysis currently states that total first cost of running a natural
gas line to a new residential development is approximately $11,836. However, SoCalGas
average direct costs for 2019 for gas line installs was only $4,400. This is approximately 63%
less than PG&E's estimate. If SoCalGas' cost estimates had been incorporated into the analysis,
costs to consumers for natural gas energy would be significantly lowered, and in turn, would
considerably alter both the On -Bill and TDV analyses. Therefore, because the current analysis
uses cost estimates from a utility that has no role providing gas service to the City, the analysis
cannot be justifiably used to support the City's Reach Code, as this generates an overestimated
assessment of the customer costs for natural gas infrastructure/service within the City.
2. Analysis relies on deeply flawed E3 Deep Decarbonization Study for exacerbaten,
utility rate • I
The cost-effectiveness analysis states that it relies on E3's Deep Decarbonization Study to
model escalating utility rates over time, as well as SoCalGas' and PG&E's General Rate Case
(GRC) filings, and further states that rates from 2023-2025 are assumed to escalate 4% per year
above inflation, which "reflects historical rate increases between 2013 and 2018." Addressing
these sources in turn, SoCalGas would like to emphasize the flawed nature of E3's Deep
Decarbonization Study, which was largely funded and supported by the Building
Decarbonization Coalition, an entity largely supported by electricity providers and equipment
manufacturers. Most importantly this study severely underestimates electric rate increases,
which then falsely makes building electrification seem more economically attractive to
consumers. Currently, the analysis shows electric rate increases to be at only 2% which, alone,
is specious given that electric rates have been shown to increase three times faster than natural
gas rate S.4 Further, as stated in SoCalGas' 2019 public comments to the California Energy
Commission (CEC) regarding this study, "[itjis disturbingly misleading in estimating an
'uncertain' 6%-8% increase in rates for 2018-2022." Among other things, this is unrealistic as
the electric rate projections do not appear to factor in potential increases from, for example,
4 Navigant Consulting, Inc. Analysis of the Role of Gas for a Low -Carbon California Future. 2018
In
revenue requirements for infrastructure upgrades for wildfire nmhiK@tDn,s changes in cost of
capita[uDradditional distribution infr86f[U[±Ur8 required to meet increased electricity demand
from battery -electric vehicles and all -electric buildings. Further, the E3 study shows the cost nf
electrification declining post -2030 with CO5t6 returning to approximately the 2030-lev8l by
205 0.7 This i5iDstark contrast tDtheir previous vvO[k.x This new outlook OnpOs1-203O
incremental cost for the electrification scenario has not been justified and seems counter to all
recent studies and trends. Therefore, as the E3 study does not incorporate the increased
electric infrastructure system expansion costs or the increased costs to ratepayers from wildfire
damages caused by the electric system, the modeled utility rate escalation of only 296 per year
until 2025, and then only l96afterwards, |Sseverely underestimated and unsubstantiated.
Regarding use O[SCG'sGRC and historical rate cases, there are several areas xvewould like bJ
highlight for concern and needed clarification. None of the appendices or foot notes within the
cost-effectiveness study seem to include citation for use of our GRC filing for rate increases and,
further, as no (5RCfiUDg has yet been approved, it is not valid tD assume that SCG vvUU/d receive
the full arnOuDL requested to recover in rates. Instead, it vvDu|d be most accurate for the
analysis touse existing recent rate increases, which are not 6Y6.Further, Appendix 8ofthe
document, which contains Utility [3t8 iDfo[Dl3tiOD 5Ou[C8S, instead has a page of SCG seasonal
rate report that shows costs of residential rates during the winter. As these prices reflect peak
rates, which occur during winter, itiJinappropriate for the cost-effectiveness analysis tO
8GsU[Ue these rates are COOStaDt and apply them over a 30 -year time period. Rather, as
California has very short winter seasons and long warm seasons, the analysis should have used
rates that are iOeffect during the spring, summer, D[fall seasons, which are ODaverage about
40 cents less per therm. Because the analysis inaccurately extrapolates peak vViDt2[ rates—
which only persist, at most, a few months—as annually consistent over 30 years, the analysis
overestimates costs to consumers for using natural gas as an energy source. Further, the claim
that SCGs rates have increased 4% above inflation on average between 2013 and 2018 is
plainly false. In tG[±, looking strictly at peak winter rates during that time period, SCG residential
' In the 2019 wildfire mitigation plans, for example, the investor-owned utilities proposed a range of important
activities to addresswildfire risks. The 2019 plans alone are expected to have an annual residential bill incremental
impact ofabout $85for Pacific Gas & Electric customers, $4Ofor SCE customers, and $Sfor SDG&E customers (SB
G95mport),pages 63-64.Available at:
https:Hwww.npuc.cm.@pv/up|oadedFi|es/CP UCVVebsite/Content/Abpu1_Us/}rganiaahnn/Divisions/Ofice
_of`GovernmentaiAffairs/Legis|adon/2U19/SB�/�2O69S�/�2OReport_1NayY6202019_RNAL.pdf
6 SCE's Cost of Capital filing requests an 11% increase in system average rate, with an increase of over 13% on
residential rates by2O2Ocompared tocurrent ZO19rates. The ZO19rates inSCE's filing donot include the
extensive infrastructure investment SCE has proposed for transportation electrification and grid modernization
over the next 5years. SCE's higher cost of capital request will also increase the rate impacts of these capital
investments programs. https://wvvw.scezom/sites/defau|t/h|es/in|ine0|es/Notice_SCECootofCapiioipdf
'E]Draft Results, atpage 19
o|nits2O18reportonDeepDecarbqnization,E3xhovvedtheincrementa|costof1heir'BaseyWitiga1ion'oasevvou|d
beroughly $8billion in2O3Oand $2Gbillion in2O5O. E3further indicated the 2O5Qcosts could be$Oto$3Sbillion
higher in 2050, depending on the assumptions about the diversity of the renewables portfolio. E3'sDeep
Decarbonization study slides from the June 2018 workshop (Slides 48 and 18) can be accessed here:
https://efi|ing.energy.na.gov/GetDocumentaspx7ln=22S766&DocumentContenUd=53938
5
rates increased only 3%, which is just about 196 above the current inflation rate.sThis further
contributes tooverestimation ofconsumer utility costs iDthe analysis.
3. Analysis of Time Dependent Valuation values do not reflect societal and
environmental benefits of renewable natural gas or the societal and environment
impacts of electric infrastructure
SoCalGas understands that the purpose of using a Time Dependent Valuation (TDV)
methodology is to attempt to capture the societal value/cost of energy use over the long term,
including costs ofcarbon emissions. However, the cost-effectiveness analysis does not
equitably assess electric and mixed fuel homes for this Valuation. Rather, the analysis only
evaluated a biased context for an all -electric home, where it satisfied only the bare rniO)O1U[n
requirements tObejust compliant with the 2O19State Building Code. This analysis did not look
at the potential benefits of using renewable natural gas in a mixed fuel home, and further did
not account for the negative environmental and societal impacts associated with the vulnerable
nature of electric infrastructure, Therefore, because the Study did not incorporate these
considerations, its conclusion regarding the cost-effectiveness of all -electric buildings is
erroneous, and inresult cannot beused tOsupport the City's proposed Reach Code.
Most prominently, the TDV analysis did not consider the environmental and societal benefits
that would be generated from using renewable natural gas aSGDenergy resource inamixed
fuel home. Supporting building transition tDuse ofrenewable natural gas /RNG\instead Of
traditional fossil natural g@3, has significant carbon emission reductions and can even be carbon
negative in application, which would contribute considerably greater and more effectively to
the City's goal to clecarbOnize buildings, and at no additional cost 'to cVO6uOl8[Szo. in fact,
replacing only 20% of existing natural gas supply with RNG achieves the same e[OiSSiODS
[edUCtiDD6 as electrifying the entire building sector by 2030, but at one-third of the cost. As
previously communicated, RNG,O[bionoethane,can bBproduced from existing waste sources
including agricultural waste, waste water, and landfills, and then upgraded to delivery quality in
our pipelines. Because this energy is produced from existing methane sources that are
otherwise being emitted into the air, unabated, capturing these emissions tOproduce
hiOnnethan8helps reduce both regional and local methane and GHGemissions. Asashort-lived
climate pollutant, methane has a greater global warming potential than carbon diUxid8--
5p8Cifioally,methane is approximately Z8times more potent than carbon dioxide inthe
atmosphere z1,z2.Therefore, from @ lifecycle perspective, because biONOeth8D8pnmdUctioD
removes a greater quantity of more potent GHG emissions from the air than what it produces
at end uses, its prOdU[±iOO is carbon negative process, and can be used tooffset other uses
that cannot achieve carbon neutrality. The TDV analysis' findings undermine the importance of
»NmbedyAmadeo."US|nflaUnnRatebyYearhnm1929to2OZO."The8a|ancaJuly2O13.
10 N aviga nt Co nsu I ti ng, I n c. Anolysis of the Role of Gas for a Lo w -Carbon Californ ia Fu ture. 2018
11|PC[.Global Warming Potential VaUuesh\tps://wwmghKprotucoioqg/site/defau|t/0|es/nhOp/6|oba|-VVarming'
Potentia|4/ |ues%20%28Feb%IO1b%2O2O16%2g_1.pdf
12 California Air Resources Board (CARB). Understanding Global Warming Potentials,
httpn)Yewvv.epu.Qqv/gh8emissionx/understandinB-g|oba|+marming-potentia|s
I.
addressing methane emissions from California's waste stream and, further, itcontradicts the
California Air Resources Board's (CARB) Climate Change Scoping Plan Update (Scoping Plan)
vvhichidentifieS8DuDlb8[Ofdifƒe[eOt8ppn0@chesfor"8ohieving6UCce3sesincleaDeDe[gy"
'
including cost-effective 3CCes3 to renewable �es.� An inopo�ant port ofCARB's strategy in the
Scoping Plan is putting waste resources to beneficial use, including organic sources of methane
from waste streams. The existing natural gas infrastructure provides asolution tOreduce
emissions from these sectors by transporting RNG over existing, safe transmission and
distribution infrastructure. Therefore, not only would use DfRNG in mixed fuel hO[Dg5 have
significant societal and environmental benefit byhelping residential buildings becarbon
negative and helping achieve local organic waste diversion goals, but also would not require
any expansion in infrastructure capacity, thereby preventing increased costs to residents. This
multitude of co -benefits should be analyzed and incorporated into the TDV analysis to provide a
more accurate context of the societal value of natural gas infrastructure use.
Further, the inherent resiliency ofnatural gas infrastructure todamage from climate change
impacts iScritical to include in the TDV analysis. With passage of SB 379 in 2015, municipalities
are required to incorporate climate change adaptation and resiliency considerations into local
and regional planning efforts byZO22.ASthe natural gas system ismostly underground, itiS
very resilient to extreme weather events. For example, in 2012, afterSupe[StO[nO Sandy, the
entire natural gas system in the Northeast was essentially intact, allowing residents to support
back-up generators, cook, and keep warm. Businesses with natural gas -powered fuel cells were
able to operate and compressed D3tU[@l gas (CNG) buses in New Jersey were Used to shuttle
residents tOS3fetym .Further,vvheDHUrrio3neHerveytenlpO[a[ilydiS8bled almost 3096ofthe
nation's refining capacity, CNG shuttles were able tOcontinue operating, and hospitals that had
on-site combined heat and power systems were able toprovide urgently needed medical
attention, despite flooding. These examples demonstrate the critical role natural gas
infrastructure can play iDsupporting local and regional energy supply resilience inthe face of
extreme climate events and use ofrenewable natural gas can achieve additional co -benefits in
reducing GHGemissions. Further, they emphasize the importance ofenergy supply
diversification as climate change adaptation strategy, and specifically distributed generation
resources such oscombined heat and power, which offer a clean, flexible, and reliable form Of
energy. The UN Framework Convention on Climate Change clearly states that expanding the
energy portfolio increases system reliability in a cost-effective manner, and over -reliance on 8
single energy source can create avoidable and unnecessary risks for public safety and the
economy. Rather, maintaining diverse energy sources across the economy iseprudent measure
tuensure resiliency.
sCalifornia's Z017Climate Change Scoping Plan Update, ES -11. Accessed from
https://www.a/b.ca.Qov/cc/scupingp|an/sooping_p|an_20I7.pdf
"https://www.energy.gov/eere/artides/S-vvayo-a|ternative4ue|*uid'respmnse'hurrican es'ond'natum|'
disusteo?utm_sou/ce=EERE+VVeeNy+Digest+of+C|ean+Ener8y+Nmwo&utm_compaign=f048cbech5-
EMAI L_[APWPA|GN_2O17_O9_Z6&utm_medium=emai|&utm_term=O_9Odffafa2f-fD48cbec65'34678197
F9
The electric grid,incomparison ismore vulnerable tOwidespread service disruptions caused by
wildfires, extreme heat, sea -level rise, flooding, and other extreme climate -driven eveOts,zsthe
associated costs o[which are blatantly overlooked bythe current TDVanalysis. Rather, the
exposure and vulnerability of electric infrastructure to climate change impacts,and its role in
initiating and/or exacerbating such impacts, substantially affects the ability toprovide power tO
end uses and, iDturn, achieve local community resiliency goals. As seen inthe recent wildfires
and mudslides, as the electric system is almost entirely aboveground, it is significantly more
exposed toclimate threats and, when impacted, can not only leave hundreds tothousands of
residents without power at their homes, but also affect operation of critical facilities. For
example, in 2017 the Thomas Fire damaged electric power lines throughout the City of Ventura.
Because the City's water pumps to supply water to firefighters ran on electricity without any
other form of backup power, firefighters were unable to get water from the pumps to put out
burning residences." |fthe water pumps had been connected to a backup power system, such
as G natural gas generator, firefighters would have been able to access the water. Further, as
seen inthe hurricanes Irma and Harvey, severe storms could knock out electricity supplies for
weeks at o time, putting essential serves like hospitals and wastewater treatment facilities at
risk, as well as costing a single county billions of dollars in damages in lost economic a[±iVity.
The TDVanalysis also does not consider the public health, environmental, Oreconomic costs
associated with el ect[icity-caused environmental disasters. According tOARB and the Sierra
Nevada Conservancy, wildfire emissions now exceed all the reductions California has achieved
across all other sectors. In fact, wildfire is now one of the largest sources of climate pollution. If
the TDVanalysis includes societal impacts from fossil natural gas emissions, it should also
include the impact of the millions of tons of black carbon and other pollutants emitted into the
atmosphere from fires caused and/or exacerbated byelectric infrastructure. The analysis also
ignores the high cost n[fires for electricity ratepayers, eselectric utilities have caused the
majority of California's large fires inrecent years, including the Rim Fire iD2Ol3,the Thomas
Fire and Wine Country Fires in2O17,and the Paradise Fire in28l8. The cost toPG&E alone of
the 2O17and 2Ol@fires iSlikely toexceed $3Dbillion indirect damages, Further, the Rim Fire
alone, which was C3USed by electricity wires in 2013 and is now the 6th largest fire in the state's
history, caused more than $600 million in health-related costs. This does not include the
increased costs of mitigation going forward such as increased vegetation removal
requirements, Public Safety Power Shutoffs, and other operational changes. Although the
settlements for the Thomas Fire (SoCal Edison) and Paradise Fire (PG&E) have not yet been
determined, 8Sthe companies will b8allowed torecover the [DVl1i-b|lliOD-dolla[damages
through increased rates, ratepayers will face significantly increased costs for electricity. This iS
iOaddition tnthe increased rates that consumers will already face from expansion 0fcostly
oCE[ Regiona|VVorkshophe|don]anuary24,2O19.Potenbo||mpactsandAdoptatonOpdonsforE|ectridtyund
Natural Gas Systems from Climate Vulnerability in San Diego Area. Slide deck available at:
http://wwvvz|immteassessment.m.gov/events/dmcs/2O19O1Z4-S|ides_|CF.pdf
m ICF. Case Studies ofNatural Gas Sector Resilience Following Four Climate -Related Disasters in 2017.
E-01
electric transmission and distribution infrastructure needed tosupport the increased demand
from electrification policies attempting to be applied to transportation and buildings.
This bnot 8nisolated 8nnnnalisnm.Asvveknow, the impacts Ofglobal climate change are set to
continually increase in severity, which will result in more severe wildfires, storms, and floods.
Given the vulnerability Vfthe electric system to such impacts, as seen not only in California but
across the CoUntryn , it seems counterintuitive to adopt 8 building energy policy that relies
solely on one source of power. When the state experiences another devastating fire, the
electric lines will be damaged, preemptively shut off, Orboth, which will cut power tO
thousands of residents and could very likely take vve8k3 to restore. In such situations, residents
will be left quite literally in the dark, with no way to heat Or COOl their homes, cook, Or ShOvv8[.
Heat sensitive uses will also be without power, including hospitals, cooling centers, and senior
centers/homes. Batteries may be able to provide temporary power but will not be able to
sustain these uses for weeks on end. Further, solar panels will not be able to provide charge to
the batteries during storm conditions (where there is cloud cover), or wildfires (due to smoke
obstruction). Solar panels are also shutoff during power outages or when utilities do
preemptive power shutoffs, so that even if sunlight is available, the solar panels won't be
operable, leaving residents stranded and without power 18 . These uses will experience increased
suffering during such climate events when served byonly osingle energy source.
Because the TDV analysis does not account for these considerations, the current conclusion
that the societal value ofelectric power i3superior tothat ofthe gas system isboth inaccurate
and uninformed.
17|bid
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foda when excess electricit is eneratetl from solar and wind Califomia either k � ` i�rf i"`�'rr"1j�rfr�f r{`' r�,, t p �,�f�ij,tj jr{}„f�',r�(�311�4<<��ifia`�'�f'�t{��f�rrr�,�i, {'
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h�3,t«clurnp it or pay niher states like Arizona 1�take it(rnn7 us.While b2tteries car7 �j lr��f�ri �y�{(�ty��<<��.}��'ff�;,� ,� � ! y rt�l� {!1,����t �f 1��c��vird rF�F�t��i`l t r�f ;
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f el st ro somc ot this excess enerc Ihe will not solve fhe sinra e roblem alone ✓ s f +Y +r i/ f 1 �, � ,r,, ����, rf s ��r (F� ,�r p�q, ;;��j�tk�, ,�rl iki ��r?r 5��t,f��t�?r,r s 1,,,
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osper,ially for lnnca-term storage needs. rf rt r r�f'r�r�af�ts�r yc 'rs,+,�r��J fta, t s: �y r yS�rW i�f��r�����i f�i'r�vlYsf����i,��f S�j9sr�l,rrr���(,�iJr'ijJ'�Fj��g„',�x f C
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(Zplher Ih�n wr�stii7g t17�;enerpy balteries cennot store,we can convert it into y jr r�j iyr i 'trrrr+ �f t �r,� r��, ?��54a1� r-���i��r �!ir�'���'rllj(r��fi�i�r�,`l`�1���'�r'�f�� ��i,i�,f' i
ranawable gases using a process called"Pnwer-fo•Gas:'Through tfris process,we � �/�r' ,r `' j`�� i rs����}uY ' '<f; rf�����s' ` �f` ;f�;,'f'1,{���������rls���y��tijr�t'l r`f�fri�fJrr%:�, 7
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