20080228final_order_no_30508.pdf

Offce of the Secreta
Service Date
Februar 28, 2008
BEFORE THE IDAHO PUBLIC UTILITIES COMMISSION
IN THE MATTER OF THE APPLICATION
OF IDAHO POWER COMPANY FOR
AUTHORITY TO INCREASE ITS RATES
AND CHARGES FOR ELECTRIC SERVICE
TO ELECTRIC CUSTOMERS IN THE
STATE OF IDAHO.
)
) CASE NO. IPC-E-07-08
)
)
) ORDER NO. 30508
)
The Commission by this Order approves a Stipulation filed in Case No. IPC-E-07-08
providing for an overall increase of 5.2% in Idaho Power Company's electric service rates. On
June 8, 2007, Idaho Power filed an Application requesting authority to increase its rates by
10.35% to recover an additional $63,945,258 in anual revenue. Prior to the commencement of
the technical hearing, the paries reached and fied a Stipulation providing for a 5.2% increase in
the Company's rates. The paries to the Stipulation are Idaho Power Company; the Commission
Staf; Idaho Irrigation Pumpers Association, Inc.; Industral Customers of Idaho Power; Micron
Technology, Inc.; and the U.S. Deparment of Energy. The only other pary in the case, Kroger
Company, did not sign the Stipulation but testified at the hearng that the company generally
supports the Stipulation.
The Commission approves the Stipulation and finds its terms to be fair, just and
reasonable and in the public interest. We approve new rates for Idaho Power, effective March 1,
2008, to increase the Company's anual revenue by $32,126,654 or 5.2%. The base rates for
residential customers will increase by 4.7%, and the base rates for the other classes of customers
will increase by 5.65%.
Idaho Power's Application
The Company in its Application requested an overall rate increase of 10.35%, but
proposed widely varying increases for different customer classes. Idaho Power proposed a 20%
rate increase for thee special contract customers - J.R. Simplot Company, the Departent of
Energy, and Micron Technology, Inc. Large commercial customers would receive a 13.1% rate
increase and most other non-residential customers would receive a 15% rate increase under the
Company's proposal as filed. Idaho Power proposed to increase residential customer rates by
4.5%. The Company's rate design and rate-spread proposals were based on a cost-of-service
study filed with the Company's Application.
ORDER NO. 30508 1
Idaho Power used a 2007 test year to establish its requested rate increase, and
included in its test year 12 months of forecasted data rather than historical data. The Company
requested that the Commission approve a retur on rate base of 8.561 % utilzing an 11.5% return
on common equity to achieve its proposed additional revenue requirement of $63.9 milion.
Parties of Record
On June 25, 2007, the Commission issued a Notice of Application and Order
suspending the proposed effective date for the new rates requested by Idaho Power. Petitions to
Intervene were fied by the Idaho Irrigation Pumpers Association, Inc. (Irrigators); the Industrial
Customers of Idaho Power (Industrial Customers); Micron Technology, Inc. (Micron); the U.S.
Deparment of Energy (DOE); and the Kroger Company dba Fred Meyer and Smith's (Kroger).
The Commission approved each of the Petitions to Intervene. See Order Nos. 30346 and 30378.
Idaho Power and the Commission Staff are the other paries in the case.
Procedural Schedule
On August 8, 2007, the Commission issued a Notice of Scheduling and Notice of
Hearing establishing deadlines for the filing of discovery and prepared testimony and a technical
hearing date to commence on December 11, 2007. The Commission Staff held public
workshops in Pocatello on October 1,2007, in Twin Falls on October 2, 2007, and in Boise on
October 3, 2007.
On October 19, 2007, the Commission issued Order No. 30456 granting a Joint
Motion to Extend the Procedural Schedule fied by Idaho Power and the Commission Staff. The
Order rescheduled the technical hearing from December 11, 2007 to Januar 22, 2008. The
Commission also scheduled public hearings in Chubbuck, Twin Falls and Boise. The public
hearing in Twin Falls was cancelled, however, when severe winter storm conditions prevented
safe travel to the hearing in Twin Falls. Finally, at the request of the paries, the technical
hearng was postponed one. day to allow additional time for the paries to finalize the Stipulation
to resolve the issues presented in the case. The technical hearing convened on Januar 23, 2008
in the Commission's Hearing Room in Boise. All paries except DOE appeared and were
represented at the hearing.
Settlement Stipulation
The Stipulation, which was signed by all parties except Kroger, was fied shortly
before the technical hearng began. Kroger's witness testified at the hearing that the company "is
ORDER NO. 30508 2
generally supportive of the settlement agreement," but believes "it is deficient in a single detaiL."
Tr. p. 20. The Stipulation does not address Kroger's recommendation for optional time-of-use
rates for Schedule 9, Large General Service, customers. Kroger asked the Commission to
address its request for these rates in its final Order. ¡d.
The Stipulation addresses substantive issues in this case in four sections numbered 6
through 9. Section 6 addresses the revenue requirement for Idaho Power, speèifying an increase
in the Company's anual revenues in the amount of $32,126,654. Paragraphs (a) and (b) in
Section 6 state Idaho Power's net power supply cost and system load as components of the
agreed-upon additional revenue requirement. The system net power supply cost used to
determine the additional revenue requirement is $34,964,671, and the systemPURPA quaifying
facilties expense is $93,080,63.1.1 Paragraph 6(b) states that the 2007 system firm load of
14,239,221 MWh was used in determining the increase in Idaho Power's anual revenue
requirement.
Paragraph (c) of Section 6 addresses the Company's preference to use a forecasted
test year in this case and in futue rate cases. The Company's test year was a contentious issue;
Staff and most Intervenors fied testimony strongly disagreeing with Idaho Power's test year
methodology. Paragraph (c) states that the parties wil paricipate in good faith discussions
regarding a forecast test year methodology that balances the auditing concerns of the Staf and
the Intervenors with the Company's expressed desire for timely rate relief.
Paragraph (d) of Section 6 addresses the load growth adjustment rate (LGAR) that is
a par of the Company's anual power cost adjustment (PCA). The LGAR, a mechansm to
remove growth-related power costs from the anual PCA calculation, has increased substantially
in recent years. See Order No. 30215, Case No. IPC-E-06-08. The paries agree in Paragraph (d)
to make a good-faith effort to develop a mechanism to adjust or replace the curent LGAR to
address costs of serving load growth between rate cases. For the 2008 PCA, Paragraph (d) states
the LGAR will be $62.79 per MWh applied to one-half of the load growth occurng during each
month within the PCAyear.
. Section 7 of the Stipulation addresses the rate spread for the agreed-upon revenue
requirement. For each customer class except the residential class, rates wil increase
i PURA, the Public Utilty Regulatory Policies Act of 1978, requires Idaho Power to purchase power from
independent qualifying facilties.
ORDER NO. 30508 3
approximately 5.65%. Residential rates would increase by approximately 4.7%. Section 7 of the
Stipulation specifically does not address the class cost-of-service model results that were fied in
the case. Section 7 makes clear that agreement by the parties to the identified rate-spread does
not mean that any paricular cost-of-service model wil constitute a precedent in a subsequent
rate case.
Section 8 of the Stipulation sets forth a rate design for the various customer classes.
The Stipulation provides that the existing tariff rate components for all schedules other than
Schedule 1 (Residential) and Schedule 7 (Small General Service) should be increased on an
equal percentage basis, except that the customer charge for Schedules 9 (Large General Service),
19 (Large Power Service) and 24 (Irrigation Service) secondar should be rounded to the nearest
quarer dollar. The customer charge for Schedules 9 and 19 primar and transmission customers
and Schedule 24 transmission customers would be rounded to the nearest $5.00. The Stipulation
calls for Schedule 1 and Schedule 7 customers to see an increase only in energy charges to
recover the increased revenue requirement for those classes of customers.
Section 9 of the Stipulation addresses the Irrgators' recommendations for
adjustments to the Company's Irrgation Peak Rewards Program. Section 9 essentially is an
agreement between Idaho Power and the Irrigators to convene a working group to discuss results
of the curent program, to design and implement a dispatchable demand pilot program for the
2009 irrgation season, and to make improvements to marketing efforts to increase paricipation
in the program.
Commission Findings
The Commission has reviewed the filings of record in Case No. IPC-E-07-08,
including the Stipulation of the paries. The information available for the Commission's
deliberation regarding the reasonableness of the Stipulation is the Commission's record of the
Januar 23,2008 hearing, which includes all pre fied direct and rebuttl testimony and exhibits.
Commission Rule of Procedure 283 states that the Commission may add to the hearng record by
reference any document in the Commission Secretary's official fie, which includes all prefied
testimony and exhibits. The Commission notified the paries at the hearing it intended to include
the prefied testimony and exhibits in the record by reference pursuant to Rule 283, and hearing
no objection, the Commission determined to so incorporate all prefied testimony and exhibits.
Tr. p. 6. The Commission is also informed by the transcripts of the public hearngs in Chubbuck
ORDER NO. 30508 4
and Boise, where Idaho Power customers were given the opportty to address their concerns
and provide testimony, and by the public comments that were filed in the case.
The Commission reviews Stipulation settlements under its Rules of Procedure 274
through 276. We review any proposed settlement "to determine whether the settlement is just,
fair and reasonable, in the public interest, or otherwse in accordance with law or regulatory
policy." IDAPA 31.01.01.276. Proponents of a proposed settlement cary the burden of
showing the settlement meets the standard for approval by the Commission. IDAP A
31.01.01.275.
As reflected in the record in this case, Idaho Power initially sought an increase in its
anual revenue requirement of $63.9 milion, and proposed to recover the additional amount by
an overall increase in customer rates of 10.35%. In its prefied testimony, Staff recommended
the Commission approve a revenue increase of $17,452,700, requiring an overall rate increase of
2.82%, for Idaho Power's Idaho jurisdiction services. English Direct p. 3, Exhibit 112. Staff
based its case on a completely separate test year constructed on historical data rather than on the
forecasted budgets provided by Idaho Power in its test year. Staff testified that the use of
forecast data made the usual audit of the Company's proposed test year difficult. Because Idaho
Power "did not provide actual expenditures on which to base rates," Staff made comparisons to
other historical information, making it "very difficult if not impossible to determine if the
forecast is appropriate." Lobb Direct p. 11.
Some of the Intervenors also presented testimony on the difficulties in auditing the
Company's test year. Micron testified that using a forecast test year "introduces a host of
intractable problems," including that "(1) forecasts of this type are inherently inaccurate and
uneliable, (2) they are difficult if not impossible to verify, and (3) their use in ratemaking
creates a perverse set of incentives and temptations for the utilty and a strctural bias in the
ratemakng process." Peseau Direct pp. 7-8. The Industrial Customers testified that "it is very
diffcult for staff and intervenors to critically review each of the numerous forecasts that make up
an overall rate filing, " and that "(m)ajor problems with forecast data are the controversies that
swirl over the models as well as the many assumptions that are used to forecast costs and
revenues." Reading Direct p. 6.
Spreading any rate increase to the different classes of customers was also a
contentious issue in the case. Based on its cost-of-service model results, the Company proposed
ORDER NO. 30508 5
widely disparate rate increases for the different customer classes. The Company's cost-of-
service results indicated the Irrgators should receive a 36.8% increase, that the special contracts
customers should be given an increase of approximately 25%, and that small general service
(Schedule 7) and large power service (Schedule 19) customers should be given rate increases in
excess of 15%. Brilz Direct p. 3. To avoid these harsh results, Idaho Power proposed to limit
the Irrigators' and special contract customers' rate increase to 20% and the rate increase for
small general service and large power service to 15%. Brilz. Direct p. 4. Idaho Power
recommended a 4.53% rate increase for residential customers, but that could be achieved only if
the Company's recommended much larger increases were imposed on non-residential customers.
Exhibit 58 p. 4.
The Company's cost-of-service model and results were not accepted by the other
paries, and the Intervenors presented evidence to argue the Company's model was significantly
flawed. Based on their adjustments to the cost-of-service model, the Intervenors and Staff made
separate recommendations for spreading any rate increase to the different customer classes. The
Irrigators recommended they be given no rate increase, that residential customers receive the
system average rate increase, and that the Schedule 9 (Large General Service) and Schedule 19
(Large Power Service) customers be given a larger than average rate increase. Yane i Direct p.
25. Micron recommended that all customers except the Irrigators be given an equal percentage
increase, and that the Irrigators rate increase be twice the system average. Peseau Direct p. 56.
The Industral Customers, describing Idaho Power's cost-of-service results as perverse,
recommended an equal percentage increase for all customer classes as "the most equitable
solution." Reading Direct p. 24. Staff recommended rate increases of approximately 6.5% to
10% for most non-residential and special contract customers, and a smaller than average rate
increase for residential customers. Exhibit 118. DOE concluded, after reviewing its own cost-
of-service recommendations along with those of the other paries, that "an across-the-board
spread is the fairest and most reasonable method to recover any rate increase that the
Commission grants to Idaho Power." Goins Rebuttal p. 4.
Testimony was presented at the Januar 23, 2008 hearing in support of the
Stipulation's recommended 5.2% rate increase and allocation of the increase to the customer
classes. Idaho Power described the $32 milion increase in anual revenue as providing "needed
rate relief to the Company and viewed with the context of the other provisions is satisfactory and
ORDER NO. 30508 6
fair." Tr. p. 8. The Company supports granting the residential customers a lower than average
rate increase and a larger, equal percentage increase to all the non-residential customers. Tr. pp.
9-10. Staff testified it supports the Stipulation's 5.2% increase in Idaho Power's revenue
requirement even though Staff recommended a smaller overall increase in its prefied testimony.
Regarding allocation of the revenue increase, Staff testified the Stipulation followed what was
indicated by most cost-of-service model results by giving the residential class a lower than
average rate increase. Tr. p. 15.
Based on the record in this case, we find the terms of the Stipulation regarding an
increase in Idaho Power's revenue requirement and the proposed spread of the increase to the
customer classes to be fair, just and reasonable and in the public interest. The overall increase of
5.2% is far below the amount requested by the Company, and is a fair compromise by the paries
of highly contested issues resulting from the Company's test year. Although Staff initially
recommended a lower overall rate increase, Staff conceded appropriate adjustments to its test
year would bring Staffs recommendation to the Stipulation's 5.2% overall increase. Tr. p. 14.
The Stipulation's resolution of significant test year and revenue requirement issues, as well as
the spread of the rate increase to the customer classes, is supported by all parties as reasonable
and appropriate. The Stipulation thus represents a fair compromise of significant test year, rate
base and cost-of-service issues presented by the parties. We find the $32.1 millon, 5.2%
increase in Idaho Power's revenue requirement to be reasonable, as is the spread of the increase
to the customer classes as set forth in the Stipulation. The specific rates we find reasonable are
attched to the Stipulation and are also attached to this Order as Attchment 1.
We also find the other terms of the Stipulation to be fair and reasonable and in the
public interest. Paragraphs 6(a) and (b) of the Stipulation resolve specific components - the
system net power supply cost and the system firm load - used to determine the additional $32.1
milion revenue requirement. Evidence to support these discrete components was provided by
Staff and the Company, and we approve them as part of the calculation for the additional revenue
requirement.
Paragraphs 6( c) and (d) and Section 9 of the Stipulation resolve for this case issues
that were contested by the paries, and also call for continuing discussions to resolve them for
future Idaho Power rate cases. Idaho Power's proposal to use a forecasted test year in this case
was strongly resisted by Staff and most of the Intervenors, and Paragraph 6( c) is an agreement
ORDER NO. 30508 7
that the paries will discuss "a forecast test year methodology that balances the auditing concerns
of the Staff and the Intervenors with the need for timely rate relief expressed by the Company."
Paragraph 6( d) addresses the load growt adjustment rate in the PCA, and provides an
appropriate resolution of the significant impact of the LGAR in this case while the paries review
the costs of serving load growth between rate cases. Section 9 of the Stipulation obligates Idaho
Power to work with the Irrigators and other interested paries to make adjustments to the
Company's Irrigation Peak Rewards Program to be implemented for the 2009 irrigation season.
These terms represent fair and reasonable compromises of contested issues, and reflect good-
faith efforts by the paries to work together to resolve them for futue cases.
Time.;of-Use Rates for Schedule 9 Customers
The Stipulation does not address Kroger's evidence and request for time-of-use rates
for Schedule 9 customers. At the technical hearng, Kroger stated its general support of the
settlement agreement, but believes it is deficient by not addressing time-of-use rates for Schedule
9 primar level and transmission level customers. In its prefied testimony, Kroger asserted that
these customers already have metering in place to accommodate time-of-use rates. Noting thàt
Schedule 19 has mandatory time-of-use rates, Kroger proposed that Schedule 9 customers be
required to migrate to Schedule 19. Higgins Direct pp. 12..13. The Industrial Customers support
voluntar time-of-use rates for Schedule 9 primary and transmission customers, but believe that
time-of-use rates for Schedule 19 customers should also be volunta and not mandatory.
Reading Direct p. 31. Staff is not opposed to voluntar time-of-use rates for Schedule 9 primar
and transmission level customers. Hessing Direct p. 13.
Idaho Power generally supports making time-of-use rates available ta Schedule 9
primar and transmission customers on a voluntary basis. The Company filed an exhibit for a
time-of-use proposal for Schedule 9 customers based on the Company's original revenue
increase request. Exhibit 64. The Company proposed rates 5% higher for Schedule 9 energy
charges as compared to Schedule 19 energy charges, in order to "maintain the same relationship
between Schedule 9 and Schedule 19 charges as is curently in place today." Brilz Rebuttal p.
12.
Kroger testified at the heating that Idaho Power's proposal to set the energy charge
for Schedule 9 rates 5% higher than for Schedule 19 rates is not in the public interest "because
we do not believe that customers wil find that rate attactive enough to actually migrate to it."
ORDER NO. 30508 8
Tr. p. 21. Rather than approve the Company's proposal for higher Schedule 9 energy rates,
Kroger recommended the Commission not adopt a time-of-use rate program at all, or adopt some
compromise rate between the two proposals. Tr. p. 21.
A time-of-use rate strcture for Schedule 9 customers is consistent with Commission
policy to provide appropriate price signals to energy consumers. The existing Schedule 19 rate
strcture provides energy rates for on-peak, off-peak and mid-peak consumption, reflecting the
different costs to provide energy during those periods. A similar strcture for Schedule 9
primary level and transmission level customers would similarly provide price signals to those
customers. In addition, Schedule 9 primar level and transmission level customers already have
meters in place to accommodate time-of-use rates.
There is no evidence in this case, however, to establish Schedule 9 time-of-use rates
to recover the revenue requirement allocated to that class of customers by this Order. In
addition, Idaho Power and the Schedule 9 customers were unable to agree on the appropriate
time-of-use rate structue. Accordingly, we direct the Company to develop a time-of-use rate
proposal for Schedule 9 customers and present it to the Commission. Idaho Power should
include the Schedule 9 customers in that process and, if possible, present a proposal that is
agreeable to the Schedule 9 customers.
Intervenor Funding
The Irrgators fied the only Petition for Intervenor Funding in this case. To fuer
the policy of encouraging paricipation in all proceedings before the Commission, so that all
affected customers receive full and fair representation, intervenor funding may be awarded by
the Commission pursuant to Idaho Code § 61-617 A. The Commission may order any regulated
utilty with anual revenues exceeding $3.5 milion to pay all or a portion of the costs of one or
more intervenor paries for legal fees, witness fees and reproduction costs not to exceed a total of
$40,000. Idaho Code § 61-617A(2). The Commission must base its determination to make an
award on a finding that the intervenor materially contributed to the decision rendered by the
Commission, that the costs of intervention are reasonable and would be a significant financial
hardship for the intervenor, that the recommendations made by the intervenor differed materially
from the testimony and exhibits of the Commission Staff, and that the testimony and
paricipation of the intervenor addressed issues of concern to the general body of users or
ORDER NO. 30508 9
consumers. Id. Commission Rule of Procedure 162 provides the form and content requirements
for a Petition for Intervenor Funding.
The Irrgators' Petition for Intervenor Funding sets fort in detail total expenses of
intervention in excess of $51,000. The Petition meets the form requirements of Rule 162, and
sumarzes the testimony and recommendations of the Irrgators. The Irrgators' witnesses
included two members who paricipate in the Peak Rewards Program and made specific
recommendations for improvements to the program. The witnesses recommended an increase in
the interrptibilty credit, a relaxing of paricipation standards, and implementation of a
dispatchable interrptibilty program. The Irrgators' consultant, Mr. Yanel, testified about
Idaho Power's cost-of-service study, arguing that the study does not incorporate a mechanism to
allocate the costs of growth to customer classes that are causing the growth on the system. Mr.
Yanel also testified about the Peak Rewards Program and urged the Commission to establish
time-of-day rates that would send the appropriate price signals to irrigators. The Petition for
Intervenor Funding also identifies specific terms that are included in the Stipulation as the result
of the Irrigators' paricipation in the settlement discussions and preparation of the Stipulation.
The Irrgators' Petition describes how the costs to paricipate in the case constitute a
financial hardship for them. The Irrigators are a non-profit corporation and rely solely upon dues
and contributions paid by its members, along with intervenor fuding awards, to paricipate in
rate cases.
The Petition describes how the Irrigators' testimony differed from that of the
Commission Staf, and that the Irigators' paricipation presented issues of concern to the general
body of customers on Idaho Power's system. Staff did not file testimony addressing the
Irrgators' proposed method to allocate a portion of growth-related costs to the customer classes
causing the system growth, or to make improvements to the Peak Rewards Program. The
Petition describes the Irrgators' proposal for improvements to the Peak Rewards Program as
beneficial to all customers because the program reduces load durng the sumer peak, thereby
reducing overall system costs. Expansion of the program would help delay the building of
additional generation plant, helping to avoid a significant cost to all ratepayers.
The Commission finds that the Irrgators' Petition for Intervenor Funding meets the
applicable stadards for an award. The Irrgators did provide evidence on issues not addressed
by Staf and that materially affected the Stipulation and thus the Commission's decision. The
ORDER NO. 30508 10
Petition establishes the reasonableness of the expenses incured by the Irrgators and that the
costs to paricipate in the case present a financial hardship to the association. Accordingly, the
Commission finds it appropriate to award intervenor fuding to the Irrigators in the amount of
$40,000. Pursuant to Idaho Code § 61-617A(3), Idaho Power shall include the cost of this award
as an expense to the irrigation class (Schedule 24) to be recovered in the Company's next general
rate case proceeding.
CONCLUSIONS OF LAW
The Idaho Public Utilties Commission has jurisdiction over Idaho Power Company,
an electric utilty, and the issues presented in this case, by the authority granted it under Title 61
of the Idaho Code and pursuant to the Commission's Rules of Procedure, IDAPA 31.01.01.000
et seq.
ORDER
IT IS HEREBY ORDERED that the Commission accepts the Stipulation and
proposed settlement filed in Case No. IPC-E-07-08 providing for an increase of $32,126,654 in
Idaho Power's anual revenue requirement, representing an aggregate base rate increase of 5.2%,
effective March 1, 2008. The Company is directed to fie amended tariffs in compliance with
this Order.
IT is FURTHER ORDERED that Idaho Power is directed to develop a time-of-use
rate proposal for Schedule 9 customers and present it to the Commission for approval.
IT IS FURTHER ORDERED that the Irrigators' Petition for Intervenor Funding is
granted in the amount of $40,000. Pursuat to Idaho Code 61-617A(3), Idaho Power shall
include the cost of this award as an expense to the irrigation class (Schedule 24) to be recovered
in the Company's next general rate case proceeding.
THIS IS A FINAL ORDER. Any person interested in this Order may petition for
reconsideration within twenty-one (21) days of the service date of this Order. Within seven (7)
days after any person has petitioned for reconsideration, any other person may cross-petition for
reconsideration. See Idaho Code § 61-626.
ORDER NO. 30508 11
DONE by Order of the Idaho Public Utilties Commission at Boise, Idaho this J.t Ht
day of February 2008.
~¡J~.
MARSHA H. SMITH, COMMISSIONER
J
ATTEST:
fil!e~
Commission Secretar
O:IPC-E-07-08 ws
ORDER NO. 30508 12
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ATTACHMENT 1
Order No. 30508
Case No. IPC-E-07-08
Page 7 of22
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ATTACHMENT 1
Order No. 30508
Case No. IPC-E-07-08
Page 9 of22
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ATTACHMENT 1
Order No. 30508
Case No. IPC-E-07-08
Page 10 of22
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ATTACHMENT 1
Order No. 30508
Case No. IPC-E-07-08
Page 11 of22
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ATTACHMENT 1
Order No. 30508
Case No. IPC-E-07-08
Page 12 of22
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Order No. 30508
Case No. IPC-E-07-08
Page 20 of22
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