20041216Investigative Workshops 2.3.4 Status Report.pdf

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BARTON L. KLINE ISB #1526
Idaho Power Company
O. Box 70
Boise, Idaho 83707
Phone: [phone]
FAX: [phone]
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Attorney for Idaho Power Company
Express Mail Address
1221 West Idaho Street
Boise, Idaho 83702
BEFORE THE IDAHO PUBLIC UTILITIES COMMISSION
IN THE MATTER OF THE INVESTIGATION
OF FINANCIAL DISINCENTIVES TO
INVESTMENT IN ENERGY EFFICIENCY BY
IDAHO POWER COMPANY
CASE NO.IPC- E-04-
INVESTIGATIVE
WORKSHOP
STATUS REPORT
BACKGROUND
On May 25 , 2004, The Idaho Public Utilities Commission (Commission) in Order No.
29505 (Idaho Power Company general rate case No. IPC-03-13) determined that a separate
proceeding to assess financial disincentives inherent in Company-sponsored conservation
programs is appropriate and should proceed by informal workshops." The Commission s Order
provided in relevant part as follows:
The Commission specifically directs the parties (Idaho Power NW Energy
Coalition , Industrial Customers of Idaho Power (ICIP) and Commission Staff) to
address possible revenue adjustment when annual energy consumption is both
above and below normal. The parties should also consider how much adjustment
is necessary to remove DSM investment disincentives and whether (and to what
extent) performance-based incentives such as revenue sharing could or should be
incorporated into the resolution of this issue. The Commission is interested in
proposals that could provide Idaho Power the opportunity to share and retain
INVESTIGATIVE WORKSHOP STATUS REPORT, Page 1
benefits gained from efficiencies , especially technologies... In short, the
Commission believes opportunities exist for improvements in operating efficiency
that would benefit the Company shareholders and its customers, and we
encourage the parties to creatively consider the options for a performance-based
mechanism to present to the Commission. The parties to the agreement are
directed to propose a workshop schedule and initiate a proceeding. (emphasis
added)
Order No. 29505 at pp. 68, 69.
As a follow up to the Commission s Order, the NW Energy Coalition on June 18 , 2004
formally requested that a proceeding be initiated and that a workshop schedule be established.
The Commission in Order No. 29558 established this docket to investigate the financial
disincentives which hinder Idaho Power s investment in cost-effective energy efficiency
resources. The Commission stated that the scope of the investigation should be focused on
decoupling and performance based ratemaking. The Commission directed the participating
parties to provide a written report to the Commission no later than December 15 , 2004 updating
the Commission on the status of the investigative workshops.
PROCESS
The parties have participated in five workshops to date: August 24 September 27
November 8, December 1 and December 13 , 2004. Workshops have included presentations by
participants, group discussion, and assessment of areas of agreement and disagreement. Susan
Hayman with North Country Resources, Inc., a Boise-based facilitation/mediation firm, prepares
agendas and facilitates workshops. Four designated workshop coordinators representing each of
the four major interests at the table (Idaho Power Company, Idaho Public Utilities Commission
Staff, Industrial Customers of Idaho Power, and Northwest Energy Coalition) cooperate in
designing workshops. Copies of workshop summaries for all but the December 13 2004
workshop are provided as attachments to this Status Report. When the summary for the
December 13, 2004 workshop is completed, it will be provided to the Commission as a
supplement to this filing.
PARTICIPANTS
The following people have attended one or more workshops, receive meeting materials
and summaries, and are considered active workshop participants:
INVESTIGATIVE WORKSHOP STATUS REPORT, Page 2
Name and Affiliation Name and Affiliation
IPUC Staff
Lynn Anderson
Randy Lobb
Terri Carlock
David Schunke
Scott Woodbury
Northwest Ener2V Coalition
Nancy Hirsh, NW Energy Coalition
Bill Eddie, Advocates for the West
Ralph Cavanagh, Natural Resources Defense
Council
Idaho Power
Ric Gale
B art Kline
Maggie Brilz
Darlene Nemnich
Greg Said
Tim Tatum
Mike Youngblood
Industrial Customers of Idaho Power
Peter Richardson, Industrial Customers of Idaho Power
David Hawk, J.R. Simplot Co
Don Reading, Ben Johnson Associates
Other Interested Parties
Brad Purdy, Community Action Partnership Association
of Idaho
Laura Nelson, IPUC Policy Strategist
PROGRESS
Since the inception of the workshops on August 24, 2004 the signatories to this report
have achieved the following:
1) Established and accepted a set of operational principles that guide the workshops;
2) Clarified the nature and extent of financial disincentives to Idaho Power for
investment in energy conservation through demand-side management programs
(DSM);
3) Agreed that material financial disincentives do exist and will increase as DSM
expenditures increase. Not all participants agree that restoration of lost fixed cost
revenues would directly result in additional investment in DSM programs by Idaho
Power;
4) Agreed on a set of evaluation criteria by which to compare and contrast potential
mechanisms for removing financial disincentives and/or providing incentives for
DSM programs;
INVESTIGATIVE WORKSHOP STATUS REPORT, Page 3
5) Agreed to continue exploring two specifically proposed mechanisms: A true-up
mechanism (referred to as a decoupling mechanism in early workshops) and a
performance-based incentive mechanism;
6) Agreed to design a true-up mechanism simulation and a pilot program performance-
based incentive mechanism to evaluate the effects of these two mechanisms. The
simulation and pilot program will be the subject of further review and discussion at
the next workshop.
TIMELINE
Participants established the following timeline at the December 1 workshop:
1) Provide this status report to the Commission on or before December 15, 2004, as
specified in Order No. 29558;
2) Provide a full report to the Commission no later than January 31 , 2005 , including
participant recommendations and rationale.
This Status Report to the Commission has been reviewed and approved by Idaho Power
Company, Northwest Energy Coalition, the Commission Staff and the Industrial Customers of
Idaho Power.
lL-- 1(.(- 0(.#
Date Barton L. Kline
Attorney for Idaho Power Company and on behalf
of Northwest Energy Coalition, the Commission
Staff and the Industrial Customers of Idaho Power
,:"
INVESTIGATIVE WORKSHOP STATUS REPORT, Page 4
Final
ASSESSING FINANCIAL DISINCENTIVES AND
RESOLUTION OPPORTUNITIES, WORKSHOP
SEPTEMBER 27, 2004, 9:30 A.M. TO 12:30 P.
IDAHO POWER CORPORATE HEADQUARTERS, BOISE, ID
Facilitation Susan Hayman, North Country Resources, Inc.
Documentation Natalie Chavez, Chavez Writing & Editing, Inc.
WORKSHOP OBJECTIVES
1) Develop operational protocols for the remaining workshops
2) Continue investigating the nature and extent of financial disincentives to energy conservation
programs (DSM)
3) Explore a potential decoupling mechanism to address DSM investment disincentives
WORKSHOP DECISIONS AND OUTCOMES
The next meeting will be held November 8 2004, from 9:30am - 3:30pm at IPC. The morning will be
spent reviewing results of action items 1 through 3 (below), while the afternoon will be reserved for
discussing performance-based incentives.
ACTION ITEMS
1) Run a model of the following:
a) lAP-rate impacts by class
b) NWPCC-rate impacts by class
c) Estimate of savings from conservation (using Aurora)
2) Discuss development of a tool to poll customers about energy-
conservation/efficiency programs.
3) Recalculate numbers with an interim rate case but in the absence of a
true-up mechanism.
4) List ideas for possible performance-based incentives, and develop a
strawman" if an idea stands out.
5) Make requested changes to "Operational Protocol" and to "Definitions.
E-mail revised documents to participants.
WORKSHOP OPERATIONAL ISSUES
Randy Lobb , Ric
Gale, and Ralph
Cavanagh
David Hawk and
Ric Gale
Lynn Anderson
All
Susan Hayman
Susan Hayman welcomed participants (Appendix 1), had them introduce themselves, and then reviewed
the agenda (Appendix 2). Participants had no changes to the agenda. Hayman had compiled an
operational protocol for the series of workshops, based on conversations she had with participants. The
group reviewed and made the following revisions to (decisions about) the operational protocols for the
workshops (Appendix 3):
Workshop Purpose statement 1-add "and customers" to the end of the clause
Workshop Purpose statement 2-retain "performance-based ratemaking" since that language
appeared in the IPUC order (Order No. 29558, p. 2), but add "incentives" in parentheses following
that phrase
Summary of the September 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
Roles and Responsibilities statement gt-designate coordinators: IPC-Mike Youngblood, IPUC-
Lynn Anderson , NWEC-Bill Eddie, and Industrial Customers-Peter Richardson
Analysis statement-replace the question with "Analysis needs will be identified and assigned as they
emerge.
Hayman also provided a definitions list for review (Appendix 4). Following are the revised definitions for
demand side management" and "true-up." Definitions for "performance-based incentives" and
decoupling" stood as worded.
Demand Side Management (DSM): Management tools and actions that are designed to result in
decreases or shifts in customer energy demand and/or consumption.
. True-Up: A decoupling mechanism where a periodic adjustment in electric rates is used to correct for
disparities between a utility s actual fixed-cost recovery and its authorized fixed-cost recovery.
NATURE & EXTENT OF FINANCIAL DISINCENTIVES
Hayman distributed questions raised in conversations with participants and grouped into categories
(Appendix 5). These questions could be revisited after today s discussions to see which had been
answered and which remained. Some could also be assigned for analysis , if appropriate. She also shared
a flowchart she had drawn on the whiteboard and asked if there was any dissension about the process.
Workshop participants accepted the flowchart.
Magnitude & location of
disincentive
(develop decision criteria)
Decoupling Performance-based mechanisms
Other Options
Recommendations
Fixed-Cost Revenue Loss Analyses
Prior to the workshop, Lynn Anderson , IPUC, had e-mailed participants a memo and Excel worksheet
(Appendix 6). He had calculated IPC's fixed-cost revenue losses under three 9-year scenarios that he
had developed to try to quantify the nature and extent of financial disincentives. These calculations are
gross estimates that are not adjusted for taxes , cost changes, offsetting benefits, etc. They also assume
no intervening rate cases , which would reset the base rates upon which the fixed-cost revenue loss would
be calculated on a Qoinqforward basis.to zero. He shared that information with the whole group and
answered questions.
Integrated Resource Plan Scenario
Under the IRP scenario , the fixed-cost revenue loss grows to about $1.3 million per year by 2013.
The 9-year total for all rate classes is about $6 million, with a net present value of about $4 million.
The residential 9-year total is about $2 million. These figures are based solely on energy charges, not
energy and demand charges. Adding fixed-cost revenue loss from demand savings would increase
the $6 million by about a third.
Summary of the September 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
Northwest Energy Efficiency Alliance (NEEA) efforts were excluded from the scenario.
Northwest Power and Conservation Council Scenario
Under the NWPCC scenario, the fixed-cost revenue loss grows to about $23 million per year by 2013.
The 9-year total for all rate classes is about $114 million, with a net present value of about
$75 million. The residential 9-year total is about $51 million.
Results from this analysis are consistent with numbers that Ralph Cavanagh came up with. His
calculations show $45 million in fixed-cost revenue loss over the first five years, his number includes
demand charge losses as well as energy charge losses. Anderson arrived at $38 million using only
energy charge losses.
For the commercial class, the loss/MWh unsold jumped from $9.70 under the IRP scenario to $41.
under the NWPCC scenario. This class included both schedule 07 and 09 rate classes though. If the
analysis were fine-tuned, this discrepancy would need to be addressed.
IPC's share of 6.5% is based on sales. The potential is greater since IPC hasn t done much DSM in
the last several years.
How rate cases would affect the $114 million was uncertain. Intervening rate cases reset fixed-cost
revenue requirements but do not allow IPC to recover revenue losses incurred since the previous rate
case. Ric Gale said that an analysis of what would happen would be fairly simple to do.
Historical Residential Scenario
Under this scenario, only residential fixed-cost revenue losses are calculated. Using weather-
normalized kWh per customer consumption data, the hypothetical fixed-cost revenue loss grows to
$18 million in 2003, the 9th year following IPC's 1994 rate case.
The $18 million shown for 2003 is almost identical to what the IPUC will give IPC for the rate increase
for residential customers under the just-completed rate case, despite the scenario being an
oversimplification.
Average monthly per customer usage decreased by 143 kWh in the 9-year period. During this time
IPC had very little residential DSM; its participation in NEEA probably accounts for less that 5% of the
reduction. The reductions are mostly focused into two years (2001 and 2002) when there was also a
nationwide reduction in electricity consumption. There were also 40% PCA increases in those two
years. These electricity savings may have been offset by increased gas consumption.
Summary-Areas of Agreement
After the three scenarios were presented and discussed, participants listed their conclusions about the
magnitude of the problem and the location of disincentives. Below are issues that were raised during this
discussion:
IPC's historical lost revenues are a disincentive to something, but it's difficult to say that they are a
disincentive to energy efficiency since the lost revenues in the third scenario are not associated with
DSM.
If there is a relatively aggressive DSM program and it achieves energy-efficiency objectives, there is a
cost to the company. What remains unknown is how much it would cost to "fix" the problem and
whether that price is tolerable. In addition , it is important to understand what IPC would do differently
if the company recovered costs incurred through DSM.
Demand reduction" occurs with higher pricing. But higher pricing isn t the solution that people are
looking for. They would like to know how to separate demand reduction due to energy-efficiency
programs from that due to higher prices. Also, what are the impacts of different energy-efficiency
programs?
Summary of the September 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
STRAWMAN PROPOSAL FOR AN IDAHO POWER TRUE-UP MECHANISM
Ralph Cavanagh introduced a strawman proposal for a true-up mechanism (Appendix 8). A true-up
mechanism is "not about paying the company anything; it simply provides IPC a means for recovering
fixed costs." It is designed around an authorized fixed-cost revenue requirement.
Under his proposal, the starting point would be the fixed-cost revenue requirement and retail rates
approved by the IPUC in the latest IPC rate case. If , after the first year, changes in retail electricity use
lead to under- or overrecovery of the fixed-cost revenue requirement, then a rate true-up would occur in
the following year on the same schedule as IPC's current PCA. Until reestablished in the next IPC rate
case , the currently approved fixed-cost revenue requirement would be automatically adjusted annually to
reflect the same rate of increase or decrease shown for retail electricity sales , net of any DSM programs
in IPC's latest IRP. True-ups would occur annually based on any divergence between the total fixed-cost
revenue recovery that forecast sales would have delivered and the fixed-cost revenues actually
recovered. The true-ups would be done for each customer class based on divergence between actual
and forecast sales to each customer class. IPC would continue to absorb the risk or benefits of purely
weather-related effects on fixed-cost revenue recovery, as it does now. Actual sales would be weather
normalized before the annual true-up calculation was made. Cavanagh emphasized that the maximum
annual anticipated rate impact of the true-up mechanism, up or down, under extreme conditions would be
5%.
Several issues were raised during the presentation and associated discussion (Appendix 9):
This mechanism does not include figuring out how much of the difference is attributable to different
factors.
Because the fixed-cost revenue requirement would track forecasted sales rather than historical sales
IPC would not be paying extra if DSM programs were successful. Every year, the company would be
truing up to a number known in advance at the same schedule that is now used.
Although Cavanagh proposed truing up for every customer class (except special contracts because of
other complexities), the mechanism would work in part (for certain customer classes).
At one point, IPC classified DSM as a supply side investment: the money was capitalized and
amortized over a number of years. But the benefits didn t materialize for a number of reasons.
Basing the true-up mechanism on forecasted sales might motivate IPC to inflate its forecasted
numbers. Deterrents might include having the forecast adopted independently or using a different
index after the next general rate case.
To better understand the effects of DSM on fixed-cost revenue loss, people suggested rerunning the
scenarios and running the Aurora model, given some of the discussion points raised during the
workshop. The following action items resulted from this discussion and were assigned to Randy Lobb
Ric Gale, and Ralph Cavanagh to coordinate:
Rerun the IRP scenario with rate impacts by class
Rerun the NWPCC scenario with rate impacts by class
Use Aurora to estimate chanqes in power supply costs that may result from increased levels of
energy savings from conservation
Recalculate scenario numbers with an interim rate case (assigned to Lynn Anderson)
. A poll of customers' appetite for energy-efficiency programs might help in estimating potential savings
from conservation. David Hawk and Ric Gale will discuss the value and development of a poll.
NEXT STEPsIWRAP-
Hayman reviewed action items that need to be done before the next workshop. This workshop was set for
November 8,2004, from 9:30am - 3:30pm at IPC. The morning will be spent reviewing results of the
model runs and Anderson s scenarios with an interim rate case included. The afternoon will be reserved
for discussing performance-based incentives. Gale encouraged people to develop other strawmen if they
Summary of the September 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
have ideas. Cavanagh offered to circulate a proposal for a performance-based mechanism in advance of
the workshop.
During a quick workshop evaluation , participants asked that people who will be sharing information
distribute that information in advance so that people have a chance to review it.
ApPENDIX 1-PARTICIPANTS
Phone No.Name and Affiliation
Peter Richardson, Industrial Customers of Idaho
E-mail Address
peter ~ richardsonandoleary .com
dreading ~ mudspring.com
myoungblood ~ idahopower.com
mbrilz ~ idahopower.com
gsaid ~ idahopower .com
landers ~ puc.state.id.
bmpu rdy ~ hotmail.com
rlobb ~ puc.state .id. us
Don Reading, Ben Johnson Associates
Mike Youngblood, Idaho Power
Maggie Brilz, Idaho Power
Greg Said, IPC
Lynn Anderson, IPUC
Brad Purdy, Self
Randy Lobb, IPUC
Bart Kline, Idaho Power bkline ~ idahopower .com
rcavanagh ~ nrdc.org
dnemnich ~ idahopower.com
Ralph Cavanagh, Natural Resources Defense Council
Darlene Nemnich , Idaho Power
Tim Tatum, Idaho Power ttatum ~ idahopower.com
Inelson ~ puc.state.id.
swoodbu ~ puc.state.id.
dschunk ~ puc.state.id.
billeddie ~ rmcLnet
rgale ~ idahopower .com
tcarloc~ puc.state.id.
Laura Nelson, IPUC
Scott Woodbury, IPUC
David Schunke , IPUC
Bill Eddie, Advocates for the West
Ric Gale, Idaho Power
Terri Carlock, IPUC
David Hawk, J.R. Simplot Co.david .hawk ~ simplotcom
938- 7901
342-1700
388-2882
, 388-2848
388-2288
334-0353
384-1299
334-0350
388-2682
[phone]
388-~2505
388-5515
334-0363
334-0320
334-0355
342- 7024 x 3
388-2887
334-0356
389-7306
Summary of the September 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
ApPENDIX 2-AGENDA
ASSESSING FINANCIAL DISINCENTIVES AND
RESOLUTION OPPORTUNITIES
WORKSHOP #2
September 27, 2004
9:30am-12: 30pm
Auditorium East
Idaho Power Corporate Headquarters
Boise. Idaho
Objectives:
1) Develop operational protocols , objectives and outcomes forthis effort;
2) Continue investigating the nature and extent of financial disincentives to energy conservation
programs (DSM);
3) Explore a potential decoupling mechanism to address financial disincentives.
Draft Agenda
Time Topic Process
9:00am CoffeelTea available in meeting room
9:30am WelcomellntroductionslMeeting Overview - Susan Hayman Information
Facilitator
9:40am Workshop Operational Issues - Susan Hayman Inform ati onlD i scu ssi on
Workshop series purpose and products (incl. terminology)
Participant roles & responsibilities
Decision-making
Documentation
0:20am Nature & Extent of Financial Disincentives Presentation
Fixed-Cost Revenue Loss Analyses - Lynn Anderson Discussion
- Important Omissions, Caveats and Disclaim erg
- DSM-caused losses under IRP projection
- DSM-caused losses under NWPCC draft DSM projection
- Residential historical declining kWh per customer
Areas of agreement on the current situation
11 :20am BREAK
11 :30am Strawman" Proposal for an Idaho Power True.lJp Mechanism Presentation
- Ralph Cavanagh Discussion
12:10pm Wrap-Up - Susan Hayman Discussion
Workshop schedule
Agenda items for next workshop - Susan Hayman
Evaluation
12:30pm Adjourn
Summary of the September 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
ApPENDIX 3-0PERATIONAL PROTOCOLS
Workshop Series - Operational Protocol
Workshop Name: Assessing Financial Disincentives and Resolution Opporturuties
Workshop Purpose:
1) To investigate the nature and extent of financial disincentives to investment in energy efficiency
by Idaho Power Company and customers:
2) To investigate decoupling and performance-based ratemaking (incentives)as mechanisms to
address financial disincentives (IPUC Order # 29558,8/10/2004). Other mechanisms can be
subsequently explored if the participants agree thai this would be useful.
Workshop Products: A written report to the Idaho Public Utilities Commission to update the
Commission on the status of the investigative workshops. This report will include a summarized
assessment of:
1) The nature and extent of financial disincentives to investment in energy efficiency by Idaho
Power Company;
2) Recommendations regarding specific decoupling anellor performance-based mechanisms that may
reduce/remove these financial disincentives.
3) Recommendations for next steps.
Workshop Tenure: August 24 through December 15 2004
1) Composition of Workshop Participants
While workshops will be open to the public, it is expected that participants will generally represent
the Idaho Public Utilities Commission, Idaho Power Company, Northwest Energy Coalition
representatives of industrial customers, representatives of residential customers, and representatives
of irrigation customers.
2) Roles & Responsibilities of Workshop Participants
a) Be active in the discussion, be solutions-oriented, and act in "good-faith.
b) Help others at the table to understand your interests, and actively seek to understand the interests
of others.
c) Be informed - Review the previous workshop summary, the agenda and prework in advance of
the next workshop.
d) Follow-through in a timely manner with any assigned action items.
e) Attend workshops regularly - the group will not revisit decisions/discussions missed by others.
f) Workshop Coordinators: One representative each from Idaho Power Company (Mike
Youngblood).Idaho Public Utility Commission (Lynn Anderson),aHd-Northwest Energy
Coalition (Bill Eddie), and industrial customers (Peter Richardson).Responsibilities include
coordination with the facilitator on the workshop objectives, outcomes, agenda and process.
3) Role & Responsibilities of the Facilitator
a) Manage the workshops, serve as a process coach, maintain neutrality and impartiality, and
reinforce the collaborative process.
b) Refine the objectives and outcomes for each workshop, in cooperation with the workshop
coordinators. Propose a workshop agenda and appropriate processes to reach the identified
Page 1 of 1 - Operational Protocol
Summary of the September 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
objectives and outcomes, and finalize this with the coordinators. The agenda, and any prework
materials, will be distributed to participants at least one week prior to each workshop.
c) Communicate with participants outside of workshops as needed.
d) Maintain a record of workshop participants, and a summary of workshop discussions (see #6
Record Keeping).
e) Assist in preparation/compilation of the written report to the Idaho Public Utilities Commission.
4) Analysis
W!ltj is ~ilig ttj ptYJ-.'idc CfJICLly.Yi3 StlPP(jJ'j for 1:1i3 .vtjlk1h~p (.:J(jJJcct d$:iI, dc-"Jk;,p tiJi.
-/ .
1lJCJ)'fO
swJ1eri es, ate.)? Analvsis needs will be identified and assigned as they emerge.
5) Decision-Making
a) Entities with multiple representatives: While each individual participant will have input into
the workshop deliberations, it is desirable that each entity represented speak with one voice in
decision-making. Therefore, while numerous individuals may represent a given entity at a
workshop, it is expected that one person will speak on behalf of the entitywhen decisions are
made. Each entity should designate that person in advance. The facilitator will provide time for
representatives to consult with each other as needed prior to critical decisions.
b) Types of decisions: There are two types of decisions participants will make:
Workshop decisions: These decisions are related to workshop topics, process and
schedule. Woricshopdecisions already made by the IPUC in Orders 29505 and 29558
will be honored. Decisions at the discretion of the group will be made by consen sus.
Product decisions: These decisions are related to the findings and recommendations
workshop participants will present in their written report to the IPUC on December 15,
2004. Consensus will be the goal- However, if consensus cannot be reached, areas of
agreement and disagreement on the findings and recommendations will be provided in the
written report.
6) Record-Keeping
a) The facilitator will arrange for notes to be taken on a laptop computer during the workshop. The
distributed workshop will include key discussion points, decisions, areas of agreement and
disagreement, action items, etc. They will not be a transcription of "who said what"
b) The facilitator wi II be responsible for preparing the workshop summary and distributing it to
participants within three business days after each workshop.
c) The facilitator will maintain a file of all workshop summaries, handouts, and products.
7) Principles of Meeting Conduct
a) Focus attention on the speaker (no side conversations)
b) Be specific, but succinct, in questions and comments
c) Participate fully, but don't dominate the discussion.
d) Respect other s contributions, and learn from them.
e) Cballenge ideas, not people
f) Be on time
g) Turn cell phones, pagers or other electronic devices off or inaudible during meetings.
Page 2 of2 - Operational Protocol
Summary of the September 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
ApPENDIX 4-DEFINITIONS (WITH REVISIONS)
Definitions
Demand Side Management (DSM): M~mage:Jt').~l'tt()()l$
and actions that arc dcsiswcd to result in decreases or shifts in
customer CHenlV demand and/or cof').sutnptioI)J\nything that a
utility d()0S that aff'eet::; eu:)ton'H~r energy d8Rla~d, consumption
andlor limeofuae..
Performance-Based Inccntiycs (PBI): Mechanisms that
allow a utility to share and retain benefits gained from energy
efficiencies, as welt as provide consequences for failing to meet
efficiency goals.
DecoupUng: Severing the Jink between a utility s kWh sates
and its recovery of revenues to covertixed costs.
True-Up: A decoupling mechanism where a periodic
adjustment in electric rates is used to correct for disparities
bet...vecn a utility s actual fixed cost ree0\'erie~;rccoVef\l,:,and its
authorizcd fixed-cost reco\'ervrate ofrelurn
Summary of the September 2004, Workshop
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Final
ApPENDIX 6-FIXED-COST REVENUE Loss ANALYSES
I PC DSM FoC Revenue Loss. IRP
OnlyDSM Selected in the 20()41RP (2004-2013 Planning Period)
, " """ "'" ",., ""
Idaho Power tPC-04-018, IRP Technical Appendix
Energy Savings (Excluding NEEA)
Net of Free Riders, Includes Losses
Enerclv SavinQs (MeQawatt -hours)
Residential Commercial IrJiQation Industrial070 389 5 767 9 427
625 1 OB7 11 534 853
193 1 900 17 300 28 2805.784 2.810 23,067 37.706
397 3 801 28 834 47 133
205 4 861 34 601 56 559
028 5 980 40 368 65 986
872 7 149 46 134 75412
734 8 359 901 84 839,
aMW(2004IRP)=
908 36 337 259 506 424 195
End of IRP
Plamin\:J Period
Year
2005
2006
2007
2008
2009
2010
2011
2012
2013
Total
Total MWh
653
34 ,100
674
367
166
105 226
123 363
141 566
159 833
18.25
788,946
Calculation of Fixed Cost lost Revenue Der MWh for Various Rate Schedules
Residential Commercial' IrnQation Industrial"'"
Energy Rate ($/MWh) 51,9 30.0 32,6 21.
Variable CO$t ($IMWh)2Q2 20,3 23,5 18,
LosslMWh unsold $3L20 $9.$9JO $3.
("'
) Commercial rate is a weighted avg, of schedules 07 & 09S based on energy use,
U\ Ind, rate is a WQhtd, avo- of schs, 09 P & T and 19 S, P & T based on enemy use,
(Numbers by IPC 9/21/04)
Peak Reduction (MW)
Com, IrriQ, Ind, Total6 0.1 2.9 1.2 4,5 0,4 5,8 2,4 10.5 0,7 8.7 3,15.4
3.4 1.1 11.5 4,8 20.3 1.14.4 6.26.23 1.9 17,7.2 31_
2.4 20.2 8.4 37.23 2,8 23,1 9,6 42.3 3,3 26,0 10.8 48.
3 3_3 26_0 10.8 48.
'"
Peak MW (Energy Programs) 48.
Peak MW (Demand Response) 75.
T alai Peak f.1W Selected DSt..1 123.
Nole that the $/MWH here
are dUt for com, & indust.
than on NWPCC sheel
End of !RP
Plaming Pariod
Total
WAGC = 7,20%
PV 9-yr. (2005-2013)
Avg Annual
Levelized (9-yr.
Year
2005
2006
2007
2008
2009
2010
2011
2012
2013
Fixed Costs Not Recovered Due to DSM Selected in IRP
sidential Commercial IrJiaation Industrial Total
$33 370 $3 775 $52,480 $31 109 $120 734
81.905 10 548 104 959 62 215 259 627
130 837 18.432 157,430 93 324 400 023
180,467 27 256 209 910 '124,430 542 063
230 799 36 871 262 389 155 539 685 599
287 187 47 156 314 869 186 645 835 857
344 084 58 008 367 349 217 754 987 194
401 601 69 341 419 819 248 860 1 139 621
459 689 082 472,299 279,900 1,293.038
The fixed-costs not
recoverd at left are the
product of multiplying
each year s energy
savings (excluding NEEA)
in the top box by the
10ss/MWh unsold in the
middle box (IPC adj, of
Eric Hirst numbers). The
losses. are not adjusted
for income taxes, cost
changes, offsetting
benefits, etc, All losses
assume no rate cases
2005-2013,
149 939 $352.469 361 505 $1 399 844 263 756
$1,434 141 $ 232 128 $1 593 395 $ 944 526 $ 4 204 190
429 988 70,494 472 301 279 969 252.751
214.415 34.705 238 224 141 214 628 557
Summary of the September 2004, Workshop
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Final
Idaho Power-Idaho Only Sales and Customers
Residential Only
Weather
Residential Normalized
Year Revenue MWh Sold Customers
1987 $129,436 545 217 104
1988 140 569 164 219 005
1989 155 211 941 221 617
1990 153 080 652 226 323
1991 162 388 156 231 347
1992 158 306 311 237 837
1993 173 124 151 524 040 246 278
1994 174 880 654 589 867 255 735
1995
1996
1997
1998
1999
2000
2001
2002
2003
IPC DSM F-C Revenue Loss - Historical
Hypothetical
Weather Fixed-Cost
Norm. kWh Revenue
CustJmo. Loss
192
1170
184 321 208
191,716 079
190 655 639
201 626 186
203,972,260
215 560 768
250 774 139
296 274 337
266,499 664
717 787
776 360
864 922
987 589
076 279
160 997
142 665
100 268
141 393
264 901 1170 23,324
273 834 1 149 2 108,207
282 054 1 142 2 945,197
290 532 1 ,144 2 831,082
300 072 1,132 4,242 165
309,499 1 120 5,727,683
318 076 085 10 056 112
326 788 1 046 15 194,468
336 204 1 027 18 035 272
year total= $61 163 509
Post 1994 "Hypothetical Fixed-Cost Revenue Loss" calculation uses 1 170 kWh per month as the
residential weather normalized consumption base,
The average consumption decrease of 143 kWh from 1 170 in 1994 to 1 027 in 2003 represents a
1.4% average annual decrease. Idaho Power had very little residential DSM during this time period, It is
likely that increased natural gas penetration is responsible for most of the decreased electricity use,
The calculation uses $31.20 as the residential "loss/MWh unsold" (IPC's update to Hirst's number)
and assumes the fixed-cost lost revenue recovery formula would have compensated IPC for all weather
normalized declining kWh sales per customer.
1994
1995
1996
1997
1998
1999
2000
2001
Total Retail Sales All ClassesRevenue MWh Customers
434 690 290 11 622 194 306 881
438 527,438 11 395,255 317 760
458 675 200 12,410,881 328,676
454 141 771 12 594,311 339 022
488 226 974 12 720,471 349 339
489 565 724 13 077 842 360 021
537,735 312 13,895,478 370 101
624,448 755 12 391 914 380 593
Energy Charge
Variable Cost
Loss/MWh unsold
$/MWh From I PC's 3/30/04 Eric Hirst Decouplina Report. P. 5 - IPC UpdatedRes, Com. .!!:!i9:. Indust. -all 9 & 19 sch, (wt. ava.)
51.90 62.60 32.60 24.40 Note that the $/MINH here
20.70 21,10 23,50 19,aredifUorcom,&indust.
$31.20 $41.50 $9,10 $4.90 thanonIRP-selectedsheet.
Summary of the September 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
Actual Actual
yr.yr. Avg, 3-yr. Avg,
Avg.Revenue Actual kWh/cust. kWh/cust.Weather Norm.
Year Bill per kWh Kwh sold er month er month kWh Sold
1987 49,0432 995 218 168 150
1988 53.49 0446 148 903 043 198
1989 58,0469 306,433 702 243 197
1990 56.0474 230 831,759 190 210
1991 58.49 0473 3,430,432 527 236 223
1992 55.4 7 0481 289 387 264 153 193
1993 58.0483 582 828 720 212 200 524 040,421
1994 56,0484 610 314 912 176 180 589 867,417
yr. Average, 1987 to 1994 =195
1995 57,0518 556 816 130 119 169 717 787 134
1996 58,0508 3,775 150 065 149 148 776 360,493
1997 56,0496 843 356 042 136 134 864 921 749
1998 57,0518 891 822 308 116 134 987 588 792
1999 56,0510 997 632 389 110 121 076 279 049
2000 58.0515 189 182 972 128 118 160 997 320
2001 65,0609 117 127 872 079 106 142 664 831
2002 75,0706 197 803 194 070 092 100 268 216
2003 66,0629 238 675 325 051 067 141 393,426
ApPENDIX 7-Fup CHARTS REGARDING ANALYSES
Financial Disincentives
(Lynn Anderson s Presentation)
1) Add in lost demand charge to calculating of total
financial loss (IRP scenario)
2) $6 million loss in revenue under I RP DSM
projections. IRP-no tax impact if company made
whole
3) Lynn s projections do not include savings from
NEEA.
4) $114 million loss in revenue under NWPCC
scenario.
Conclusions-Financial Disincentives
1) IPCo historical lost revenues is a disincentive to
something. Historically, not tied to DSM.
2) If there is a relatively aggressively DSM program
and achieves objectives , there is a cost to
company.
3) "Demand destruction" occurs with higher pricing.
4) Lost revenues occur with successful DSM
programs
is it a disincentive
Financial Disincentives (cant.
5) 6.5% kWh sold in NWPCC attributed to IPC
6) Intervening rate cases reset fixed-cost
requirements, but do not allow IPCO to recover
lost $$ since previous rate case.
7) (hist) NEEA effects c:: 5% customer use-has
occurred without utility DSM programs.
8) Over 9-year period , utility had no active residential
DSM program.
Summary of the September 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
ApPENDIX 8-STRAWMAN" PROPOSAL FOR AN IDAHO POWER TRUE-UP MECHANISM
STRAWMAN"PROPOSAL FORAN IDAHO POWER TRUE-UP MECHANISM
Submitted by Ralph Cavanagh, NRDC (9/22/04)
1. Starting point: fixed-cost revenue requirement and retail rates approved by Idaho
PUC in latest Idaho Power rate case.
2. If, after initial year, changes in retail electricity use lead to under- or over-
recovery of fixed cost revenue requirement, a rate true-up would occur in the
following year on the same schedule as the Company s current Power Cost
Adjustment.
3. Until reestablished in the next Idaho Power rate case, the currently approved fixed
cost revenue requirement would be automatically adjusted annually to reflect the
same rate of increase (or decrease) shown for retail electricity sales, net of any
DSM programs, in Idaho Power s latest IRP. True ups would occur annually
based on any divergence between the total fixed-cost revenue recovery that
forecast sales would have delivered and the fixed-cost revenues actually
recovered (so if, for example, sales were forecasted to increased by 2 percent and
actually increased by a larger percentage, Idaho Power would refund the
difference at the time of the next Power Cost Adjustment; if retail sales increased
by a smaller percentage than forecast, Idaho Power would get back the lost
revenues at the time of the next Power Cost Adjustment).
4. True-ups would occur by custorrer class based on divergence between actual and
forecast sales to each custorrer class.
5. Idaho Power would continue to absorb the risk or benefits of purely weather-
related effects on fixed-cost revenue recovery, as it does now. This would rrean
weather norrmlizing actual sales before making the annual true-up calculation.
MAXIMUM ANNUAL ANTICIPATED RATE IMP ACT OF THE TRUE UP
MECHANISM, UP OR DOWN, UNDER EXTREME CONDITIONS = 1.5 PERCENT.
ApPENDIX 9-FLIP CHARTS REGARDING STRAWMAN PROPOSAL
Strawman Proposal
1) True-up by each customer class
2) Mechanism could be applied to individual/selected
classes and still be acceptable
3) Remove special contracts from mechanism.
4) *Plea to not exclude industrial class
5) Predicted load growth in each class to establish
authorized revenue requirement.
Strawman Proposal (cont.
6) True-up would result in surcharges/benefits by
rate class
7) Forecast of fixed-costs may, potentially, create an
incentive to inflate the forecast in the future.
8) Because this rate case is already decided, fixed-
cost projections would be established without
consideration of true-up mechanism effect
May be a challenge in the future
May apply inflation factor in future
Summary of the September 27, 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
ASSESSING FINANCIAL DISINCENTIVES AND
RESOLUTION OPPORTUNITIES, WORKSHOP
NOVEMBER 8, 2004, 9:30 A.M. TO 3:30 P.
AUDITORIUM EAST, IDAHO POWER CORPORATE HEADQUARTERS, BOISE, ID
Facilitation Susan Hayman, North Country Resources, Inc.
Documentation Natalie Chavez, Chavez Writing & Editing, Inc.
WORKSHOP OBJECTIVES
1) Continue investigating the nature and extent of financial disincentives to energy conservation
programs; identify areas of agreement and any additional information needs.
2) Identify criteria that workshop participants would use to evaluate the applicability/desirability of
potential mechanisms to address disincentives.
3) Brainstorm potential mechanisms to address disincentives, including additional true-up mechanisms
performance-based incentives, etc.1 ,
WORKSHOP DECISIONS AND OUTCOMES
The next meeting is scheduled for December 1 , 9:30am to 3:30pm at IPC. An additional meeting is set for
December 13. If people with action items are unable to complete them in time for the December
meeting to be productive , that meeting will be cancelled and all parties notified by Susan Hayman
facilitator.
ACTION ITEMS
Who?When?What?
1) Check with Commission regarding scope of performance-
based incentive discussion (is it DSM-related only?) and
provide response to the workshop participants
2) Talk with Bill Eddie about report coordination; reply to
Hayman
3) E-mail proposed report coordination assignments to the
workshop participants
4) Coordinate timing of status report
5) Develop PBR strawman suitable for Idaho and successfully
demonstrated elsewhere
6) Refine true-up mechanism
7) Analyze the refined true-up strawman and PBR strawman
Randy ASAP
Nancy November 9
Susan In next few days
Susan Next meeting or e-mail
IPUC Next meeting
Ralph Next meeting
IPC Deferred
1 With the approval of workshop participants, Workshop Objectives 2 and 3 were deferred to the December 1 workshop to allow for
more extensive presentation and discussion of financial disincentives information at this workshop.
Summary of the November 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
WORKSHOP INTRODUCTION
Susan Hayman, North Country Resources, welcomed participants (Appendix 1), had them introduce
themselves, and then reviewed the agenda (Appendix 2). She distributed revised copies of the
operational protocols (Appendix 3) and reviewed posters showing purpose , products , definitions, and
principles of meeting conduct (Appendix 4). Although three key participants representing the NWEC
perspective were absent , the group decided to listen to planned presentations, discuss the information
and represent the NWEC perspectives as best they could , but not draw any conclusions until the others
were present.
CONTINUED EXPLORATION OF FINANCIAL DISINCENTIVES
Scenarios with Interim Rate Cases
Before the workshop, Lynn Anderson , IPUC e-mailed participants a memo and two Excel worksheets
(Appendices 5 and 6). He had incorporated three interim rate cases to recalculate IPC's fixed-cost
revenue losses under two of the three 9-year scenarios that he had presented at the September 27
workshop. Under both scenarios, forward-looking revenue losses from past DSM efforts are eliminated
(except for an assumed six-month lag between the end of the rate case test year and rate
implementation), even though past DSM savings are assumed to persist into the future. DSM efforts that
occur after each rate case test year result in new fixed-cost revenue losses that accrue until the next rate
case. As a surrogate for rate case adjustments , the levels of fixed-cost revenues per MWh are increased
by the average MWh growth rate projected in the IRP for each rate class.
Anderson first showed results of his recalculations of the IRP level of DSM (which excludes NEEA). The
IRP rate-case adjusted, 9-year total fixed-cost revenue loss is $3 million , or about half of the $6.2 million
presented previously. The present value of the $3 million is about $2 million, and the levelized loss is
$0.3 million per year.
Next, he showed results under IPC's 6./0 share of the NWPCC level of DSM (which includes NEEA, fuel
conversions, building codes, appliance standards, and other DSM for which utilities have limited, little , or
no control). The NWPCC rate-case adjusted, 9-year total fixed cost revenue loss is $54.6 million
compared with the $114.2 million presented previously. The present value of the $54.6 million is about
$39 million, and the levelized loss is $6 million per year.
Prior to the meeting, Cavanagh e-mailed a response to Anderson s recalculations (Appendix 7). Copies
were made and distributed to those who had not received the e-mail. First, Cavanagh reminded people
that NWPCC projections were not the upper limits of energy efficiency targets. Second, he disagreed with
Anderson s elimination of continued revenue losses after a rate case. According to Cavanagh, using this
approach understates IPC's losses from persistent savings and rewards short-lived efficiency measures
while discouraging durable savings.
Following the presentation, participants raised and discussed the following issues:
IPC loses fixed cost revenues when consumption declines. It is still uncertain how much reduced
consumption is due specifically to DSM rather than to other factors. Therefore , some participants
aren t certain whether this situation is best resolved by a true-up mechanism or some other
disincentive/incentive mechanism.
. A decoupling/recoupling or true-up mechanism is not an incentive but a removal of a disincentive.
More frequent rate cases would reduce fixed cost lost revenue even more than the hypothetical 3-
year interval rate cases included in this analysis.
Fixed cost revenues may be over-collected in the case where kWh sales, less DSM savings , are
greater than the forecasted kWh growth , resulting in a refund for the customers under this true-up
2 Ralph Cavanagh (Natural Resources Defense Council), Bill Eddie (Advocates for the West), and Nancy Hirsh (NW Energy
Coalition) were absent at the beginning of the meeting. Their absence left no representatives of the NWEC stakeholder group. Hirsh
arrived before lunch break, and Cavanagh participated via conference call in the afternoon. Eddie was unable to participate at all.
Summary of the November 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
mechanism. At the same time, increased kWh sales will usually mean an increase in customer
growth , which may require IPC to spend money for a new distribution plant and equipment. IPC is
concerned about the possible scenario where they are giving a refund to customers at the same time
as expending dollars in capital investment.
What level of fixed costs , if recovered , would encourage or allow IPC to do what it wouldn t do
otherwise with DSM or other programs?
Greg Said, IPC, illustrated what happens between rate cases (see below) in the absence of a true-up
mechanism. Lost fixed cost revenues from DSM could accumulate over a 10-year period unless a
rate case adjusts the rates up to recover the lost fixed costs. This adjustment would change the angle
of the lost revenue line down (in blue) so that future fixed cost losses are accelerated. For the sake of
illustration , Said assumed a straight-line reduction , although it would likely be curved (in red).
Anderson said that the surrogate for the blue dotted line was captured in his analysis.
::J
!:::;::.
"'C
iS lost and unrecoverable g., $129 million
Would have been lost but is now recovered
Possible curve (assuming no straight-line
relationship)
Year Shifted lost revenue curve after rate case
Rate Impacts by Class under IRP and NWPCC Projections
Mike Youngblood , IPC, distributed a 10-page packet with rate impacts under the true-up mechanism for
both IRP and NWPCC energy efficiency projections (Appendix 8) and a single sheet regarding fixed cost
lost revenue per MWh by customer class (Appendix 9) prepared by Tim Tatum, IPC. Under this model
the true-up mechanism is based on forecasted sales as the method for IPC to recover fixed costs.
Youngblood showed the assumptions he could change to analyze various scenarios.
Using the residential rate class, he walked participants through the model, which also included high- and
low-growth scenarios to illustrate a range around the base case. The following issues were raised during
the discussion (see Appendix 10 for flip chart notes):
If energy sales grow faster than forecasted and DSM equals growth, there will be no apparent
divergence from the base case.
Although this model is not based on customer counts, increased kWh growth likely means increased
customer growth. If so, IPC has to make capital investments for new customers. Youngblood
commented that his numbers reflect divergence from an assumed 20/0 growth rate. Hypothetically, an
increase in kWh use and an increase in the number of customers may result in a refund to customers
and the requirement for IPC to add facility investment.
For DSM , the percentage of class increase is still relatively small on an annual basis in the short term.
Regular rate cases would adjust recovery so that the long-term effect wouldn t be as high as
modeled.
Trends of true-up are similar among rate classes.
Summary of the November 8, 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
Youngblood then presented a similar model of the true-up mechanism based on customer counts rather
than forecasted sales. Youngblood did not provide this dynamic model as a handout but demonstrated it
to the group. Appendix 11 includes one scenario based on certain input assumptions. For this analysis
he used weather-adjusted numbers, $30.14 as the total fixed cost per MWh, and 12 549 kWh to represent
the average consumption for a residential user. The high and low scenarios represent 1 % increase above
and decrease below that average use per customer. Again , people could chose from among a number of
assumptions to see their effects. Trends were similar to those under the forecasted sales true-up
mechanism although magnitudes changed. The impact over a 20-year period, all else being equal, is a
slight increase to rates, which is consistent with recovery of lost fixed revenues. Youngblood commented
that the customer count mechanism works better with residential and small commercial customers, while
the forecasted sales approach works better for industrial and irrigation customers.
Power Supply Costs under Increased Energy Conservation
Tim Tatum , IPC , distributed a four-page handout (Appendix 12) with results from the Aurora model
conducted to analyze impacts of increasing levels of DSM on power supply costs. Mike Rufo of Quantum
Consulting provided IPC an assessment of residential and commercial DSM potential within the
Company s service territory by 2013. For the analysis , Portfolio 11 from the Company s 2004 IRP was
modified to include Quantum Consulting s estimates of achievable DSM. The original Portfolio 11 was
then used as the base case in the analysis. Tatum pointed out that Northwest Power and Conservation
Council (NWPCC) estimates of achievable DSM are higher because they include market transformation
tax credits , and other mechanisms necessary to achieve those numbers. The IRP only accounts for direct
acquisition program savings and does not include savings attributable to the Northwest Energy Efficiency
Alliance (NEEA). When the 2004 IRP DSM resources are combined with Quantum Consulting
assessment findings and IPC's share of NEEA market transformation savings, the total is greater than
NWPCC estimates of achievable DSM for IPC.
IPC decided to include the higher level of DSM (excluding NEEA) into a modified portfolio to allow them to
analyze impacts to energy and capacity constraints (see Appendix 13 for flip chart notes). The first sheet
of the handout (Appendix 12) shows the higher level of DSM , which allows IPC to defer resources (shown
in orange blocks). The deferral of these resources results in an increase in variable supply costs due to
decreased market sales potential. However, the fixed cost benefit of the deferral results in net savings.
The second sheet shows the impact to power supply costs, excluding fixed costs. Factoring in DSM
savings, power supply costs are reduced in all years except 2007, which is when the first Combined Heat
and Power (CHP) resource is deferred. The third sheet shows portfolio fixed costs comparisons, with and
without DSM fixed costs , between the base case and increased DSM portfolios. In the two years with
CHP deferrals (2007 and 2010), there is a net decrease in fixed costs. The yellow columns show the
costs to achieve DSM. Results showing the impacts of increasing levels of DSM on power supply costs
are included on the last page. By increasing levels of DSM and organizing the portfolio for deferrals, the
net present value between the two portfolios from now through 2033 is $36.3 million. This analysis
indicates conservation has occurred and IPC will spend $36 million less in resources as a result. Extra
costs would be incurred to the system for the first several years, and the break-even point would occur in
2022. The analysis showed that increased DSM could reduce power supply costs in the long run , but the
disincentive needs to be removed early on.
COMMISSION REPORT
The participants expressed concern that there is not enough time before the December 15 deadline given
in the IPUC order to complete the investigation of the issues and draft a complete report.. They decided to
submit a status report instead, which IPUC staff said will be sufficient as long as it describes the group
progress and anticipated due date for the completed report. Responsibility for drafting the status report
will be assigned at the next meeting.
Nancy Hirsh will talk with Bill Eddie about serving as report coordinator. Once written and compiled, drafts
will be circulated to all participants , though suggested revisions from participants should be coordinated
by each party (ICIP, IPC, IPUC, NWEC) before being sent back to the report coordinator. In the
meantime, work group members brainstormed the following outline for the report:
Summary of the November 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
I. History-events leading up to the order and the parties involved in the work group.
The IPUC volunteered to write this section
II. What the work group did-issues raised, studies performed, mechanisms explored, assumptions
made, and possible solutions detailed.
The outline should allow means for showing the areas of agreement as well as areas of
disagreement.
III. Conclusions and recommendations-conclusions drawn from the studies.
This would reflect study information and perhaps respond to the four material questions discussed at
this workshop (see Appendix 15).
IV. Ancillary information-figures, tables, study details , workshop summaries, and any other
attachments needed to clarify or substantiate information.
After developing the draft outline (see Appendix 14 for flip chart notes), participants raised the need to
include information about performance-based ratemaking (PBR) alternatives. The order had charged the
work group with looking at alternatives to promoting DSM , one being decoupling and another being PBR.
IPUC staff volunteered to develop a PBR strawman that is centered on DSM for the next meeting. If there
is time to deliver the strawman to IPC for analysis before the December 1 meeting, the IPUC will do so.
Otherwise, analysis will be conducted before the December 13 meeting.
QUESTIONS RAISED
The following questions were developed before or during the workshop and discussed once Cavanagh
was able to participate via conference call (see Appendix 15 for flip chart notes):
Are there financial disincentives to energy conservation?
If there are financial disincentives , where are they (nature) and what is their extent?
Is fixed cost recovery the issue/best way to address DSM?
How much lost revenue (recovered) will cause the company to do something otherwise?
What other information do we need?
Question 1-Existence of Financial Disincentives
All parties agreed that lost fixed cost revenue was associated with every kWh not sold.
Question 2-Nature and Extent of Financial Disincentives
Participants generally accepted the following conclusions:
The nature and extent of the financial disincentive depends on the frequency of rate cases and the
magnitude of IPC's energy efficiency program.
The loss/fixed margin associated with every unsold kWh is needed to recover the fixed costs set in a
rate case. However, over the last 10 years, IPC has implemented no DSM but experienced a huge
loss/fixed margin.
IPC could exert huge effort on programs that don t materialize. Nor would removal of disincentives
guarantee energy conservation.
Question 3-Best Approach for Addressing DSM
Participants agreed that this question couldn t be answered yet since performance-based ratemaking
alternatives haven t been explored.
Question 4-Amount of Lost Revenue Recovery to Effect Change
While striving to answer this question, the following issues were raised:
Ric Gale , IPC, talked about IPC's commitment to re-energize DSM programs from a good faith
stance. But out-of-pocket expenses for DSM (the immediate need) are a bigger concern than lost
Summary of the November 8, 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
revenue recovery at this time. If a mechanism for eliminating the financial disincentive could be
implemented cleanly, the company would want to pursue it. In the meantime, IPC has made
significant strides in DSM proposals and savings that can be achieved without lost revenue recovery.
One the other hand, management does ask Darlene Nemnich, IPC, about lost revenues any time she
takes a DSM program to management for funding. Lost revenues are an issue at the programmatic
implementation level.
The IPUC is concerned about allowing the company to collect fixed costs that may not be associated
with DSM efforts.
IPC may not be as concerned about lost revenues given the amount of DSM projected in the IRP
which is less than half the NWPCC's target.
Although fuel costs , which are given to IPC as fuel recovery, can be volatile and can affect the
company as adversely as lost fixed cost revenue, the approach does differ.
Question 5-lnformation Needs
The analyses presented today addressed some of the questions that people had. However, the need still
exists for a way of determining the amount of savings resulting from DSM. In the future, monitoring and
evaluation results of DSM programs may contribute to understanding the amount of fixed costs
associated with DSM. Because a true-up mechanism may address some but not all concerns, participants
want to see similar analyses of PBR alternatives. IPUC volunteered to develop a PBR strawman for the
next meeting.
NEXT STEPsIWRAP-
Hayman reviewed action items to be completed before the next workshop (Appendix 16). This workshop
is scheduled for December 1 , 2004, from 9:30am to 3:30pm at IPC. During this meeting, participants will
hear strawman presentations, discuss evaluation criteria, and develop the status report for the
Commissioners. If people with action items are unable to complete them for the meeting, Hayman will
notify participants that the meeting will be postponed until December 13.
ApPENDIX 1-P ARTICIP ANTS (shading indicates work group participants unable to
participate in person or by phone in workshop #3)
Name and Affiliation
Lynn Anderson, IPUC
Maggie Brilz, Idaho Power
Terri Carlock, IPUC
Name and Affiliation
Laura Nelson, IPUC
Ralph Cavanagh, Natural Resources Defense Council
Darlene Nemnich, Idaho Power
Molly O'Leary, Industrial Customers of Idaho (sitting in for
Peter Richardson)
Brad Purdy, Community Action Partnership Association of
Idaho
David Hawk, J.R. Simplot Co.
Nancy Hirsh , NW Energy Coalition
Bart Kline, Idaho Power
Don Reading, Ben Johnson Associates
Greg Said , IPC
David Schunke, IPUC
Bill Eddie, Advocates for the West
Ric Gale, Idaho Power
Tim Tatum, Idaho Power
Mike Youngblood, Idaho Power
Randy Lobb, IPUC Scott Woodbury, IPUC
Summary of the November 8, 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
ApPENDIX 2-AGENDA
ASSESSING FINANCIAL DISINCENTIVES AND
RESOLUTION OPPORTUNITIES
WORKSHOP #3
November 8, 2004
9:30am-3:30pm
Auditorium East
Idaho Power Corporate Headquarters
Boise, Idaho
Objectives:
1) Continue investigating the nature and extent of financial disincentives to energy conservation
programs; identify areas of agreement and any additional information needs.
2) Identify criteria that workshop participants would use to evaluate the applicability/desirability of
potential mechanisms to address disincentives. Deferred
3) Brainstorm potential mechanisms to address disincentives, including additional true-up
mechanisms, performance-based incentives, etc. Deferred
Final Agenda
Time Topic Process
9:15am CoffeelTea available in meeting room
9:30am Welcomellntroductions/Meeting Overview - Susan Hayman Information
Facilitator
9:45am Continued Exploration of Financial Disincentives Presentations /
(We will take a Action item reports:Discussion
morning break IRP, NWPCC and historical residential scenarioswhen it is most
convenient to calculated with an interim rate case (but without a
the group)true-up mechanism) - Lynn Anderson
);-
Rate impacts by class under IRP and NWPCC
projections - Mike Youngblood
Potential changes in power supply costs from
increased energy conservation (using Aurora
model) - Tim Tatum
Areas of agreement and additional information needs
Are there financial disincentives? If so, what is their nature and
extent? Is additional information required to assess this?
11 :45pm Lunch (on your own)
12:45pm Mechanism Evaluation Criteria - Susan Hayman Deferred Exercise / Discussion
:45pm Potential Mechanisms to Address Disincentives Deferred Brainstormmg
exercise / DiscussionTrue-ups (different kinds?)
Performance ,Based Incentives (different kinds?)
Others?
2:30pm Next Steps, Action Items, Evaluation - Susan Hayman Discussion
3:30pm Adjourn
Summary of the November 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
ApPENDIX 3-REVISED OPERATIONAL PROTOCOLS
0411 08
Workshop Series - Operational Protocol
Workshop Name: Assessing Financial Disincentives and Resolution Opportunities
Workshop Purpose:
1) To investigate the nature and extent of financial disincentives to investment in energy efficiency
by Idaho Power Company and customers;
2) To investigate decoupling and performance-based ratemaking (incentives) as mechanisms to
address financial disincentives (IPUC Order # 29558, 8/1 0/2004). Other mechanisms can be
subsequently explored ((the participants agree that this would be useful.
Workshop Products: A written report to the Idaho Public Utilities Commission to update the
Commission on the status of the investigative workshops. This report will include a summarized
assessment of:
I) The nature and extent of financial disincentives to investment in energy efficiency by Idaho
Power Company;
2) Recommendations regarding specific decoupling and/or performance-based mechanisms that may
reduce/remove these financial disincentives.
3) Recommendations for next steps.
Workshop Tenure: August 24 through December 15 2004
1) Composition of Workshop Participants
While workshops will be open to the public, it is expected that participants will generally represent
the Idaho Public Utilities Commission, Idaho Power Company, Northwest Energy Coalition
representatives of industrial customers, representatives of residential customers, and representatives
of irrigation customers.
2) Roles & Responsibilities of Workshop Participants
a) Be active in the discussion, be solutions-oriented, and act in "good-faith.
b) Help others at the table to understand your interests, and actively seek to understand the interests
of others.
c) Be informed - Review the previous workshop summary, the agenda and prework in advance of
the next workshop.
d) Follow-through in a timely manner with any assigned action items.
e) Attend workshops regularly - the group will not revisit decisions/discussions missed by others.
t) Workshop Coordinators: One representative each from Idaho Power Company (Mike
Youngblood), Idaho Public Utility Commission (Lynn Anderson), Northwest Energy Coalition
(Bill Eddie), and industrial customers (Peter Richardson). Responsibilities include coordination
with the facilitator on the workshop objectives, outcomes, agenda and process.
3) Role & Responsibilities of the Facilitator
a) Manage the workshops, serve as a process coach, maintain neutrality and impartiality, and
reinforce the collaborative process.
b) Refine the objectives and outcomes for each workshop, in cooperation with the workshop
coordinators. Propose a workshop agenda and appropriate processes to reach the identified
Page 1 of 1 - Operational Protocol
Summary of the November 8, 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
041108
objectives and outcomes, and finalize this with the coordinators. The agenda, and any prework
materials, will be distributed to participants at least one week prior to each workshop.
c) Communicate with participants outside of workshops as needed.
d) Maintain a record of workshop participants, and a summary of workshop discussions (see #6
Record Keeping).
e) Assist in preparation/compilation of the written report to the Idaho Public Utilities Commission.
4) Analysis
Analysis needs will be identified and assigned as they emerge.
5) Decision-Making
a) Entities with multiple representatives: While each individual participant will have input into
the workshop deliberations, it is desirable that each entity represented speak with one voice in
decision-making. Therefore, while numerous individuals may represent a given entity at a
workshop, it is expected that one person will speak on behalf of the entity when decisions are
made. Each entity should designate that person in advance. The facilitator will provide time for
representatives to consult with each other as needed prior to critical decisions.
b) Types of decisions: There are two types of decisions participants will make:
)-
Worhhop decisions: These decisions are related to workshop topics, process and
schedule. Workshop decisions already made by the TPUC in Orders 29505 and 29558
will be honored. Decisions at the discretion of the group will be made by consensus.
)0. Product decisions: These decisions are related to the findings and recommendations
workshop participants will present in their written report to the IPUC on December 15
2004. Consensus will be the goal - However, if consensus cannot be reached, areas of
agreement and disagreement on the findings and recommendations will be provided in the
written report.
6) Record-Keeping
a) The facilitator will arrange for notes to be taken on a laptop computer during the workshop. The
distributed workshop will include key discussion points, decisions, areas of agreement and
disagreement, action items, etc. They will not be a transcription of "who said what.
b) The facilitator will be responsible for preparing the workshop summary and distributing it to
participants within three business days after each workshop.
c) The facilitator will maintain a file of-all workshop summaries, handouts, and products.
7) Principles of Meeting Conduct
a) Focus attention on the speaker (no side conversations)
b) Be specific, but succinct, in questions and comments
c) Participate fully, but don t dominate the discussion.
d) Respect other s contributions, and learn from them.
e) Challenge ideas, not people
f) Be on time
g) Turn cell phones, pagers or other electronic devices off or inaudible during meetings.
Page 2 of 2 - Operational Protocol
Summary of the November 8, 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
ApPENDIX 4-POSTERS WITH OPERATIONAL INFORMATION
Principles of Meeting Conduct
1) Focus attention on the speaker (no side
conversations)
2) Be specific, but succinct, in questions and
comments
3) Participate fully, but don t dominate the discussion
4) Respect others' contributions, and learn from them
5) Challenge ideas, not people
6) Be on time
7) Turn cell phones, pagers or other electronic
devices off or inaudible during meetings
Definitions
Demand Side Management (DSM): Management
tools and actions that are designed to result in
decreases or shifts in customer energy demand and/or
consumption.
Performance-Based Incentives (PBI): Mechanisms
that allow a utility to share and retain benefits gained
from energy efficiencies, as well as provide
consequences for failing to meet efficiency goals.
Decoupling: Severing the link between a utility s kWh
sales and its recovery of revenues to cover fixed costs.
True-Up: A decoupling mechanism where a periodic
adjustment in electric rates is used to correct for
disparities between a utility s actual fixed cost recovery
and its authorized fixed cost recovery.
Workshop Series-Purpose and Products
(excerpts from Operational Protocol, adopted 9/27/04)
Workshop Purpose:
1) To investigate the nature and extent of financial
disincentives to investment in energy efficiency by
Idaho Power Company and customers;
2) To investigate decoupling and performance-based
ratemaking (incentives) as mechanisms to address
financial disincentives (IPUC Order #29558
8/10/2004). Other mechanisms can be
subsequently explored if the participants agree that
this would be useful.
Workshop Products: A written report to the Idaho
Public Utilities Commission to update the Commission
on the status of the investigative workshops. This
report will include a summarized assessment of:
1) The nature and extent of financial disincentives to
investment in energy efficiency by Idaho Power
Company;
2) Recommendations regarding specific decoupling
and/or performance-based mechanisms that may
reduce/remove these financial disincentives;
3) Recommendations for next steps.
Summary of the November 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
ApPENDIX 5-ANDERSON S RECALCULATION OF FIXED COST REVENUE Loss USING
IRP INFORMATION AND THREE INTERIM RATE CASES
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Assessing Financial Disincentives and Resolution Opportunities Workshop
ApPENDIX 7-CAVANAGH S RESPONSE TO ANDERSON S ANALYSES
-------------- Forwarded Message: --------------
From: "Cavanagh, Ralph" -::rcavanagh(fYnrdc.org?
To: "Lynn Anderson" -::landers(fYpuc.state.id.us?, -::north country(fYatt.net?
, "
Randy Lobb"
-::rlobb(fYpuc.state.id.us?
, "
Brad Purdy " -::bmpurdy(fYhotmai1.com?
, "
Mike Youngblood"
-::myoungblood(illidahopower.com?
, "
Greg Said" -::gsaid~idahopower.com?
, "
Bart Kline
-::bkline~idahopower.com?
, "
Ric Gale" -::rgale(fYidahopower.com?
, "
Dave Schunke
-::dschunk(illpuc.state.id.us?
, "
Alden Holm" -::aholm(fYpuc.state.id.us?
, "
David Hawk"
-::david.hawk~simplot.com?
, "
Bill Eddie" -::billeddie(fYrmci.net?
, "
Scott Woodbury
-::swoodbu~puc.state. id. US?
, "
Peter Richardson" -::peter(fYrichardsonandoleary .com?
, "
Darlene
Nemnich" -::dnemnich(fYidahopower.com?
, "
Laura Nelson
" -::
lnelson(fYpuc.state.id.us?
, "
Maggie
Brilz" -::mbrilz~idahopower.com?
, "
Terri Carlock" -::tcarloc(fYpuc.state.id.us?
, "
Nancy Hirsh"
-::nancy~nwenergy .org?, -::ttatum(fYidahopower .com?, -::dreading(fYmindspring.com?
Subject: Comments on Lynn s Analysis
Date: Wed, 3 Nov 2004 23:32:04 +0000
COLLEAGUES:
I am grateful to Lynn for timely circulation of his revised analysis, and (after a
discussion with him) offer these additional thoughts:
1. The NWPCC energy efficiency projections, although more aggressive than the
Company s current IRP, is not by any means the upper bound of the possible; as
a fraction of system electricity use, for example, the Council targets are only
about half the targets that California s utilities are planning to meet (equivalent to
about one percent of their systemwide retail consumption annually). I would
never suggest to this group that Idaho should copy California, but neither would I
want to imply that it's impossible for Idaho to OUTPERFORM California.
2. On the question of whether potential revenue losses from increased DSM
investments are material, I think that the point is now well established even with
Lynn s revised numbers ($54.5 million over nine years sure gets my attention
and for that matter so does $3 million). But I want to emphasize that Lynn
new, somewhat lower numbers reflect a crucial assumption with which I do not
agree. As Lynn forthrightly says, his analysis assumes that every time you have
a rate case
, "
forward-looking revenue losses from past DSM efforts are
eliminated
" "
even though past DSM savings are assumed to persist in the
future." Here is the difficulty: those persisting DSM savings continue to inflict
revenue losses on the Company even after the rate case, in the sense that the
unsold kWh return no fixed costs to the Company, and the Company clearly
would be better off financially if those old savings disappeared instead of
persisting. The only sense in which anything is "eliminated" is that each rate
case resets rates based on actual consumption in the year closest to the rate case
so that the sales base for that test year incorporates the impact of previous years
energy efficiency investments in that year.But in subsequent years, if the
savings persist, the Company continues to lose revenues COMPARED TO A
SCENARIO UNDER WHICH THOSE SAME SAVINGS DISAPPEARED, and
Lynn s analysis isn t picking those incremental losses up at all- it's disregarding
them (unlike his initial analysis, which counted them). So, in my view, Lynn is
understating the losses to the company from persistent savings and missing a
Summary of the November 8, 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
perfectly perverse feature of the status quo: the Company is rewarded for
installing short-lived efficiency measures and penalized for finding durable
savings. THIS IS ANOTHER VERY GOOD REASON TO ADOPT A
TRUE-UP MECHANISM THAT ELIMINATES THE LINKAGE
BETWEEN RETAIL ELECTRICITY CONSUMPTION AND IDAHO
POWER'S FIXED COST RECOVERY.
-----
Original Message-----
From: Lynn Anderson (mailto:landers(gjpuc.state.id.us)
Sent: Wednesday, November 03, 2004 1:04
To: north country(gjatt.net; Randy Lobb; Brad Purdy; Mike Youngblood; Greg Said; Bart Kline; Ric
Gale; Dave Schunke; Alden Holm; David Hawk; Cavanagh, Ralph; Bill Eddie; Scott Woodbury;
Peter Richardson; Darlene Nemnich; Laura Nelson; Maggie Brilz; Terri Carlock; Nancy Hirsh;
ttatum (gjida hopower .com; dreading (gjmi ndspring .com
Subject: Rate Cases Effects on F-C Rev. Losses
Hello , Decoupling Workgroup,
Attached is a two-tab, two-scenario worksheet that calculates fixed-cost revenue losses
assuming rate cases occur every three years. (Idaho Power s last rate case test year
was 2003.) Under both scenarios, forward-looking revenue losses from past DSM
efforts are eliminated (except for an assumed 6-month lag between the end of the rate
case test year and rate implementation) even though past DSM savings are assumed to
persist into the future. DSM efforts that occur after each rate case test year result in
new fixed-cost revenue losses that accrue until the next rate case. Each rate case is
assumed to result in the loss per MWh unsold increasing by the IRP-projected average
MWh sales growth rate for each customer class.
The first tab shows results under Idaho Power s IRP-Ievel of DSM (which excludes
NEEA). The IRP rate-case adjusted , 9-year total fixed cost revenue loss is $3 million
compared to $6.2 million shown in the IRP worksheet we reviewed at the September 27
workshop. The present value of the $3 million is about $2 million and the levelized loss
is $0.3 million per year.
The second tab shows results under Idaho Power s 6.5% share of the NWPCC-Ievel of
DSM (which includes NEEA, fuel conversions, building codes , appliance standards and
other DSM for which utilities have limited , little or no control.) The NWPCC rate-case
adjusted , 9-year total fixed cost revenue loss is $54.6 million compared to $114.2 million
shown in the NWPCC worksheet we reviewed at the September 27 workshop. The
present value of the $54.6 million is about $39 million and the levelized loss is $6 million
per year.
The analyses in both scenarios are admittedly very simplified , but fairly straightforward.
I doubt that adding complexity for greater accuracy would change the results
significantly. A brief recap from September s workshop: Ralph Cavanagh pointed out
that adding demand-related revenue losses could increase the losses by about 10%, but
I countered that accounting for income taxes would reduce them by a greater amount
and Greg Said reminded us that if lost revenues are recovered then the taxes have to
also be recovered. In short, I think the two scenarios represent a low-side and a high-
side of potential fixed-cost revenue losses, although the possible range is even wider.
Lynn Anderson, IPUC
208-334-0353
Summary of the November 8, 2004, Workshop
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Assessing Financial Disincentives and Resolution Opportunities Workshop
ApPENDIX 9-FIXED COST LOST REVENUE PER MWH BY CUSTOMER CLASS
Fixed Cost Lost Revenue per MWh by Customer Class
Base Rate Components ($/MWh)
Residential Commercial*Irrigation Industrial**
Total Base Energy Cost (1)$51.$29.$32.$21.45per MWH
Variable Cost per MWH (2)$20.$20.$23.$18.41Class
Variable Cost per MWH (3)$1.$0.($5.72)$0.Subsidy
Fixed Cost per MW H -(4)$28.$7.$22.$1.Class
Fixed Cost per MW H -(5)$1.$1.($7.33)$0.Subsidy
Total Fixed Cost per (6)$30.$8.$14.$2.44MWH (Class & Subsidy)
) Commercial rate is a weighted avg. of schedules 07 & 09 S , & T based on energy use.
(**
) Industrial rate is a wghtd. avg. of schedule 19 S, P & T based on energy use.
Summary of the November 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
ApPENDIX 10-Fup CHARTS REGARDING MIKE YOUNGBLOOD S PRESENTATION
Rate Impacts by Class
NWPCC/weather adjusted with true-up
Residential
1) If energy sales faster than forecast and
DSM = growth, brings back to base.
(Ralph's perspective) It is not trying to reward
company for increased growth-provides for
status quo in rate case
2) For DSM, % class increase still relatively small on
an annual basis in short term. Regular rate case
would adjust recovery so that effect in long term
wouldn t be as high as modeled.
3) With increase kWh use (and increased number of
customers), may result in refund to customers plus
additional cost for more facility investment.
Customer Count Model
(Revenue side only)-Recoupling to revenue per
customer
1) Number of customers doesn t affect recover (when
use per customer does not change)
2) For high , refund in first few years while use is
higher, then positive return to company after first
few years.
3) For low case, collecting more than DSM
4) 1.2% over time period in fixed cost recovery
5) For industrial customers, change in number of
customers has greater effect (irrigation customers
are problematic)-served better by forecast
energy
6) Residential , small group-served better by
customer count
Results with True-up
1) In high growth, company may be refunding
customers and investing in capital/infrastructure.
2) Trends of true-up effects similar between rate
classes.
Summary of the November 8, 2004, Workshop
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Assessing Financial Disincentives and Resolution Opportunities Workshop
ApPENDIX 13-Fup CHART REGARDING TIM TATUM S PRESENTATION
~ Power Supply Costs from Increased Energy
Conservation
(Excludes fixed costs, but includes higher levels of
DSM-43% total)
1) Reduction in cost every year except year 7
(deferred CHP resource that year)
2) Fixed cost-increases except in 2 years of
deferred resource (does not include DSM)
3) What does increasing level of DSM do to power
supply costs?
By increasing DSM and deferring some CHP
resources, shows reduction ($36 million) (now
through 2033) in power supply costs. Net
benefit does not occur until 2022-would
require investment by company.
ApPENDIX 14-Fup CHARTS REGARDING COMMISSION REPORT
Commission Report
I. History of issue that generated work group-IPUC
II. What did work group do?
Studies -problems analysis , assumptions,
why we did studies we did
What mechanisms explored
Results of investigation (possible
solutions/details)
III. Conclusions and recommendations
Questions on wall
IV. Figures and tables, studies, workshop summaries
Report Review
Drafts circulated to all
Replies go to "report coordinator" from parties
IPC
NWEC
Industry
IPUC
Summary of the November 8, 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
ApPENDIX 15-Fup CHARTS REGARDING QUESTIONS TO ANSWER
Are there financial disincentives to energy
conservation?
If there are financial disincentives, where are they
(nature) and what is their extent?
What other information do we need?
Are there financial disincentives to energy
conservation?
IPUC-yes (loss of revenue associated with every
kWh unsold)
IPC
ICIP
NWEC
How much lost revenue (recovered) will cause the
company to do something otlJerwise?
IPC
Re-energizing DSM program
Out-of-pocket expenses is bigger concern
than lost revenue recovery at this time
1 )
Bin
Is the fixed cost recovery the issue or some other
specific way to address DSM?
How much lost revenue (recovered) will cause
company to do something otherwise?
If there are financial disincentives, where are they
(Nature), and what is their extent?
In loss/fixed margin associated with unused kWh
needed to recover fixed cost set in a rate case.
Magnitude of company energy efficiency
effort
The more effective energy programs are, the
less fixed cost lost margin
Residential and small commercial ratepayers most
affected. Rates would affect this.
Is fixed cost recovery the issue/best way to
address DSM
(Cannot be answered at this time)
Summary of the November 8, 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities Workshop
ApPENDIX 16-Fup CHARTS REGARDING NEXT MEETING AND ACTION ITEMS
What Who When
Check with commission Randy
regarding scope of
PBR discussion (DSM
related only)
Talk with Bill about Nancy 11/09
report coordination-
reply to Susan to
distribute to work group
Coordinate timing for Susan Next
the draft report to work meeting
group for review/status or e-mail
report
Develop PBR strawman IPUC Next
well suited for Idaho meeting
done elsewhere
Complete Analysis For IPUC Next
PBR-IPC-Defer meeting
Refined Cavanagh
True-
Refine Cavanagh true-Ralph Nextup strawman meeting
December 1 meeting (9:30 to 3:30)
Strawmen presentations
Evaluation criteria
Status update
December 13 (alternative or next date)
Summary of the November 2004, Workshop
Assessing Financial Disincentives and Resolution Opportunities
(corrected 041213)
Workshop
ASSESSING FINANCIAL DISINCENTIVES AND
RESOLUTION OPPORTUNITIES, WORKSHOP
DECEMBER 1 , 2004, 9:30 A.M. TO 3:00 P.
CONFERENCE ROOM 9 EAST, IDAHO POWER CORPORATE HEADQUARTERS, BOISE, ID
Facilitation Susan Hayman, North Country Resources , Inc.
Documentation Natalie Chavez, Chavez Writing & Editing, Inc.
WORKSHOP OBJECTIVES
1) Confirm criteria to evaluate the applicability and desirability of potential mechanisms to remove
disincentives/provide incentives for utility investment in DSM programs
2) Review two potential mechanisms:
a) Refined true-up mechanism
b) Performance-based ratemaking mechanism
3) Confirm the type of report that will be submitted to the IPUC on December 15 and assignments for
preparation and review
WORKSHOP DECISIONS AND OUTCOMES
Participants agreed to a set of evaluation criteria for potential disincentive/incentive mechanisms. The
purpose of the evaluation would be to compare and contrast different mechanisms to determine their
applicability and desirability.
Participants also decided to recommend a pilot of the performance-based mechanism proposed by IPUC
staff for one program until the next rate case. They also want to simulate the true-up mechanism during
the same period, based on real numbers, to consider it further and refine the mechanism. The next
meeting is scheduled for December 13, 9:00 am to 12:00 pm at IPC to discuss the details of these
recommendations. The final report and an application for the pilot program will be submitted to the IPUC
some time in January (dates to be determined December 13).
ACTION ITEMS
What?
1) Draft and distribute status report for review and comment
Who?When?
2) Prepare the outline and anything else necessary for
developing the proposal for a pilot performance-based
incentive mechanism; bring to the next meeting
3) Design the simulation for the true-up mechanism; bring to
the next meeting
Susan Hayman and
Scott Woodbury
IPC
(Darlene Nemnich)
December 3
December 13
IPC
(Mike Youngblood)
December 13
WORKSHOP INTRODUCTION
Susan Hayman , North Country Resources, welcomed participants (Appendix 1), reviewed workshop
objectives (above), and then reviewed the agenda (Appendix 2). She also reviewed posters with the
principles of meeting conduct, purpose and products of the workshop series, and important definitions.
Summary of the December 2004, Workshop
MECHANISM EVALUATION CRITERIA
Hayman distributed a handout with potential mechanism evaluation criteria (Appendix 3). She compiled
these criteria after telephone conversations with many of the participants prior to the November 8
workshop. Hayman said that the list served as a starting point for developing a final list of criteria against
which to evaluate potential disincentive and incentive mechanisms. Participants first clarified their
understanding of the criteria, and then revised criteria until they were acceptable to all. Appendix 4
includes flipchart notes taken during the discussion. However, most changes were captured on the wall
poster of the preliminary criteria during group discussion. The final revised list is included in Appendix 5.
POTENTIAL MECHANISMS
Refined True-Up Mechanism
Ralph Cavanagh, Natural Resources Defense Council , spoke about the requested revision to the
strawman proposal for an Idaho Power true-up mechanism (introduced at Workshop #2 on
September 27 2004). A handout summarized points of the original proposal as well as the proposed
revisions (Appendix 6). These proposed revisions included true-up based on actual customer counts for
residential and commercial customers (rather than on forecasted sales for all customer classes as
originally proposed).
Cavanagh , in cooperation with Idaho Power staff , looked into how often a true-up tied to actual customer
counts would have increased or reduced rates for the residential and commercial classes since 1990. For
any year during which such a mechanism would have been in effect, rates would have gone down if the
class s retail sales had grown more rapidly than the class s customer count, and vice versa. For the
commercial sector, electricity use grew more rapidly than the customer count in 10 of the 14 years since
1990. For the residential sector, electricity use grew more rapidly than customer count in 2 of the 14
years, while rates of growth were essentially identical in 3 years (including 2003). These findings confirm
the potential for rate decreases as well as increases for both classes under a true-up mechanism
although based on historical data, the likelihood of a rate decrease is substantially greater for the
commercial sector than for the residential sector. Cavanagh emphasized that annual class-specific rate
increases necessary to ensure recovery of the authorized fixed-cost revenue requirement would never
have exceeded 2% under the true-up mechanism. In most years, for both classes, rates would have
shifted up or down by 1 % or less.
During his presentation, Cavanagh shared the following:
A bar chart showed the net benefit of expanded energy-efficiency efforts for the Idaho system. The
high case indicated the greatest net benefit to the system at just over a $100 million (Appendix 7).
Given the net benefits , financial disincentives need to be removed so that Idaho Power is encouraged
to promote energy efficiency through conservation programs.
This true-up mechanism provides symmetry in that it addresses both lost revenues and found
revenues. Therefore, it discourages "perverse incentives" and DSM programs that "look good on
paper but aren t effective in practice.
The revised strawman proposal avoids cross subsidies and is fundamentally fair to the customers.
A second bar chart showed the annual household energy use (in kWh) for entertainment electronics
that will likely be typical of households in about 10 years (Appendix7). It's expected that combined
energy use for plasma TVs, DVD/VCRs, and set top box/satellite receivers will be about 1 200kWh
annually, up from about 500 kWh now with analog TVs. Workshop participants were cautioned
through this example that technological advances and changes in customer habits do not necessarily
lead to reduced per-customer electricity usage. This underscores the importance of well-designed
energy efficiency incentives, as well as and the merits of the revised NRDC true-up proposal (which
ties any increases in fixed cost recovery for the residential and commercial classes to increases in the
number of residential and commercial customers).
. A performance-based mechanism could be used in conjunction with the true-up mechanism.
Summary of the December 2004, Workshop
Follow-up discussion among participants focused on how big the impacts of implementing a true-up
mechanism would be to residential and commercial customers and how rate adjustments would be
calculated. Flipchart notes made during this portion of the workshop are included in Appendix 8.
Performance-Based Rafemaking Mechanism
Lynn Anderson , IPUC, distributed a two-page strawman proposal for a performance-based mechanism
(Appendix 9). Before talking about the proposal summarized on the second page, he asked that
participants review the hypotheses included on the first page. Until he compiled this list, he had been
unable to draft the proposed mechanism. The following issues were raised during discussion of
hypotheses:
Cavanagh questioned the exclusion of increased gas market share from fixed-cost losses in
hypothesis #7. Idaho Power may be motivated to retain electric market share for water heaters if the
company is unable to recover the fixed-cost revenue losses resulting from customers' conversion to
more efficient gas water heaters. This approach seems to penalize the company for these
conversions and encourage inefficiency. IPUC staff pointed out that Idaho Power could implement a
DSM program that reimburses customers for converting to energy-efficient gas water heaters.
Some workshop participants see some inconsistency in the IPUC's view on factors outside Idaho
Power s control. For example, the strawman proposal disallows Idaho Power from collecting fixed-
cost revenue losses unless incurred through DSM efforts. Yet reimbursement of fuel costs through
the company s Power Cost Adjustment (PCA) mechanism does allow for factors outside the
company s control.
The means for verifying savings resulting from DSM programs are likely to be "complex, tedious , and
expensive.
Following discussion of the hypotheses, Anderson explained the actual proposal , found on the second
page of the handout. The IPUC staff's strawman proposal would implement a mechanism to remove
financial disincentives by allowing specific fixed-cost revenue recovery for all verified DSM savings with a
bonus financial incentive for exceeding cost-effective DSM targets. He pointed out that the financial
incentives component of the proposal could also be implemented as a stand-alone approach or with a
true-up mechanism. This mechanism , as proposed , would be implemented as a trial restricted to the
Residential New Construction program. Residential energy rates have a relatively high fixed-cost recovery
component, which means that Idaho Power s financial disincentive for DSM in this class may be higher
than for other customer classes. It's also a relatively small program, so effects of any mistakes made in
the trial would be minimized. The following points were made during discussion of the performance-based
proposal:
According to Darlene Nemnich, IPC, Idaho Power rewards customers $750 when they exceed
building code on energy efficiency by 30% on new construction. Ideally, builders would want to make
homes as energy efficient as possible, but they are unlikely to want to change codes. Therefore, code
enforcement and training of code officials is important, and it is reasonable to credit utilities with work
they do with code enforcement beyond typical DSM programs.
Because of the trial nature of the mechanism, no penalties are included. Quality control is relatively
straightforward, and the targeted customer group is narrow, but the potential for perverse incentives
cannot be dismissed.
Flipchart notes pertaining to the performance-based mechanism are included in Appendix 10.
Additional Suggestion
David Hawk, J.R. Simplot Co., suggested that the group conduct an 18-month simulation of the two
proposed mechanisms based on real numbers. He believed that all parties and participants had invested
too much time discussing concerns with financial disincentives and potential corrective mechanisms for
nothing to happen. Because participants may not be comfortable implementing one or both of the
proposed mechanisms right now, an 18-month simulation would allow proposals to be studied further and
problems worked out before the group forwarded a firm recommendation to the IPUC. The flipchart
regarding Hawk's suggestion as well as other modeling options is included in Appendix 11.
Summary of the December 2004, Workshop
NEXT STEPS
Mechanism Analysis/Evaluation
Ric Gale, IPC, requested that the interest groups (IPUC, Idaho Power, Northwest Energy Coalition, and
Industrial Customers) caucus before presenting their views on each of the three proposals: true-up
mechanism, performance-based pilot, and 18-month simulation of the two proposals. Hayman allotted 15
minutes for caucusing. Afterwards , she asked that group spokesmen share their groups' views on the
three proposals and next steps. Industrial Customers felt that David Hawk's previous suggestion for a
simulation adequately represented their view. Flipchart notes from the three interest reports are included
in Appendix 12.
Idaho Power Company
Gale reported the following Idaho Power perspectives regarding the proposals:
Idaho Power is concerned about disallowance of program costs. The company endeavors to manage
program costs as effectively as possible. But disallowance of program costs and prudence reviews by
the IPUC significantly deters DSM investment.
In the intermediate or long term , the company may want to implement a true-up mechanism. In the
next couple of years, Idaho Power wants to undertake the activities in the IRP but is probably unable
to ramp up DSM any more than that. They are, however, amenable to simulating the true-up
mechanism until the next rate case to at least identify unintended consequences. Gale isn t sure how
much influence results of the simulation will have, but it could eliminate a degree of the uncertainties.
The company is intrigued by IPUC staff's incentive mechanism and supports piloting it with one
program until the next rate case and then evaluating its applicability to others.
Northwest Energy Coalition
Ralph Cavanagh shared the following viewpoints for Northwest Energy Coalition representatives:
They are not convinced that a simulation will change people s minds. Therefore , the coalition isn
interested in pursuing a simulation unless the group is truly committed to moving forward, the
simulation/test is credible, and the exercise establishes an architecture that can be used in the next
rate case.
The simulation mayor may not be effective in evaluating how Idaho Power Company s appetite for
conservation programs would change if a true-up were implemented. Rather, the simulation will give
an indication of the rate impact of the true-up under hypothetical scenarios of conservation activity.
Their commitment to the true-up mechanism hasn t diminished. Although they can forward the
proposal directly to the IPUC, they prefer to continue working with this group. Gale commented that
the simulation allows the group to refine the mechanism before the next rate case so that they can
give the IPUC something feasible.
Idaho Public Utilities Commission
Randy Lobb reported the following points of view for IPUC representatives:
They understand Idaho Power s concern about cost recovery and prudence reviews. But the IPUC
will continue these reviews, and the company will likely continue to do a good job. They believe that
because of the Energy Efficiency Advisory Group (EEAG), the company is actually at less risk now
regarding disallowances than it has been in the past.
The IPUC is interested in piloting the performance-based mechanism on a single program. This pilot
allows everyone to see whether the complexity can be worked out and the mechanism is feasible.
The IPUC is also amenable to the 18-month simulation of the true-up mechanism if the other groups
support it. The main purpose of the mechanism is to see how it changes company activities. A
simulation may have some value. If nothing else, it keeps a mechanism that the IPUC staff is unlikely
to suggest adopting at the moment on the table for future consideration. Working through it now may
Summary of the December 2004, Workshop
provide the company information it needs when it starts making decisions for the next two-year IRP
cycle.
Commission Reports and Timelines
Hayman directed participants to discuss the two reports-status and final-to the IPUC and timelines for
continued activities. The following decisions were made:
Scott Woodbury, IPUC, and Hayman will collaborate on the status report and send it out Friday,
December 3, for review.
This group will meet Monday, December 13, to discuss details of the pilot performance-based
mechanism and simulation of the true-up mechanism.
Idaho Power staff will prepare an outline for the pilot program and a design for the simulation for
discussion and finalization at the December 13 meeting. The company would like to see the pilot start
January 1 (or as soon as possible thereafter) when the DSM program begins. The pilot application
does not have to be submitted with the final report, although the report will be supportive of the filing.
The group agreed that the final report may precede the application filing unless they were submitted
concurrently. The group decided to talk specifically about the timing of the filing and the report at the
December 13 meeting.
Bill Eddie , Advocates for the West, will coordinate the final report, which will likely be a
recommendation to implement the pilot and simulation until the next rate case. The draft outline for
the report was developed at the November 8 meeting.
WRAP-UP AND WORKSHOP EVALUATION
Hayman reviewed action items to be completed before the next workshop (Appendix 13). This workshop
is scheduled for December 13, 2004, from 9:00 am to 12:00 pm. Mike Youngblood agreed to check
the availability of Conference Room 9 East for this workshop. During the workshop, participants will
discuss details of the pilot performance-based mechanism and simulation of the true-up mechanism.
Hayman also requested that participants evaluate the workshop. She recorded positive items and
possible changes on flipcharts (Appendix 14). Though feelings were mixed on preferable room size and
temperature, for the most part, participants are pleased with the honest and frank discussion, facilitation
and documentation , and refreshments.
Summary of the December 2004, Workshop
ApPENDIX 1-PARTICIPANTS
(Shading indicates work group participants unable to participate in person or by phone.
Name and Affiliation Name and Affiliation
Terri Carlock, IPUC
Ralph Cavanagh , Natural Resources Defense Council
Peter Richardson, Industrial Customers of Idaho
Bill Eddie, Advocates for the West
Ric Gale, Idaho Power
Don Reading, Ben Johnson Associates
Greg Said, IPC
David Hawk, J.R. Simplot Co.
Nancy Hirsh, NW Energy Coalition
Bart Kline, Idaho Power
Randy Lobb, IPUC
Tim Tatum, Idaho Power
Mike Youngblood, Idaho Power
Scott Woodbury, IPUC
Summary of the December 1, 2004, Workshop
ApPENDIX 2-AGENDA
ASSESSING FINANCIAL DISINCENTIVES AND
RESOLUTION OPPORTUNITIES
WORKSHOP #4
December 1 , 2004
9:30am-3:00pm
Conference Room 9 East
Idaho Power Corporate Headquarters
Boise, Idaho
Objectives:
1) Confirm criteria to evaluate the applicability and desirability of potential mechanisms to remove
disincentives/provide incentives for utility investment in DSM programs
2) Review two potential mechanisms:
a. Refined true-up mechanism
b. Performance-based ratemaking mechanism
3) Confirm the type of report that will be submitted to the IPUC on December 15 , and assignments
for preparation and review
Final Agenda
(breaks wi/J be taken when most convenient for the group)
Time Topic Process
9:15am CoffeefTea available in meeting room
9:30am Welcomellntroductions/Meeting Overview - Susan Hayman Information
9:45am Mechanism Evaluation Criteria - Susan Hayman Exercise /
Discussion
10:30am Potential Mechanism Presentation /
Refined true-up mechanism - Ralph Cavanagh Discussion
11 :30pm Lunch (on your own)
12:30pm Potential Mechanism Presentation
Performance-based ratemaking mechanism - Lynn Discussion
Anderson
1 :30pm Next Steps - Group Discussion
Mechanism analysis/evaluation to be completed
(using criteria, other?)
Nature of the December 15 IPUC report
Timelines
2:45pm Wrap-up and Evaluation - Susan Hayman Discussion
3:00pm Adjourn
Summary of the December 2004, Workshop
ApPENDIX 3-POTENTIAL MECHANISM EVALUATION CRITERIA
Potential Mechanism Evaluation Criteria
Balanced ( fair) allocation of program costs across
shareholders and ratepayers
Cross-subsidization of program costs across ratepayer
groups are minimized
Removes financial disincentives to the lnax
Positive financial benefit (at least less negative
effect), measured over time
5) Ratepayers are better off than they would be without
the mechanism
Promotes rate stability
Simple mechanism
Costs easily tractable
Mechanism adjustments are predictable and easily
understood
10) Monitors short and long term effects to customers
and company
11) Incentives to manipulate the mechanism are not
present
12) Close link between mechanism and desired DSM
outcomes
1 )
13) Provides adequate incentive for the acquisition of all
cost-effective DSM
Summary of the December 2004, Workshop
ApPENDIX 4-FuPCHARTS REGARDING EVALUATION CRITERIA
Criteria
#4 Needs clarification
. "
Benefit to all stakeholders from where they
would have been otherwise
Drop "less negative -should be net benefit
#10 Process needs to monitor mechanism
Ratepayers" are "customers" (change
throughout)
Stakeholder =
company and customers
includes everybody
#8 Tractable
Want mechanism that is affordable
Costs known and manageable, not subject to
unexpected fluctuations
not talking about program cost recovery
#5 Difficult to know benefits to all stakeholders
until after the fact
#5 is the bottom line
#11 Avoid "perverse" incentives
Summary of the December 2004, Workshop
ApPENDIX 5-REVISED VERSION OF POTENTIAL MECHANISM EVALUATION CRITERIA
Potential Mechanism Evaluation Criteria
Stakeholders are better off th.an they would be
without the mechanism
Minimize cross su.bsidies across custom.er classes
Removes financial disincentives
Optimizes the acquisition of all cost-effective DSM
Promotes rate stability
Simple mechanism
Administrative costs and impacts of the mechanism
are known , manageable, and not subject to
unexpected fluctuation
8) .Monitors short and long term effects to customers
and company
9) A voids perverse incentives
10) Close link between mechanislll and desired "DSM
Summary of the December 2004, Workshop
ApPENDIX 6-REVISIONS TO THE STRAWMAN PROPOSAL FOR AN IDAHO POWER
TRUE-UP MECHANISM
~PRO:POSEn ~REVISIONS TO STRA W:MAN PRO:POSAL :FOR AN IDAllO
POWER TRUE-UP MECHANISM
Submitted by Ralph Cavanagh
For discussion at 12/1/04 workshop
I. ORIGINAL PROPOSAL, DISCUSSED AT 9/22/02 WORKSHOP
1. Starting point: fixed-cost revenue requirement and retail rates approved by Idaho
PUC in latest Idaho Power rate case.
2. If, after initial year, changes in retail electricity use lead to under- or over-
recovery of fixed cost revenue requirement, a rate true-up would occur in the
following year on the same schedule as the Company s current Power Cost
Adjustment.
..,.) .
Until reestablished in the next Idaho Power rate case, the currently approved fixed
cost revenue requirement would be automatically adjusted annually to reflect the
same rate of increase (or decrease) shown for retail electricity sales, net of any
DSM programs, in Idaho Power s latest IRP. True ups would occur annually
based on any divergence between the total fixed-cost revenue recovery that
forecast sales would have delivered and the fixed-cost revenues actually
recovered (so if, for example, sales were forecasted to increased by 2 percent and
actually increased by a larger percentage, Idaho Power would refund the
difference at the time of the next Power Cost Adjustment; if retail sales increased
by a smaller percentage than forecast, Idaho Power would get back the lost
revenues at the time of the next Power Cost Adjustment).
4. True-ups would occur by customer class based on divergence between actual and
forecast sales to each customer class.
5. Idaho Power would continue to absorb the risk or benefits of purely weather-
related effects on fixed-cost revenue recovery, as it does now. This would mean
weather normalizing actual sales before making the annual true-up calculation.
MAXIMUM ANNUAL AVERAGE RATE IMPACT OF THE TRUE UP
MECHANISM UP OR DOWN, UNDER EXTREME CONDITIONS = 1.5 PERCENT.
II.PROPOSED REVISIONS AND ANSWERS TO SUBSEQUENT
QUESTIONS
A. CHANGES IN CALCULATION OF ANNUAL FIXED
COST RECOVERY : Without a true-up, fixed cost recoveries
grow in direct proportion to growth in total retail sales, averaging
Summary of the December 2004, Workshop
about 2 percent per year over the past decade. The initial
proposal called for growth in fixed cost recovery to be tied to
annual growth in the forecast of retail sales adopted in the
Company s most recent IRP. Concerns were raised that, in the
residential and commercial sectors particularly, growth in
customer counts could substantially exceed growth in forecast
sales, resulting in underrecovery of costs prudently incurred to
serve new customers. PROPOSED SOLUTION: Tie growth in
fixed cost recovery to actual measured changes in annual
customer count for the residential and commercial sectors. This
should allow a closer convergence between the fixed cost
revenue requirement and actual costs of service.
B. RETROSPECTIVE ASSESSMENT: In cooperation with the
Company, I looked into how often a true-up tied to customer
counts would have increased and reduced rates, respectively, for
the residential and commercial classes since 1990 (concerns had
been raised that rates would always go up under such a
mechanism). For any year during which such a mechanism had
been in effect, rates would have gone down if the class s retail
sales had grown more rapidly than the class s customer count
and vice versa. So we looked at how often the residential and
commercial customer counts increased more rapidly than class-
wide electricity use in each year, starting in 1990. For the
commercial sector, electricity use grew more rapidly than the
customer count in ten of the fourteen years from 1990-2003. For
the residential sector, electricity use grew more rapidly than
customer count in two of the fourteen years, and the rates of
growth were essentially identical in three other years (including
2003). This confirms the potential for rate decreases as well as
increases for both classes under a true-up mechanism, although
based on historical data the likelihood of a rate decrease is
substantial1y greater for the commercial sector than the
residential sector. Final1y, it should be emphasized that annual
class-specific rate increases needed to ensure recovery of the
authorized fixed-cost revenue requirement would never have
exceeded two percent under the true-up mechanism. In most
years, for both classes rates would have shifted up or down by
one percent or less.
Summary of the December 2004, Workshop
ApPENDIX 7-BAR CHARTS DISTRIBUTED BY CAVANAGH
E:dribit rS-
Pn~~ellt Iralll.Costs and Be1t'Clits - Ad~ietNJble. PoteldJ~ll Scer.r.ario5
$450 w", "
' ..... ... . . .
~ i
::;~~_--. . .. , " , , ,
In p~m noo~1ive$ f
i $350 ~ I ~:n-
~"I Ont$ !.
$300 ,I!lMmil'!!!-~'L.."
,, ~'
,$: $250 '
:Ii 1200
..,;...
' '1'lEn'IN ... iJV ,.
.. ", " , , , , , , ,
'co
" ,""-
Q..
$100 l'
.,.
$00 1- H'
$0
LaN
.. " . '" ." .,. ,
'i:
, .: -,- ." "
-- d
- -.., .. . .. -.. '" ", "
'MrJod B r~ t.e HiOh M~K, A~hi~'/ilb~
Ho U Be h old Energy Use for En te:rta inment Etectron ic8
Primary TV, plasma HOW
OVQ.NCFI
Set ,lOp box/satellile receiver
Eo.....__..... T\.f if'Iia.li'\I'I~Na1)' ,ril 8,f~~
DVDNCR
Set top boxIsaleJlite ,ecBlv.er
....
.,mm
'.. ,
Combined ens!r" "use
~1200 kWhperyeeri .
~ I Prirnary
750.
Summary of the December 2004, Workshop
250....500.
Annu!I!II ~iI'"I-v i --
'" ,' ,"',
~H'1IjII.
. ~', ." ". .
... m ."""0'" ,..,
.-., .
ApPENDIX 8-FuPCHARTS REGARDING CAVANAGH S REVISED STRAWMAN
Assumptions for True-
Last year s consumption plus 2% to calculate
the rate increase spread over kWh the next
year.
Clear every year don t want to carry
significant over/underages/year
If kWh sales exceed customer count in a
class, there would be a rate decrease.
Question: How to resolve true-up within
schedules for irrigators and industrial? (how
to true-up with subclasses to the classes)
Rate impacts could be more volatile under
multiple true-up values
Summary of the December 2004, Workshop
ApPENDIX9-PROPOSED STRAWMAN FOR A PERFORMANCE-BASED MECHANISM
Strawman Proposal for DSM Performance Incentive
For Discussion at IPC Decoupling Workshop, 12/01/04
Hypotheses:
1) The primary DSM financial disincentives in question are those that affect shareholders
rather than managers. These disincentives are primarily "fixed-cost" revenues that are not
collected when electricity is not sold; i.e. those portions of energy and demand prices that are
based upon utility costs that do not vary with energy usage in the short run.
2) Idaho Power will fail to maximize demand-side management (DSM) potential benefits
for its customers unless the primary financial disincentive is removed through a regulatory
mechanism.
3) Idaho Power s customers will be net beneficiaries if the company provides more cost-
effective DSM as a result of customers paying to remove the primary financial disincentive.
4) Rate cases will occur too infrequently to sufficiently mitigate the primary financial
disincentive.
5) The company is legitimately entitled to recover fixed-cost revenue losses caused by its
DSM efforts regardless of the absence of rate case examination of overall costs and revenues.
6) Idaho Power is incun-ing new fixed costs due to customer growth and its incremental
fixed costs exceed its incremental fixed-cost revenues. In other words, customer growth does not
mitigate fixed-cost revenue losses.
7) It is unacceptable to the IPUC Staff to adopt a financial mechanism that would simply
allow Idaho Power, without a rate case, to automatically collect all fixed-cost losses" associated
with all kWh per customer sales reductions, much of which is caused by factors not associated
with the company s DSM, e.g. increased gas market share. The 10-year lapse between Idaho
Power s last two rate cases, in spite of reduced sales per customer, is an indicator that profitability
is largely independent of sales per customer.
8) It is unacceptable to Idaho Power to adopt a financial mechanism that considers only
total sales; i.e. that does not account for growth in the number of customers.
9) Removing the primary financial disincentive for DSM can be reasonably accomplished
through a mechanism that targets only DSM-caused sales reductions. There are two ways to do
this: a) The financial disincentive could be removed by allowing specific fixed-cost revenue
recovery for all verified DSM savings; b) The financial disincentive could be removed
providing other financial rewards for verified DSM accomplishments. Method b)'s financial
rewards could be stand-alone or used in conjunction with method a) or with decoupling.
Summary of the December 1, 2004, Workshop
Strawman Trial Proposal
Unlike decoupling, both methods a) and b) above require precise measurement and
verification of DSM program implementation details, baselines and DSM results, and, as such, are
inherently complex, subject to measurement error, and require significant regulatory oversight.
Thus, it is reasonable to implement either of these methods on a trial basis.
For a strawman trial, we have selected a proposal that combines methods a) and (b) above;
e. recovery of DSM-caused fixed-cost revenue losses with a bonus financial incentive for
exceeding cost-effective DSM targets. We suggest that the trial be restricted to the Residential
New Construction program. Residential energy rates have a relatively high fixed-cost recovery
component, which means that Idaho Power s financial disincentive for DSM for this class may be
higher than for other customer classes. This is a comparatively small program, thus minimizing
the effects of any mistakes made in the trial. Nevertheless, this program is projected to be very
cost-effective for both energy and peak demand savings and "lost opportunity" will occur if it is
not vigorously pursued.
The table below illustrates some of the projections for the Residential New Construction
program as contained in the IRP. Also shown are discussion starting points for financial1y
rewarding Idaho Power for significantly outperforming its projections. Whatever combination
indicators and incentives are used, the program must remain cost effective to customers.
Possible Indicators Annual Fixed-Cost
g.
Bonus Bonus Financial Incentive
Targets Rev. Recovery Threshold (for illustration only)
....
MW reduction 10% )0 target 200/0 of net $ savings
MWh reducti on 661 actual MWh 0% ? target 10% of net $ savings
saved x $31.20
Idaho Power $/peak kW 10% -c target 50/0 of program costs
Idaho Power $/kWh 036 10% -c target 5% of program costs
Total Resource $/peak kW 10% -c target 5% of total costs
Total Resource $/k Wh 058 0% -c target 5% of total costs
Participant Payback 5 yr.0% -c target 5% of participants' costs
Number of Participants 100/0 ? target 50/0 of program costs
Market Transfonnation 5% of program costs
Summary of the December 2004, Workshop
ApPENDIX 10-FuPCHARTS REGARDING PERFORMANCE-BASED MECHANISM
PBR/Hypothesis Discussion
1) Managers = utility company managers
2) This proposal does not address "found"
revenues and has a narrow view of "lost"
revenues (DSM-related only)
3) #7 Concern about not linking advantages of
true-up with issues about increased gas
market share
Staff wants fixed-cost recovery for DSM-
related programs (utility co. control) ~ NOT
consensus with group on this
ApPENDIX 11-ADDITIONAL SUGGESTIONS
Bin
1) 18-month financial simulation of proposals-
real, documented numbers for FCR
Options
1) Model period of 10 years
a) "Council level" of conservation against
IPUC staff proposal
b) True-up with "Council levels" of
conservation
Use maximum net benefit scenario:
rate impacts
IRP baseline
4) Energy savings calculations would be difficult
and problematic
5) Cost recovery may be a bigger issue than
lost reven ues
6) Proposal is for residential construction only
(Energy Star program-exceeding building
codes)
7) Some potential for perverse incentives-
need to monitor closely
Summary of the December 2004, Workshop
ApPENDIX 12-INTEREST REPORTS
Interest Reports
IPC
1) Disallowance of program costs will kill
DSM-first and foremost disincentive
2) Problem of lost revenues will have
a.. .material impact on amount of load-
reducing activities we undertake in short and
long term
3) Next couple years, company will undertake
DSM identified in IRP-can t take on any
additional in this period (ramp-up ability
limited)
4) 18-month simulation of T.U. mech. would
help relieve uncertainties (unintended
consequences) prior to next rate case
5) Intrigued with staff incentive mechanism, and
piloting with one program then determining
applicability to others
IPUC-Staff
1) Staff will continue cost-effectiveness/
prudence review
2) Interested in pilot incentive based program.
Can work on measurement and evaluation to
see if doable.
3) 18-month simulation-main impact of T.
mechanism is to see how it changes
company s behavior. Wouldn t oppose
proceeding with this, though unsure of real
value of simulation. May be best we can do
now to keep alive without killing it.
NWEC
1) Not convinced simulation will change
minds-not interested in pursuing unless
group is really committed to moving forward
and simulation/test is credible with everyone
and materially improve likelihood of approval
by Commission
2) Retain right to bring proposal to Commission
directly, but would rather work as a group
Summary of the December 2004, Workshop
ApPENDIX 13-NEXT STEPS AND ACTION ITEMS
Next Steps
1 ) Status report on 15th
2) Flesh out concept of pilot and simulation on
13th (9:00-Noon)
3) Provide full report in January with
recommendation, what we discussed and
why we re proposing this approach. Decision
at end point.
4) IPC would submit application for pilot to
commission-projected date by end of
January (simultaneous with filing or at least
final report first)
5) Assuming model can be set up, could
possibly start accounting after first of year
(January 1 if possible)
Action Items
What Who When
1) Draft status report Scott 12/03/04
for review and and
comment Susan
2) Bring what is IPC 12/13/04
necessary for pilot (Darlene)
proposal-outline
for filing
3) Bring simulation IPC 12/13/04
design (Mike)
Summary of the December 2004, Workshop
ApPENDIX 14-WORKSHOP EVALUATION COMMENTS
1) Good job!
2) Frankness
conversation useful
& appreciated
3) Like smaller room
4) Like facilitating
5) Like someone
ramrodding it"
6) Appreciate
deadlines and
follow-up
7) First class job
1) Room is too
small and too
warm
13) Appreciate cheese
and celery!
14) Appreciate
comprehensive
summaries
15) Enjoyed open and
honest discussion
and movement in
positions
16) Like follow-up with
meeting summary-
that it is right
8) Like smaller room
9) Like fruit!
10) Like summaries-
timely and well-
structured
11) Nice to get prework
discussion items
ahead of time
12) Very important that
everyone is here-
adds to the process
Summary of the December 2004, Workshop