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Report on Crown Castle's Compliance with Safety Audit, Wind Study, and Remediation Requirements in Decision 13-09-026 Safety and Enforcement Division California Public Utilities Commission March 24, 2017

Report on Crown Castle's Compliance with Safety Audit ......Castle’s final report to SED is attached (Attachment A). During the approximately three year period, 100% of Crown Castle’s

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Page 1: Report on Crown Castle's Compliance with Safety Audit ......Castle’s final report to SED is attached (Attachment A). During the approximately three year period, 100% of Crown Castle’s

Report on Crown Castle's Compliance with Safety Audit, Wind Study, and Remediation Requirements in Decision 13-09-026

Safety and Enforcement Division

California Public Utilities Commission

March 24, 2017

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Report on Crown Castle's Compliance with Safety Audit, Wind Study, and Remediation Requirements in Decision 13-09-026

I. BACKGROUND

On October 21, 2007, at approximately 4:30 a.m., three wood poles broke and fell to the ground

as a result of strong Santa Ana winds in Malibu Canyon, Los Angeles County. The resulting fire

burned 3,836 acres, destroyed 14 structures and 36 vehicles and caused damage to 19 other

structures. The estimated cost of the fire according to the Los Angeles County Fire Department

was $14,528,300. There were no reported injuries or fatalities.

The poles supported overhead supply and communication facilities owned and operated by

Southern California Edison Company, Verizon Wireless, AT&T Mobility LLC, Sprint

Communications Company, LP, and NextG Networks of California, Inc. (later acquired by

Crown Castle, and referred to herein as Crown Castle).

II. SED INVESTIGATION AND FINDINGS

The Safety and Enforcement Division (SED), known at the time as the Consumer Protection and

Safety Division, investigated the incident and found all owners and operators of the facilities on

the three poles in violation of California Public Utilities Commission’s (Commission) General

Order 95 (GO 95).

Specifically, SED found that the wind at the time of the incident was approximately 50 miles per

hour. According to GO 95, Rule 44, the types of poles involved in the incident must be installed

with a safety factor of 4.0. The safety factor can be reduced to two-thirds of the original value

subsequent to installation. Even at that lower safety factor, the poles should have been able to

withstand winds up to 92.4 miles per hour. SED found all owners and operators of the poles and

attached facilities to be in violation of Rules 12, 31, 43 and 44 in GO 95 for failing to properly

inspect and maintain their poles and facilities to prevent the safety factors from falling below the

minimum requirements.

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On October 21, 2008, SED provided the findings of its investigation to the Commission and the

Commission released the SED report on December 18, 2008.

III. OII AND DECISION 13-09-026

On January 29, 2009, the Commission issued an Order Instituting Investigation (OII) into

whether the owners and operator of the poles that failed in Malibu violated Commission rules.

On February 21, 2013, SED and Crown Castle filed a joint motion for approval of a settlement

agreement. The settlement agreement was conditionally approved by Commission Decision 13-

09-026 on September 24, 2013.

Decision 13-09-026 ordered Crown Castle to:

• Pay $14.5 million, of which $8.5 million was to be paid to the State of California General

Fund

• Use the remaining $6.0 million to have an independent contractor conduct a safety audit

of all Crown Castle poles and pole attachments in California to ensure that they comply

with safety factor requirements

• As part of the safety audit assess whether all facilities in the Malibu Canyon can

withstand the maximum foreseeable Santa Ana windstorm and take corrective action as

necessary

• Complete any remedial work necessitated by the audit within three years of commencing

the audit

• Pay any remaining money after the safety audit is complete to the State of California

General Fund

• Perform a safety audit of every new pole or pole attachment within 30 days of installation

• Provide bi-monthly reports on the safety audit and a final report to SED

Decision 13-09-0261 also required SED to prepare a report, after Crown Castle’s submission of

its final bi-monthly report, that summarizes results of the safety audit, identifies the Santa Ana

wind loads that Crown Castle used to assess its poles and pole attachments in Malibu Canyon,

1 Subsection (xiv) of Ordering Paragraph 1 in Decision 13-09-026.

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and addresses Crown Castle’s remediation actions. SED prepared and is filing, serving, and

posting this report as directed.

IV. COMPLIANCE WITH SAFETY AUDIT, WIND STUDY, AND REMEDIATION REQUIREMENTS IN DECISION 13-09-026

Crown Castle, with the assistance of Connect Solutions Engineering and Davey Resource Group,

independent contractors, conducted a safety audit of its system in compliance with Decision 13-

09-026. During the audit, Crown Castle provided bi-monthly reports to SED and a final report

was delivered during a meeting with SED on September 8, 2016. Crown Castle used the $6.0

million in the stand-alone bank account safety fund for the safety audit. A copy of Crown

Castle’s final report to SED is attached (Attachment A).

During the approximately three year period, 100% of Crown Castle’s 61,751 poles were

inspected for compliance. The inspections included photo collection and structural analysis

generation. 33,640 poles were found to be compliant and maintenance issues were found on

28,111 poles. Over 12,000 maintenance issues were discovered and repaired. Issues belonging to

other pole owners and operators were packaged and delivered to the affected parties.

Crown Castle developed an auditable database, referred to as the Pole Administration Utility.

The database application is used to store and track pole inspections and repair data.

To calculate the maximum foreseeable Santa Ana winds in the Malibu Canyon, Crown Castle, in

partnership with REAX Engineering, conducted a wind study. A copy of the wind study is

attached (Attachment B). As part of the study, anemometer stations were installed to collect

weather measurements during the 2014 and 2015 Santa Ana wind seasons. The weather data and

wind speeds were collected to determine the maximum reasonably foreseeable wind speed. In

addition, approximately 30 years of historical Santa Ana wind events were analyzed via

Numerical Weather Prediction, a method that uses mathematical models to predict the weather

based on current weather conditions to feed into a localized high resolution analysis of wind

speeds in Malibu Canyon.

The study found that in one section of the canyon, the maximum foreseeable (50 year) 3-second

gust wind speed is estimated to be 110 mph, from the SW direction. The other sections of the

canyon had a maximum foreseeable wind gust speed of only 69 mph, corresponding to a possible

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12 psf wind load. To accommodate these wind speeds, Crown Castle considered all spans to be

subject to the 12 psf load, and the spans in the most severe section to be subject to the 110 mph

wind, at its known orientation to the line. In all cases, appropriate safety factors were applied,

based on the pole material and consistent with GO 95 Rule 31.1 “accepted good practice for the

given local conditions.”

There are 82 poles in the Malibu Canyon, beginning at the intersection of Malibu Canyon Road

and Mesa Peak Tractor Way, to which Crown Castle has attachments. Under 8 psf wind load and

a 2.67 safety factor, the current standard with no consideration for the maximum foreseeable

wind, 17 poles would require corrective action. Under 12 psf wind load and a 4.0 safety factor,

the standard that will be used for the Malibu Canyon, 34 poles would require remediation. As

these poles are jointly owned and operated by parties other than Crown Castle and replacing

them is a coordinated effort, Crown Castle plans to work with other joint pole owners to replace

or reinforce the poles requiring remediation.

V. CONCLUSION

SED monitored Crown Castle’s compliance with the safety audit, wind study, and remediation

requirements in Decision 13-09-026 by:

• Reviewing the bi-monthly reports

• Discussing Crown Castle’s detailed findings and corrective actions

• Conducting audits of Crown Castle’s facilities in Northern and Southern California

• Meeting with Crown Castle and REAX Engineering on several occasions to discuss

compliance details

• Reviewing Crown Castle’s final report

SED has determined that Crown Castle is in compliance with these requirements in Decision 13-

09-026, with the caveat that pole remediation in Malibu Canyon is taking longer than anticipated,

due to reasons not within Crown Castle’s control. SED does not recommend any further action

at this time.

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ATTACHMENT A

CROWN CASTLE’S AUDIT FINAL REPORT

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Page 1 of 6

SED AUDIT FINAL REPORT PROJECT SUMMARY November 18, 2016

SED Audit Final Report Project Summary

Introduction

On September 19, 2013, the California Public Utilities Commission (“CPUC” or “Commission”) approved a

settlement agreement between NextG Networks of California, Inc. (“NextG”) and the Commission’s Safety and

Enforcement Division (“SED”).1 That decision resolved all issues in the underlying investigation proceeding and

outlined certain terms required of NextG in order to implement the settlement agreement over the course of a

three-year period.

During the past three years Crown Castle has provided the Commission bi-monthly updates regarding its work to

implement the terms of the Settlement Decision. A final report was submitted to the Commission in September

and this project summary provides an overview of the entirety of the settlement implementation efforts. As

detailed in the bi-monthly reports and below, Crown Castle has met and exceeded the required conditions of the

Settlement Decision through the development and implementation of a comprehensive audit program that

involved the inspection of over 60,0000 utility poles. Crown Castle’s network facilities have been audited by

Commission staff and Crown Castle has implemented an aggressive inspections program to ensure the ongoing

safety and reliability of its utility infrastructure.

Facility Audit Overview

Crown Castle audited all poles and pole attachments in California, previously owned by NextG Networks, over the

course of approximately two years, totaling 61,751 pole inspections. During this audit, each attachment was

visually reviewed by an authorized engineering contractor for GO 95 compliance related to safety risks and

authorized attachment practices. All poles, whether exhibiting issues or not, were photographed and timestamped

to document the state of construction. A record was created in a Filemaker Pro system, cataloging the inspection

information, any issues, and all pole asset information, such as GPS coordinates, location information, and pole

tag data. Any and all found issues for which Crown Castle was responsible were slated for immediate review and

reconciliation. All issues for which another utility was responsible were packaged and delivered via a formal

notification to the affected party. Notifications, resolution documentation, and correspondence were all recorded.

1 Decision No. 13-09-026 (also referred to as the “Settlement Decision”). Notably, NextG was acquired by Crown Castle in 2012 and Crown Castle ultimately assumed responsibility for implementing the terms of the settlement agreement.

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SED AUDIT FINAL REPORT PROJECT SUMMARY November 18, 2016

In addition to GO 95 compliance and maintenance issues, the audit also involved the collection and review of data

regarding joint use agreements for each pole, comparing internal record asset data and the Southern California

Joint Pole Committee (SCJPC) pole card data to ensure all attachments had appropriate authorizations. Items

missing an attachment authorization or requiring additional review were cataloged for resolution through the

SCJPC. Due to the lack of a pole record system at the Northern California Joint Pole Association (NCJPA), poles

located in this region were researched against our internal records only.

Pole and attachment specification data was collected at every pole and input into a structural analysis program,

documenting heights of attachment, equipment sizes, and facility specifications of all attached utilities. This data

was used to calculate existing pole capacity and generate a level of safety for further review. These analyses

incorporated pole height, class, type and age, as well as stress contributions at several different load points. Poles

found to be out of compliance were scheduled for engineering remediation. Equipment non-compliances

belonging to another utility, such as an insufficient guy or an overloaded cross-arm, were documented and the

utility in question was notified in order to resolve the issue.

Lastly, intrusive inspection data for all poles to which Crown Castle was attached, were requested from each base

pole owner, documented and cataloged in our records. All returned data was reviewed and catalogued. The date

of the last intrusive inspection was added to Crown Castle’s pole data manager (see section on system

development) to ensure proper tracking of future intrusive requirements.

Facility Repairs

All issues found to be the responsibility of Crown Castle to remediate were entered into an auditable system in

Filemaker Pro. The resulting data was then reviewed and reconciled by an internal assets team to determine the

appropriate repair type, including the following categories:

Fiber Pole Attachment Issues

(e.g. cable sag, clearance, guying, as-built verifications)

Node Pole Attachment Issues

(e.g. risers, bonding, grounding, clearance, as-built verifications)

Visual Condition of the Pole

(e.g. excess lean, cracking, pole damage)

Vegetation Management Issues

(e.g. cable abrasion, strain on cables)

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SED AUDIT FINAL REPORT PROJECT SUMMARY November 18, 2016

Miscellaneous Issues

(e.g. lat/long verification, pole record issues, abandoned equipment)

All issues were reconciled to determine the level of remediation review that would be required; preliminary

engineering remediation or general construction. Items requiring engineering remediation were sent out for bids

to multiple authorized contractors. These contractors were responsible for reviewing the issues presented,

suggesting options for resolution, and documenting proposed remediation. Their review included a re-fielding of

the pole in question to assess the most current state of construction and the provision of a new structural analysis,

both before and after the proposed remediation was applied. If the issue requiring engineering review could be

resolved with minimal construction, such as an additional down guy or structural retrofit, that remediation was

proposed for construction and a bid was solicited for work by an authorized construction contractor. If the issue

required undergrounding of facilities or the replacement of existing infrastructure, Crown Castle contacted the

other affected utilities to coordinate the work and ensure all proper documentation was tracked and maintained

through Joint Pole Applications (JPAs).

For items that did not require a preliminary engineering review, remediation bids were solicited from Crown

Castle’s authorized construction vendors immediately. The vendors were required to schedule repairs based on

safety priority, per the timelines outlined in GO 95. Their construction work required mobilizing to the pole

location, often preceded by a pre-construction field visit, assessing the work required at the time of fielding,

including any issues previously documented and any that had since occurred, and conducting the work to ensure

overall safety and compliance.

System Development

In order to capture all inspection and repair data in an auditable system for future analysis and provisioning,

Crown Castle has developed a comprehensive, Oracle based, proprietary database. The system, referred to as

Crown Castle’s Pole Administration Utility, consists of several different tool modules:

- Applications: Used to store existing attachment authorization, generate applications for new

installations or required maintenance, and track authorization throughout the life cycle of a submittal.

- Owners & Contacts: A repository of all utilities, jurisdictions, and municipalities with whom Crown

Castle conducts business, sends applications for joint use or permitting, and collaborates with on a

recurring basis. Within this owner module, contact data for regional and district contacts are stored for

streamlined communications.

- Pole Data: The Pole Data manager is used to store location, asset, and historical data for all poles to

which Crown Castle has attached facilities. The data that is maintained includes GPS coordinates and

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SED AUDIT FINAL REPORT PROJECT SUMMARY November 18, 2016

location details, pole specifications (e.g. size, class, material), last inspected date and future inspection

schedule, etc.

- Inspections: Based on the inspection data logged and compiled in the Pole Data manager, recurring

inspections are batched and monitored through our inspections tool. The Inspection manager includes an

internal interface to generate inspection requests based on geographical determinations, assign them to

authorized vendors, and track the inspections through completion. An external vendor tool was also built

to provide external users access to the inspection and pole data, ability to enter and update data, including

the uploading of photos and structural analysis, and enable project management and vendor

accountability. For additional information regarding our Routine Inspections program, please reference

the section outlined later in this document.

- Tickets: Following the completion of an inspection, all found issues generate a ticket within our Ticket

manager for review, prioritization, and resolution. Users can also create tickets manually if a notification

of required work is received via a third-party notice or application.

Though housed in different platforms of the system, all modules communicate and interact for efficient data

processing and review. For example, data stored in the Pole Data manager is utilized in the modules for

Inspection, Ticket, and Application data to ensure overall accuracy and data integrity. Moreover, all data stored

within our system is able to be reported on and is auditable via standardized data reports.

Malibu Canyon Wind Study

In order to estimate foreseeable wind speeds and potential safety risks in Malibu Canyon, Crown Castle engaged

Dr. Christopher Lautenberger to conduct a wind study in the area outlined in the Settlement Decision, an

approximately 3.5-mile stretch along Malibu Canyon Road beginning at the intersection with Mesa Peak Tractor

Way and concluding at the intersection of Potter Drive. The wind study included the installation of three weather

monitoring stations on wooden utility poles. The station equipment included an anemometer bolted to a cross

arm at 21’ above ground level, a solar panel to power the anemometer, and an equipment box below 18’ to house

additional monitoring equipment.

The three stations were dispersed throughout the canyon to provide a range of comprehensive weather data. Due

to a lack of available utility poles to accommodate the anemometers, two of the stations were placed on temporary

poles, with the plan that they would be removed following the completion of the study. The temporary pole for

station one was placed approximately 600 feet south of Mesa Peak Tractor Way; the temporary pole for station

two was located approximately 1.8 miles south of Mesa Peak Tractor Way. Station three was installed on existing

utility pole 1639255E, located approximately 1.15 miles north of Potter Drive. JPA NG-WIND-01 was filed on

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SED AUDIT FINAL REPORT PROJECT SUMMARY November 18, 2016

December 17, 2014 to notify the existing attached utilities of Crown Castle’s proposal and in order to obtain

approval for the attachment.

Stations one and two were installed on July 29 2015, while station three was installed on October 30, 2015. All

stations were installed by Pacific West Communications (“PWC”), under supervision of the weather engineering

team at REAX Engineering. The delay in the installation of station three was due to processing times for required

local permitting. All attachments were made in concurrence with GO 95 regulations and safety compliance, as well

as under the approval of the impacted utilities and the local jurisdictions. Following installation, data was

collected by REAX until June 1, 2016, for a total of 12 months at stations one and two and 8 months at station

three. A total of of nine Santa Ana wind events were recorded during the study. REAX also researched historical

data for the area and incorporated standard weather patterns in their projections for highest foreseeable wind

speeds.2

The REAX report has been incorporated into Crown Castle’s structural analysis for 82 poles within the 3.5 mile

Malibu Canyon project area. Preliminary data has also been shared with the joint pole owners in the same project

area and a copy of the final report is being distributed to the joint pole owners. Any and all poles that did not

exhibit the required standards have been identified for remediation. Poles with minor issues that could be

resolved with minimal reconstruction have been engineered for a solution and solicited for bid by a construction

vendor for implementation. For poles with more significant loading issues, Crown Castle is working with other

joint pole owners in the area to ensure these poles are replaced as part of the ongoing effort to upgrade all poles in

Malibu Canyon.3

Routine Inspections and Repairs Program

During the same time-period Crown Castle was implementing the terms of the Settlement Decision, it likewise

employed a rigorous routine inspections and repairs program. This program involves batching all poles to which

Crown Castle has attachments to better facilitate efficient inspections and reduce mobilization costs. Assets within

the state of California were broken up by region (Southern California versus Northern California) and then further

into sectors (e.g. S1, S2, S3, etc) and clusters (e.g. S1-A, S1-B, S1-C, etc.) based on geographical boundaries. For

Southern California, each sector has approximately 12,243 poles included, with each cluster containing

2 For complete details on the data collected and proposed wind safety standards in the area, please reference the

attached final report from REAX, outlining what the study revealed and recommendations regarding future

installations in Malibu Canyon.

3 See Decision No. 12-09-019 and Decision No. 13-09-028.

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SED AUDIT FINAL REPORT PROJECT SUMMARY November 18, 2016

approximately 1,360 poles. Similarly, for Northern California, each sector has approximately 954 poles included.

Due to the smaller volume of poles in Northern California, clusters are not utilized in this region.

Inspection dates from state-wide audit were input into our Pole Data manager and used to determine when the

next recurring inspection was due, based on the terms outlined in GO 95 for Patrolling and Detailed inspections. A

schedule was then created to chart out which clusters should be inspected at which date for each calendar year.

Each cluster is assigned its own inspection request within our Inspection manager of the Pole Administration

Utility for tracking and completion.

Crown Castle plans to conduct approximately 53,000 patrolling and approximately 13,000 detailed inspections

annually, for a total of approximately 66,000 poles. To date in 2016, Crown Castle has assigned 34 patrolling and

detailed inspections, totaling approximately 43,244 poles. Approximately 22,651 additional poles will be assigned

by the end of the year.

CPUC Audits – Southern California & Northern California

During the course of the Malibu Fires settlement project, Crown Castle underwent two Commission audits: one

covering Southern California networks and another for Northern California networks. In both instances, Crown

Castle was able to present comprehensive and complete data regarding our networks, processes, and internal

programs for the PUC to review.

The Southern California audit took place from March 4 to March 8, 2013, and included a review of Crown Castle

facilities in Los Angeles and Orange County regions, particularly focusing on poles in the West Los Angeles-

Malibu district. The audit results, provided on June 3, 2013, found a few minor issues in relation to guying

standards and attachment practices, all of which were resolved on an expedited schedule.

Two years later, the Northern California audit was held from October 12 to October 14, 2015. During this review,

facilities in Crown Castle’s San Jose and San Mateo networks were reviewed for compliance. Crown Castle

received preliminary feedback from the PUC on February 8, 2016, outlining some minor issues requiring review,

which were reconciled and resolved promptly.

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ATTACHMENT B

MAXIMUM REASONABLY FORESEEABLE SANTA ANA WIND LOADS

IN MALIBU CANYON

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2.2.1 Spatial Informatics Group (SIG)

2.2.2 Cermak Petersen Peterka (CPP)

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et al

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A day of cool, dry Santa Ana winds that graced Southern California with panoramic, postcard views also put firefighters to work Wednesday, stirring fears that more fires could be expected today as humidity levels remain low. A fast-moving wildfire pushed by 25-m.p.h. winds consumed 150 acres of brush-covered hills in Thousand Oaks and evoked fears of disaster before more than 275 firefighters from Ventura and Los Angeles counties contained the blaze. Elsewhere, firefighters battled smaller fires in Torrance and Lopez Canyon near the city of San Fernando, as Santa Ana conditions pushed humidity levels to lows of 10% in Burbank and San Bernardino. Normal humidity levels in those areas exceed 30% at this time of year. Winds were clocked from 20 to 40 m.p.h. throughout the region, with gusts reaching up to an estimated 60 m.p.h. in some canyons, said Steve Burback of WeatherData Inc., which provides weather information to The Times.

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Page 48: Report on Crown Castle's Compliance with Safety Audit ......Castle’s final report to SED is attached (Attachment A). During the approximately three year period, 100% of Crown Castle’s

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Page 49: Report on Crown Castle's Compliance with Safety Audit ......Castle’s final report to SED is attached (Attachment A). During the approximately three year period, 100% of Crown Castle’s
Page 50: Report on Crown Castle's Compliance with Safety Audit ......Castle’s final report to SED is attached (Attachment A). During the approximately three year period, 100% of Crown Castle’s

4161 Campus Point Court / San Diego, CA 92121 / 858-826-2732

Malibu Canyon Wind Study Meteorological Monitoring Program

Appendix 1 –

Readings during Santa Ana Wind Events

Page 51: Report on Crown Castle's Compliance with Safety Audit ......Castle’s final report to SED is attached (Attachment A). During the approximately three year period, 100% of Crown Castle’s

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Page 55: Report on Crown Castle's Compliance with Safety Audit ......Castle’s final report to SED is attached (Attachment A). During the approximately three year period, 100% of Crown Castle’s

Tabl

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Page 56: Report on Crown Castle's Compliance with Safety Audit ......Castle’s final report to SED is attached (Attachment A). During the approximately three year period, 100% of Crown Castle’s

Tabl

e 1.

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Page 57: Report on Crown Castle's Compliance with Safety Audit ......Castle’s final report to SED is attached (Attachment A). During the approximately three year period, 100% of Crown Castle’s

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Page 62: Report on Crown Castle's Compliance with Safety Audit ......Castle’s final report to SED is attached (Attachment A). During the approximately three year period, 100% of Crown Castle’s

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Page 63: Report on Crown Castle's Compliance with Safety Audit ......Castle’s final report to SED is attached (Attachment A). During the approximately three year period, 100% of Crown Castle’s

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Page 64: Report on Crown Castle's Compliance with Safety Audit ......Castle’s final report to SED is attached (Attachment A). During the approximately three year period, 100% of Crown Castle’s

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Page 65: Report on Crown Castle's Compliance with Safety Audit ......Castle’s final report to SED is attached (Attachment A). During the approximately three year period, 100% of Crown Castle’s

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Page 66: Report on Crown Castle's Compliance with Safety Audit ......Castle’s final report to SED is attached (Attachment A). During the approximately three year period, 100% of Crown Castle’s

4161 Campus Point Court / San Diego, CA 92121 / 858-826-2732

Malibu Canyon Wind Study Meteorological Monitoring Program

Appendix 2 –

Readings during Non-Santa Ana Wind Events

Page 67: Report on Crown Castle's Compliance with Safety Audit ......Castle’s final report to SED is attached (Attachment A). During the approximately three year period, 100% of Crown Castle’s

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Page 68: Report on Crown Castle's Compliance with Safety Audit ......Castle’s final report to SED is attached (Attachment A). During the approximately three year period, 100% of Crown Castle’s

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Page 69: Report on Crown Castle's Compliance with Safety Audit ......Castle’s final report to SED is attached (Attachment A). During the approximately three year period, 100% of Crown Castle’s

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