LA100 Equity Strategies. Chapter 5: Low-Income Energy Bill Equity and Affordability
The LA100 Equity Strategies project integrates community guidance with robust research, modeling, and analysis to identify strategy options that can increase equitable outcomes in Los Angeles' clean energy transition.This chapter focuses on utility rates and low-income bill assistance programs as means to improve energy affordability, which is one of the community's highest priorities.Specifically, NREL developed a model using Los Angeles Department of Water and Power (LADWP)-specific inputs to test 2035 rate design and low-income assistance program scenarios.Utility bills were modeled based on the hourly household energy usage (electricity and gas) of each of the 50,000 prototypical LADWP residential households NREL developed with unique combinations of housing types (single-family, multifamily), climate zones, insulation levels, appliances, heating and cooling systems, solar adoption and generation, renter or owner occupancy, and income levels.We evaluated the results to assess the relative efficacy of each approach in reducing bills for LADWP's low-income households using customer affordability and equity metrics including energy burden and hours worked at minimum wage.NREL modeling and results are bounded by LADWP-provided projected revenue requirements as of March 2023.Revenue forecasts were not validated due to lack of data and thus may overstate or understate actual future costs.Also, because we focused solely on affordability and equity impacts to low-income households, this work does not represent a holistic analysis of rate design.Research was guided by input from the community engagement process, and associated equity strategies are presented in alignment with that guidance. Community GuidanceGuidance from the LA100 Equity Strategies Steering Committee, listening sessions with community-based organizations and community members, and community meetings yielded the following:1 Federal Weatherization Assistance Program-eligible households are those living at or below 200% of U.S. federal poverty guidelines. 2 These funds were spent as part of the EZ-SAVE program. 3 Lifeline program eligibility is based on income qualification for customers who are 62 years of age or older or who are permanently disabled.viii communities, 4 and mostly non-White, Hispanic, renter, and lower-income census tracts.Despite these significant program investments, the same demographic groups have the most utility disconnections stemming from bill payment failures.In 2022, LADWP ended its practice of disconnects for a limited set of customers (primarily EZ-SAVE enrollees and Lifeline customers) as a debt collection tool (Haley Smith 2022).Although long-term low-income assistance investments have been significant, LADWP's January 2022 Rates and Equity Metrics Board Package noted the low-income assistance program has "minimal outreach efforts by LADWP to customers," "no targeted communications to customers," "no formal engagement with community-based organizations," and has experienced a "reduction in customers recertifying for the program" (Santilli, Ann and Adams, Martin 2022). Key FindingsContinuing LADWP's current rate design and low-income assistance programs through 2035 is estimated to result in low-income 5 households experiencing disproportionately higher bill increases.Under the existing LADWP rate design and low-income assistance programs, modeling indicates average electricity bills will increase by $83/month across all households between 2019 and 2035 (a 79% increase), while low-income households see an average expected increase of $110/month (a 131% increase). 6Electricity bill affordability metrics modeled for 2035 include: Average electricity burdens, or the percentage of income spent on electricity bills, by income level. Average monthly electricity bills by income level. Average hours worked at minimum wage required to pay for monthly electricity bills, per income level.7 The 15 rate periods are based on the intersection of (1) a three-tier, two-season set of tiered rates and (2) a fourseason set of incremental ordinances (see Appendix C). 8 NREL modeled a tiered "inclining block rate" structure recommended by the California Public Utilities Commission, which charges customers more per kilowatt-hour as their usage increases past certain thresholds (or blocks). 9LADWP does not currently have the smart meter infrastructure required to implement default TOU rates, but it is assumed that by 2035 sufficient metering infrastructure is in place. 10Note that even customers eligible for CARE and FERA that are not ultimately enrolled shoulder the transfer costs associated with participating customers.
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