10. Assignment of Proceeding
Geoffrey F. Brown is the assigned Commissioner and Glen Walker is the Assigned ALJ in this proceeding.
1. GO 95 governs the construction of overhead electrical supply and communications systems.
2. GO 95 currently does not contain specific rules for the installation of wireless antennas on utility poles.
3. Commission staff, industry representatives, labor representatives, and other members of the public participated in seven days of public workshops devoted to developing a proposed new Rule 94 concerning wireless antennas.
4. On September 12, 2005, the parties submitted a joint workshop report that included three alternative proposals for a new Rule 94 that would establish uniform construction standards for the attachment of wireless antennas to jointly used utility poles.
5. Proposal 1 for Rule 94 was sponsored by CPSD, IBEW, Communications Workers, PG&E, and SDG&E.
6. Proposal 2 for Rule 94 was sponsored by SCE and was supported by Crown Castle USA, Inc.; Cingular Wireless; NextG Networks; Sprint Nextel; Omnipoint Communications, Inc. dba T-Mobile; Verizon Wireless; and intervenor William Adams.
7. Proposal 3 for Rule 94 was sponsored by William Adams, but later was withdrawn.
8. On February 24, 2005, the Commission issued an OIR that proposed revisions to GO 95 that would establish uniform construction standards for attaching wireless antennas to jointly used poles and towers.
9. On July 18, 2006, parties, pursuant to Rule 84 of the Rules of Practice and Procedure, filed a joint petition to allow them to pursue settlement discussions.
10. The joint petition was granted on July 20, 2006.
11. On July 28, 2006, PG&E provided notice of a conference regarding a proposed settlement of the disputed issues in this proceeding, and the conference was held on August 4, 2006.
12. An unopposed settlement agreement by the parties was presented to the Commission on August 23, 2006.
13. The settlement agreement was signed by CPSD; IBEW; Communications Workers; PG&E; AT&T California; CCTA; Clearlinx Network Corporation; Crown Castle USA, Inc.; New Cingular Wireless PCS, LLC; NextG Networks of California Inc.; Omnipoint Communications, Inc., dba T-Mobile; Southern California Edison Company; Sprint Nextel; Verizon California Inc.; Verizon Wireless; and William Adams.
14. The settling parties agreed to support a new Rule 94 that would be identical to Proposal 1, with the exception of Rule 94.6 and Rule 94.7. All other disputed issues relating to Rule 94 were resolved to the satisfaction of all signing parties through private agreements between signatory utilities and antenna owners.
15. The Rule 94 agreed to in the settlement would clearly define antennas; treat antennas as Class C equipment, thereby establishing many construction requirements; provide additional vertical clearances from other conductors and equipment; maintain vertical clearances from the ground; and require a sign for each antenna installation marked with the contact information of the antenna operator.
16. A marking requirement consisting of the identity of the antenna operator, a 24-hour contact number for emergencies and information, and a unique identifier for the antenna installation will help linemen coordinate operations with antenna operators.
17. A vertical clearance between a supply conductor and antenna of less than six feet could create a physical obstruction for workers.
18. A uniform six foot vertical clearance requirement would safeguard utility employees and provide clear guidance to antenna installers.
19. SCADA antennas typically are installed within the electric supply space of a distribution pole.
20. Electric workers have the ability to turn off the power to SCADA antennas.
21. The settlement agreement requires signatory antenna owners to provide additional pole mounted signage on joint use utility poles. This signage must describe compliance with the FCC exposure limits for each antenna installation and identify the FCC's recommended minimum approach distance.
22. The settlement agreement requires protocols for de-energizing antennas that emit RF energy in excess of the FCC's General Population/Uncontrolled maximum exposure limits.
23. The settlement provides safeguards for line crews working on utility poles.
24. Utility employees are safeguarded by requiring antenna installations to be subject an agreement with the pole owner(s) that includes marking and de-energizing protocols that are substantially similar to and achieve at least the same safety standards as those set forth in the settlement agreement.
25. Public and utility employee safety requires that the provisions of Rule 94, as set forth in Appendix 1, be adopted as part of GO 95.
1. The Public Utilities Code establishes that safety issues may be subject to Commission regulation.
2. Markings that consist of the identity of the antenna operator, a 24-hour contact number for emergencies and information, and a unique identifier for the antenna installation should be required.
3. It is reasonable to require that antenna installations are subject to an agreement with the pole owner(s) that includes marking and de-energizing protocols that are substantially similar to and achieve at least the same safety standards as those set forth in the settlement agreement adopted herein. Antenna owners or operators not covered by the settlement agreement may file an advice letter with the Commission to ensure its antenna installation(s) are subject to an agreement that includes marking and de-energizing protocols that are substantially similar to and achieve at least the same safety standards as those set forth in the settlement agreement.
4. A six-foot vertical clearance requirement should be adopted to protect workers from electric shock.
5. It is reasonable to exclude supply and strand-mounted antennas from the requirements of proposed Rule 94.
6. Rule 94 as set forth in Appendix 1 of this decision should be approved and adopted, because public and utility employee safety so requires.
7. The settlement agreement set forth in Appendix 1 of this decision should be approved, because it is reasonable in light of the whole record, consistent with law, and in the public interest.
8. Rule 94 should become effective prospectively 180 days after issuance of the final decision in this proceeding.
IT IS ORDERED that:
1. General Order (GO) 95 is amended to incorporate Rule 94 and the amendment to Rule 20.0, as set forth in Appendix 1 attached hereto and made part hereof.
2. The revisions to GO 95 authorized today will become effective prospectively 180 days after the date of today's decision.
3. The settlement agreement is approved and attached as reference to GO 95 as Appendix H of GO 95.
4. Rulemaking 05-02-023 is closed.
This order is effective today.
Dated February 15, 2007, at San Francisco, California.
MICHAEL R. PEEVEY
President
DIAN M. GRUENEICH
JOHN A. BOHN
RACHELLE B. CHONG
Commissioners
APPENDIX 1
New GO 95, Rule 20 (Definition)
20.0 Antenna means a device for emitting and/or receiving radio frequency signals.
New GO 95, Rule 94 - Antennas
94.1 Definition (See Rule 20.0)
94.2 Maintenance and Inspection (See Rules 31.1 and 31.2)
94.3 General Requirements
On joint use poles supporting Class T, C, L or H Circuits (up to 50 kV), the following shall apply:
A. Antennas shall meet the requirements of Class C equipment, unless otherwise specified in this rule.
B. All associated elements of the antenna (e.g. associated cables, messengers, and pole line hardware) shall meet the requirements of Class C circuits.
94.4 Clearances
A. Antennas and supporting elements (e.g. crossarms, brackets) shall maintain a vertical clearance of 6 feet from Supply Conductors operating at 0 - 50kV. (See Figure 94-1)
B. Antennas and supporting elements (e.g. crossarms, brackets) shall maintain a 2 ft. vertical separation from communication conductors and equipment. (See Figure 94-2)
C. Antennas shall maintain a 2 ft. horizontal clearance from centerline of pole. (See Figures 94-1 and 94-2)
D. Antennas shall have a vertical clearance above ground as specified in Table 1, Column B, Cases 1 to 6a.
94.5 Marking
A. No antenna owner or operator shall install an antenna on a joint use pole unless such installation is subject to an agreement with the pole owner(s) that includes marking requirements that are substantially similar to and achieve at least the same safety standards as those set forth in Appendix H to GO 95.
B. Joint use poles shall be marked with a sign for each antenna installation as follows:
(1) Identification of the antenna operator
(2) A 24-hour contact number of antenna operator for Emergency or Information
(3) Unique identifier of the antenna installation.
94.6 De-energizing
No antenna owner or operator shall install an antenna on a joint use pole unless such installation is subject to an agreement with the pole owner(s) that includes de-energizing protocols that are substantially similar to and achieve at least the same safety standards as those set forth in Appendix H to GO 95.
Exceptions:
Antennas utilized by utilities for the sole purpose of operating and monitoring their supply system are exempt from this rule and shall only meet the construction and clearance requirements of supply equipment.
Antennas embedded in or attached to communication cables and messengers are exempt from this rule and shall only meet the construction requirements for Class C circuits.
Appendix H to GO 95
SETTLEMENT AGREEMENT AMONG AT&T CALIFORNIA, CALIFORNIA CABLE & TELECOMMUNICATIONS ASSOCIATION, CLEARLINX NETWORK CORPORATION, COMMUNICATIONS WORKERS OF AMERICA DISTRICT 9, CONSUMER PROTECTION AND SAFETY DIVISION, CROWN CASTLE USA INC., INTERNATIONAL BROTHERHOOD OF ELECTRICAL WORKERS LOCAL 1245, NEW CINGULAR WIRELESS PCS, LLC, NEXTG NETWORKS OF CALIFORNIA INC., OMNIPOINT COMMUNICATIONS, INC., dba T-MOBILE, PACIFIC GAS AND ELECTRIC COMPANY, SOUTHERN CALIFORNIA EDISON COMPANY, SPRINT NEXTEL, VERIZON CALIFORNIA INC., VERIZON WIRELESS AND WILLIAM ADAMS
In accordance with Rule 51.1 of the California Public Utilities Commission's (Commission) Rules of Practice and Procedure, AT&T California, California Cable & Telecommunications Association, Clearlinx Network Corporation, Communications Workers of America District 9, Consumer Protection and Safety Division, Crown Castle USA, Inc., International Brotherhood of Electrical Workers Local 1245, New Cingular Wireless PCS, LLC, NextG Networks of California Inc., Omnipoint Communications, Inc., dba T-Mobile, Pacific Gas and Electric Company, Southern California Edison Company, Sprint Nextel, Verizon California Inc., Verizon Wireless and William Adams (collectively, the "Settling Parties") hereby enter into this Settlement Agreement (Agreement) to resolve all issues among the Settling Parties in Rulemaking (R.) 05-02-023, Order Investigation Rulemaking to consider uniform rules for attaching wireless antennas to jointly used poles.
RECITALS
1. On February 24, 2005, the Commission issued an Order Instituting Rulemaking in R.05-02-023 to consider a new rule to GO 95 to establish uniform construction standards for attaching wireless antennas to jointly used utility poles.
2. Evidentiary hearings were conducted in the proceeding on February 7-9, 2006,
during which the Commission heard testimony from nine witnesses and received 22 exhibits into evidence.
3. Opening and reply briefs were filed on March 13 and 28, 2006, respectively, at which time the matter was submitted for Commission decision.
4. On April 25, 2006, the Assigned Administrative Law Judge, ALJ Walker, issued his Proposed Decision ("the PD"). Opening and Reply Comments on the PD were filed on May 15 and 22, 2006, respectively. ALJ Walker has issued two revised versions of his Proposed Decision, which adopted Proposal 1 in its entirety, including the provisions of Rule 94.6 and 94.7.
5. On July 18, 2006, several parties in the proceeding submitted a joint petition to set aside submission of the proceeding pursuant to Rule 84 of the Commission's Rules of Practice and Procedure. The petition requested the Commission set aside the submission of the proceeding temporarily to allow the parties to pursue settlement discussions. On July 20, 2006, Assigned Commissioner Geoffrey F. Brown and Administrative Law Judge Michelle Cooke ruled that the parties shall submit any settlement on or before August 10, 2006.
6. Pursuant to Rule 51.1(b) of the Commission's Rules of Practice and Procedure, on July 28, 2006, the Settling Parties served notice of a settlement conference to be held telephonically on August 4, 2006.
7. On August 4, 2006, the settlement conference was held as scheduled. Following the settlement conference, the Settling Parties continued settlement discussions, resulting in this Agreement.
SETTLEMENT AGREEMENT
In order to resolve disputed issues of fact and law and settle on a mutually acceptable outcome to the proceeding with due regard for public and worker safety concerns, and subject to the Recitals and reservations set forth in this Agreement, the Settling Parties hereby agree that this Agreement resolves all disputed issues relating to Rule 94.6 and Rule 94.7 raised in this proceeding.
The Agreement is presented to the Commission pursuant to Rule 51 of the Commission's Rules of Practice and Procedure.
The Settling Parties agree that, in the event any party, as a joint owner, lessee or licensee ("Antenna Owner/Operator") seeks to install or causes the installation of an Antenna (as defined in General Order (GO) 95 Rule 20.0) on a joint use utility pole, it is agreed that:
1. Markings Related to the FCC's MPE Limits.
The Antenna Owner/Operator shall provide, and update as necessary, accurate information regarding compliance with the Federal Communications Commission's Maximum Permissible Exposure (MPE) limits as set forth in Title 47 of the Code of Federal Regulations (CFR) for each particular Antenna installation. The Antenna Owner/Operator shall communicate such information through the use of a pole mounted marking as described in Exhibit A
(Additional Marking Requirements) and in writing to the other utilities and/or companies with facilities affixed to the pole in accordance with Paragraph 4 of this Agreement.
2. Means of De-energizing Antennas.
The Antenna Owner/Operator shall not install an Antenna on a joint use pole that emits RF energy in excess of the FCC's General Population/Uncontrolled maximum permissible exposure limits as set forth in 47 C.F.R. or effect a change to an existing Antenna site that will cause that Antenna to emit RF energy in excess of the FCC's General Population/Uncontrolled maximum permissible exposure limits as set forth in 47 C.F.R. except by providing to any other utility or company with facilities attached to the affected pole, a locally verifiable means to de-energize said Antenna. The protocols set forth in Exhibit B shall apply to non-emergency or routine working conditions. The protocols set forth in Exhibit C shall apply to emergency working conditions.
3. Exemption.
The provisions of this Agreement shall not apply to Antennas that are exempt from the provisions of General Order 95, Rule 94.
4. Adoption of Operating Procedures.
The Settling Parties further agree to memorialize the agreements set forth in Section 1 and 2 of this Agreement (including the procedures and protocols to be adopted thereunder) in separate, private agreements with affected utilities, companies or municipalities or in the Northern California Joint Pole Association's Operating Routine. Such agreements and procedures shall be adopted in a timely manner and Settling Parties agree to execute any and all supplementary documents and take all actions which may be necessary or appropriate to give full force and effect to the terms and intent of this Agreement.
5. Commission Approval of Settlement and Modification of Rule 94.
The Settling Parties shall jointly request Commission approval of this Agreement and that the Commission adopt Rule 94, as that rule is set forth in Exhibit 1 of the Proposed Decision of ALJ Walker (mailed April 25, 2006), with the exception of provisions 94.6 and 94.7, which the parties stipulate should be removed from the rule. The Settling Parties additionally agree to actively support prompt approval of the Agreement and adoption of the modified Rule 94. Active support may include briefing, comments on the proposed decision, written and oral testimony, if testimony is required, appearance at hearings, and other means as needed to obtain the approvals sought. The Settling Parties further agree to participate jointly in briefings to Commissioners and their advisors, either in-person or by telephone, as needed regarding the Agreement and the issues compromised and resolved by it.
6. This Agreement is contingent upon (1) the Commission approving the terms and conditions herein as reasonable, and adopting it unconditionally and without modification, and (2) the Commission adopting the modified Rule 94 as provided in Paragraph 5, above. Upon satisfaction of these contingencies, the Settling Parties agree to waive any and all rights to challenge and/or appeal in any state or federal forum the Commission's decision in this proceeding.
7. The Settling Parties agree to negotiate in good faith to resolve any dispute arising out of the implementation, interpretation or alleged breach of this Agreement. In the event such negotiations are unsuccessful, the Settling Parties may seek appropriate relief from the Commission. Such proceeding before the Commission will be limited to determining whether there has been a breach of this Agreement and ordering appropriate relief. In the event any of the Settling Parties do not reach agreement on the protocols described in this Agreement, the Commission may mediate a resolution between those Settling Parties. Nothing herein is intended to expand or restrict the jurisdiction of the Commission and the Settling Parties retain all of their rights with respect thereto.
8. The Settling Parties agree that this Agreement represents a compromise of positions, without agreement or endorsement of disputed facts and law presented by the Settling Parties in the proceeding.
9. This Agreement and the covenants and agreements contained herein shall be binding on, and inure to the benefit of, the parties hereto and their respective heirs, successors and assigns. The Settling Parties further agree and acknowledge that this Agreement and the covenants and agreements contained herein shall remain binding on the Settling Parties, notwithstanding the expiration of the term of any contract, lease or license relating to the use of a joint use pole.
10. This Agreement embodies the entire understanding and agreement of the Settling Parties with respect to the matters described herein, and, except as described herein, supersedes and cancels any and all prior oral or written agreements, principles, negotiations, statements, representations or understandings among the Settling Parties relating to the use of joint use poles.
11. The Settling Parties have bargained earnestly and in good faith to achieve this Agreement. The Settling Parties intend the Agreement to be interpreted and treated as a unified, interrelated agreement.
12. Each of the Settling Parties hereto and their respective counsel and advocates have contributed to the preparation of this Agreement. Accordingly, the Settling Parties agree that no provision of this Agreement shall be construed against any Party because that Party or its counsel or advocate drafted the provision.
13. Each of the Settling Parties represents that it is duly authorized to enter into this Agreement, and each person signing on behalf of an entity represents that he or she is duly authorized to sign on behalf of that entity.
14. This document may be executed in counterparts, each of which shall be deemed an original, but all of which together shall constitute one and the same instrument.
15. This Agreement shall become effective among the Settling Parties on the date the last Party executes the Agreement as indicated below.
16. In witness whereof, intending to be legally bound, the Settling Parties hereto have duly executed this Agreement on behalf of the Settling Parties they represent:
AT&T California
By:
Its:
California Cable & Telecommunications Association
By:
Its:
Clearlinx Network Corporation
By:
Its:
Communications Workers of America District 9
By:
Its:
Consumer Protection and Safety Division
By:
Its:
Crown Castle USA Inc.
By:
Its:
International Brotherhood of Electrical Workers Local 1245
By:
Its:
New Cingular Wireless PCS, LLC
By:
Its:
NextG Networks of California, Inc.
By:
Its:
Omnipoint Communications, Inc., dba T-Mobile
By:
Its:
Pacific Gas and Electric Company
By:
Its:
Southern California Edison Company
By:
Its:
Sprint Nextel
By:
Its:
Verizon California Inc.
By:
Its:
Verizon Wireless
By:
Its:
William Adams
By:
EXHIBIT A
ADDITIONAL MARKING REQUIREMENTS
Antenna Owner/Operators are responsible for the installation and upkeep of their sign or signs at each joint use site.
a. In addition to the requirements of GO 95, Rule 94.5 (Marking), at a minimum, each Antenna Owner/Operator will also affix a sign that:
(i) identifies the applicable FCC exposure category (General Population/Uncontrolled or Occupational/Controlled);
(ii) identifies the FCC's recommended minimum approach distance as set forth in 47 C.F.R.; and
(iii) is of weather and corrosion resistant material.
b. The Antenna Owner/Operator will place the sign so that it is clearly visible to workers who otherwise climb the pole or ascend by mechanical means and affix said sign:
(i) no less than three (3) feet below the Antenna (measured from the top of the sign); and
(ii) no less than nine (9) feet above the ground line (measured from the bottom of the sign).
c. The Antenna Owner/Operator may install a single sign that contains the information required by GO 95, Rule 94 and section (a) above, or separate signs. In the event one or more Antennas are affixed to a pole, each Antenna Owner/Operator shall provide a sign with sufficient information to allow workers to identify its Antennas.
EXHIBIT B
PROTOCOL FOR DE-ENERGIZING ANTENNAS IN NON-EMERGENCY OR ROUTINE WORKING CONDITIONS
In the event an Antenna subject to Section 2 needs to be de-energized to perform non-emergency work, e.g., routine maintenance and/or repairs, on a joint use distribution pole, the following shall apply:
a. The utility or company shall contact the Antenna Owner/Operator (in the case of a wireless carrier they shall contact the carrier's Network Operations Center) with a minimum of twenty-four (24) hours advance notice. The following information shall be provided:
i) identity of the utility/company representative and call back number
ii) the unique identifier of the Antenna
iii) the site address and/or location, if available
b. The Antenna Owner/Operator shall de-energize the Antenna at the requested time or at a time otherwise mutually agreed upon with the utility.
c. The procedures for de-energizing the subject Antenna shall provide the requesting utility or company with a satisfactory on-site means to verify the Antenna is de-energized.
d. Upon completion of the work on the site, the utility or company shall contact the Antenna Owner/Operator (in the case of a wireless carrier, its Network Operations Center shall be contacted) to inform them that the Antenna may be re-energized.
e. The Antenna shall not be re-energized by the Antenna Owner/Operator without confirmation from the utility or company.
f. The requesting utility or company will only re-energize the Antenna with the Antenna Owner/Operator's prior written consent.
EXHIBIT C
PROTOCOL FOR DE-ENERGIZING ANTENNAS IN EMERGENCY WORKING CONDITIONS
In the event an Antenna subject to Section 2 needs to be de-energized in emergency working conditions, i.e., in a situation where there is an imminent or actual danger to public or worker safety necessitating immediate and non-routine work on the pole, for example in direct response to a fire, explosion, lightning, storm, earthquake, vehicular accident, terrorism, or some other unanticipated and catastrophic event, the following shall apply:
a. The utility or company shall make a good faith effort to contact the Antenna Owner/Operator (in the case of a wireless carrier they shall contact the carrier's Network Operations Center). The following information shall be provided:
i) identity of the utility/company representative and call back number
ii) the unique identifier of the Antenna
iii) the site address and/or location, if available
iv) state nature of the emergency and/or site condition.
b. The Antenna Owner/Operator shall de-energize the Antenna upon request in emergency working conditions.
c. If the requesting utility or company is unable to contact the Antenna Owner/Operator, the requesting utility or company shall de-energize the subject antenna pursuant to mutually agreed upon procedures for that particular type of equipment or by using any necessary means available. The procedures for de-energizing the subject Antenna referred to above shall provide the requesting utility or company with a satisfactory on-site means to de-energize the Antenna that is verifiable.
d. Upon the completion of any necessary work to address the emergency, the utility or company shall notify the Antenna Owner/Operator (in the case of a wireless carrier, its Network Operations Center shall be contacted) that all work has been completed so that the Antenna Owner/Operator can take any necessary actions to re-energize the site.
e. The Antenna shall not be re-energized by the Antenna Owner/Operator without confirmation from the utility or company.
f. The requesting utility or company will only re-energize the Antenna with the Antenna Owner/Operator's prior written consent.
(END OF APPENDIX 1)
************ APPEARANCES ************ |
Robert L. Ritter |
Barry F. Mc Carthy |
Grant Guerra |
Aimee M. Smith |
Edward R. Mcgah, Jr. |
Peter Hanson |
George Granger |
Donald E. Hooper |
Peter Van Mieghem |
Case Administration |
Casey Hashimoto |
(END OF APPENDIX A)
