HomeMy WebLinkAbout20070323Comments.pdfSCOTT WOODBURY
DEPUTY ATTORNEY GENERAL
IDAHO PUBLIC UTILITIES COMMISSION
472 WEST WASHINGTON STREET
PO BOX 83720
BOISE, IDAHO 83720-0074
(208) 334-0320
BAR NO. 1895
Street Address for Express Mail:
472 W. WASHINGTON
BOISE, IDAHO 83702-5983
Attorney for the Commission Staff
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BEFORE THE IDAHO PUBLIC UTILITIES COMMISSION
IN THE MATTER OF IDAHO POWER
COMPANY'S PETITION TO REVISE THE
PUBLISHED AVOIDED COST RATES TO
INCLUDE A DAILY LOAD SHAPE; AND
TO CLARIFY THE RULES GOVERNING
ENTITLEMENT TO PUBLISHED AVOIDED
COST RATES.
CASE NO. IPC-O7-
COMMENTS OF THE
COMMISSION STAFF
COMES NOW the Staff of the Idaho Public Utilities Commission, by and through its
Attorney of record, Scott Woodbury, Deputy Attorney General, and in response to the Notice of
Petition, Notice of Modified Procedure and Notice of CommentlProtest Deadline issued on
February 16 2007, submits the following comments.
BACKGROUND
On February 6 2007, Idaho Power Company (Idaho Power; Company) filed a Petition
with the Idaho Public Utilities Commission (Commission) requesting authority to revise its
published avoided cost rates for qualifying facilities (QFs) under Sections 201 and 210 of the
Public Utility Regulatory Policies Act of 1978 (PURP A) to reflect Idaho Power s daily load shape
and recognize the difference in value between energy delivered by QFs during heavy load hours
STAFF COMMENTS MARCH 23 , 2007
and energy delivered during light load hours. As reflected in the Company s Petition, this
revision would not change the computation of avoided cost but it could change the total revenues
received by QFs depending on when during the day they deliver energy.
The Company in its Petition also seeks to clarify the rules governing the entitlement to
published rates to prevent QF projects capable of delivering more than 10 aMW per month from
artificially restructuring into smaller projects in order to qualify for the published avoided cost
rates.
ANALYSIS
Daily Load Shape Adjustment
Since the early 1980s, when PURP A was first implemented in Idaho, the Commission has
permitted Idaho Power to shape its QF purchase rates to address the difference in energy values
between the various seasons of the year. This "seasonalization" of the avoided cost rates
recognizes that energy delivered by QFs has different values based on when it is delivered. For
example, a weighting factor of 0.735 is applied to the Company s published avoided cost rates in
March, April and May; a weighting factor of 1.20 is applied in July, August, November and
December, and no weighting factor is applied in the remaining months.
Similar to seasonalization, Idaho Power contends that energy provided by QFs has
different values based on how it can help meet the Company daily load peaks. This difference
in value between heavy load hours and light load hours was the basis for the daily shape
adjustment that was recently approved for Avista in Commission Order No. 30111 issued in Case
No. AVU-06-
The proposed daily shape adjustment would create a difference between on-peak and off-
peak avoided cost rates of $11.63 per MWh. The daily shape adjustment would be prorated based
on heavy and light load hours. For example, if the published avoided cost rate is $52.69 per
MWh, the on-peak rate would be $57.86 and the off-peak rate would be $46.23 per MWh.
Attachment 1 to the Company s Application illustrates what the avoided cost rates would be with
and without the daily shape adjustment.
The effect of the proposed change would be that projects that generate more during on-
peak hours would receive greater revenue than if no daily shape adjustment was applied, and
projects that generate more during off-peak hours would generate less revenue. Projects with a
flat generation shape spread evenly throughout the day would receive the same revenue and be
STAFF COMMENTS MARCH 23 , 2007
unaffected by the daily shape adjustment. The daily shape adjustment would, of course, only be
applied to new contracts; therefore, existing PURP A contracts would be unaffected.
Like the seasonalization factors that have been used for many years, the proposed daily
shape adjustment is not a precise way to adjust avoided cost rates to reflect the value of power at
the time of delivery. Instead, both mechanisms are approximate adjustments that acknowledge
that the value of power depends on the timing of its delivery. While neither adjustment
mechanism will ever be exactly accurate, both adjustments produce rates that are closer to real-
time rates than if no adjustments were made. The proposed daily shape adjustment provides
incentive for power producers to deliver power during more valuable hours.
Idaho Power s proposed amount of$11.63 per MWh as a daily shape adjustment is based
on the weighted difference in value between on-peak and off-peak prices (the "spread"). To
calculate this value, Idaho Power accumulated historical daily volumes and prices for all Mid-
Columbia Firm Heavy Load Hour (HLH) and Light Load Hour (LLH) transactions for January 1
2003 through January 20, 2007 provided by Dow Jones.
Although Staff supports the introduction of a daily shape adjustment, Staff believes that
the amount of the adjustment proposed by Idaho Power is too high. First, Staff does not believe
that it is appropriate to compute a weighted spread based on daily trading volumes because daily
prices are completely independent of daily volumes. If a non-weighted average spread were
computed instead, the adjustment would be $8.90 per MWh. Second, an examination of the daily
price data shows that the daily spreads exceed the $11.63 proposed by Idaho Power only 23
percent of the time. This is because the average of the daily spreads is affected by a few days
during the year when the difference between heavy and light load hour prices is extreme.
Staff proposes that the daily shape adjustment amount be computed as the median of the
historic values since January 1 2003. The median of the historic values is $7.28. Staff believes
that the median value better represents the difference in value between heavy and light load hours
because, by definition, exactly half the time the spread is greater and half the time the spread is
less. Furthermore, because the spreads are not symmetric, Staff believes the median is a better
representation of the expected spread than either the weighted or the non-weighted average
spread. Attachment 1 shows both an exceedance curve and a histogram depicting the frequency
of the historical spreads. Staff contends that even a simple visual inspection of the curves better
supports using the median rather than the average of the historical spreads.
STAFF COMMENTS MARCH 23, 2007
Moreover, the daily shape adjustment recently approved for Avista was only $5 per MWh.
By Staffs and Avista s own admissions, this value was conservative; nevertheless, it is less than
half ofIdaho Power s proposed adjustment amount.
Finally, another reason for adopting an adjustment lower than the amount proposed by
Idaho Power is because the Company s proposed adjustment, when combined with the seasonal
adjustment already being applied, would create an extremely wide range of prices. For example
for a 20- year levelized contract, the minimum price would be $41.11 during light load hours in
the spring and the maximum price would be $81.08 in heavy load hours during the summer. This
is nearly a two-fold difference in price. Staff believes that the daily shape adjustment, at least
initially, should be somewhat conservative.
In comments submitted in Case No. A VU-06-4 in which a daily shape adjustment was
adopted for Avista, Staff expressed several concerns. One of the concerns was that a daily shape
adjustment could introduce greater uncertainty in the monthly payments wind generators would
receive because many wind generators have no way of accurately knowing how many kilowatt-
hours their project will produce in on-peak vs. off-peak hours. Another concern raised by Staff
was the need for hourly metering capability at all future projects. Staffs final concern was that
adoption of a daily shape adjustment introduces additional complexity into an already fairly
complex system of avoided cost rates.
While those concerns are equally valid in this case, Staff still believes the advantages of a
daily shape adjustment outweigh the disadvantages. Staff is supportive of the concept of a daily
shape adjustment because, although only approximate, it more closely matches avoided cost rates
to the true value of power at the time of delivery. Staff therefore recommends that a daily shape
adjustment be approved, but that the amount of the adjustment be $7.28 rather than the $11.63
proposed by Idaho Power. Staff further recommends that the daily shape adjustment be a
requirement for all future QFs with Idaho Power contracts. Staff s proposed changes to the
published rates to reflect the daily shape adjustment are reflected in Attachment 2.
Disaggregation of Large QFs Into Smaller Projects
Wind projects are unique from other generation technologies because they normally
consist of multiple turbines, each with its own generator, often scattered over large areas.
Because of this characteristic, wind projects capable of generating more than 10 aMW per month
can choose to create multiple legal entities to reconfigure themselves into multiple smaller
STAFF COMMENTS MARCH 23, 2007
projects in order to qualify for the historically higher published avoided cost rates. To address
this concern, Idaho Power proposes to clarify its rules for published rate eligibility to preclude
disaggregation. Idaho Power states that the disaggregation issue was recently addressed in the
PURP A avoided cost rate proceedings before the Public Utility Commission of Oregon (Docket
No. UM-1129). The parties to that proceeding, the Company states, settled the disaggregation
issue by negotiating a stipulation, which was approved by the parties and by the Oregon PUC.
Idaho Power submits a proposed rule set forth in Petition Attachment 2 proposing language
similar to that approved in Oregon. The proposed rule effectively would limit QFs with common
ownership from being located closer than five miles of each other
Staff agrees in principle with the disaggregation rule proposed by Idaho Power for
published rate eligibility. Large projects should, Staff believes, have project specific rates that
recognize the generation characteristics of each project individually. However, Staff is concerned
that projects will simply find even more creative ownership arrangements in the future that will
render the proposed rule ineffective. In a production request, Staff inquired about the likely effect
on existing projects if the definition had been in place, since many wind projects are clustered in
the same area. The Company responded that it ". .. cannot not say for certain that some existing
wind developments might have been precluded from obtaining contracts under the proposed
definition." Idaho Power also went on to say "Of course, if the definition had been in place
before the 18 wind FESAs (Firm Energy Sales Agreements J were signed, Idaho Power expects
that the wind QFs could have been restructured to avoid any problem with the definition.
Because the effectiveness of the proposed rule is so much in question, Staff recommends
that it not be approved. Staff believes it would be bad policy to adopt a new rule ifthere are
serious doubts from the beginning about whether it will actually achieve its intended objective.
RECOMMENDATIONS
Staff recommends that a daily shape adjustment be approved, but that the amount of the
adjustment be $7.28 rather than the $11.63 proposed by Idaho Power. Staff further recommends
that the daily shape adjustment be a requirement for all future QFs with Idaho Power contracts.
Staff does not recommend approval ofIdaho Power s proposal to clarify its rules for
published rate eligibility to preclude disaggregation. Staff believes that project developers will
1 Compare FERC "same site" approach 18CFR 9 292.204 (a)(2).. ,within one mile
STAFF COMMENTS MARCH 23, 2007
devise ways to circumvent the proposed rules, making them ineffective in accomplishing their
intended objective.
Respectfully submitted this vrP
d3
day of March 2007.
~~.
Scott Woodbury
Deputy Attorney General
Technical Staff: Rick Sterling
i: umisc :commentslipceO7 .4swrps
STAFF COMMENTS MARCH 23 , 2007
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Attachment 1
Case No. IPC-07-
Staff Comments
3/23/07
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.
CERTIFICATE OF SERVICE
HEREBY CERTIFY THAT I HAVE THIS 23RD DAY OF MARCH 2007
SERVED THE FOREGOING COMMENTS OF THE COMMISSION STAFF IN CASE
NO. IPC-07-, BY MAILING A COpy THEREOF, POSTAGE PREPAID, TO THE
FOLLOWING:
BARTON L KLINE
MONICA B MOEN
IDAHO POWER COMPANY
PO BOX 70
BOISE ID 83707-0070
PETER J RICHARDSON
RICHARDSON & O'LEARY PLLC
515 N 27TH STREET
PO BOX 7218
BOISE ID 83702
DR. DON READING
6070 HILL ROAD
BOISE ID 83703
SECRET
CERTIFICATE OF SERVICE