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HomeMy WebLinkAbout20140422Comments.pdfKARL T. KLEIN DEPUTY ATTORNEY GENERAL IDAHO PUBLIC UTILITIES COMMISSION PO BOX 83720 BOISE, IDAHO 83720-0074 (208) 334-0320 IDAHO BAR NO, 5156 Street Address for Express Mail: 472 W, WASHINGTON BOISE, IDAHO 83702-5918 Attorney for the Commission Staff IN THE MATTER OF AVISTA CORPORATION'S APPLICATION TO UPDATE ELECTRIC LINE EXTENSION SCHEDULE 51 AND ALLOWANCES. BEFORE THE IDAHO PUBLIC UTILITIES COMMISSION CASE NO. AVU.E.I4-02 COMMENTS OF THE COMMISSION STAFF The Staff of the Idaho Public Utilities Commission comments as follows on Avista Corporation's Application to update Electric Line Extension Schedule 51 . BACKGROUND On March 14,2074, Avista Corporation applied to revise the Company's Electric Line Extension Schedule 51 applicable to new residential, commercial, and industrial customers' services. The proposed changes are to take effect on May 1,2014.1 COMPANY APPLICATION In the Application, the Company proposes to revise line extension costs based on updates to the Company's Construction & Material Standards as well as an updated actual average cost of all material and labor used in line extensions during 2013. The Company also proposes to ' The Company initially filed its Application as a Tariff Advice. But the Company and Staff later agreed that it would be better to process the flrlling as an Application to afford interested persons an opportunity to comment on the proposed changes. STAFF COMMENTS APzuL 22,2014 update the electric line extension allowances that apply to new residential, commercial, and industrial customer's services. The current allowances were set in 2001. See Order No. 28562 (Case No. AVU-E-00-01). For purposes of calculating the revised allowances, the Company says it used an embedded-cost methodology to ensure that investment in distribution/terminal facilities for each new customer will equal the embedded costs of the same facilities used to calculate base rates. The Company says the new customer would pay any costs above the allowance as a contribution in aid of construction. The Company says it calculated the embedded costs by using the cost-of-service study from its most recent general rate case (AVU-E-12-01) as updated to reflect the approved settlement agreement in that case. The changes to the proposed allowances are, in summary: Service Schedule Current AIIowance Proposed Allowance Schedule Individual Customer (per unit)$ 1.000 $ 1,600 Schedule Duolex (per unit $800 sL,275 Schedule Multiplex (per unit)$600 $975 Schedule lll2 (per kwh)$0. l 0703 $0.13766 Schedule 21122 (per kWh)$0.06000 s0.l 1657 Schedule 31132 (per kWh)$0.6000 $0. l 9689 The Company says that for residential developments, the proposed changes to Construction & Material Standards, construction costs based on2013 average costs, and increased allowance per residential unit results in a lower payment for developers and builders. In summary: Residential Filing - Development Summary Total Cost per Lot Less: Service Cost Developer Responsibility Developer Non-refundable Payment Developer Refundable Payment Builder Payment Developments 2013 $1,716 469 st-247 s247 $ 1,000 $469 2014 $ 1,598 485 s1.113 $ r,l r: 0 STAFF COMMENTS APRIL 22,2014 STAFF'REVIEW Staff thoroughly reviewed Avista's Schedule 5l Tariff revisions. Besides conducting its normal annual review of the Company's proposed line extension cost updates, Staff also analyzed the proposed line extension allowances that were last updated in February 2001. Based on its analysis, Staff proposes several adjustments that have been validated by the Company. The following is a summary of Staff s findings. Analysis of Line Extension Costs Staff reviewed line extension costs, which include Tariff Construction Costs and Cost Reduction Credits for developeribuilder-performed services. Staff s proposed adjustments decrease total builder and developer average cost by 7% from $1,716 per lot to $1,596 per lot. This decrease in total builder and developer costs is driven primarily by a73Yo reduction in primary distribution cost, even though the costs of secondary distribution, transformers, and service drops have increased over costs included in the current tariff. The developers' average cost decreases by 38%o-from $1,793 to $1,1I I per lot-and the average builder's cost increases by 3Yo, or $ I 6 per lot, for the cost of a service drop over current rates. The table below summarizes these changes: Change in Developer and Builder Cost 2013 lo 2014 Revised Secondary Distribution Cost 255 311 424 470 308 470 53 159 21o/o 51o/oTransfurmer Total Weighted AW Cost (Trenching by Dewloper) ' 1,793 1,405 1,111 (682) -38% Trenching Credit (546) (292) 0 546 -100% Total Dercloper Cost 1,247 1,'l'13 1,111 (136) -11o/o Sen,ice Tot'al B Cost 3o/o -7o/o Comparing the cost of current and proposed construction costs and cost reduction credits (shown in Attachment A) was difficult this year because the Company has changed how it calculates those costs. First, proposed construction costs for developments no longer include the cost for Company-provided trenching, recognizing that developers have always been required to perform their own trenching. As a result, cost-reduction credits for developer-provided trenching are no longer needed. Staff does not believe this changes the average cost methodology set forth STAFF COMMENTS APRIL 22,2014 in Commission Order No. 28562. However the change does provide benefits by: (l) adding clarity to line extension quotes provided to developers, (2) streamlining the Company's internal quotation process, and (3) making the development of annual updates for Schedule 51 tariffs more efficient and clear. During its review, Staff discovered trenching-related costs that should have been removed from the Company's average underground primary and secondary distribution costs. The Company persuaded Staff that a cost for inspecting the trench, which was included in the original trenching cost, should remain. These adjustments slightly increase the underground primary and secondary credits of $0.13 and $0.21 per lot, respectively. With Staff s adjustment, $546 of trenching credits were completely removed with about the same reduction in total weighted average cost. Second, the Company updated the Tariff to reflect current approved National Electric Safety Code (NtrESC) Construction and Material Standards. In many cases, the NESC update fundamentally alters the standard design of installations by changing the type of material, the amount of labor required, and the composition of individual cost components included in Tariff Construction Costs. Third, the Company started using a standard design as the cost basis for Tariff Construction Costs that formerly accounted for multiple designs. In a few cases, this change recognized that "one-off' designs were rare, (e.g., service pole charges were removed from variable overhead service charges). But this transition was primarily driven by more consistent and stringent NESC standards. For example, primary and secondary underground installations must now have conduit in all jobs, which eliminates variations not requiring conduit. Finally, the Company shifted several individual cost components from one tariff cost category to another. For example, the transformer cost now includes the incremental cost to install the transformer, while the current charge only includes the cost of the transformer itself. Staff believes this change is appropriate. For these reasons, Staff focused its analysis on comparing individual components of Tariff Construction Costs to similar-cost components from the prior year. Staff also looked at the composition of individual cost components within each Tariff Construction Cost and reconciled them with the previously described changes. Of the individual component costs that were comparable, the largest impact was due to the cost of transformers increasing the average cost per lot by 51%. Depending on the size and STAFF COMMENTS APzuL 22,2014 type, transformer cost increased from2-6Yo. In addition, fixed cost previously included in primary distribution has shifted to the cost of transformers; and of those costs, more rigorous NESC standards have further increased costs. Also, the average size of transformers installed last year has increased, which impacts this year's average cost. Staff believes these increases are reasonable. Most of the difference between current and proposed distribution and service cost per lot is due to a change in the average length of installations. For example, the cost per lot for underground primary distribution is reduced by about 73oh and much of this reduction is caused by a 50o/o decrease in the average length of an installation. This can be attributed to a trend toward more compact developments in Avista's service area. On the other hand, the cost per lot to install underground secondary distribution and service lines has increased because the installation lengths have grown, increasing the per lot cost of those installations. Staff believes the Company's proposed Tariff Construction Costs and Cost Reduction Credits, with Staff s proposed adjustments as described above and included in Attachment A, are reasonable and should be approved by the Commission. Analysis of Allowances The purpose of the allowance is to credit developers and builders for upfront distribution and terminal facility line extension costs that are currently recovered through base rates. Allowances for line extension costs were last updated in 2001 in Case No. AVU-E-00-01. The method Staff proposed in that case is the same as the method proposed by the Company in this year's Application. Staffls main concern in the prior case was that raising the amount of the allowance beyond embedded costs would put undue upward pressure on base rates. If base rates increase due to higher revenue requirements driven by new customer-related distribution cost, existing customers would subsidize new growth and new customers would not pay the full cost of new distribution facilities from which they benefit. As shown in the table below, the Company is proposing to increase all allowances, except Schedule 31132, ranging from29Yo (Schedule lll12) to 94o/o (Schedule 21122). Since the Company used Staff s proposed calculation method from the last line extension case (AVU-E-00-01), the proposed allowances are about equal to the fully embedded cost of the same facilities used to calculate base rates for each customer class. Because of this, and because 12 STAFF COMMENTS APRIL 22,2014 years of growth and inflation have affected the total embedded cost, Staff believes the proposed increases are reasonable. Staff does not believe the Company's calculation properly removed the cost of a service meter. The Schedule 51 Line Extension Tariff does not include service meters because the Company recovers their cost through the customer charge. The Company's calculation of the proposed allowances includes the full revenue requirement for recovery of a meter, yet the Company only backed-out the cost of the meter from the estimated line extension investment. Staff s adjustment eliminated the meter revenue requirement from the allowance calculation. The proposed allowances in the last column of the table below reflect Staff s adjustment. Service Schedule Company's Current Allowance Company's Proposed Allowance Staff s Proposed Allowance Schedule I Individual Customer (per unit $ 1.000 $ 1,600 $ 1.ss0 Schedule 1 Duplex (per unit $800 $1,275 $1,240 Schedule 1 Multiplex (per unit)$600 $975 $930 Schedule llll2 (per kWh)$0. r 0703 $0. r 3766 $0.12868 Schedule 21122 (per kWh)$0.06000 $0.1 1657 $0. I 1 874 Schedule 31132 (per kWh)$0.6000 $0. l 9689 $0.t9279 The calculation of allowances with Staffls adjustments is included in Attachments B through E. Staff used inputs from the cost of service and weighted cost of capital approved in the last general rate case (AVU-E-12-08) to determine the allowable investment on a cost per customer basis for new residential customers (Schedule 1) and on a cost-per-kilowatt-hour basis for new general (Schedule I I or 12), large general (Schedule2l or 22) and irrigation (Schedule 31) customers. Using the residential customer allowance calculation illustrated in Attachment B as an example, the net plant (plant in service minus accumulated depreciation) of $1,387.16 per customer of both distribution and terminal facilities is used to calculate the return on investment portion of the revenue requirement. This includes a retum of common equity of $106.69 which hasbeengrossedupfortaxesusing aL57 gross-upfactor,andacostofdebtof $41.68. When this sum is added to the depreciation expense per customer of $62.05, it produces an average revenue requirement of $210.42 for distribution plant and terminal facilities for a residential customer. 6STAFF COMMENTS APRIL 22,20T4 The resulting revenue requirement is the amount of revenue the Company will receive through rates from an average new customer to fully recover distribution and terminal facility (minus the service meter) investment currently embedded in rates. But this revenue requirement is based on investment that has been partially depreciated and does not represent the cost of new investment. To account for this difference and the Company's authorizedrate of return, Staff divided the sum of the rate of return after gross-up of 10.6960 , and the current weighted average depreciationrateof2.85l4Yointotherevenuerequirement of 5210.42. Staffdeterminedthe Company can invest $1,550 in new distribution plant and terminal facilities (minus the service meter) for each new residential customer without putting upward pressure on base rates. Staff believes the Company should review and seek to update allowances at more regular intervals so the magnitude of changes is gradual and better represents distribution-plant and terminal-facility costs embedded in base rates. Because the method for calculating the allowance is based on inputs from the last general rate case, updates to allowances would only need to occur whenever a new general rate case is processed and new base rates are established. This could occur during the annual Schedule 51 Line Extension Cost updates already ordered by the Commission. Payment Impact for Residential Developments With the $1,550 per lot allowance recommended by Staff, the first $1,111 is applied to the total developer cost, eliminating it completely and representing a 100% reduction from current rates. The remaining $439 of the allowance would be a credit to builders against the $485 cost of a service drop for each lot. This reduces the builder's remaining cost to $46 per lot for a90Yo decrease from current rates. These impacts are summarizedinthe table below: STAFF COMMENTS APRIL 22,2014 Developer and Builder Cost lmpact 2013 to 2014 Revised Per Lot Cost ($)2013 2014 Comnanv Filino 2014 Revised (No Trenchinq $ Difference % Difference Total Dewloper Cost Allowance (not to exceed cost) Remaining Dewloper Total Builder Cost Left-o\er allowance 1,247 1 ,000 3% nla (1 36) 111 1,1 13 1,1 13 0 485 485 1,111 1,111 247 469 0 0 485 4s9 (247) 16 439 ' Remaining Builder Cost Total Allowance Total Allowance Used 469 'l ,000 1 .000 1,600 1,550't,598 1 ,550 -9070 55% 55o/o \423) 550 550 Unused Allowance STAFF RECOMMENDATION Staff recommends that the revised 2014 Schedule 5 1 tariff construction costs and cost reduction credits contained in Attachment A, and the following allowances against the cost-of- service line extensions for each of the different classes be approved and made effective on May 1,2014: Service Schedule Schedule I Individual Customer (per unit) Schedule I Duplex (per unit) Schedule I Multiplex (per unit) Schedule llll2 (per kWh) Schedule 21122 (per kWh) Schedule 31132 (per kWh) Allowance $ 1,550 $1,240 $930 $0.12868 $0.1 1874 $0.19279 Staff also recommends that the Company submit allowance updates (using the method for this case) for review and approval by the Commission with the annual update of Schedule 51 line extension costs after each general rate case. 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AVU-E-14-02, BY E-MAILTNG AND MAILING A COPY THEREOF, POSTAGE PREPAID, TO THE FOLLOWING: DAVID J MEYER VP & CHIEF COUNSEL AVISTA CORPORATION PO BOX3727 SPOKANE W A 99220-3727 E-MAIL: david.meyer@avistacorp.com PATRICK EHRBAR JOE MILLER AVISTA CORPORATION PO BOX3727 SPoKANE W A 99220-3727 E-MAIL : patrick.ehrbar@avistacorp.com j oe.miller@avistacorp.com CERTIFICATE OF SERVICE