Utilities are regulated monopolies. In exchange for a monopoly status, they need to abide by some pretty strict standards (like regulated pricing and service maintenance), and are forced to work with entities that they would normally avoid.
Things like open APIs, algorithm access (that could be classified, but should be accessible to folks that are accountable to the consumers, etc.).
Not a simple structure. What we have now, is pretty haphazard, and has grown organically. The current utility/public infrastructure setup is the result of hundreds of years of disasters, ripoffs, successes, and learning.
Not sure if we have to go through it all again, or if there is a possibility of taking learning from current municipal structure, and apply it here.