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HomeMy WebLinkAboutCOUNCIL - COMPLETE AGENDA - 01/30/2018 - COMPLETE AGENDACity of Fort Collins Page 1 Wade Troxell, Mayor Council Information Center (CIC) Gerry Horak, District 6, Mayor Pro Tem City Hall West Bob Overbeck, District 1 300 LaPorte Avenue Ray Martinez, District 2 Fort Collins, Colorado Ken Summers, District 3 Kristin Stephens, District 4 Cablecast on FCTV Channel 14 Ross Cunniff, District 5 and Channel 881 on the Comcast cable system Carrie Daggett Darin Atteberry Delynn Coldiron City Attorney City Manager City Clerk The City of Fort Collins will make reasonable accommodations for access to City services, programs, and activities and will make special communication arrangements for persons with disabilities. Please call 221-6515 (V/TDD: Dial 711 for Relay Colorado) for assistance. City Council Work Session January 30, 2018 6:00 PM • CALL TO ORDER. 1. Broadband Update and Governance. (staff: Mike Beckstead: 15 minute staff presentation; 45 minute discussion) The purpose of this item is to provide City Council a broadband implementation update and governance recommendations. 2. Income Qualified Rate (IQR)/Low-Income Efficiency Programs. (staff: Peter lengo, Randy Reuscher; Dianne Tjalkens; 15 minute staff presentation; 45 minute discussion) The purpose of this item is to receive feedback and direction from City Council on a proposed Income-Qualified Rate (IQR) that provides a discount utility rate to income-qualified customers. The IQR will position Utilities to increase adoption of efficiency and conservation actions with low-income customers in both rental and owner households. • OTHER BUSINESS. • ADJOURNMENT. DATE: STAFF: January 30, 2018 Mike Beckstead, Chief Financial Officer WORK SESSION ITEM City Council SUBJECT FOR DISCUSSION Broadband Update and Governance. EXECUTIVE SUMMARY The purpose of this item is to provide City Council a broadband implementation update and governance recommendations. GENERAL DIRECTION SOUGHT AND SPECIFIC QUESTIONS TO BE ANSWERED 1. What questions does Council have regarding the Council governance and the City Manager operational authority recommendation? BACKGROUND / DISCUSSION In 2016 the City identified access to broadband as a strategic objective. Broadband is defined by the FCC as internet download speed of 25 megabits per second (“Mbps”) and upload of 3 Mbps or faster. The 2016 Strategic Plan Objective 3.9 states - “Encourage the development of reliable high-speed internet services throughout the community.” Additional benefits sought through the broadband plan include: • Competitive pricing (residential market pricing at $70/month or less for 1 Gbps and an affordable internet tier); • Universal coverage across the Growth Management Area; • Underground service for improved reliability; and • Timely implementation to providing services within a reasonable timeframe (less than five years). The City has been engaged in a multi-year process of research, due diligence, and community engagement that resulted in two successful ballot measures. The first in November 2015 gave the City the authority to provide high-speed broadband services to the community, the second, in November 2017 added telecom activity to the City Charter and demonstrated support for borrowing up to $150 million to provide fiber to the premise infrastructure. The November 2017 vote passed 57.15 percent. Staff has begun the preparatory work to launch the broadband enterprise. Current activity includes: • Preliminary work on the bond issuance o Request for Proposal (RFP) for bond underwriter was released on December 29, 2017; underwriter interviews are anticipated January 26, 2018 o Work on a draft Preliminary Offering Statement for bond council, including additional financial modeling o First reading of the broadband bond issuance is expected on March 20, 2018 o Bond proceeds are projected to be received April 26, 2018 • Recruitment of key broadband positions o RFP for recruitment process is underway 1 Packet Pg. 2 January 30, 2018 Page 2 o Recruiter will be working with City staff to hire the executive director, marketing manager, outside plant manager and the network engineer; additional staff will be brought on shortly thereafter • Code updates- working with the City Attorney’s Office • Additional RFPs are anticipated to be negotiated and ready for execution in May 2018 o Broadband Branding RFP was released on January 2018 ▪ Anticipating a brand launch to coincide with the bond proceeds in April 2018 o Additional RFPs to be released by February 2018 include: ▪ Billing system ▪ Construction design and build ▪ Premise Installation ▪ Communication huts ▪ Electronics and equipment • Governance discussions and research Debt Issuance At the November 28, 2017 work session, Council discussed the funding needed to begin the implementation of municipal broadband services and asked staff to bring forward a request in January 2018. Initial start-up costs, estimated at $1.8 million, will be appropriated from the General Fund and ultimately reimbursed from the bond proceeds. Debt issuance will be backed by revenue bonds issued by Utilities Light and Power (L&P). Revenue bonds are municipal bonds that are secured by L&P revenue and rate-making capacity. Currently, staff anticipates the issuance of two series of bonds: Series A, which have a three-year expenditure requirement and are tax-exempt; Series B can be carried forward for a longer period of time and are taxable. Governance In fall 2016, the City Manager, Deputy City Manager and Chief Financial Officer visited with several municipal-run broadband communities, both successful and struggling. A primary lesson learned from the site visits is that governance and operational authority is important to the success of a broadband enterprise. Role clarity is essential. In the proposed model, based on best practices, governance is set by City Council who provide direction, develops policies, and oversight. Operational authority provides the City Manager, or their delegate(s), decision- making capabilities that are responsive and reactive to the dynamic, competitive market opportunities and challenges. In addition to the management of the enterprise, this allows the City Manager to retain confidentiality about competitive, strategic information to the broadband enterprise. Figure 1 Critical Decision Factors Broadband/Best Practice Single-Source Utility/Current Practice* Commercial Objective(s) Social/Political Objective(s) Timeliness - market-based decisions Slower decision timeliness Strategic Confidentiality Public Discussion(s) Business/competitive expertise Business expertise * Municipal-owned electricity, water, waste water, stormwater After the November 2017 Work Session, Council asked that staff research and provide additional information for consideration on the concepts of governance and operational authority. Figure 2 provides the analysis. Figure 2 Roles and Responsibilities - Benchmark and Recommendation 1 Packet Pg. 3 January 30, 2018 Page 3 Longmont, CO Wilson, NC Cedar Falls, IA Chattanooga, TN Proposed Fort Collins Governance City Council or Board of Trustees Budget / Financial Approval Debt authorization IGA / Sale or lease assets Power eminent domain Rules & Regs enforceable as code violations Policy decisions- i.e. low income, net neutrality Executive session - review plans & progress Approves Board of Trustees (if implemented in Fort Collins) Mayor appoints board members, confirmed by Council City Council Board of Trustee Delgation of Authority City Manager / GM / Utility / Broadband Director Council/Board updates on progress & decisions Executive oversight on the project Operate within the frameworkof authority delegated Establish pricing & fees for services, rate cards, etc Promotional programs and campaigns Marketing plan and materials Branding & logos Construction design & build out Strategic plan development Financial plan & reporting Policy decision - low income, net neutrality, etc Significant decisions - self-regulating memo to Council 1 Packet Pg. 4 January 30, 2018 Page 4 The governance and operational authority outline below has taken Council oversite and staff decision timeliness, agility, and expertise, as well as best practices from other communities into consideration. Governance - City Council Operational Authority - City Manager/Delegate Strategic oversight Executive oversight Budget and financial approval Pricing & fees for service Debt authorization Financial plans and financial performance Rules and regulations enforceable by Code Council updates - plans and progress IGA/sale or lease of assets Construction design and build out Power of eminent domain Branding and logos Policies - i.e., low income, privacy, net neutrality Marketing plans and materials Executive Sessions - review plans Promotional programs and campaigns Next Steps • Finalization of the governance model • Issuance of RFPs, CAO code modifications and bond issuances • Develop detailed 2018 - 2020 Financial Plan • Council Finance Committee, February 27, 2018 • Bond Ordinance - first reading, March 20, 2018 • Bond proceeds and brand launch - April 26, 2018 ATTACHMENTS 1. PowerPoint Presentation (PDF) 1 Packet Pg. 5 BROADBAND January 30 2018 ATTACHMENT 1 1.1 Packet Pg. 6 Attachment: PowerPoint Presentation (6447 : Broadband Update and Governance) 2 Discussion Topics • Status Update on Implementation Activities • Governance & Operational Authority ATTACHMENT 1 1.1 Packet Pg. 7 Attachment: PowerPoint Presentation (6447 : Broadband Update and Governance) 3 Macro Timeline gg Objective: Align key hires, vendors and contracts while working on bond issuance to support aggressive timeline after bonds close Current Activities Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec Q1 Q2 Q3 Q4 Go Decision & Appropriation Preparatory Work Governance/Operational Authority Issue RFPs & Negotiate Contracts Recruitment for Key Position CAO Code Updates Bond Issuance Close on Bonds & Sign Contracts Business Launch Begin Staffing, Office, Policies, Operations Begin Design work Begin Billing/CRM system implementation Begin mobilizing construction Marketing & Sales plan development First Customer Live 2018 2019 ATTACHMENT 1 1.1 Packet Pg. 8 Attachment: PowerPoint Presentation (6447 : Broadband Update and Governance) Broadband Core Team Core & Support Teams Deliverables Darin Atteberry Mike Beckstead Dan Coldiron Lisa Rosintoski SeonAh Kendall Amanda King Colman Keane Brad Ward Broadband Core Team & Deliverables 4 • Billing Sys RFP • CSR integration • CS Policies • Communication & Branding • Initial Marketing • Project Coordination • Design & Construction RFP • Facility & equipment RFP(s) • Outside plant costs • Core Ring layout & Node Site select • Support Others • Electronics RFP(s) • GIS RFP • Network Standards • NOC Location/Design • Council Updates • Exec Oversite • Governance & Operational Authority • Bond Issuance & Financial Forecast • Recruiting • Legal / Code coordination • PRPA fiber • Phone/Video decision ATTACHMENT 1 1.1 Packet Pg. 9 Attachment: PowerPoint Presentation (6447 : Broadband Update and Governance) 5 Debt Issuance • Planning $132M Revenue Bonds issued by L&P • Backed by revenue & rate making of L&P & current debt coverage capability • Series A – Tax Exempt – 3 year spend requirement, Series B - Taxable • Structured to support reimbursement of $1.8M GF appropriation • Will require prepayment of 2010 L&P Revenue Bonds from reserves • No impact on L&P needs - budgeted debt service used for needs instead of reserves • Exploring portion as mini-bond offering – local investors • Timeline: • Underwriter interview & selection - January 26th • Council Finance Review – special meeting February 27th • First reading Bond Ordinance scheduled March 20th • Anticipate proceeds on April 26th ATTACHMENT 1 1.1 Packet Pg. 10 Attachment: PowerPoint Presentation (6447 : Broadband Update and Governance) 6 RFP Activity • RFPs to be issued Jan and early Feb • Branding – Issued • Billing System • Design / Construction • Electronics • Premise Install • Goal – evaluate proposals, negotiate contracts, be ready to sign early May ATTACHMENT 1 1.1 Packet Pg. 11 Attachment: PowerPoint Presentation (6447 : Broadband Update and Governance) Recruiting / Hiring 7 • Recruiter selection and launch by Jan 26th • Four Positions • Broadband Director • Network Manager • Marketing Manager • Outside Plant Supervisor • Additional hiring over next few months • Network Engineers, Designer, QC/Maintenance Technicians ATTACHMENT 1 1.1 Packet Pg. 12 Attachment: PowerPoint Presentation (6447 : Broadband Update and Governance) 8 Governance & Operational Authority ATTACHMENT 1 1.1 Packet Pg. 13 Attachment: PowerPoint Presentation (6447 : Broadband Update and Governance) 9 Objectives Governance Operational Authority • Oversight and policy decisions by elected officials for broadband efforts • Balance social/political factors with commercial/business factors • Keep elected officials informed and knowledgeable of progress • Review & oversight of strategic & financial plans in executive session • Decision making ability to be responsive and reactive to a commercial market place and competitive factors • Retain confidential strategic information to minimize competitive response • Inform elected officials of progress ATTACHMENT 1 1.1 Packet Pg. 14 Attachment: PowerPoint Presentation (6447 : Broadband Update and Governance) 10 Critical Decision Factors Commercial / Competitive Single Source Utility Commercial Objectives Social / Political Objectives Market-Based Decision Timeliness Slower Decision Timeliness Strategic Confidentiality Material Public Discussion all Material Business/Competitive Expertise Business Expertise Broadband Requires Different Approach Than Single Source Utilities ATTACHMENT 1 1.1 Packet Pg. 15 Attachment: PowerPoint Presentation (6447 : Broadband Update and Governance) Examples Governance 11 Longmont, CO Wilson, NC Cedar Falls, IA Chattanooga, TN City Council or Board of Trustees Budget / Financial Approval Debt authorization IGA / Sale or lease assets Power eminent domain Rules & Regs enforceable as code violations Policy decisions‐ i.e. low income, net neutrality Executive session ‐ review plans & progress Approves Board of Trustees Mayor appoints board members, confirmed by Council City Council Board of Trustee ATTACHMENT 1 1.1 Packet Pg. 16 Attachment: PowerPoint Presentation (6447 : Broadband Update and Governance) Examples Operational Authority 12 Longmont, CO Wilson, NC Cedar Falls, IA Chattanooga, TN City Manager / GM / Utility / Broadband Director Council/Board updates on progress & decisions Executive oversight on the project Operate within the frameworkof authority delegated Establish pricing & fees for services, rate cards, etc Promotional programs and campaigns Marketing plan and materials Branding & logos Construction design & build out Strategic plan development Financial plan & reporting Policy decision ‐ low income, net neutrality, etc. Significant decision ‐ self‐regulating memo to council ATTACHMENT 1 1.1 Packet Pg. 17 Attachment: PowerPoint Presentation (6447 : Broadband Update and Governance) 13 Governance & Operational Authority Governance Operational Authority Budget & Financial Approval Council Review – plans & progress Debt Authorization Executive Oversight IGA / Sale or Lease of Assets Pricing & Fees for Service Power Eminent Domain Promotional Programs & Campaigns Rules & Regs Enforceable by Code Marketing Plans & Materials Policy – i.e. low income, net neutrality Branding & Logos Executive Sessions – approve plans & review progress Construction Design & Build Out Financial Plans & Financial Performance ATTACHMENT 1 1.1 Packet Pg. 18 Attachment: PowerPoint Presentation (6447 : Broadband Update and Governance) 14 Current Thinking City Council Budget / Financial Approval Debt authorization IGA / Sale or lease assets Power eminent domain Rules & Regs enforceable as code violations Policy decisions‐ i.e. low income, net neutrality Executive session ‐ review plans & progress Appoints/Approves Board if Implemented City Manager / Broadband Director Council/Board updates on progress & decisions Executive oversight on the project Operate within the frameworkof authority delegated Establish pricing & fees for services, rate cards, etc Promotional programs and campaigns Marketing plan and materials Branding & logos Construction design & build out Strategic plan development Financial plan & reporting Governance Operational Authority ATTACHMENT 1 1.1 Packet Pg. 19 Attachment: PowerPoint Presentation (6447 : Broadband Update and Governance) 15 Rationale Governance Operational Authority • Provides elected official oversight & policy direction • Provides executive session review & approval of plans and progress • Will keep Council informed and knowledgeable • Provides necessary decision authority and responsiveness to dynamic market conditions and competition • Maintains strategic information confidentiality ATTACHMENT 1 1.1 Packet Pg. 20 Attachment: PowerPoint Presentation (6447 : Broadband Update and Governance) 16 Governance Due Diligence • Staff has identified two national experts on governance • Planned discussion on appropriate governance and operational authority • Richard LeBlanc – author of The Handbook of Board Governance • Ryan Goodrich ATTACHMENT 1 1.1 Packet Pg. 21 Attachment: PowerPoint Presentation (6447 : Broadband Update and Governance) 17 Council Questions What questions does Council have regarding the Council governance and the City Manager operational authority? ATTACHMENT 1 1.1 Packet Pg. 22 Attachment: PowerPoint Presentation (6447 : Broadband Update and Governance) DATE: STAFF: January 30, 2018 Lisa Rosintoski, Utilities Customer Connections Manager Randy Reuscher, Utility Rate Analyst WORK SESSION ITEM City Council SUBJECT FOR DISCUSSION Income Qualified Rate (IQR)/Low-Income Efficiency Programs. EXECUTIVE SUMMARY The purpose of this item is to receive feedback and direction from City Council on a proposed Income-Qualified Rate (IQR) that provides a discount utility rate to income-qualified customers. The IQR will position Utilities to increase adoption of efficiency and conservation actions with low-income customers in both rental and owner households. GENERAL DIRECTION SOUGHT AND SPECIFIC QUESTIONS TO BE ANSWERED 1. Does Council have the information to support a phased approach as recommended by staff? 2. Does Council support the establishment and launch of the IQR, in line with Time of Use launch, on October 1, 2018? BACKGROUND / DISCUSSION IQR was presented to City Council as part of the August 16, 2016 City Council Regular Meeting. The item’s First Reading was postponed to the September 6, 2016 Regular Meeting, at which point it was postponed from consideration indefinitely. On November 21, 2017, stemming from discussions of time-of-use (TOU) implementation’s potential impact on low-income customers, City Council directed staff to bring a discussion item on IQR and low-income efficiency forward for a City Council Work Session. Staff recommends a three-year phased approach to gather and analyze data before determining long term participation. Key deliverables of a three-year phased approach include: The desired outcome of an IQR is to create a system of bill payment assistance that provides a large-scale platform for low-income targeted efficiency and conservation results to be attained. Based on Larimer County participation in the Low-income Energy Assistance Program (LEAP) it is estimated that initially approximately 16-25% of eligible households may participate in the IQR at an annual cost of $300-500K between the three utility Enterprise Funds. As a mid-cycle appropriation request would be required to start this program in late 2018, initial funding would be from each utility enterprise’s Reserves. It is being recommended that the long-term funding source be from the portion of operating revenues that come from late bill 2 Packet Pg. 23 January 30, 2018 Page 2 payments rather than from increasing fixed or variable consumption charges. In 2017, late fee payments exceeded $600K. Income Qualified Rate Design Characteristics: 1. Adopt IQR in line with Time of Use rate implementation, October 1, 2018 2. Use a three-year phased approach to implement IQR a. Implement IQR discount based on LEAP qualification criteria. b. Gather data from IQR participants and other stakeholders to understand where the demographic lives in order to create efficiency and conservation strategies and tactics. c. Expand existing, and develop new, long-term low-income segment efficiency and conservation strategies and tactics that leverage IQR to increase participation. 3. Key policy and administrative design features staff recommendations: a. Funding: Operating revenues (specifically late fees) with a variable budget and annual true up. b. Discount applied to fixed and variable charges for each utility c. Benefit amount pegged to 2.6% of income, which is the utility burden of households earning the Area Median Income (AMI) d. Annual eligibility based on “opt out” process. e. Customer driven integration of efficiency programs. f. Outreach direct to customer and through service provider collaborations. g. Integrate Medical Assistance Program (MAP) customers, whose condition and eligibility is likely to persist, into IQR and dissolve MAP. h. Success Criteria: i. Percent of participants participating in efficiency programs ii. Percent of estimated low-income population participating in IQR. Community Need Many Fort Collins residents are cost-burdened in their housing expenses (Rent/mortgage and utility bills). According to American Community Survey (ACS) 2015 data, 47% of Fort Collins households earn less than $50,000 annually. In 2017 only 51% of homes sold were affordable to households earning area median income ($76,800). Resident who will qualify for Income Qualified Rate (IQR) at 165% of the Federal Poverty Level (FPL), which is the Low-Income Energy Assistance Program (LEAP) qualification level, earn much less than that. A household that is cost burdened has less to spend on childcare, healthcare, transportation, food, phone service, education, and other services that higher income earners take for granted, such as having internet access at home. IQR, as proposed, addresses a chronic income shortfall through both payment and efficiency assistance, expecting to place an additional ~$49 in the pockets of low-income households each month. Furthermore, an IQR may contribute to housing stability, which is linked to positive physical and mental health outcomes. Utilities Affordability Portfolio In 2014 Utilities completed a comprehensive review of its low-income targeted programs. Guided by key recommendations resulting from the review, staff structured Utilities approach to low-income assistance into a suite of programs, today known as Utilities Affordability Portfolio (UAP). UAP strategy considers long and short term financial assistance, basic and deep efficiency opportunities, as well as the integration of behavior change education and renewable energy whenever possible. While portfolio programs on average reached just over 900 households in the past five years, an estimated 9,000 customers in our community are low-income, earning less than 165% of the Federal Poverty Level (FPL). The desired outcome of an IQR is to create a system of bill payment assistance that provides a large-scale platform for low-income targeted efficiency and conservation results to be attained. Serving the Low-Income Segment with Resource Conservation IQR will serve as the platform that enables participation in Utilities programs that reduce bills, increase efficiency, and stabilizes customer payment patterns, especially for chronic low-customers. It will also allow Utilities to gather 2 Packet Pg. 24 January 30, 2018 Page 3 primary source feedback to improve the delivery of existing programs, and craft new initiatives, sensitive to this customer segment’s unique circumstances and consumption profile. Existing efficiency programs can provide some immediate impact for IQR customers. In addition, Utilities will be investigating how to scale the programs to enable more quickly reaching the estimated IQR participation of several thousand customers. • Larimer County Conservation Corp Energy and Water Program (LCCC). The LCCC Energy and Water program is a conservation initiative focused on affordability for customers via direct installation of efficiency products and education while providing young adult job training. The program is free to any Fort Collins Utilities electric customer. Since its inception the program has served over 3,000 households (approximately 400 per season). IQR will reduce the recruitment time required by LCCC so that more time can be dedicated to the direct installation and education elements of the program. Staff is also investigating whether the LCCC season can be extended via the Conservation Corp. • Colorado’s Affordable Residential Energy program (CARE). CARE, implemented by Energy Outreach Colorado (EOC), leverages EOC funding, utility rebates, and local resources to provide free energy efficiency services. CARE was developed to utilize prescriptive rebates from utilities to weatherize homes outside of the Weatherization Assistance Program’s (WAP) reach. The CARE program is now provided in Fort Collins and other Platte River cities through a partnership with EOC. The parties are investigating strategies to enable scaling the program to reach greater numbers of households. • Weatherization Assistance Program (WAP). The WAP provides comprehensive weatherization services to eligible low-income customers using federal funds administered by the State of Colorado. The program has prescriptive measure qualifications and is implemented by Long’s Peak Energy Conservation in Larimer County. The program has historically been able to improve 20-40 homes annually for Fort Collins Utilities customers. • Solar Affordability Program (SAP). The SAP utilizes a 64-kW solar system located in Fort Collins on the rooftop of a City Building at 518 Loomis to provide direct solar bill benefits to income-qualified customers. The SAP output is virtually net metered to a set of recipients whose program involvement includes a commitment to a structured efficiency process to reduce long term energy conservation. The solar benefit accrues for one year, and is then offered to a new set of eligible customers. SAP is in its first year of pilot operation serving approximately 20 income-qualified customers. The program review will help determine how best to integrate the SAP with IQR should the rate move forward. • Conservation Education: Utilities provides conservation education for both energy and water to both adults and youth through a range of strategies. Programs with specific education components include the Larimer County Conservation Corp, Solar Affordability Program and Efficiency Works Home. The IQR implementation will incorporate a structured efficiency and conservation education plan to include communications to all participants as well as opportunities for more detail, such as classes. In addition, the programmatic tools can leverage newly tailored conservation educational materials for IQR participants. There are several critical barriers which limit the effectiveness of Utilities efficiency efforts for the low-income segment. IQR linkage to improving efficiency results is directly related to reducing these barriers. • Identification of specific income-qualified customers with associated housing (single family, multi-family and mobile). With a specific list of customers, Utilities can better target actions specific to the housing type and recruit participation more effectively. For example, the Larimer County Conservation Corp direct install program could spend less time recruiting participation and more time completing household upgrades. • Identification of ownership and rental characteristics for low-income customers. Many, if not most, low-income customers reside in rental properties. IQR will enable staff to better characterize these patterns and focus resources on reaching owners with efficiency programs and services. New initiatives which will enable improved efficiency outcomes in tandem with the IQR include: • On-Bill Financing (OBF) 2.0. Staff is in the early phases of developing external sources of capital to be able to restart the on-bill financing program. Because this financing mechanism is available to property owners of rental housing, it could be a helpful tool to improve efficiency in this segment. 2 Packet Pg. 25 January 30, 2018 Page 4 • Income qualified rebate structures. Staff is researching whether enhanced rebates for income-qualified utility customers could make a significant difference in deployment of efficiency retrofits in this segment. • Rental registration. As described in a Council memo from November (Attachment 1), a rental licensing or registration approach would address the information and split incentive barriers to efficiency improvements. Note that efficiency is a secondary benefit to a rental licensing initiative; the primary purpose would be to ensure minimum health and safety standards. The anticipated result of an integrated IQR and efficiency initiative are financial relief and reduced energy consumption by participating customers. Over time, improvements in the housing stock will occur through the deeper efficiency retrofit programs for both tenants and owners. Increasing results of such efforts to improve housing stock efficiency serves the broader utility purpose of promoting energy and resource conservation for all rate payers. Engagement with customers will focus on increased resource conservation and educational activities. Specifically, by: 1. Establishing participation baselines by both premise and customer, allowing staff to better utilize several years of activity data across multiple programs. 2. Conducting participant surveys to understand barriers to resource conservation for this customer segment 3. Targeted communication on Utilities Affordability Portfolio programs. IQR Program Design Foundational to the proposed IQR is the concept that offering electric, water and wastewater rate discounts to income-qualified households can drive conservation behavior change and efficiency measure installation among a demographic that has been traditionally difficult to engage in conservation strategies. There are several important considerations when designing an IQR. Below are key policy and administrative design features staff recommends and are prepared to discuss in detail. Funding: Operating revenues (specifically late fees) with a variable budget and annual true up It is important the rate is supported with a stable, on-going funding source. Potential funding sources for an IQR include: • Utilities operating revenues – Use of late fee revenues could support the initial 25% of eligible customers without adjusting fixed or variable rate charges. • Utilities rates - Rate increase appropriation for residential and commercial customers. Rate increase applied to both fixed and variable rate charges. • General Fund - Funding through annual BFO appropriation. • Combination – Determine appropriate funding split and system of distribution. A variable budget will encourage maximum participation in the IQR, and will not cut off any eligible customers. Providing a rate on this scale will enable wide communication on efficiency and conservation opportunities. Staff recommends funds from each utility Enterprise Reserve be appropriated beginning in 2018, with possible rate modifications needed through the 2021-22 budget cycle specifically for this program. Discount applied to fixed and variable charges for each utility This ensures the same price signals are communicated to this segment of residential customers as are to the entire residential rate class. Benefit amount pegged to 2.6%, which is the utility burden of households earning the AMI 2 Packet Pg. 26 January 30, 2018 Page 5 In our community, the average household with income less than 165% of the FPL pays at least 4.6% of their income for electric, water and wastewater services. This compares to 2.6% of household income paid by households earning the AMI. Graph 1: Based on 2009-2013 US Census data. To establish equitable cost impacts across the residential rate class, staff recommends a maximum affordable percent of income of 2.6%. This would require a 42% discount be applied for IQR participants that have all three services. This equates to a: • 35% discount for electric • 45% discount for water • 50% discount for wastewater The table below highlights the average bill and discount for customers expected to qualify for the IQR at 2018 rates. Customers could see a $49 per month savings if they receive all three services, which equates to a 42% discount, on average. Annual eligibility based on “opt out” process. People with low incomes often have frequent application and renewal forms to complete for assistance with food, child care, medical insurance, rent assistance, and heating assistance, among others. Opt out enrollment in IQR based on LEAP qualification ensures IQR paperwork, transportation and overall accessibility is not a burden. 2 Packet Pg. 27 January 30, 2018 Page 6 Using LEAP as the qualifying mechanism for an opt out process does not allow us to vary the discount amount based on individual income. LEAP qualification simply indicates the customer earns less than 165% FPL. At no point is the City collecting actual income data. This design allows Utilities to reach a high number of customers with minimal administrative cost. Based on the latest ACS data there are an estimated 9,000 households earning less than 165% FPL are potentially eligible for the IQR. While up to 9,000 households are potentially eligible, not all those customers receive all services from Fort Collins Utilities. Additionally, many of these households are receiving a utilities subsidy through their housing arrangements and may not qualify for LEAP. Outreach direct to customer and through service provider collaborations. In the 2017 program year, 2318 households in Fort Collins zip codes qualified for LEAP. Utilizing Utilities Affordability Portfolio customer information, staff will steer customers to LEAP who may not be participating in that program yet. This will boost the number of customers participating in IQR. Outreach will be conducted in collaboration with time of use communication efforts, working with both internal and external partners. Outreach will include widely accessible mass communication tactics such as website and social media and targeted direct mail. Materials will be made available in Spanish and otherwise follow City language access guidelines. Notice of the proposed change to the Municipal Code will be published in the Coloradoan and a mailing will be sent to City electric customers outside of the city limits thirty days before Second reading, in the same manner as provided to annual rate update ordinances. Integrate Medical Assistance Program (MAP) customers, whose condition and eligibility is likely to persist, into IQR and dissolve MAP. The ~120 MAP customers will have communications specific to them and their unique circumstances. They are often on a fixed income, are elderly or disabled, and have a condition that is likely to persist. To continue to assist the small number of MAP customers who may earn more than 165% FPL, staff recommends migrating MAP customers to IQR without a need for recertification, and the MAP program be dissolved. Through primary research, staff estimates 10 MAP customers fit this profile. Success Criteria: • Percent of participants also participating in energy efficiency programs • Percent of estimated low-income population participating in IQR. Phased Implementation 2 Packet Pg. 28 January 30, 2018 Page 7 Key information a phased IQR implementation will provide City Council in determining rate-payer benefits are: • Learn information in first year that guide affordability program development or enhancements opportunities. • Impact on adoption of conservation behaviors among income-qualified customers, measured through aggregate actual usage data and IQR participant survey information. • Impact on efficiency measure installation among income-qualified customers, measured through before and after program participation comparison; and CITY FINANCIAL IMPACTS Based on Larimer County participation in the Low-income Energy Assistance Program (LEAP) it is estimated that initially approximately 16-25% of eligible households may participate in the IQR at an annual cost of $300-500K between the three utility Enterprise Funds. As a mid-cycle appropriation request would be required to start this program in late 2018, initial funding would be from each utility enterprise’s Reserves. It is being recommended that the long-term funding source be from the portion of operating revenues that come from late bill payments rather than from increasing fixed or variable consumption charges. This funding approach is the same approach that the Colorado Public Utility Commission requires of Xcel Energy. In 2017, late fee payments exceeded $600K. Unique Households that receive any one service (Electric OR Water OR Wastewater) 9,000 Number of Customers that receive ALL 3 services 1,120 Service Total Number of Households per Service in Ft Collins Number of households that may qualify for IQR Customers Enrolled assuming 25% Enrollment Average 2018 Discount $ Impact Electric 57,913 6,955 1,738.75 $ 17.65 $ 368,267 Water 22,283 1,486 371.50 $ 14.67 $ 65,399 Wastewater 27,543 1,930 482.50 $ 16.73 $ 96,867 Total $ 530,533 If enrollment increases significantly, it may be necessary to consider other operating revenues or funding sources for supplemental funds. Research shows enrollment of 75% or more in rate assistance programs is challenging to achieve. It is in consideration of these variables staff estimates the long term financial impact an IQR. If participation levels ultimately reached 65%, at 2018 rates the impact would be roughly $1.35 million, as shown by fund in the table below. 2 Packet Pg. 29 January 30, 2018 Page 8 ATTACHMENTS 1. Memo November 16, 2017 (PDF) 2. PowerPoint Presentation (PDF) 2 Packet Pg. 30 ATTACHMENT 1 2.1 Packet Pg. 31 Attachment: Memo November 16, 2017 (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency Programs) ATTACHMENT 1 2.1 Packet Pg. 32 Attachment: Memo November 16, 2017 (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency Programs) ATTACHMENT 1 2.1 Packet Pg. 33 Attachment: Memo November 16, 2017 (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency Programs) ATTACHMENT 1 2.1 Packet Pg. 34 Attachment: Memo November 16, 2017 (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency Programs) ATTACHMENT 1 2.1 Packet Pg. 35 Attachment: Memo November 16, 2017 (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency Programs) ATTACHMENT 1 2.1 Packet Pg. 36 Attachment: Memo November 16, 2017 (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency Programs) 1 Income-Qualified Rate (IQR) and Low-Income Efficiency and Conservation January 30, 2018 ATTACHMENT 2 2.2 Packet Pg. 37 Attachment: PowerPoint Presentation (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency Low Income Program Alignment 2 Strategic Alignment • Neighborhood Livability & Social Health • High-Performing Government Service Delivery • Efficiency and Conservation • Financial Assistance ATTACHMENT 2 2.2 Packet Pg. 38 Attachment: PowerPoint Presentation (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency Questions to City Council  Does Council support the phased approach, as recommended by staff?  Does Council support the establishment and launch of IQR, in line with Time-of-Use (TOU) launch Oct. 1? 3 ATTACHMENT 2 2.2 Packet Pg. 39 Attachment: PowerPoint Presentation (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency Community Need 4 “When I was here as a kid, Fort Collins was reasonably priced. Now it’s so expensive. A three-bedroom, one-bath apartment rents for around $1,500 a month.” – Joe, PAF recipient Expense Type Monthly Cost Housing $ 1,452 Child Care $ 1,457 Food $ 866 Transportation $ 496 Health Care $ 517 Miscellaneous $ 423 Taxes $ 976 TOTAL $ 6,187 ATTACHMENT 2 2.2 Packet Pg. 40 Attachment: PowerPoint Presentation (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency Community Need 5 Household Size Maximum Gross Monthly Income Annual Income 1 $ 1,658 $ 19,896 2 $ 2,233 $ 26,796 3 $ 2,808 $ 33, 696 4 $ 3,383 $ 40,596 5 $ 3,958 $ 47,496 LEAP Qualification: 165% Federal Poverty Limit ~9,000 households ATTACHMENT 2 2.2 Packet Pg. 41 Attachment: PowerPoint Presentation (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency Affordability Portfolio Timeline 6 2004 Payment Assistance Fund established 2012 Medical Assistance Program established 2014 Review of low-income assistance 2015 Utilities Affordability Portfolio (UAP) implementation 2016 IQR indefinite postponement 2017 TOU adopted; review of IQR 2018 Introduce IQR with TOU 2020 IQR recommendations to Council 2019 Gather IQR data ATTACHMENT 2 2.2 Packet Pg. 42 Attachment: PowerPoint Presentation (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency Our Role as a Utility 7 Develop Energy Efficiency Opportunities Support Financial Assistance Opportunities Efficiency and Conservation Education Funding Administration Efficiency and Conservation Education Funding Rates ATTACHMENT 2 2.2 Packet Pg. 43 Attachment: PowerPoint Presentation (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency Comprehensive Customer Assistance 8 Efficiency Installations Bill Payment Assistance Basic Retrofits Renewables Deep Retrofits Long-Term Assistance Renewables Short-Term (Emergency) Assistance Education and Behavior Change UTILITIES AFFORDABILITY PORTFOLIO ATTACHMENT 2 2.2 Packet Pg. 44 Attachment: PowerPoint Presentation (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency Critical Partnerships 9 ATTACHMENT 2 2.2 Packet Pg. 45 Attachment: PowerPoint Presentation (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency Portfolio Performance 10 $85 $194 2004-2012 2013-2017 Average Assistance Per Household 558 983 2004-2015 2016-2017 Average Households Served Annually $32,522 $103,738 $124,384 $225,000 2015 2016 2017 2018 projected Payment Assistance Fund Household Assistance ATTACHMENT 2 2.2 Packet Pg. 46 Attachment: PowerPoint Presentation (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency Existing Efficiency Programs 11 Larimer County Conservation Corps (LCCC) Colorado Affordable Residential Energy (CARE) Solar Affordability Program (SAP) Medical Assistance Program (MAP) Payment Assistance Fund (PAF) ATTACHMENT 2 2.2 Packet Pg. 47 Attachment: PowerPoint Presentation (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency Potential Efficiency Programs 12 Income- Qualified Rebates Expanded LCCC Income- Qualified Rate Building Energy Scoring On-Bill Financing 2.0 Income- Qualified Rebates ATTACHMENT 2 2.2 Packet Pg. 48 Attachment: PowerPoint Presentation (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency Affordability Portfolio Timeline 13 2004 Payment Assistance Fund established 2012 Medical Assistance Program established 2014 Review of low-income assistance 2015 Utilities Affordability Portfolio (UAP) implementation 2016 IQR indefinite postponement 2017 TOU adopted; review of IQR 2018 Introduce IQR with TOU 2020 IQR recommendations to Council 2019 Gather IQR data ATTACHMENT 2 2.2 Packet Pg. 49 Attachment: PowerPoint Presentation (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency IQR Implementation 14 2004 Payment Assistance Fund established 2012 Medical Assistance Program established 2014 Review of low-income assistance 2015 Utilities Affordability Portfolio (UAP) implementation 2016 IQR indefinite postponement 2017 TOU adopted; review of IQR 2018 Introduce IQR with TOU 2020 IQR recommendations to Council 2019 Gather IQR data ATTACHMENT 2 2.2 Packet Pg. 50 Attachment: PowerPoint Presentation (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency IQR Data: Utility Costs 15 AMI - Area Median Income $74K FPL - Federal Poverty Level $24K ATTACHMENT 2 2.2 Packet Pg. 51 Attachment: PowerPoint Presentation (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency IQR Data: Utility Costs 16 % Participation Expected Cost % Operating Revenue * 25% $530K 0.3% 50% $1.1M 0.6% 75% $1.6M 0.9% * Combined Operating Revenues were $182.6M in 2017 ATTACHMENT 2 2.2 Packet Pg. 52 Attachment: PowerPoint Presentation (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency IQR Implementation 17 • Launch with TOU • “Opt out” LEAP qualification process • Funded from reserves FALL 2018 Update Council on program participation and impacts FALL 2019 • Criteria to remain in program adopted • Long term funding identified FALL 2020 ATTACHMENT 2 2.2 Packet Pg. 53 Attachment: PowerPoint Presentation (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency Questions to City Council  Does Council support the phased approach, as recommended by staff?  Does Council support the establishment and launch of IQR, in line with Time-of-Use (TOU) launch Oct. 1? 18 ATTACHMENT 2 2.2 Packet Pg. 54 Attachment: PowerPoint Presentation (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency 19 ATTACHMENT 2 2.2 Packet Pg. 55 Attachment: PowerPoint Presentation (6423 : Income Qualified Rate (IQR) / Low-Income Efficiency