Election Day yielded few bright spots for the transition to clean energy, but there was one in Ann Arbor, Michigan. The city of nearly 120,000 voted 79 percent in favor of a measure to create a “sustainable energy utility” (SEU) that will supplement the existing grid and help residents shift to cleaner, more reliable energy.
With that overwhelming approval, city officials will now figure out the governance, staffing, and leadership of the new local utility. They have already begun outreach to residents interested in participating; 600 customers had registered by Tuesday afternoon. The plan is to assemble an initial tranche of 20 megawatts worth of demand, at which point Ann Arbor will finance the purchase and installation of solar panels, batteries, and energy-efficiency upgrades to serve those customers.
Installations — on homes, sheds, schools, libraries — could happen in the next 18 to 24 months, Mayor Christopher Taylor told Canary Media. Longer term, the utility hopes to construct a district-level geothermal network to heat and cool buildings without fossil fuels.
“I’m incredibly gratified by the support that voters of Ann Arbor have given to the SEU,” Taylor said. “The SEU is going to be both great for our carbon future and great for the pocketbook.”
The effort to fast-track local clean energy installations serves Ann Arbor’s ambitious climate goals. But it’s also a response to an uptick in power outages as extreme weather collides with for-profit utility DTE’s aging distribution-grid infrastructure. Monopoly utilities, for the most part, have shown little interest in seizing the opportunities of decentralized energy, but that’s core to the new Ann Arbor utility’s mission.
The measure’s success marks the latest episode in a sporadic national trend of communities trying to break free from the century-old model of for-profit, monopoly utilities controlling local energy systems.
Such efforts typically provoke a scorched-earth response from the incumbent utility. Utilities elsewhere have waged lengthy legal battles and spent millions of dollars on political campaigns to stop these escape attempts. When localities win their energy autonomy, they often have to pay hefty exit fees as a reimbursement for grid infrastructure built on their behalf. Communities that make it through that ringer then have to shoulder the laborious task of operating and maintaining decades-old infrastructure while trying to push ahead with new technologies.
In a bracing and punchily worded 2021 report, Ann Arbor’s sustainability office made clear that it would take a different route.
“Every dollar we don’t spend in litigation or to buy the [investor owned utility]’s old, failing infrastructure is money we can spend on new infrastructure here in Ann Arbor to generate power, distribute power, and store power — dollars we can use to immediately provide reliable, clean, and affordable public power to everyone,” the city wrote.
In short, it’s a distributed energy wish list coming to life. Ann Arbor has created a clear pathway to building more clean, local, resilient, and publicly owned infrastructure. If the city can make electricity cheaper on top of that, it will demonstrate that a better electricity system is possible even without completely overhauling the existing utility industry.
Local action for local needs
In 2019, Ann Arbor set a 2030 deadline to deliver equitable, community-wide carbon neutrality. Meeting that target requires sourcing clean electricity, driving out fossil-fuel combustion in buildings, and cleaning up transportation.
But the city’s built environment poses some challenges. Ann Arbor spans about 49,000 households, 52 percent of which are rentals. Overall housing stock averages 48 years old. That necessitates a lot of retrofits to turn these buildings into efficient systems running on clean electricity.
The SEU thus prioritizes energy-efficiency upgrades for customers. Unlike a for-profit utility, the municipally owned nonprofit has no incentive to let customers keep wasting energy. Ann Arbor aims to make efficiency more accessible with tools like on-bill financing, “structured to match or be lower than the monthly utility bill savings, resulting in a positive cash-flow for the customer immediately,” per the 2021 report.
The utility can buy equipment like solar panels and batteries in bulk and finance these upgrades with its AAA municipal credit rating, accessing far cheaper capital than a bunch of lone homeowners negotiating separately with private lenders. And the on-bill charge stays with the house — if someone moves out, the new resident takes over paying for the improvements that will lower their bill.
Climate goals weren’t the only factor motivating the change. The area’s aging grid has suffered a number of outages lately.
“Ann Arbor is currently served by an investor-owned utility that has a history of reliability challenges in our area,” Taylor noted. “We expect the SEU to provide far more reliable service.”
The SEU plans to install and own solar panels on customers’ rooftops and batteries in their sheds and garages, selling those customers the power at cost, without a markup. That lets residents access solar power and backup power without dropping a load of cash up front for it or taking on debt. This kind of subscription is available from companies like Sunrun, but they do it to make money, not to sell at cost.
The most radical dimension of the plan is to use the city’s utility franchise rights to build wires between properties, so that they can share excess solar power locally. Most everywhere in the country, customer-led upgrades have to stay on the customer side of the utility meter; crossing that boundary to sell power to a neighbor violates the utility’s legally enforced monopoly. This stands in the way of visions for interconnected neighborhoods generating and selling power with each other based on who needs it at a given moment.
But Ann Arbor officials tracked down a century-old precedent that makes sharing power possible: “The Michigan Constitution preserves the rights of cities and villages to form their own utility or to supplement an existing utility,” Missy Stults, the city’s sustainability and innovation director, told me.
Thus, the SEU will link up different properties if the people living there want it. If a home generates more solar than it can use, it could run a line to a neighboring house that’s shaded by trees, allowing it to buy surplus power.
“We’ll be able to connect homes with each other, schools with homes, schools with each other,” Taylor said. “We’re going to do this in a way that is cost-effective and fully opt-in.”
This plan assumes people will be happy to offer up their roof space for panels that the SEU will own and use for broader community benefit. But doing so will let that household buy cheaper, cleaner power for itself. The battery controls present some additional complications: Will the host customer get first dibs on backup power, or will that be split among the locally connected homes as well? This is new territory for distributed energy in the U.S.
That said, the strong show of support at the ballot box demonstrates the local community is fully on board with the general direction of the SEU. It’s no accident that this idea is coming to fruition in a college town like Ann Arbor, said Liesl Clark, a former state climate leader who now serves as director of climate action engagement at the University of Michigan.
“There are a lot of people who are innovative and also are interested in having agency,” she said. “It is a community that was ripe for a solution like this.”
Furthermore, the city structured the plan in a way to minimize any downside for residents who don’t want to jump on the decentralized power opportunity.
“You haven’t asked me how much it’s going to cost the taxpayer,” Taylor told me as I was about to wrap up our phone call. He answered the rhetorical question: “Nothing!”
That pledge veers into too-good-to-be-true territory, but the SEU structure makes it possible. The city won’t levy any new taxes because it’s not buying out DTE’s assets. Instead, it’s installing new equipment based on voluntary customer commitments, and those customers pay their way, while saving themselves money.
Breaking free from utilities without all the hassle
The outcome of this effort remains far from certain. But so far, Ann Arbor has managed to pursue a low-drama, low-conflict way to break up with a monopoly utility, in contrast to high-profile recent attempts elsewhere.
The city of Boulder, Colorado, famously fought for a decade to peel off from Xcel Energy, and ultimately gave up. In 2010, California mega-utility PG&E spent $46 million to make it harder for communities to source their own electricity, though even that gargantuan sum failed to stop the rise of community choice aggregators.
Maine has grappled for years with its deeply unpopular monopoly utilities. Last year, voters nonetheless soundly rejected a ballot referendum to seize utility assets under a new public power entity. The utilities spent $40 million to fight it, and independent experts raised concerns about how the public entity would deliver on promises of a cheaper, more efficient grid after saddling itself with billions of dollars of debt.
Activists in Ann Arbor have also pushed for full municipalization — a city-level version of what Maine considered and rejected. The city is working on a second study to dig into the details of what purchasing the grid infrastructure would entail. That conversation will continue as the SEU implementation moves forward, Taylor noted.
For its part, Michigan utility DTE hasn’t declared war on Ann Arbor. Following the vote, the company stated that it will continue to invest in making the city’s grid more resilient and clean — a recent Michigan climate law requires ramping to 60 percent renewable power by 2035 and 100 percent clean electricity by 2040.
The public interest in full municipalization may explain the muted response from the utility: The SEU allows DTE to go on with business as usual, and its distribution grid will continue to play a crucial role even if kilowatt-hour sales decline from the new local solar generation.
Instead of fighting the utility colossus head on, Ann Arbor is taking a live-and-let-live approach. It’s a case where avoiding head-on conflict could make it possible to deliver the benefits of clean, local energy far more quickly.
