HomeMy WebLinkAbout20081024Peseau Direct.pdfGIVE LLP
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Gary G. Allen
Peter G. Barton
Christopher J. Beeson
Clint R. Bolinder
Erik J. Bolinder
Jeremy C. Chou
William C. Cole
Michael C. Creamer
Amber N. Dina
Elizabeth M. Donick
Kristin Bjorkman Dunn
Thomas E. Dvorak
Jeffrey C. Fereday
Justin M. Fredin
Martin C. Hendrickson
Steven J. Hippler
October 24, 2008
Via Hand Delivery
Jean Jewell
Idaho Public Utilties Commission
472 W. Washington
P.O. Box 83720
Boise, ID 83720-0074
Re:
Debora K. Kristensen
Anne C. Kunkel
Jeremy G. ladle
Michael P. lawrence
Franklin G. lee
David R. Lombardi
John M. Marshall
Kenneth R. McClure
Kelly Greene McConnell
Cynthia A. Melillo
Christopher H. Meyer
L. Edward Miller
Patrick J. Miller
Judson B. Montgomery
Deborah E. Nelson
Kelsey J. Nunez
W. Hugh O'Riordan, lL.M.
Terri R. Pickens
Angela M. Reed
Justin A. Steiner
Scott A. Tschirgi, lL.M.
J. Will Varin
Conley E. Ward
Robert B. White
RETIRED
Kenneth L. Pursley
Raymond D. Givens
James A. McClure
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IN THE MA ITER OF THE ApPLICA nON OF IDAHO POWER COMPANY FOR
AUTHORITY To INCREASE ITS RATES AND CHARGES FOR ELECTRIC
SERVICE
Case Number: Case No. IPC-E-08-10
4489-34Our File:
Dear Jean:
Enclosed for filing please find an original and nine (9) copies of Dennis Peseau's
Rebuttal Testimony in the above entitled matter. One copy has been designated as the
reporter's copy, and a disk containing the testimony in ASCII format is also enclosed.
Thank you for your assistance in this matter.
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Conley E. Ward (ISB No. 1683)
GIVENS PURSLEY LLP
601 W. Banock Street
P.O. Box 2720
Boise, ID 83701-2720
Telephone No. (208) 388-1200
Fax No. (208) 388-1300
cew~givenspursley .com
Attorneys for Micron Technology, Inc.
S:\CLllNTS\4489\34\D Peseau Direct Testimony (Final 1O-23-08).DOC
BEFORE THE IDAHO PUBLIC UTILITIES COMMISSION
IN THE MATTER OF THE APPLICATION Case No. IPC-E-08-10
OF IDAHO POWER COMPANY FOR
AUTHORITY TO INCREASE ITS RATES
AND CHARGES FOR ELECTRIC SERVICE
DIRECT TESTIMONY
OF
DENNIS E. PESEAU
ON BEHALF OF
MICRON TECHNOLOGY, INC.
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PLEASE STATE YOUR NAME AND BUSINESS ADDRESS.
My name is Dennis E. Peseau. My business address is Suite 250, 1500 Liberty Street,
S.E., Salem, Oregon 97302.
BY WHOM AND IN WHAT CAPACITY ARE YOU EMPLOYED?
I am the President of Utilty Resources, Inc. ("URI"). URI has consulted on a number of
economic, financial and engineering matters for various private and public entities for
more than twenty years.
PLEASE DESCRIBE YOUR EDUCATIONAL BACKGROUND AND WORK
EXPERIENCE.
My resume is attched as Exhibit No. 701.
HAVE YOU PREVIOUSLY TESTIFIED BEFORE THE IDAHO PUBLIC UTILITIES
COMMISSION?
Yes, on numerous occasions for more than 25 years.
FOR WHOM ARE YOU APPEARING IN THIS CASE?
I am appearing on behalf of Micron Technology, Inc ("Micron").
WHAT IS THE PURPOSE OF YOUR DIRECT TESTIMONY?
Micron has asked me to review Idaho Power Company's application and make
appropriate recommendations to the Commission.
PLEASE SUMMARIZE THE RECOMMENDATIONS YOU WILL BE MAKING IN
THIS TESTIMONY.
My testimony is divided into three sections. I wil first explain my concerns with Idaho
Power's use of a forecasted test year. In the second section, I wil propose a number of
adjustments to the Company's revenue requirement. In the third and final section of my
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testimony I wil explain why Idaho Power's cost of service studies are badly flawed, and
offer a more reasonable cost of service alternative.
Idaho Power's Forecasted Test Year
PLEASE EXPLAIN WHAT A TEST YEAR IS AND THE ROLE IT PLA YS IN
PUBLIC UTILITY RA TEMAKING?
Every public service commission in the country uses the "test year" concept as the
foundation for determining a regulated utilty's revenue requirement and rates. The
traditional form of a test year has been succinctly described by the Iowa Utilties Board as
follows:
A rate proceeding before the Board begins with historical data. This
is adjusted for known and measurable changes in costs not
associated with a different level of revenue and revenues not
associated with a different level of cost that wil occur within twelve
months of the date of fiing by the utility. Typically, an historical
test year is the latest calendar year; however, a test year can be any
prior 12-month period of audited information. In a rate proceeding,
the utility fies actual data for the period and proposes adjustments
to revenues, expenses, assets, liabilties, and capital issuances.
These changes are known as "pro forma adjustments. . ." Once the
Board decides which adjustments are allowed and the resulting
revenue requirement, the utilty fies new rates that remain in effect
until a new rate case is brought. The goal in setting rates is to take
the data from the historical test year and make adjustments to the
historical data that more closely reflect the expected costs and
revenues going forward.
Iowa Utilties Board, Review of Utilty Ratemaking Procedures, Report to the
General Assembly (Januar 2004), P. 6 (hereafter "Iowa Report").
YOU CHARACTERIZED THE ABOVE QUOTE FROM THE IOWA BOARD AS A
DESCRIPTION OF A "TRADITIONAL" TEST YEAR. ARE OTHER TYPES OF TEST
YEARS USED FOR UTILITY RA TEMAKING?
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Yes. According to the Iowa Report, approximately 30 states use the traditional test year
described above. Iowa Report, P. 8. Other states allow some form of forecasted results
into the test year, although those that do often star the forecast process with historical
data, and many impose other restrictions on the use of this data. See Iowa Report, P. 8-9.
Another recent study of test year practices by the Nevada Public Utilities Commission
provides furher details on a state-by-state basis. See Report to the tlh Session of the
Nevada Legislature (May 10, 2006). Because both the Iowa and Nevada reports contain
a detailed discussion of issues present in this case, I have attached the relevant portions of
both to my testimony as Exhibit Nos. 702 and 703, respectively. In its present fiing,
Idaho Power has modified its last proposed test year methodology to make some tracing
of its proposed test year adjustments back to a historic test year possible, but only some.
WHERE DOES THE IDAHO COMMISSION FIT IN THIS PICTURE?
The Idaho Commission normally uses the traditional test year. But the Commission has
also authorized the use of a "hybrid" test year, using approximately 6 months of actual test
year data and 6 months of forecasted or budgeted data, provided the projections can be
tested and verified before the close of the case.
HOW DOES IDAHO POWER'S PROPOSAL IN THIS CASE COMPARE TO THE
IDAHO COMMISSION'S NORMAL TEST YEAR METHODOLOGIES?
Idaho Power's proposal is a significant departure from this Commission's normal test
year practices. First, it has compiled historical data for the 2007 test year. It has then
adjusted the 2007 data to forecasted 2008 levels, using a variety of methodologies. In
addition, it has anualized many of the forecasted 2008 changes, so that the actual test
year is actually centered in early 2009.
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CAN YOU BE MORE SPECIFIC ABOUT THE WAY IN WHICH IDAHO POWER
FORECASTED 2008 CHANGES?
In his testimony on behalf of Idaho Power, Greg Said described the general methodology
as follows:
The primary methods used to adjust historical 2007 data to the 2008 test
year include trending of plant investments less than $2 milion using a
compound growth rate, using "known and measurable adjustments" for
plant investments of greater than $2 milion, and basing the growth of
expenses and revenues upon compound growth rates. (Quotation marks
are mine)
Testimony of Gregory Said, P. 24, L. 7-13.
HOW DOES THE COMPANY ATTEMPT TO JUSTIFY ITS DEPARTURE FROM
PAST TEST YEAR PRACTICES?
According to Mr. Said, "The fudamental reason that Idaho Power is utilzing a 2008 test
year is to address curent concerns about regulatory lag." Testimony of Gregory Said, P.
27, L. 15-17.
DO YOU FIND THIS ARGUMENT FOR A FORECASTED TEST YEAR
PERSUASIVE?
I personally do not. In the first place, I disagree with Idaho Power's implicit assertion
that regulatory lag inevitably produces a revenue shortfall for the utility, even when
incremental costs exceed embedded costs.
Secondly, concerns about regulatory lag are not new-utilities have been making
similar arguments throughout my career in this business. But the Idaho Commission has
nevertheless consistently refused to allow the use of a fully projected test year, primarily
because forecasting introduces a host of intractable problems. These problems fall under
three general headings: (1) forecasts of this type are inherently inaccurate and uneliable,
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(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 utility and a structural bias in the
ratemaking process.
WOULD YOU PLEASE EXPLAIN THE DIFFICULTY IN MAKING ACCURATE
FINANCIAL FORECASTS?
First of all, it is important to carefully explain what is really at issue here. There is
undeniably a place for forecasts in ratemaking. Idaho Power's annual power cost
adjustment (PCA) provides a perfect example. In the PCA proceedings, power supply
costs are forecasted using a carefully constructed and agreed upon model, based on
projected stream flows provided by an independent third pary. At the end of the year,
these predictions are, in effect, "trued up" to actual results.
Similarly, many pro forma changes that are annualized during the test year, and
"known and measurable" changes that occur after the close of the test year, are often a
form of forecasting. Even if they don't occur exactly as forecast, there is nevertheless a
very high degree of certainty about the probabilty of the forecasted event and its likely
magnitude. The classic example is a nearly finished generating unit that is scheduled to
come on line after the close of the test year.
These "forecasts" are qualitatively different than the forecasts Idaho Power is
using in this case, where it is attempting to project future costs and revenues in myriad
accounts, generally by using a simple assumed compound annual growth rate. By
definition, these across-the-board forecasts are either "unown" or "uneasurable" or
both. In essence, they are simply one party's guess about future trends, and that guess
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can neither be confirmed nor refuted because it is simply an opinion about the
unowable future.
Actual recorded results stand on a much different footing. They can be audited
and verified. At least within the limitations of GAAP and regulatory accounting rules,
they are a matter of fact. That is why SEC regulations require companies to issue anual
reports based on audited results rather than budgets. Sarbanes-Oxley now requires the
top levels of management to verify, under penalty of law, that those reports are basically
true and correct. Conversely, when management issues what are called in the trade
"forward looking statements," they typically come with a legal disclaimer to the effect
that they are not statements of fact and are not to be relied upon for investment decisions.
YOUR FINAL OBJECTION TO THE USE OF A PROJECTED TEST YEAR is THAT
IT WILL BIAS RESULTS IN FAVOR OF THE UTILITY. THIS is SOMETHING OF
AN INFLAMMATORY STATEMENT. WHAT is YOUR EXPLANATION?
I am not talking about Enron style fraud here. What I am talking about here is a
systemic bias that has little or nothing to do with fraudulent activities.
WHAT DO YOU MEAN BY THE TERM "SYSTEMIC" BIAS?
It is obvious that Idaho Power's board and management are primarly responsible to the
Company's shareholders. Ifrates and ultimately rates of return are dependent on
forecasts, then there is every incentive for management to overestimate costs and
underestimate revenues. Then it becomes a game of "catch me if you can" for the PUC
staff and other paries. This point seems so obvious to me that it doesn't require further
elaboration, but those who wish to see the argument fleshed out in detail can peruse
Exhibit Nos. 702 and 703.
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WHY DO YOU DISAGREE WITH IDAHO POWER'S "IMPLICIT ASSERTION"
ABOUT THE EFFECT OF REGULATORY LAG?
Idaho Power is arguing that a differential between embedded and incremental costs,
coupled with system growth and general inflation, will invariably produce a revenue
shortfall as a result of regulatory lag. The fundamental flaw in this argument is that it
cherry picks the data by focusing only on factors that tend to increase revenue
requirements. Idaho Power's argument would be correct ifit was preceded by the caveat
"all other things being equal." But all other things are never equal or static for a complex
economic entity like Idaho Power.
While it is true that system load growth and general inflation tend to increase
costs, other prevailng trends decrease them. These countervailng factors include such
items as labor productivity gains, effciency improvements, and greater economies of
scale. Other major cost inputs, the most notable of which are interest rates and natural
gas prices, move in unpredictable ways, and they can either increase or decrease costs
significantly. In short, regulatory lag is like financial leverage-it can work both ways.
Whether it helps or hurs a utilty, or has no effect, depends on the circumstances.
To his credit, Idaho Power's witness Ric Gale acknowledges this fact. As Mr.
Gale points out, "The impact of regulatory lag is dependent on the situation-if costs are
not going up faster than rates, then the utility is not hared and may even be helped by
lag." But Mr. Gale then goes on to allege that "Idaho Power is not in that situation and
wil not likely be for the foreseeable future." Testimony of John R. Gale, P. 1, L. 1-6.
DO YOU DISAGREE WITH MR. GALE'S VIEWS ABOUT THE "FORSEEABLE
FUTURE?"
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Given the economic circumstances we are facing today, Mr. Gale's assumption about the
"foreseeable future" is demonstrably wrong. In fact, as I will explain later, the prevailng
cost trends are now working in Idaho Power's favor by tamping down load growth and
lowering costs. But before I tur to a discussion oftoday's new realities, I think it is
important to point out that the historical record shows that there have been long periods
of time in recent years when regulatory lag did not produce a revenue shortfall for Idaho
Power, notwithstanding the presence of continuing system growth, general inflation, and
an embedded/incremental cost differentiaL.
PLEASE DESCRIBE THE HISTORICAL EVIDENCE YOU JUST REFERENCED.
If we look back over the last 15 years, we see that nearly a full decade passed without a
rate case prior to Idaho Power's 2003 fiing. Avista and Pacificorp experienced a
similarly long hiatus between rate cases during roughly the same time frame. In
Pacificorp's case, this respite can be parially attributed to agreed upon merger and
acquisition related rate freezes. But, to the best of my knowledge, neither A vista nor
Idaho Power were under similar constraints.
WHAT CONCLUSIONS DO YOU DRAW FROM THIS TEN YEAR SUSPENSION
IN RATE CASES?
Investor owned utilties are for-profit institutions, and neither Idaho Power nor A vista has
shown any reluctance to engage inJrequent rate cases when they believed they had a
revenue shortfall, either before or after the 1994-2003 decade. Therefore, I conclude that
these companies generally believed they were earing a fair retur during this
approximately 10 year time period, notwithstanding the very long lag after the initial rate
determination.
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WAS THAT BECAUSE THE CONDITIONS MR. GALE IS DESCRIBING IN 2008
WERE DIFFERENT DURING THAT TIME FRAME?
No. The Consumer Price Index showed general inflation during the 90s holding
relatively steady at an annual rate of a little less that 3%, very near the curent CPI rate
today.
According to Value Line, Idaho Power's book value per share steadily increased
throughout the 1990s, as did capital spending per share in most years. This indicates that
Idaho Power was growing at a fairly steady pace during that period.
Finally, just based on my experience in this industry and in following Idaho
Power over that time frame, I can say with confidence that its incremental capital costs
also exceeded embedded costs then, just as they do now. Noticeable exceptions were the
drop in wholesale prices with transmission access, and the heat rate improvement in new
combustion turbines.
So conditions then were very similar to the circumstances described in Mr. Gale's
testimony.
SO WHY DIDN'T THE LONG REGULATORY LAG BETWEEN THE SETTING OF
RATES IN THE EARLY 90S AND THE GENERAL RATE CASE FILED IN 2003
PRODUCE REVENUE DEFICIENCIES?
I couldn't say without undertaking a complex and lengthy study. I suspect the persistent
decline in capital costs and fuel prices from the highs of the early i 980s, together with
productivity and efficiency improvements, the adoption of anual power cost
adjustments, and other factors, all played a par. But my point is that history shows that
for roughly two-thirds of the last 15 years, regulatory lag was benign from the utility's
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point of view. It also shows that neither system growth, general inflation, nor a
differential between embedded and incremental costs means that regulatory lag will
inevitably produce a revenue requirement shortfall. Idaho Power's presumed cause and
effect relationship between these items simply doesn't exist.
YOU EARLIER STATED THAT MR. GALE'S FORECAST OF THE "FORSEEABLE
FUTURE" IS DEMONSTRABLY WRONG. WOULD YOU PLEASE EXPLAIN
THAT STATEMENT?
When Mr. Gale drafted his testimony, presumably sometime in the spring of2008, he
effectively assumed that the past was prologue; that Idaho Power would continue to
experience strong system growth, fed in large measure by the continuation of the housing
and construction booms, and that costs, paricularly fuel and commodity costs, would
continue to escalate at marginal rates well in excess of embedded costs. These
assumptions are wildly at odds with current realities, and are almost certain to remain so
through at least the first half of2009.
WHY DO YOU SAY THAT?
When Mr. Gale was writing his testimony, he could not have foreseen the complete
collapse of the biggest housing bubble in history, followed by what is generally regarded
as the worst financial crisis since the Great Depression. In only a few short weeks we
have witnessed a once unthinkable destruction of some of the nation's largest financial
institutions, followed by the parial or complete nationalization of others, such as Fanie
Mae and Freddie Mac and most of the nation's largest banks.
This catastrophe has predictably spiled over into the "real" economy. In the
words of Merril Lynch's chief investment strategist, Richard Bernstein, "We have
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1 progressed beyond a global credit crisis. This is now a global economic crisis."
2 Baron's, P. M3 (Oct. 13,2008). The evidence for Mr. Bernstein's view is all too
3 familar to all of the paries in this proceeding, so I will not belabor it at length. But I
4 think it is important for the record to contain a least some ilustrations of the dire
5 economic circumstances we are facing.
6 As this testimony is being finalized, the Standard and Poor's 500 stock index is
7 down about 40% year to date, with most of the world's other exchanges reporting similar
8 or even greater losses. The housing market is at a virtual standstil, except for
9 foreclosures ruing at the rate of about 300,000 per month. Newsweek, P. 40 (Oct. 20,
10 2008). Credit card delinquencies have roughly doubled in the last year, with even the
11 strongest issuer (American Express) reporting uncollectibles of roughly 6.7%. Wall
12 Street Journal, P. C1 (Oct. 20, 2008). The Federal Reserve just reported that industrial
13 production fell 2.8% in September, the worst monthly loss since 1974. Reuters Wire
14 Service (Oct. 17,2008). Not surprisingly, unemployment has increased for nine straight
15 months by roughly 33% to (a probably understated) rate of6.1 %. Newsweek P. 39 (Oct.
16 20, 2008).
17 We don't have comparable figures for all these categories for Idaho alone or
18 Idaho Power's service territory, but there is plenty of anecdotal evidence that Idaho is not
19 immune from the unfolding national disaster. Home foreclosures in Ada and Canyon
20 counties are up 137% for the year, and ruing at the rate of about 460 per month. Idaho
21 Statesman, Business Section P. 1 (Oct. 21,2008). As of September, 2008, Idaho
22 unemployment has increased 86.6% in the last year, and my client, and the state's largest
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private employer, has just anounced layoffs for about 1500 employees, equal to about
15% of its local workforce.
ARE THERE ANY BRIGHT SPOTS IN THIS ECONOMIC PICTURE?
Not many. About the only thing one can point to is the precipitous drop in commodity
prices, particularly oil and natural gas. Oil prices now stad at less than $70Ibarrel, down
from a 52 week high of$145, and natural gas prices are at $6.53/mmbtu, down from a 52
week high of $13.57. This will tap down the inflation rate, and perhaps lead to short
term deflation for both consumers and companies alike.
WHAT DOES ALL THIS HAVE TO DO WITH REGULATORY LAG AND THE USE
OF A FORECASTED TEST YEAR?
Under these circumstances, the use of an historical test year, properly adjusted for known
and measurable changes, is not likely to produce meaningful regulatory lag. In fact, it
could quite easily produce regulatory lead, in which historical data overstates actual
expenses and understates earnings.
Furthermore, it makes Idaho Power's forecasted test year, which is premised on a
continuation of steady system load growth and a furher rapid climb in already high costs,
implausible to the point of impossibilty, as I wil show in the next section of my
testimony which discusses proposed adjustments to its revenue requirement.
SO WHAT IS YOUR RECOMMENDATION TO THE COMMISSION REGARDING
IDAHO POWER'S USE OF A FORECASTED TEST YEAR?
I personally believe that, even in normal circumstances, the type of general, across-the-
board expense increases Idaho Power is forecasting in this case are too unreliable for use
in ratemaking, and that they are likely to be biased in the Company's favor as well.
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Given the economic circumstances we now find ourselves in, the use of a forcasted test
year that essentially posits the continuation of the now deflated boom of the early years
of the century is nonsensical on its face. Therefore, I believe the most accurate method
would be to use the normal 2007 historical test year, adjusted for known and measurable
changes.
But if the Commission should disagree, then I strongly urge it to adopt some
limitations or "sideboards" on the use of forecasts that I wil describe in the following
section of my testimony dealing with revenue requirement issues.
Revenue Requirement Adjustments
PLEASE DESCRIBE THE FIRST REVENUE REQUIREMENT ISSUE YOU WILL BE
ADDRESSING.
The first issue is also the simplest, and it has to do with net power supply expenses. The
forecasted increase in this expense is the largest single component of Idaho Power's $67
milion rate increase request, accounting for approximately $23.7 milion of that total.
This forecast is, in tur, primarily dependent on two interrelated elements. The first has
to do with the delay of approximately 62 average megawatts of PURP A generation
previously scheduled to come on line during 2008. The second factor in the forecasted
increase is projected natural gas prices.
PLEASE EXPLAIN WHY THE PURPA SHORTFALL AND NATURAL GAS PRICES
ARE INTERRLATED?
Most merchant plants and virtually all of the peaking generators in the Pacific Northwest
are natural gas fired. Consequently, when a regional utilty experiences a shortfall in
system resources, such as the PURP A plant delays at issue here, the biggest single factor
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in determining the price of replacement power is the price of natural gas to fuel the
replacement generation. I should point out that this is not a direct or linear relationship
because the Idaho Power net power supply expense model is very complex and considers
a host of factors. But it is nevertheless true that there is a strong correlation between
natural gas prices and replacement power costs.
HOW DOES THAT RELATIONSHIP PLAY OUT IN THIS CASE?
At the time Idaho Power prepared its testimony in this case, it used a March 2008
NYMEX natural gas price forecast averaging about $1 O/mmbtu. As my testimony is
being prepared in mid-October of 2008, actual natural gas prices, as well as gas price
forecasts are under $7/mmbtu. This approximate 30% reduction in prices wil, of course,
have a significant effect on regional electricity prices and Idaho Power's net power
supply expenses for the test year.
CAN YOU QUANTIFY THAT EFFECT WITH PRECISION?
Not precisely, because I do not have access to Idaho Power's proprietar power supply
modeL. I am sure, however, that use of the current natural gas prices in the net power
supply expense model would eliminate all or a very substantial portion of the forecasted
increase in net power supply expenses.
WHY DO YOU SAY THAT?
Because current natural gas prices are relatively close to the prices the Commission used
to determine PURP A rates by using a modeled combined cycle natural gas generator as a
surrogate for market prices. If both the PURP A model and net power supply expense
model are performing as they should, the implied result would be a relatively minimal
DIRECT TESTIMONY OF DENNIS E. PESEAU - 15
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gap between the price Idaho Power would have paid for the missing PURP A generation
and the cost of replacement power.
DID YOU REQUEST THAT IDAHO POWER RE-RUN ITS POWER SUPPLY
MODEL TO REFLECT THE APPROXIMATE 25-30% REDUCTION IN NATURAL
GAS PRICE FORECASTS?
Yes. Micron data requests Nos. 21-23 asks for this information. Unfortunately, the
requests apparently were not sufficiently clear. Nonetheless, Idaho Power produced 2 re-
runs of its model in response to Micron's requests.
WHAT DIFFERENCES IN NET POWER SUPPLY COSTS, IF ANY, DID THESE RE-
RUNS PRODUCE?
The actual production request and response is attached as Exhibit No. 704. Pages 2 and
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3 contain the results of the re-rus using curent natural gas prices. These two re-rus list
net power supply costs of$64,153,700 and $62,142,900. This compares with the
Company's fied net power supply expense of $88,421,200, a decrease of approximately
$24 millon to $26 milion.
ARE YOU PROPOSING THAT TEST YEAR NET POWER SUPPLY EXPENSES BE
REDUCED BY THE APPROXIMATE $25 MILLION COST REDUCTION SHOWN
IN YOUR EXHIBIT NO. 704?
Not exactly. Since I do not have access to the Company's power supply model, and the
outputs supplied by Idaho Power were not prepared under my supervision and control, I
cannot verify whether the Company successfully made all necessary adjustments to its
modeling. I can only state that the exhibit's dramatic reduction in net power supply costs
is about what I expected, given the sizable decline in expected natural gas prices.
DIRECT TESTIMONY OF DENNIS E. PESEAU - 16
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HOW SHOULD THE COMMISSION DEAL WITH THIS ISSUE IN THIS
PROCEEDING?
NYMEX real time and futures prices are published by a variety of sources and are
readily verifiable. So my ideal solution would be to have the Commission direct the Staff
or Idaho Power rerun the model using the most current available prices just before an
order is issued in this case. Unfortunately, counsel informs me that there may be a legal
problem with the development of evidence after the close of proceedings in this case. So,
as a next best solution, I would suggest that the Staff should supply updated model results
with their rebuttl testimony fiing. Failing that, the Commission should use the re-rus
of the model, with now current gas prices, contained in Exhibit No. 704. This would, of
course, completely negate Idaho Power's forecasted $23.7 milion net power supply cost
increase.
ARE THERE ANY OTHER REVENUE REQUIREMENT ISSUES THAT ARE
DlRECTL Y RELATED TO IDAHO POWER'S FORECASTS?
Yes. Idaho Power has chosen to inflate its 2008 individual operations and maintenance
(O&M) line items by either a three or five year historical compound annual growth rate.
Company Exhibit No. 41 shows that most of these anual growth rates fall within the
range of 7 -11 %. No rationale is provided for the use of this inflator, other than the
argument that this methodology is "transparent" and easy to explain.
DIRECT TESTIMONY OF DENNIS E. PESEAU -17
IPUC Case No. IPC-E;.08-10
Idaho Power Company
O&M Expenses Adjusted by Compound Growth Rates
1
IPC IPC ¡PC
Expense 2007 Actual Proposed Increas Percnt
Steam Operation Expense 18,979,077 20.333,969 1,364,892 7.14%
Steam Maintenanc Expense 29,479,799 31,584,657 2,104,858 7.14%
Hydro Operation Exense 24,394,953 26,353,868 1,968,915 8.03%
Hydro Maintenance Expense 8,551,183 9,237,843 686,660 8.03'/0
Oth Power Operaion 1,188,339 1.328,087 139,748 11.6%
Olh Power Maintenance 908,885 1,015,770 106,885 11.76%
Load oonlrol 77.489 86,602 9,113 11.76%
Ot~r Expenses 2,4$0,96 2,739,193 288,233 11,76%
Transmission O&M 16,188,474 16,832,775 644.301 3.98%
DisttibutionO&M 44,GQ1,780 44.1)13,992 312,212 070%
Customer ACooUnls 16,065,646 16,075.185 9,$39 0.06%
CusteimerService 9,607,619 9,613,384 5,765 0.06%
Admin & General 89,376,659 97,787,203 8,410,544 9.41%
Tolal 261,870,863 277,902.528 16,031,66$6.12%
Max
Increase ll
2% Adjustment
$,237,417 (10,794,248)
2 This is simply not an adequate reason for the use of percentage inflators that are
3 shockingly high by any measurement. They are well above the system load growth rate,
4 which Mr. Said projects at 1.9% a year, as well as the growth in number of employees.
5 They are also well above the Producer Price Index ("PPI") inflation rate, which is
6 ruing in negative territory at this writing.
7 Barring very unique circumstances, no well run utilty should experience
8 prolonged O&M growth rates of this magnitude for any extended period of time, and this
9 is doubly true when prices for items like gasoline and other commodities are in decline as
10 they are now, the Producer Price Index has dipped into negative territory, and the country
11 is likely either in, or entering, what could be a nasty recession. This is paricularly true
12 for the Administrative and General ("A&G") expense category, which comprises more
13 than half the forecasted O&M increase, and is forecasted to rise at a rate well in excess of
14 9%. A&G expenses consist of items like office supplies, offce salaries, and advertising
DIRECT TESTIMONY OF DENNIS E. PESEAU - 18
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that are subject to considerable management discretion and control, and should be one of
the first places to look for savings when times get tough, as they certainly are now.
HOW SHOULD THE COMMISSION DEAL WITH THIS ISSUE?
My preferred solution is to eliminate all of the across-the board inflators and accept only
known and measurable adjustments to the historic test year. But if general price inflation
forecasts are allowed, this is one of those instaces where some objective standard must
be used to limit the use of a generic inflator in order to provide efficiency incentives and
to temper the utilty's incentive to select the highest possible method of forecasting
expenses. I have suggested three possible objective caps above-the PPI index, the rate
of system load growth, or employee load growth. Any of these three would effectively
cap the O&M inflator at no more than 2%. Anyone of these three inflators makes Idaho
Power far better off than under the previous, more traditional test year concepts, while
providing safeguards for the ratepayers. A 2% cap would reduce the requested revenue
increase by approximately $10.8 milion, as shown on Exhibit 705.
WOULD YOU PLEASE EXPLAIN THE NEXT REVENUE REQUIREMENT ISSUE
YOU HAVE IDENTIFIED?
Idaho Power's forecasted test year results in a proposed increase in rate base of over $280
milion. Approximately $190 milion of this total is attributed to "known and
measurable" rate base adjustments during 2008, and the remaining $91 milion is due to
annualizing the impact of these additions, i. e., treating them as if they were in rate base
for the entire year.
While such anualizing adjustments may be appropriate for an historic test period,
in my opinion they are totally inappropriate for a future test period. In any historical test
DIRECT TESTIMONY OF DENNIS E. PESEAU - 19
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period, additions to rate base will be made throughout the period. Actual eared retur
on rate base wil depend on income and actual in service dates for rate base additions.
Setting rates based on the assumption that some assets wil be in rate base for the whole
period, when in fact they are not, ignores reality and introduces numerous complexities
that require secondary forecasts about the associated revenues and other items.
Furhermore, it effectively creates a rate base that is actually representative of the 2009
test year or beyond, until the next major plant addition comes on. This simply tilts the
playing field too far in Idaho Power's direction.
CAN YOU PROVIDE AN ILLUSTRATION OF THE DIFFICULTIES ASSOCIATED
WITH THE SECONDARY FORECASTS YOU REFERRD TO ABOVE?
Yes. Mr. Said's Exhibit No. 52, attached here as my Exhibit No. 706, ilustrates this
problem very clearly. In Mr. Said's exhibit, the approximate $13 milion requested
increase in costs (roughly $91.3 milion plant anualization * .0855 (retur) * 1.642 (tax
gross up)) compares with Idaho Power's proposed offsetting revenue annualization ofa
paltry $1,489,324, also shown on Exhibit 706. Idaho Power's proposed "matching" of
annualized costs and revenues comes out in favor of shareholders over ratepayers by a
factor of nine to one. This seems to me indefensible and unreasonable on its face.
Furthermore, with Idaho Power on record as intending to seek anual rate
increases for at least the next few years, presumably including a rate increase in 2009, the
case for forecasted anualization to capture 2009 results is extremely weak, at best,
particularly when the anualized results are so blatantly skewed in the utilty's favor.
DIRECT TESTIMONY OF DENNIS E. PESEAU - 20
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I urge the Commission to deny the Company's proposed $91.3 milion Plant
anualization adjustment. This would decrease the Company's requested revenue
requirement increase by about $12.8 milion.
WHAT is YOUR RESPONSE TO IDAHO POWER'S REQUEST FOR THE
INCLUSION OF RELICENSING CONSTRUCTION WORK IN PROGRESS ("CWIP")
IN RATE BASE?
I am adamantly opposed to the inclusion of the forecasted 2009 relicensing costs of$7.6
milion, both as a matter of principle and for a number of practical reasons.
WOULD YOU PLEASE EXPLAIN THE "MATTER OF PRINCIPLE" INVOLVED IN
THIS ISSUE?
Perhaps the best way to begin is with a brief general discussion of what is often referred
to as the "regulatory compact" between an investor owned utilty, such as Idaho Power,
and its ratepaying customers. Since I am an economist and not an attorney, I wil not
discuss the various statutes and cour decisions that flesh out this "compact," but instead
describe the situation as economists understand it.
As a general rule, de jure monopolies are fudamentally at odds with the
competitive free market system that characterizes most of the American economy. We
have chosen, however, as a matter of public policy, to make an exception to this general
rule for certain utility services like the provision of electricity, primarily on the grounds
that the duplication of facilties by competing providers would be inefficient and
wastefuL. Thus, an investor owned utility like Idaho Power has an exclusive franchise to
provide electric service within its franchise area.
DIRECT TESTIMONY OF DENNIS E. PESEAU - 21
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In retur for this exclusive monopoly, the utilty is obligated to raise the necessar
capital and make appropriate investments to enable it to provide reasonable, non-
discriminatory service to all who request it. The ratepayers' side of the compact is an
obligation to pay the reasonable costs of providing this service, generally consisting of
the reimbursement of the utility's prudently incured expenses, plus a fair opportunity to
ear a reasonable return or profit on investments that are "used and useful" in the
provision of electric service.
It is important to point out that, contrary to a widely held misperception among
the general public, an investor owned utility's investments are not risk free, nor are its
profits guaranteed. This is primarily due to the fact that public service commissions are
charged with the duty of regulating the investor owned utilties in a maner that, as nearly
as possible, imposes the financial discipline and operating efficiencies that would
otherwise be provided by competitors or the threat of competition. One of the tools the
commissions use to replicate the effects of competition is, of course, the disallowance of
imprudently incurred expenses and nonproductive capital investments in ratemaking.
WHAT DOES THIS GENERAL DESCRIPTION OF THE REGULATORY COMPACT
HAVE TO DO WITH IDAHO POWER'S CWIP REQUEST?
From an economist's point of view, the fundamental problem with CWIP is that it breaks
the regulatory compact in a way that mitigates effciency incentives and is fundamentally
unfair to ratepayers. Capitalists all over the world understand that when they make an
investment in new production facilities they are putting their money at risk of a parial or
total loss, and that they wil see no return of, or on, their investment until the facilties
actually produce a marketable output. These considerations force management to make
DIRECT TESTIMONY OF DENNIS E. PESEAU - 22
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careful and frugal investment decisions and to implement them as rapidly and efficiently
as possible.
But when a utilty is allowed to place CWIP in rate base, these powerfl
efficiency incentives disappear. In essence, the public misconception I mentioned earlier
becomes correct-utilties are now guaranteed a risk free profit. Investments pay the
same whether they are productive or not, and there is no need to proceed with
construction as dilgently and efficiently as possible because the completion date and the
beginning of productive output are irrelevant. Since the state, acting through the public
utilties commission, wil forcibly extract compensation from the public for good and bad
performance alike, there is no incentive to perform. History is replete with examples of
the folly of this approach.
YOU HAVE EXPLAINED WHY YOU OPPOSE CWIP IN PRINCIPLE, BUT YOU
ALSO STATED THAT IT IS "FUNDAMENT ALLY UNFAIR TO RA TEPA YERS."
WOULD YOU PLEASE EXPLAIN THAT STATEMENT?
Including CWIP in rate base essentially converts Idaho Power's ratepayers into
involuntar investors. They wil be investing in the Company's relicensing effort for the
Hells Canyon projects. If successful, this will result in an immensely valuable asset for
Idaho Power Company's shareholders, but the ratepayers wil not get the ownership stae
they would normally be entitled to for their investment.
This problem is compounded by the fact that the utilty's CWIP wil earn its
normal rate of retur, which is premised on the idea that utility shareholders are bearing
the investment risk, when it really should receive no more than the much smaller risk free
rate of return for investments funded by ratepayers rather than shareholders.
DIRECT TESTIMONY OF DENNIS E. PESEAU - 23
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PERHAPS THE RA TEPA YERS SHOULD GET WHAT WARRN BUFFETT is
REPORTED TO HAVE RECEIVED FOR HIS CASH FLOW INFUSION IN
GENERAL ELECTRIC AND GOLDMAN SACHS-PREFERRD STOCK PA YING
ABOUT A 10% DIVIDEND AND STOCK WARRNTS THAT WILL CAPTURE
ANY UPSIDE IN THE COMPANIES' FORTUNES.
Not under Idaho Power's proposaL.
SO WHAT DO THE RA TEPA YERS GET UNDER IDAHO POWER'S CWIP
PROPOSAL?
Under Idaho Power's proposal, the ratepayers would get, in return for their cash
infusion, a "Regulatory Asset" amortized over the life of the plant asset. Testimony of
Catherine M. Miler P. 13, L. 9-19. Assuming that the plant life is on the order of30
years, this amounts to a 30 year unsecured loan at 0% interest. Moreover, the consumers
have to pay for the taxes Idaho Power wil incur on this cash infusion, which turns the
total rate impact into roughly $12 millon dollars, rather than the $7.6 milion Idaho
Power would actually receive. At a time when approximately 40% of households are
carring significant credit card debt, this amounts to many ratepayers borrowing at
double digit interest rates to make an unsecured, interest free, 30 year loan to an investor
owned utilty whose borrowing costs are far below theirs.
This Idaho Power proposal should be rejected in its entirety.
ARE THERE ANY OTHER REVENUE REQUIREMENT ISSUES YOU WISH TO
ADDRESS?
Just one. About $17 milion of Idaho Power's requested rate increase is tied to its request
for an increase in its return on equity. I do not intend to make a formal presentation on
DIRECT TESTIMONY OF DENNIS E. PESEAU - 24
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this subject, although I believe the Staff and DOE wil do so. But I would like to note for
the record that it is my understanding that the Commission is entitled to consider "all
relevant matters" in rate cases. The economic circumstances Idaho Power's customers
are facing seem to me very relevant, and I have great difficulty imagining a rationale that
would justify an increased return on equity in the face of the economic difficulties we are
facing.
EVEN WITHOUT A FORMAL STUDY, ARE YOU ABLE TO ASSESS THE
V ALIDITY OF IDAHO POWER'S REQUEST FOR AN INCREASE IN RETURN ON
EQUITY ("ROE") FROM THE 10.25% DETERMINED IN 2007 TO THE 11.25%
NOW BEING REQUESTED?
Yes. I have reviewed several ofIdaho Power witness Dr. Avera's testimonies over the
years, in Idaho and other jurisdictions. Dr. Avera's approach to estimating his ROE here
is the same as in the 2007 Idaho case. It is therefore a fairly easy matter to determine
whether his financial indicators, market interest rates and Idaho Power risk measurements
do, or do not, warrant an increase or decrease from the currently allowed ROE of
10.25%. I conclude from the analysis below that no change is necessary.
PLEASE REVIEW YOUR ANANL YSIS OF DR. AVERA'S ROE ESTIMATES.
Dr. A vera relies on standard measures of interest rates, risk measures (beta) and growth
rates in implementing his DCF (discounted cash flow), CAPM (capital asset pricing
model) and his comparable earnings approaches. We can compare these key financial
determinants used by Dr. A vera in this case (2008) with the same determinants he used in
2007. This comparison indicates that his 2008 ROE estimate should be slightly lower
DIRECT TESTIMONY OF DENNIS E. PESEAU - 25
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than, or at best equal to, his 2007 estimate. Thus, a reasonable retu on equity should be
no more than the retur of 10.25% the Commission found fair and reasonable in 2007.
PLEASE BRIEFLY DESCRIBE THE KEY COMPONENTS OF THIS COMPARISON.
Dr. Avera's 2008 long-term Treasury rates (4.6%) are slightly less than those used in
2007 (4.8%), indicating that interest rates have declined. Bond rates have been
essentially flat for IDACORP, being 6.24% in June 2007, 6.26% in March 2008,6.23%
in June 2008 and 5.94% in September 2008.
Dr. Avera's risk measure for his 2007 sample was .95, and dropped to .88 in the
2008 case. This risk index, beta, measures the market risk (also called systematic risk) of
IDACORP compared with the market. The degree of risk ofIdaho Power, as measured
by beta, has declined slightly from 2007 to 2008.
Dr. Avera's "forward-looking risk premium", another component used in his risk-
adjusted ROE estimate, has declined from 11.5% in 2007 to 10.8% in 2008. All else
constant, this reduces Idaho Power's estimated ROE.
Dr. Avera uses different samples of "comparable" companies from 2007 to 2008.
This change in samples is the only method that produced a slightly higher estimated ROE
in the 2008 case, from 1 0.6% to 11.1 %.
Finally, Dr. Avera's range ofDCF estimates for ROE in the 2007 and 2008 cases
produce near exactly identical midpoint ROE, the only difference being a wider range of
estimates results from his 2008 study.
Again, my assessment from a comparison of the determinants used by Dr. Avera
leads me to conclude that no increase from the currently authorized 10.25% ROE is
justified or necessary.
DIRECT TESTIMONY OF DENNIS E. PESEAU - 26
IPUC Case No. IPC-E-08-10
1 Q.SINCE THE 2003 IDAHO POWER GENERAL CASE WAS THE LAST CONTESTED
2 CASE, DID YOU ALSO VERIFY THE CURRNTLY ALLOWED ROE OF 10.25%
3 REMAINS FAIR AND REASONABLE WHEN COMPARED TO 2003?
4 A.Yes. Dr. Avera also testified on ROE on behalf ofIdaho Power in 2003. In that case, his
5 mid-point DCF estimate was nearly identical to his recommended mid-point in this case.
6 His interest rate used in that case was 5.39%, higher than in this case, which
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7 would argue for a lower ROE in the 2008 case. His risk estimate, beta, and his risk
8 premium in the 2003 case results in a higher CAPM estimate than today.This leads to
9 the conclusion that the ROE estimate in 2008 is lower than in 2003.
10 Q.WOULD YOU PLEASE SUMMARIZE YOUR TESTIMONY ON REVENUE
11 REQUIREMENT ISSUES?
12 A.Idaho Power is requesting a revenue requirement increase in this case of approximately
13 $67 millon. I have proposed the following adjustments to the Company's filing, all of
14 which I believe to be well justified:
15 1.Updated net power supply costs ($25 milion);
16 2.O&M increase capped at 2% ($10.8 millon);
17 3.Anualization elimination ($12.8 milion);
18 4.CWIP elimination ($12 milion); and
19 5.No change in ROE ($17 milion).
20 In total, these adjustments reduce Idaho Power's claimed revenue requirement by
21 approximately $78 milion. Consequently, I believe an approximate $11 milion decrease
22 in Idaho Power's revenue requirement is just and reasonable.
23 Q.ARE YOU SURPRISED BY THESE RESULTS?
DIRECT TESTIMONY OF DENNIS E; PESEAU - 27
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Not at all. Idaho Power's request in this case is predicted on the "forecast" that recent
load growth and cost trends would continue for the "foreseeable futue." As I have
pointed out in this case, and prior filings, this supposed forecast is really just an
assumption and it is no more supportable or rational than the assumption that stock prices
and housing prices always go up.
As milions of homeowners and investors have now discovered to their dismay,
economic trends can slam into reverse without waring, and this reversal can be much
sharer, and last much longer, than the conventional wisdom assumes. This is exactly
what is happening to Idaho Power now. As growth stops and costs plummet, its revenue
requirement goes down, not up. This is a perfectly logical and predictable result, and it is
only surprising to those who bought into the utility delusion that costs and revenue
requirements always go up.
Rate Structure - Cost of Service Issues
WOULD YOU PLEASE EXPLAIN WHY IDAHO POWER'S COST OF SERVICE
STUDIES ARE "BADLY FLA WED"?
Before I do so I would like to first offer some background information that I hope wil
help to frame the cost of service issues in this case. Idaho Power's cost of service
witness, Mr. Timothy Tatum, correctly describes the cost of service process from a
technical point of view, but he doesn't explain what's really at issue, or provide the
context of such studies within the regulatory framework. Consequently, I suspect that
this technical discussion is virtually unintellgible to members of the general public. So I
propose to start with some basic principles of cost of service, and then gradually hone in
on the more diffcult concepts, as well as the issues in this case.
DIRECT TESTIMONY OF DENNIS E. PESEAU - 28
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WOULD YOU PLEASE START BY EXPLAINING THE PURPOSE OF A COST OF
SERVICE STUDY?
All rate cases really consist of two distinct undertakings, and in fact the Idaho
Commission has occasionally divided rate cases into two separate hearings on these
issues. First, the Commission determines a utilty's overall revenue requirement, i.e., the
size of the pie. The next task is to determine what proportion of that total revenue
requirement should be recovered from each rate group or "customer class," i.e., how the
pie should be apportioned among the rate groups.
These rate groups or customer classes exist because it is a universally accepted
principle of rate making that, "It is.more expensive to serve some customers than others."
Charles F. Philips, Jr., The Regulation of Public Utilties (Public Utilities Reports, 1993),
P. 435 (hereafter "Philips"). Therefore, customers are grouped into rate classes with
roughly similar cost characteristics, e.g., a residential class, an industrial class, etc. Very
large customers-like Micron, Simplot, and DOE on the Idaho Power system-are
typically each treated as a unique customer class unto themselves, known in the trade as
"contract customers."
The purpose of a cost of service study is to allocate an appropriate portion of the
utilty's total revenue requirement to each of these customer classes based primarily on
cost causation principles.
WHY IS COST CAUSATION IMPORTANT?
Economists don't always agree on much, but on this issue there is rare unanimity in the
profession. While the Commission can, and sometimes should, consider factors other
DIRECT TESTIMONY OF DENNIS E. PESEAU - 29
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than costs, there are two primar reasons for focusing on cost causation in creating the
rate structure.
The first is "fairness," which basically refers to the idea that customers should pay
their own costs and not someone else's. Furthermore, those who cause a higher revenue
requirement should pay an appropriate share of the costs they cause, and vice versa.
The second reason, and probably the most importnt to economists, is the
"efficiency" rationale. This is the idea that prices should promote the most effcient
possible use of the utilty system. Thus, those who use the system primarily when costs
are high should pay a rate that reflects those disproportionately high costs so they wil be
encouraged to conserve or find alternative means of meeting their needs. And there is an
important, but out of favor, counterpoint here as welL. Those who consume in low cost
periods should receive an appropriate price signal to do so when consumption is an
economic plus for all.
is THERE A SIMILAR AGREEMENT AMONG ECONOMISTS ON THE PROPER
METHOD OF DETERMINING COST CAUSATION?
Only to a degree. Some cost of service issues are relatively non-controversial, but others
are routinely contentious, perhaps none more so than the proper method of allocating
peak and off peak costs.
WHY is THIS ISSUE SO CONTENTIOUS?
Very few practitioners in this field would argue with the general view expressed in a
basic regulatory text:
Customers who use the service during the peak demand period are more
expensive to serve than off-peak users. A basic factor in determining the
size of a utilty plant is the peak demand. Therefore, it costs less to serve
those customers who use the service without burdening the business as a
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whole by adding to the peak demand period. Further, if off-peak usage is
increased, the utilty may obtain a better utilzation of its plant throughout
the day, thereby resulting in a larger total output over which fixed costs
may be spread.
Philips, P. 436.
But while there is little argument about the general principle that on-peak usage
should cost more than off-peak, there are repeated disputes about the maner of
calculating the cost difference between peak and off-peak usage. This issue is so
significant that cost of service methodologies are in fact named for the manner in which
they allocate costs between high load factor and low load factor customers.
WHAT DO YOU MEAN BY THE TERM "LOAD FACTOR?"
For the utilty itself, "load factor" refers to the relationship between the peak load on the
system and the average load. When applied to customers, the term "load factor" refers to
a customer's consumption related to a utilty's peak sales. A customer with a high load
factor is one who consumes in a nearly steady state, both daily and anually. A low load
factor customer consumes electricity unevenly, generally in disproportionate amounts
either on the daily or monthly peaks, or both. In general, a greater allocation of costs to
peak periods tends to benefit high load factor customer classes, while a lesser allocation
benefits low load factor customer classes.
It is important to point out a common misconception here. If peak costs are
appropriately assigned, high load factor customers don't escape these peak costs. After
all, if a customer is consuming a steady load 24/7, then it is on line during the peak, and
should get an appropriate share of those costs. The benefit to high load factor customers
of a properly designed cost of service study is that they are also online when costs are
low, and therefore should get an appropriate "credit" in their average rate.
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is THERE A SINGLE CORRCT METHOD FOR ALLOCATING PEAK COSTS
BETWEEN HIGH AND LOW LOAD FACTOR CUSTOMERS?
No, because a large component of peak costs consist of what are known in economics as
"joint and common" costs. Most of these joint and common costs consist of the capital
cost of generating plants and transmission facilities that are used to some degree by all
customers throughout the year, both on and off peak. In the lingo of the cost of service
profession, these facilities provide either "capacity" or "demand" (peak)" and "energy"
(off and on peak) services. Economic theory alone canot determine the correct method
of assigning these costs to customer classes.
Having said that, however, it is worth noting that many engineers and economists
would argue for assigning the bulk of the capital costs of generation and transmission
plant to customer classes in proportion to their use on the highest single peak of the year,
on the grounds that these facilties are sized to meet this peak demand. There are,
however, some practical problems with this approach, and most commissions don't
weight single peak costs as heavily as many members of these professions would.
DOES THE IDAHO COMMISSION HAVE AN ESTABLISHED METHOD OF
RESOLVING THESE ISSUES IN IDAHO POWER RATE CASES?
Yes. For roughly 25 years now, the Idaho Commission has used what is known as the
"Weighted 12 Coincident Peak" ("W12CP") cost of service method to allocate costs on
the Idaho Power Company system. A short explanation and history of this cost of service
choice is necessar to understad the issues in this case.
With regard to the always controversial issue of allocating generating plant costs,
the Idaho methodology first classifes a percentage of generation plant to "energy" based
DIRECT TESTIMONY OF DENNIS E. PESEAU - 32
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on the system load factor, which in this case is approximately 59%. The remaining 41 %
is classified as a demand cost.
It is importt to point out that the language employed by cost of service studies
can lead to real confusion here. When we talk about the classification of generating costs
to "energy," we are not talking about actual "energy" costs, primarily fuel and related
items, that var with the amount of energy consumed and are directly assigned to the
various customer classes based on their actual, recorded energy usage. Instead, we are
talking about the amount, or percentage, of the fixed capital costs of generating plants
that don't vary with usage, but are treated as if they did for cost of service puroses.
WHEN DID THE IDAHO COMMISSION FIRST ADOPT THE W12CP METHOD?
The Idaho Commission first adopted the weighted W12CP methodology in 1982 in Case
No. U-1006-185. In reviewing the cost of service studies before it, the Commission
found:
We find: For the limited puroses for which we use cost of service data in
allocation of the revenue requirement among the customer classes, Idaho
Power's weighted 12 coincident peak study may be reasonably used to
represent costs. Although there could be improvements in both W12CP
studies presented in this case, the similarities in the results obtained from
both of them, which were the best cost-of-service studies presented in this
case, show that we may use the Company's W12CP for the next step of
the rate allocation process.
Order No. 17856, P. 13.
In 1987, in Case No. U-L 006-265A, the Commission again revisited cost of
service issue in what was probably the most intensive litigation of the issue in the history
of Idaho rate cases. The following quote from the Commission's final order provides
something of the atmosphere of the proceedings:
DIRECT TESTIMONY OF DENNIS E. PESEAU - 33
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Idaho Power prepared five cost-of-service studies. A Weighted 12
Coincident Peak (IPCo W12CP) study, a 12 Coincident Peak (IPCo 12CP)
Study, an Average and Excess Demand (IPCo AED) study, a Positive
Excess Demand (IPCo PED) study, and a Modified Positive Excess
Demand (IPCo MPED) study. In addition, the City of Boise presented
two variations of the Company's W12CP called Boise I and Boise II.
FMC presented a modified weighted 12 coincident peak (FMC MW12CP)
study and a 7 coincident peak (FMC 7CP) study. The Staff presented an
alternative weighted 12CP (StaffW12CP) study and an unweighted 12CP
(StaffU12CP). The results of those studies are shown on Table 6 on the
following page. For the reasons stated in the following pages of this
Order, we wil use the Company's W12CP as a starting point in our
allocation of revenues among the customer classes.
Order No. 21365. Since the 1982 case, the Idaho Commission has relied solely or
primarily on the W12CP method in every Idaho Power rate case.
WHY DID THE COMMISSION CHOOSE THE W12CP METHOD IN 1982?
In the spectru of possible cost of service methodologies, the W12CP method assigns
less cost to peak periods than most. This made some sense at the time it was first
adopted. In the early 1980s, Idaho Power was stil predominantly a hydroelectric utilty.
It had two base load coal plants, Jim Bridger and Valmy, but no peaking plants analogous
to today's gas fired peakers.
Instead it met peak loads with its hydroelectric plants, which could adjust load
almost instantly to meet demand, plus power purchases and exchanges. These
hydroelectric plants were (l) relatively cheap on a dollar per kilowatt of capacity basis,
(2) more heavily depreciated than more recent plants, and (3) had variable energy costs
close to zero.
The result was that actual peak costs did not greatly exceed, and were sometimes
below, base costs. In this context, the Commission's choice of a cost of service
methodology that gave relatively little weight to peak costs made considerable sense.
DIRECT TESTIMONY OF DENNIS E. PESEAU - 34
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HAS THE IDAHO COMMISSION CONTINUED TO USE THE WEIGHTED 12 CP
METHOD IN RECENT CASES?
Yes. The 2005 and 2006 rate cases were settled without a specific cost of service
determination, but in the 2003 rate case the Commission again adopted the W12CP
methodology:
As we have in most rate cases, the Commission finds the W12CP cost of
service study is the appropriate staring point to allocate costs to customer
classes. . .(W)e find that the W12CP cost of service results reflect "a
reasonable approximation of class responsibilty" and thus provide a
measure of relative revenue responsibility among the customer classes.
Order No. 29505, P. 46-47 (citations omitted).
DOES IDAHO POWER FOLLOW THE WEIGHTED 12CP COST OF SERVICE
METHOD IN THIS CASE?
Mr. Tatum, Idaho Power's cost of service witness, never quite says so explicitly, but his
testimony clearly implies that his "Base Case Study" follows the traditional Commission
approved methodology. It does not. Mr. Tatum's Base Case in fact follows an
alternative methodology that was presented in the 2003 rate case, in which average costs
were combined with the weighted 12CP costs. This alternative method was discussed
without comment in the Commission's order, and cited in the appendix to the 2003
decision.
Mr. Tatum apparently assumes that this inclusion of the alternative method in the
appendix represents Commission approval. But this is clearly inconsistent with the plain
language of the Commission's order accepting the W 12CP, as cited above. While I
canot explain how or why the alternative method found its way into the appendix, I find
it impossible to believe the Commission meant to jettison its consistent practice of more
DIRECT TESTIMONY OF DENNIS E. PESEAU - 35
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than twenty years' standing without a single word of comment in the order. This is
doubly true when the plain language of the order, and the resultant rate spread, clearly
adopts the normal weighted 12CP method.
WHAT is THE EFFECT OF MR. TATUM'S USE OF THE ALTERNATIVE
METHODOLOGY?
This change has significant consequences for the cost of service results because it shifts
costs from peak to off peak, and from low load factor customers to high load factor
customers, by disregarding actual peak costs.
ARE THERE ANY OTHER DEFECTS IN THE IDAHO POWER COST OF SERVICE
STUDIES, BEYOND THE MISUSE OF THE W 12 CP YOU DISCUSSED ABOVE?
Yes. As Mr. Tatum explains in his testimony at pages 25-27, he weighted anual
capacity costs based on monthly peak hour deficits identified in the Company's 2006
Integrated Resource Plan ("IRP"). The months with projected deficits include,
reasonably enough, the months of June-August and, less reasonably, December. But the
other two identified deficit months are May and September. Assigning a disproportionate
share of capacity costs to these months is nonsensical on its face.
Anyone at all familiar with Idaho Power's system wil immediately recognize that
May and September are both off-peak months. In fact, April and May are typically two
of the lowest cost months of the year on the Idaho Power system by a substantial margin.
Yet Idaho Power's cost of service studies treat Mayas a high cost, peak month. This
misidentification of peak months is a very serious and consequential error.
HOW DOES THIS ERROR OCCUR?
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The problem is that IRP identified load deficiencies and off system purchases are not
reasonable or appropriate substitutes for actual system peaks. Deficiencies can occur for
a variety of reasons, not the least of which is scheduled plant maintenance. For most
Northwest utilities, spring is the optimal time to take plants down for maintenance
because power demands are low and hydropower generation is relatively high, making
replacement power relatively (and sometimes very) cheap. The fall months are, of
course, the next best time to take plants down. Somewhat similar considerations apply to
power exchanges and a host of other factors.
HOW DOES THIS WEIGHTING ERROR AFFECT THE COST OF SERVICE
RESULTS?
When combined with the misuse of W i 2 CP method, it doubly corrpts the results, and
once again the result is an erroneous transfer of costs from on-peak to off-peak.
IS THERE ANOTHER WA Y TO ILLUSTRATE YOUR CONCLUSIONS THAT MR.
TATUM'S COST OF SERVICE RESULTS ARE IN ERROR?
Yes. Graph No.1, below, compares Idaho Power's power supply model's variable or
marginal energy costs with the average variable or marginal costs contained in its
unweighted allocators. Graph NO.2 compares the combined marginal monthly energy
and capacity costs for the model and the anual average marginal monthly energy and
capacity costs.
DIRECT TESTIMONY OF DENNIS E. PESEAU - 37
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DIRCT TESTON 01' DENNIS L PESEAU -38
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These graphs show that, by Idaho Power's own power supply model estimates,
monthly energy costs range from a low of about $52/mwh in June to a high of $100 in
July. Similarly, total monthly power supply costs var from about $56/mwh in April to a
high of $120 in the month of July. This seasonal cost information is crucial in a cost of
service study in order to ensure that rates in effect reflect costs allocated to these seasons.
But in its proposed cost of service studies, Idaho Power chooses to assume that
monthly power supply costs do not vary significantly month-to-month, as is shown in
each of the above graphs as a horizontal line, when it averages this with a truly weighted
allocator. The Company's study is misleading because it claims to use the historical
method of computing the W12CP, when in fact it does not. Instead, the Company uses a
modified allocator that averages out seasonal cost differences. Choosing entirely new
inputs for the model is not a legitimate "Base Case" scenario.
Idaho Power fuher compounds this error by treating low cost months of May
and September as if they were peak months. But as Idaho Power's own testimony notes,
these are in fact low cost months because there is very little demand for space heating or
air conditioning. As the Company further acknowledges, it is in fact the summer months
of June-August that are "the Company's most expensive time to provide power."
Testimony of Darlene Nemnich, P. 5, L. 16-19.
PLEASE SUMMARIZE THE CONSEQUENCES OF IDAHO POWER'S COST OF
SERVICE ERRORS THAT DILUTE ITS ACTUAL SEASONAL COST
DIFFERENCES.
There are two chief consequences. First, high load factor customers are allocated a larger
share of costs than they actually cause the power system to incur. Conversely, low load
DIRECT TESTIMONY OF DENNIS E. PESEAU - 39
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factor customers are charged too little. This is not only unfair; it is also terribly
inefficient because it creates cross subsidies between rate classes.
A corollary to this consequence is the undesirable effect that the misallocation has
on the valuable conservation and load management programs in place and being
developed here in Idaho for everyone's benefit. By proposing to set rates that
undercharge summer peak costs and overcharge durng low cost seasons, the proposed
rates act in direct contradiction to responsible efforts to conserve energy when it is most
costly. In the longer-term, costs of service wil be higher for all customers because peak
loads wil grow faster that average energy consumption.
DO THE IDAHO POWER SYSTEM PLANNERS RECOGNIZE THIS RISK?
Yes. The perils of promoting on-peak load growth are discussed on page 1 of Mr. Greg
Said's workpapers from the last rate case, from which I quote an excerpt:
Efect of Load Growth. Peak load in the Idaho Power Company service
territory is growing twice as fast as the anual energy requirement. Going
forward, then, this growth wil lead to higher ramp rate requirements in the
summertime and less available hydro capacity for managing the system.
The cost of reserves would then likely increase, which could increase the
integration cost for wind.
Page 1 (emphasis added).
Idaho Power's proposal to adopt seasonal pricing that charges more in the June-
August period for virtually all rate schedules is fuher evidence that it understands the
growing peak problem. But it makes no sense to shift an enormous amount of costs off
peak and then try to somehow counter that effect by imposing seasonal pricing. In effect,
Idaho Power's cost of service deparment is working at cross purposes with its rate design
deparment.
DIRECT TESTIMONY OF DENNIS E. PESEAU - 40
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YOUR CRITIQUE THUS FAR HAS FOCUSED ON THE "BASE CASE" IDAHO
POWER STUDY. DO YOU HAVE AN OPINION ABOUT THE OTHER TWO
IDAHO POWER COST OF SERVICE STUDIES?
Yes. I think all parties are in agreement that the treatment of PURP A resources contained
in the "Modified Base Case" study is appropriate, so I don't propose to address that issue.
Instead, I wil focus on Mr. Tatum's "preferred" cost of service methodology, 3CPI12CP,
which is a potentially acceptable method, but flawed in two respects.
WHAT IS YOUR PROPOSED COST OF SERVICE SOLUTION?
I propose the adoption ofMr. Tatum's 3CP/12CP method, but with a proper treatment of
base load and intermediate load plants. This method would appropriately treat Idaho
Power's summer peak loads, and send the proper economic signals to customers.
As I explained earlier, there was a rational basis for the Commission's original
decision 25 years ago to choose a cost of service methodology that minimized the
influence of peak costs. But this is no longer Idaho Power's situation, and hasn't been for
some time, as we can see in the steady decline in Idaho Power's load factor from 68% in
1994 to 59% a dozen years later. All of us who participate in these cases, including
myself, have been too slow to recognize this dramatic change. Peaking costs are now
driving costs higher for everyone, to the detriment of all. So we should be looking to
adapt our cost of service to recognize these changes, rather than vice versa.
PLEASE EXPLAIN THE CHANGE YOU ARE PROPOSING TO THE COMPANY'S
RECOMMENDED 3CPI12CP STUDY?
Simply put, Idaho Power chooses a peculiar means of conducting its 3CPI12CP cost of
service study. It is not, in my opinion, a study that is guided by the Electric Utilty Cost
DIRECT TESTIMONY OF DENNIS E. PESEAU - 41
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Allocation Manual published Januar 1992 by NARUC, as Mr. Tatum suggests.
Testimony of Tim Tatum, P. 6, L. 4-8.
The reason the choice of study is peculiar is because it is in direct conflict with
the very real problem identified in numerous places in Idaho Power's filing, that is, the
problem of the Company's excessive peak load growth, which is causing deterioration in
the system load factor. In Mr. Tatum's words:
"...In recent years, the Company's system peak has grown at a
much faster pace than average demand, a trend that is expected to
continue into the future. For example, a comparison of Figures 4-1
and 4-2 on pages 39 and 40 of the 2006 IRP (included in my
workpapers) will show that by 2012, the Company expects an
energy deficit in July of approximately 150 aMW with a peak hour
deficiency of almost 600 MW in the same month..."
Testimony of Tim Tatum, P. 24, L. 12-19.
Despite this observation, Mr. Tatum deliberately uses a cost of service method that treats
baseload generation peak capacity and energy costs as predominantly off peak energy
costs. The intended or unintended consequence.ofthis method is to communicate to
customers that summer capacity and energy usage is much cheaper than it actually is.
This misallocation naturally under prices summer usage rates, stimulating sumer
consumption.
WHY DO YOU CONCLUDE THAT MR. TATUM"S PROPOSED 3CPI12CP
METHOD PROMOTES SUMMER PEAK USAGE?
Mr. Tatu's attempts to deal with the summer peak load problem by using a 3CP
allocator to allocate the cost of peaking facilities. This is a rational approach, but Mr.
Tatu makes two errors in the implementation of this method.
DIRECT TESTIMONY OF DENNIS E. PESEAU - 42
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The first error is that Mr. Tatum mistaenly treats Idaho Power's hydro facilties
as entirely baseload. However, it is commonly known that the Hells Canyon complex
and most of the Pacific Northwest hydro system is used to "follow load," that is to store
as much hydro as possible for use in the peak periods, because hydro is used most
economically to displace the highest variable cost peaking facilities.
Mr. Tatu does not classify Idaho Power's hydro facilties to sumer peaks, but
instead to his baseload classification. I correct this in my proposed study by allocating
Idaho Power's hydro on the basis of 50% capacity or peaking and 50% to baseload.
These facilities would be classified nearly 100% to peaking were it not the case that some
ofIdaho Power's upstream hydro facilities are essentially run of the river.
The second major departure from accepted cost of service principles is found in
Mr. Tatum's "double allocation" of base load steam production to energy.
PLEASE EXPLAIN.
Mr. Tatum commits a classification error when he labels over 59% ofbaseload
generation plant costs as energy related, then goes on to allocate the remaining 40% of
baseload plants costs over a period of 12 months, based on 12 coincident peaks. Use of
Mr. Tatum's 12CP allocator has the effect of spreading this additional 40% of capacity or
demand costs essentially on an energy basis. The NAUC Cost Allocation Manual
referenced by Mr. Tatum makes this point quite succinctly:
"This method (meaning the 12CP) is usually used when the
monthly peaks lie within a narrow range; i.e. when the anual load
shape is not spiky. . . "
NARUC Manual, P. 46.
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Stated another way, the 12CP method is completely inappropriate for a strongly
peaking utility like Idaho Power. Furhermore, it is disingenuous for Mr. Tatum to
lament the rapid growth in the spikiness of sumer peak demand, when his preferred cost
of service study maximizes the amount of summer peak costs pushed out of the sumer
peak period into off peak seasons. We can see this very clearly in the ultimate results of
his 3CP/12CP study, which in fact shifts more costs off peak than the flawed modified
base case I described earlier. In short, Mr. Tatum is headed in precisely the wrong
direction.
ARE THERE TANGIBLE, NEGATIVE CONSEQUENCES FOR ALL RA TEPA YERS
ASSOCIATED WITH MR. TATUM'S NOVEL COST OF SERVICE STUDY?
Yes. In allocating summer peak capacity and energy costs to off peak seasons, rates for
summer usage wil be too low, and rates for non-summer usage wil be too high. But this
problem does not balance out. The reason it does not balance out is that the underpricing
of summer usage wil promote more summer usage and require Idaho Power to invest
more heavily than otherwise in new peaking facilities and DSM programs. The Company
of course earns a return on these programs but, as a result, all ratepayers' rates are higher.
IS THERE A STRAIGHTFORWARD FIX TO MR. TATUM'S STUDY THAT DOES
NOT INVOLVE THE INTRODUCTION OF A COMPLETELY DIFFERENT COST
OF SERVICE APPROACH?
Yes. Mr. Tatum has correctly identified the summer peak load problem, but then he
paradoxically produces a result that fuher understates peak costs. We can restore some
degree of peak responsibilty back into the summer period by modifying his study to:
1. Classify 50% of hydro facilities to peak or CP and 50% to the 12CP.
DIRECT TESTIMONY OF DENNIS E. PESEAU - 44
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2. Classify 100% of steam production facilties to capacity and demand using the
12CP method.
While further empirical investigation is needed to improve the study, making my
recommended corrections wil both help reduce or eliminate Idaho Power's deteriorating
system load factor, and reduce the need for, and the costs of, peaking facilities. These
corrections wil also vastly improve the allocations made to on peak and off peak seasons
and provide all customers with rates that reflect their respective costs of usage and
consumption.
HAVE YOU CONDUCTED A COST OF SERVICE STUDY THAT IS CONSISTENT
WITH YOUR RECOMMENDATIONS?
Yes. My study is attached as Exhibit No. 707.
PLEASE BRIEFLY SUMMARIZE THE RESULTS OF YOUR COST OF SERVICE
STUDY.
The following table compares the results of my study with those adopted by this
Commission in 2003 and the three proposed Idaho Power cost studies. In this
presentation, results below one are below cost of service, and results above one equate to
an over recovery:
Tatum Tatum
Peseau I Tatum Base RECOMMRetur Indexes 2003 Mod.Micron Case ENDEDBase.3CP/12CP
Residential (1)1.12 1.1 1.23 1.21 1.18
Gen Service (7)1.04 1.1 1.04 1.05 1.04
Gen Service (9)1.1 1.2 1.01 1.03 1.02
Industrial (19)1.08 1.2 .79 .86 .83
Irrigation (24).35 .17 .51 .46 .60
Micron (SC).93 1.4 .40 .53 .51
DOE .93 1.2 .49 .62 .51
Simplot .99 1.5 .47 .61 .57
DIRECT TESTIMONY OF DENNIS E. PESEAU - 45
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1 Q.WHAT DOES THIS COMPARISON SHOW?
2 A.My cost of service study in this case, in contrast to Idaho Power's three cost of service
3 studies, is generally much more consistent with results found to be valid by the
4 Commission in the last contested 2003 general rate case, and is more reflective of the
5 realities and challenges Idaho Power is facing.
6 In evaluating this data, the Commission should be aware that because of the way
7 the cost of service data is presented, we could not back out the $25 milion overstatement
8 of net power supply costs I identified earlier in my testimony. Ifwe could, it would
9 significantly improve the results for high load factor customers, particularly the three
10 contract customers.
11 Q.HOW DO YOU PROPOSE THAT THIS COMMISSION ALLOCATE REVENUE
12 REQUIREMENT TO THE VARIOUS RATE CLASSES IN THE LIGHT OF THESE
13 COST OF SERVICE RESULTS?
14 A.My recommended cost of service study shown in Exhibit 707 suggests that the
15 conclusions reached by this Commission many times on the matter of rate spread stil
16 largely hold true. A fair conclusion is that the residential class and the industrial classes,
17 including special contract customers are all near or below an average rate of return,
18 meaning that their respective rates exceed their cost of service. Irrigators remain well
19 below an average rate of return. Given my conclusion that Idaho Power's rates should be
20 reduced, that reduction should be spread to the customer classes whose results are
21 furthest above unity, i.e., the residential and industrial classes.
22 Q.DOES THIS CONCLUDE YOUR TESTIMONY?
23 A.Yes.
DIRECT TESTIMONY OF DENNIS E. PESEAU - 46
IPUC Case No. IPC-E-08-10
CERTIFICATE OF SERVICE
I HEREBY CERTIFY that on this 24th day of October, 2008, I caused to be served a true
and correct copy of the foregoing by the method indicated below, and addressed to the following:
Jean Jewell
Idaho Public Utilities Commission
472 W. Washington Street
P.O. Box 83720
Boise,ID 83720-0074
U.S. Mail
X Hand Delivered
Overnight Mail
Facsimile
E-Mail
U.S. Mail
X Hand Delivered
Overnight Mail
Facsimile
E-Mail
Baron L. Kline
Monica B. Moen
Idaho Power Company
P.O. Box 70
Boise, ID 83707
email: bkline(fidahopower.com
John R. Gale
Vice President Regulatory Affairs
Idaho Power Company
P.O. Box 70
Boise, ID 83707
email: rgale(fidahopower.com
U.S. Mail
X Hand Delivered
Overnight Mail
Facsimile
E-Mail
Peter J. Richardson
Richardson & 0' Lear
515 N. 2ih Street
Boise, ID 83702
email: peter(frichardsonandoleary.com
X U.S. Mail
Hand Delivered
Overnight Mail
Facsimile
E-Mail
Eric L. Olsen
Racine, Olson, Nye, Budge & Bailey
Chartered
P.O. Box 1391
201 E. Center
Pocatello, Idaho 83204-1391
email: rcb(fracinelaw.net
elo(fracinelaw.net
X U.S. Mail
Hand Delivered
Overnight Mail
Facsimile
E-Mail
Anthony Yanel
29814 Lake Road
Bay Vilage, Ohio 44140
email: yanel(fattbi.com
X U.S. Mail
Hand Delivered
Overnight Mail
Facsimile
E-Mail
DIRECT TESTIMONY OF DENNIS E. PESEAU - 47
IPUC Case No. IPC-E-08-10
Dr. Don Reading X U.S. Mail
6070 Hil Road Hand Delivered
Boise, Idaho 83703 Overnight Mail
email: dreading(fmindspring.com Facsimile
E-Mail
Lot H. Cooke X U.S. Mail
United States DOE Hand Delivered
1000 Independence Ave. SW Overnight Mail
Washington, DC 20585 Facsimile
E-Mail
Weldon Stutzman U.S. Mail
Donovan Walker X Hand Delivered
Idaho Public Utilities Commission Overnight Mail
P.O. Box 83720 Facsimile
Boise, Idaho 83720-0074 E-Mail
Michael Kurtz X U.S. Mail
Boehm, Kurtz & Lowr Hand Delivered
36 E. Seventh Street, Suite 1510 Overnight Mail
Cincinnati, OH 45202 Facsimile
E-Mail
Dale Swan X U.S. Mail
Exeter Associates Hand Delivered
5565 Sterrett Place, Suite 310 Overnight Mail
Columbia, MD 21044 Facsimile
E-Mail
Dennis Peseau X U.S. Mail
Utility Resources, Inc.Hand Delivered
1500 Libert Street, Suite 250 Overnight Mail
Salem, OR 97302 Facsimile
E-Mail
DIRECT TESTIMONY OF DENNIS E. PESEAU - 48
IPUC Case No. IPC-E-08-10
STATEMENT OF OCCUPATIONAL AND
EDUCATIONAL HISTORY AND QUALIFICATJONS
DENNIS E. PESEAU
Dr. Peseau has conducted economic and financial studies for regulated
industries for the past thirty-five years. In 1972, he was employed by Southern
California Edison Company as Associate Economic Analyst, and later as Economic
Analyst. His responsibilties included review of financial testimony, incremental cost
studies, rate desIgn, econometric estimation of demand elasticities and various areas
in the field of energy and economic growth. Also, he was asked by Edison Electrical
Institute to study and evaluate several prominent energy models as part of the Ad
Hoc Committee on Economic Growth and Energy Pricing.
From 1974 to 1978, Dr. Peseau was employed by the Public Utiity
Commissioner of Oregon as Senior Economist. There he conducted a number of
economic and financial studies and prepared testimony pertaining to public utilties.
In 1978 Dr. Peseau established the Northwest office of Zinder
Companies, Inc. He has since submitted testimony on economic and financial
matters before state regulatory commissions in Alaska, California, Idaho, Maryland,
Minnesota, Montana, Nevada, Washington, Wyoming, the District of Columbia, the
Bonnevile Power Administration and the Public Utilties Board of Alberta on over one
hundred occasions. He has conducted marginal cost and rate design studies and
prepared testimony on these matters in Alaska, California, Idaho, Maryland,
Minnesota, Nevada, Oregon, Washington and in the District of Columbia. He has
EXHIBIT NO. 701, Page 1 of 3
Case No.: IPC.E..8.10
D. Peseau, Micron
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RECE.NtQ1"'6'5\
7UUß oei 24 ?¡n .
IIUQ PUBtJÇ "';0'\Ot\DC.ot&l\\~V¡. i
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also conducted cost and rate studies regarding PURPA issues in the states of
Alaska, California, Idaho, Montana, Nevada, New York, Washington, and
Washington, D.C.
Dr. Peseau holds the B.A., M.A. and Ph.D. degrees in economics.
He has co-authored a book in the field of industrial organization entitled,
Size, Profits and Executive Compensation in the Large Corporation, which devotes
a chapter to regulated industries.
Dr. Peseau has published articles in the following professional journals:
Review of Economics and Statîstiç§, Atlantic Economic Journal, Journal of Financir¡l
Management, and Journal of Regional Science. His articles have been read before
the Econometric Society, the Western Economic Association, the Financial
Management Association, the Regional Science Association and universities in the
United Kingdom as well as in the United States.
He has guest lectured on marginal costing methods in seminars in New
Jersey and California for the Center of Professional Advancement. He has also
guest lectured on cost of capital for the public utility industry before the Pacific Coast
Gas and Electric Association, and for the Executive Seminar at the Colgate Darden
Graduate School of Business, University of Virginia.
Dr. Peseau and his firm have participated with and been members ofthe
American Economic Association, the American Financial Association, the Western
Economic Association, the Atlantic Economic Association and the Financial
EXHIBIT NO. 701, Page 2 of 3
Case No.: IPC.E.08.10
D. Peseau, Micron
~Management Association. He was formerly a member of the Staff Subcommittee on
Economics of the National Association of Regulatory Utility Commissioners.
Dr. Peseau has been President of Utility Resources, Inc. since 1985.
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EXHIBIT NO. 701, Page 3 of 3
Case No.: IPC-E-08-10
D. Peseau, Micron
REVIEW OF UTILITY
RA TEMAKING PROCEDURES
Report to the Iowa General Assembly
January 2004
Iowa Utilties Board
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Diane Munns
Mark O. lambert
Ellott G. Smith
EXHIBIT NO. 702, Page 1 of 27
. Case No.: IPC-E-08-10
D. Peseau, Micron j
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REVIEW OF UTILITY RATEMAKING PROCEDURES
Report to the Iowa General Assembly
Table of Contents
I. Executive Summary....................................................................1
II. Introduction.................................. .............................................4
II. General Rate Regulation Proposals..............................................6
1. Option of a Future Test year.................................................................7
2. Deferred Expenses and Revenues Outside the Test Year........................13
3. Government.Mandated Costs Outside a Rate Case.. ..... .... ... ..... ...... ........14
4. Use of Single.lssue Ratemaklng...........................................................16
5. Adjustments to Year.End Data.............................................................17
6. Temporary Rate Implementation..........................................................18
7. Interest Rates on Refunds...................................................................20
8. Electronic Delivery of Proposed Rate Increase Notices............ ...............22
9. Notification Within 30 Days of Filng a Proposed Rate Incrase. ........... ....23
10. Rates for a Fixed Period......................................................................24
IV.TelecommunicatIons Proposals.... ........ .......... .................. ...... ....26
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11. Initial Rates When Entering Price Regulatlon.........................................27
12. Initial Access Rates When Entering Price Regulation..............................28
13. More Frequent Modifications of Price Plans...........................................29
14. 60~Day Extensions for Good Cause......................................................30
15. Economic Development......................................................................31
16. Bond Requirements............................................................................32
17. Annual Price Increases for Non..aslc Servlces......................................33
18. TSLRIC Price Floor.............................................................................33
19. Individual Exchange Pricing Flexibllty..................................................35
20. Allow Increases in Access Rates..........................................................36
21. Sale of Exchanges.................. ...... ... ...... ........................................ .....37
22. Classified Directory Advertising...... ...... .... ..... ................ ..... ....... ..... .....38
V. Energy Effciency Proposals.......................................................39
23.
24.
25.
Exempt Industry from Energy Effciency Programs and Cost........ .... .....39
Establish a Statewide Administrator for Energy Efficiency Programs..... ..42
Require all Utilties to Conform to the Same Standards for Energy...........43
Effciency Plans I
i. EXECUTIVE SUMMARY
Background
Senate File 458, passed during the 2003 Legislative Session, direct the Utilties
Board (Board) to review current rate making procedures and report its findings to
the Legislature by January 5, 2004. The law requires two standards to be
applied to the review of the proposed changes: the cost effectiveness of the
proposal and the degree of accuracy of matching rates (revenues) with costs.
Interested persons were invited to file proposals for legislative change to
ratemaking procedures. The Board identified 25 of these proposals for review.
Following is a brief summary of the Board's findings.
General Rate Regulation Proposals
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Ten proposals were considered that relate to rate of return regulation. The
electric and gas investor-owned utilities in Iowa are rate regulated. The three
largest telecommunications companies are price regulated, but retain the option
of returning to rate regulation.
Most of the ten proposals are already available under Iowa law or are allowed in
appropriate situations. For example, one proposal is the option of using a future
test year to set rates. A future test year is based on estimates or forecasted data
rather than on the relationship between historical costs and revenues. However,
Iowa currently uses a hybrid approach that considers both historical and
projected data for use in settng rates.
In recent years the Legislature has made several major changes in law that
require the Board to consider projected data when setting rates. In the 2001
Session utilties were allowed to seek advanced ratemaking principles for new
electric generation. A provision was also included for utilties to present a plan
and budget for addressing emissions for generating facilties fueled by coal and
allows the reasonable costs of implementing the emissions plan to be included in
rates. In 2003 the Legislature directed the Board to consider capital
infrastructure costs that would not produce significant additional revenues and
would be in service within nine months after the conclusion of the test year.
Capital cost changes that would occur within nine months after the conclusion of
the test year and are associated with new generating plant for which the Board
granted advanced ratemaking treatment are also allowed under the new law.
These changes were made to spur new investment and mitigate risk to the
utilties.
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The two standards set by the legislature in Senate File 458 were applied to the
option of a future test year. The Board found that adding this option would
significantly increase the costs of ratemaking during the transition and probably
in the long-term. The Board also found that use of a future test year over the
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current hybrid approach would not necessarily provide rates that more accurately
reflect a utiltys cost of providing service.
Other proposals relating to general rate regulation that are already available
under current law or have been allowed In specific circumstances are deferred
accounting, automatic adjustments of rates outside a rate case, single-issue
ratemaking, year-end adjustments, and electonic delivery of proposed rate
increases.
Implementing temporary rates within ten days and reducing the interest rate on
refunds are not found to be in the best interests of ratepayers. Both the current
90-day review period and the existing interest rate on refunds protect the
customer from excessive temporary rates while giving the utilty rate relief until
the final rates are decided.
The Board did not come to a conclusion on the proposal for customer notification
within 30 days after the fßing of a proposed rate increase. Some potential
postage savings could be achieved, because the utilty could send a rate case
notice as part of the regular billng. However, this would mean some customers
would receive the notice before others, which could cause confusion.
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The final proposal in this category is to allow for a ratemaking plan that would
establish rates for a fixed period of time. The Board has approved multiyear
ratemaking plans in the past based on a settlement among the parties to a
general rate proceding. This has provided rate predictabilty and has protected
customers. The Board, however, believes that the current method of negotiating
a multiyear plan with the parties is preferable to allowing the utilty to propose a
plan without the agreement of the other parties.
Telecommunications Proposals
Because the three largest local exchange carriers are price regulated, their
prices do not directly reflect costs. Therefore, the legislative standard that a
proposal should result in rates that more accurately reflect a utilty's cost of
providing service does not apply to the telecommunications proposals. The
Board applied the second standard, cost effectveness, to the proposals and
found that some of them would increase regulatory costs without offsetting
benefits. For example, decreasing the interval for allowed price plan
modifications from three years to two years would tend to Increase the
associated regulatory costs. Likewise, the proposal to shorten the time available
to conduct price regulation modification proceedings would result in a more
concentrated procedural schedule and an increase in the associated costs for the
Board and all partes. It also poses the risk of a flawed decision due to an
incomplete record.
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Several other proposals would delete provisions required for a company to enter
price regulation. These include the requirement for a telecommunications carrier
that is changing from traditional rate regulation to price reulation to either
reduce its basic communications servce rates by three percent or to establish
new rates through a rate case. AnoUler proposal would delete the requirement
that access service rates be reduced when a company enters price regulation.
While all existing rate-regulated carriers have opted for price regulation, new
rate-regulated carriers might be created (by exceding the 15,000 line threshold
for regulation) through growth or sale of exchanges. In addition, a price
regulated carrier may return to rate regulation and then decide at some future
time to re-enter price regulation. Therefore. the reuirements proposed to be
deleted might serve a purpose in Ule future and do no harm by remaining in the
law.
Energy Effciency Proposals
Three of the proposals relate to energy effciency. The first recommendation is
that customers with an aggregated electic peak load of greater than two
megawatt (MW) be exempt from energy effciency participation and cost
recovery on a voluntary basis. This proposal does not pass the cost
effectiveness standard because the reducton of energy effciency funding from
large industrial custmers would diminish future energy effciency savings. It
also has the potential to increase future utilty rates by reducing cost effectve
energy effciency, thus forcing utilties to pass through to ratepayers the costs of
acquiring additional energy resources.
The second proposal would establish a single, statewide administrator for energy
efficiency programs. The Board found this proposal would require a
transformation of energy effciency programs in Iowa and is outside the purvew
of Senate File 458's directive to review ratemaking procedures.
Finally, a proposal was suggested that the Board be given the authority for
approval and oversight of the energy effciency plans of municipal and
cooperative utilties. Current law only requires that these utilities file plans with
the Board. This proposal does not strictly apply to ratemaking methods and,
therefore, does not fit into tte framework of this review.
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The utilties board shall initiate and coordinate a
review of current ratemaking procedures to determine
whether different procedures would be cost-effective
and would result in rates that more accurately reflect
a utilty's cost of providing servce to its customers in
Iowa. The board shall allow the consumer advocate
division of the department of justice, the rate-
regulated utilities, and other interested persons to
participate in its review. The board shall report the
results of its review to the general assembly, with
recommendations as appropriate, on or before
January 5, 2004.
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II. INTRODUCTION
The Iowa Utilties Board (Board) has prepared the following report in response to
the mandate of the General Assembly as set out in Acts of the 80th General
Assembly, 2003 Session, Senate File 458, Section 150. The General Assembly
directed the Board as follows:
On July 14, 2003, the Board issued an order initiating an inquiry, identified as
Docket No. NOI-03-2. Interested persons were invited to file, by July 25, 2003,
proposals for changes to ratemaking procedures, with the primary focus on
changes that would require legislative action. After review of the submitted
proposals, the Board issued an order on September 2, 2003. which identified
ratemaking procedures for consideration and established a procedural schedule.
The partcipants were asked to file comments by September 15, 2003, and reply
comments by October 3.2003. Three workshops were held on November 7,
2003, for further discussion and to give participants an opportunity to respond to
questions by Board staff. The three separate workshops addressed: (1)
proposals involving all rate-regulated utilties, (2) proposals affecting only
telecommunications utiliies, and (3) energy efficiency proposals. Additional
comments subsequent to the workshop were allowed by November 14, 2003.i
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Participants filing information in the inquiry included the Consumer Advocate.
Division of the Departent of Justice (Consumer Advocate), MidAmerican
Energy Company (MidAmerican), Owest Corporation (Owest). Interstate Power
and Light Company (IPL), Iowa Telecommunications Services, Inc., d/b/a Iowa
Telecom (Iowa Telecom), Ag Processing, Inc. (Ag Processing), and Aquila, Inc.,
d/b/a Aquila Networks (Aquila). Atmos Energy Corporation, Deere & Company,
and the Jowa Consumers Coalition expressed interest in and followed the
proceedings. Agri Industrial Plastcs, HaN Industries Inc., IPSCO Steel Inc..Alcoa Mil Products, Box USA, Curries and Graham. Elkem Carbon, General
Mils, Griffn Pipe Products Co.. Grin Wheel Company, Lehigh Cement Co.,
Nestle Purina, North Star Steel, Penford Products, PMS Industries, Inc.,
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Progressive Foundry, and Quaker Foods & Beverages joined with Ag Processing
in addressing the energy effciency prosals.
The Legislature gave the Board tw standards to apply to the proposed changes:
Uie cost effectiveness of the proposal and the degree of accuracy of matching
rates (revenues) with costs. These two standards have been applied to each of
the proposed changes. This report examines the identiied proposals,
summarizes the comments of the participants, and reaches conclusions under
the stndards given.
5
II. GENERAL RATE REGULATION PROPOSALS
Description of Current Iowa Ratemaking Practices for Electric and Gas
Iowa currently uses a hybrid approach that considers both historical and
projected data for use in setting rates. A rate proceeding before the Board
begins with historical data. This is adjusted for known and measurable changes
in costs not associated with a different level of revenue and revenues not
associated with a different level of cost that wil occur wíthin twelve months from
the date of filng by the utilty. Typically. an historical test year is the latest
calendar year; however, a test year can be any prior 12-month period of audited
information. In a rate proceeding, the utility files actual data for the historical test
year and proposes adjustments to revenues, expenses. assets, liabilties, and
capital issuances. These changes are known as "pro forma adjustments." The
Board may also consider other proposed changes under its authority in Iowa
Code § 476.33(4) to "consider other evidence." Once the Board decides which
adjustments are allowed and the resulting revenue requirement, the utility files
new rates that remain in effect unti a new case is brought. The goal in setting
rates is to take the data from the historical test year and make adjustments to the
historical data that more closely reflect the expected costs and revenues going
forward.
The fundamental principle in determining rates is the matching principle. Unless
there is a matching of costs and revenues, the test year is not a proper one for
fixing just and reasonable rates. The inclusion of costs without matching
revenues may produce excessive rates. The inclusion of revenues without
matching costs may deny the utility reasonable rates. The relationship between
costs and revenues for the test period used, whether historical or projected, and
the validity of that relationship, constitutes one of the most vital steps in the
determination of just and reasonable rates.
Although the Iowa statute has an historical test year as its base, the Board is not
restricted from looking beyond the test year in appropriate situations. The statute
expressly grants the Board the authority to consider other evidence, and the Iowa
Supreme Court has affrmed the Board's interpretation that this provisIon allows it
to consider adjustments that are outside the test year. Proposed adjustments
are considered on a case-by-case basis to ensure they meet the requirements
and concerns of the matching principle.
In the past several sessions, the Iowa Legislature has implemented several
major changes that look beyond the historical test year in the settng of rates. A
2001 law allows utilities to seek advanced ratemaking principles related to major
capital investments in generating facilties. Utilties may seek binding reulatory
assurances related to the treatment of these investments in future rates. Utilties
may also present a plan and budget for addressing emissions frm rate-
regulated electric power generating facilities that are fueled by coaL. . The law
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requires the reasonable costs of implementing the plan to be included in rates.
Finally, during the 2003 Session, the Legislature required the Board to consider
capital infrastructure costs that will be in servce within nine months after the
conclusion of the test year and wil. not produce signifcant additional revenues.
Capital cost changes that will occur within nine months after the conclusion of the
test year and are associated with new generating plant for which the Board
granted advanced ratemaking treatment are also allowed under the new law.
These changes were made by the Legislature to spur investent in generation,
mitigate risk associated with environmental requirements, and mitigate regulatory
lag with respect to major capital additions and cost of capitaL. In each case, they
require the Board to consider projected data when settng rates.
Two other aspects of Iowa's ratemaking approach require discussion in order to
undersnd proposals for change. Utilties are able to implement rate increases
tht are consistent with previously accepted regulatory principles within three
months of a rate filing. These temporary rates give relief to the utilty during the
pendency of the 10-month ratemaking process. If final rates are lower than those
collected during the proceeding, refunds are made with interest set at a statutory
level. Iowa's statute also allows for the automatic adjustment of rates in certin
circumstnces. These adjustments have historically been used to flow through
the cost of purchased gas and the cost of power purchases, among other things.
1. Option of a Future Test Year
a. Description of the Proposal
IPL proposes the option of using a future or projected test year to detennine
rates. This method is based not upon the relationship between historical costs
and revenues, but rather on estimates or forecasted data. All the components
that would be considered when detennining rates, including the revenues,
expenses, rate base, working capital, and capital structure, are based on
estimates and projections.
.IPls specific proposal would limit the use of projected data to a two-year period
and would allow the utilty to choose whether it would use an historical period or
a projected, forecasted period for setting rates. ¡PL, Iowa Telecom, Aquila, and
MidAmerican support an optional future test year as long as the option to choose
either a historical or future test year is allowed. Consumer Advocate, Ag
Processing, and Qwest argue against the option of a future test year.
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b. Review of Other States
Survey results filed by Consumer Advocate 1 indicate that 30 states use historical
test periods, seven states use future test periods, eight allow utility choice, and
six use a hybrid form. IPL responded with the results from three different
surveys2 that categorize the test periods in slightly different ways, making strct
comparisons diffcult.3 However, approximately 30 states continue to employ the
historical test period. Other states use a variety of alternatives ranging from
utility choice, hybrids/partally forecastd, to fully forecasted test years.
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OfUie closest Midwestern states, South Dakota, Missouri, Indiana, and Kansas
use historical test periods. Minnesota and Ilinois allow utility choice of historical
and future test periods. Wisconsin requires a future test year.
Ilinois has the option of a future test year, but requires an independent audit of
projectons to explore the link between actual data, assumptions, and projectons.
Ilinois also has a signifcant number of rules that apply specifically to a filing
based on a future test year. Companies that choose the option of a future test
year must also file information to support an historical test year. The
appropriateness of eitler an historical or future test year might be an issue of
controversy in any particular case. According to Illnois stff most companies
prefer the historical test year because they find these requirements to be
burdensome.
Minnesota also allows the option of a forecsted test year. However, its
Commission does not allow the forecasted test year to reach out very far. For
example, if a case is filed December 31, 2003, the company might use a 2004
test year. By the time tle 10-month process ends, the end of the forecasted test
year is close. In this example, the Commission would not allow a 2005 test year.
Wisconsin mandates a future test year for large utilities. Wisconsin stff sttes
their regulatory approach is very hands on and requires frequent audits. Major
energy utilities in Wisconsin file a rate case every year unless they are under a
rate freeze. Wiscnsin staff also notes a strong auditing or accounting
1 Taken from Consumer Advocate Witness Brosch's Atchment MlB.3 entitled, .Survey of State
PUC Test Period Approaches as of September 2003."
2 The three survys are:
· Regulatory Research Report, Table entitled "Regulatory Practces Test Perd/Rate
Base/Statutory Case Lag Summar of All 50 States plus the Distrct of Columbia," 2003.
· Deloite & Touche, "Questar. State Commissions Test Year Survey," 2000.
· NARUC, Table entitled "Type of Test Year Used in deterining Rates: Electric and Gas
Utilities," Compilation of Utilty Regulatory Policy 1995-1996.
3 For example, of the three survys provided by IPL, one identifed six stte as using fuure test
year periods (similar to Consumer Advocate's finding), but the other two identfied twice that
many.
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background is required to effectvely review a forecasted test year and most of its
auditors are CPAs. In addition, a larger staff is required to review a future test
year; the Wisconsin Commission has 185 staff, double the number for the Board
and Consumer Advocate combined.
Both Ilinois and Minnesota require that future test year filing also include
historical period data so that compansons can be made between the estimated
data proposed for the projected test penod and actual data from the historical
test penod. Wisconsin, which requires future test year filings, also requires
annual reports of a utility's costs and revenues to allow the Commission to
continually review and assess the reasonableness of a utility's forecasts.
c. Is the Proposal Cost Effective?
IPL states that a projected test year would not significantly increase the cost of
utility ratemaking. It suggests that the only additional cost is the hiring of
consultants well versed in capital budgeting, a short~lived expense until the
Board and Consumer Advocate staff are trained in this area. Furthermore, while
new issues would arise from using a projected test year, many issues argued
today would disappear. As for IPL's own costs, it already does forecasting and is
comfortable with its abilty to projec items such as customer levels and usage,
fuel costs, and capital expenditres.
At the same time, IPL acknowledges that more frequent or annual rate reviews
may be necessary because of the lack of annualization adjustments in a
projected test year. Based on the company's experience, a future test year
regulatory approach is more active and requires frequent audits. IPL also sttes
that weather normalization, a necessary element in a future test-year case, would
reuire additional staff expertise. IPL's sister-cmpany, Wisconsin Power and
Light Company, normalizes revenues for weather based on a reression model
and analysis. In Iowa, weather normaliztion is routinely used in natural gas
proceedings. However, though utilties advocated the use of weathernormalization for electc cases in the 1980s, normaliztion was never approved
and it has not been a component in more recent electric cases. Thus, both the
Board and Consumer Advocate would need to acquire expertise In this area.
Finally, the company agrees that Consumer Advocate would need new skills to
evaluate projecd versus historical data in a rate case4 because it is unlikely
these skils could be found in an outside auditing firm.
MidAmerican acknowledges that the cost of preparing a case with a proposed
future test period would be greater because data for an histoncal period must be
filed at the same time. However, to the extent the use of the forecast test period
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4 Since the mathematks relaed to thermodynamics are well known and much natural gas usage
is heating related, nonnalization is a relatively simple procedure for natural gas. Though
electriciy usage relate to heating and cooling can be fairly predictble. usage of electrcity for
other purposes is far less predictable. making normaliztin much more coplex for eleclTlcJy.
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better reflects the cost of providing service during the penod in which the rates
are in effect some future rate case proceedings and costs may be avoided. The
company argues that the rates based on the forecasted data already include any
increase in costs that may occur when the rates are in effect, and so a utilty
should not have to file another rate case until it has moved beyond the
forecasted penod.
Consumer Advocate believes the future test-year option would dramatically
increase the cost of utilty ratemaking in Iowa. Both the cost of a proceeding and
number of proceedings would increase. Consumer Advocate's expert states that
future test years are inherently more diffcult to prepare, document, investigate,
and venfy, causing the utility, the consumer represetatives, and the regulatory
agency to invest more resources in the process of regulation. There also would
be new issues related to the use of projections, such as adjustments for inflation
and calculations of productivity.
Ag Processing's main concern is that the use of future test years wil add
litigation costs to the point where industr's involvement in the process is
precluded. In addition, use of future test years will cause an increase in rate
case-related workloads for Board members, Board staff, and Consumer
Advocte.
· Frequency of rate cases may increase, especially if a future test-year
approach similar to Wisconsin's is used.
· If the company files a future test-year option, other parties to the case may
file the historical test-year option. This would necessitate evaluation of
simultaneous histoncal and future rate cases, increasing the work, the cost,
and the time required for the proceeding.
· A more active auditing role seems essential.
· New issues appear likely with a future test-year filing.
· Additional cost are associated with a possible independent audit. 5
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Thus, it is evident there is no consensus among the participants on the cost
effectiveness of this proposal. The information filed shows there would be
transition costs as staffng levels and skils are changed to accommodate for an
additional ratemaking method. The review of other states indicates a need for
additional staff including economists, statisticians, auditors, and CPAs. A
number of rulemakings would be necssary. Litigation would probably increase
with a new approach to ratemakfng. It appears from the record there would be
long-term costs associated with the change for a number of reasons:
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5 In Illnois Commerce Commission Docket No. 92~0357, MidAmerican used some elements of a
future tes year and required the services of an independent auditor. The cost of thai audit was'
$132,000.
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d. Would the Proposal Result in Rates That More Accurately
Reflect a Utility's Cost of Providing Service?
IPL believes that a projected test year provides a better matching of rates with
costs and revenues that will occur at the time those rates wil be in effect. This
would benefit customers because changes in costs are included in rates sooner,
allowing customers to receive better pricing signals and lessening diferences
between current customers and future customers. The company asserts that a
projeced test year benefits the utilty by prviding for full regulatory assurance
and up-front guidance on planned expenditures. Under a future test year, the
Board would provide proactive input into capital investment decisions and other
expenditures before those decisions are implemented. Under the current
standard, the Board is limited to defining public policy through the denial of costs
that have already been incurred.
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IPL contends that costs and revenues in an historical test year are as much as
tw years old before rates are finalized. IPl questions the value of auditable
data and the assumption of a constant historical relationship between revenues
and cost, especially during times of major capital investment.
The company also assert that a projected test year benefits the utilty by .
potentially reucing the cost of capitaL. It states that the financial community
prefers a regulatory structure that allows a projected test period because ther is
less risk that prudent capital expenditures will not be recovered in rates. less
risk to the stockholders may mean improved ratings that may result in reducing
the cost of capitaL.
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MidAmerican states there is little difference between a future test period and an
historical test period that reflects appropriate post test-year adjustments. At the
same time it argues that tw fundamental points need to be kept in mind: (1)
ratemaking exists to detennlne the reasonableness of rates that will apply
sometime in the future, after the rate filing has been made, and (2) there is no
inherent reason why historical data from the company's books and records more
accurately reflects what will happen in the future than forecasts will.
However, Consumer Advocate disagrees that a future test year would result in
rates that more accurately reflect a utility's cost of providing service. Further, the
Consumer Advocate states it is impossible to know if a forecast is accurate until
the forecast period has passed. It also argues that what is important in
establishing accurate rates is the relationship between revenues and costs. As
long as a recent and internally consistent historical test year is used, the
revenue/cost relationship wil generally be representative of ongoing conditions
and the revenue requirement wil be accurate for the period when rates are in
effect. Consumer Advocate also believes that the mere potential to reduce
regulatory lag with a future test-year option is not worth the risk of reducing or
eliminating the crical incentive the current system provides Iowa utifties to
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operate effciently. Regulatory lag tends to replace some of the effciency
incentives that are otherwse blunted by cost-of-service regulation. It also
rewards or punishes a utilty in the short run by attributing cost and revenue
changes to shareholders between rate ca. Consumer Advocate adds that
notwithstanding IPL's assertion conceming the staleness of historical data, the
use of a future test year will increase the probabilty of inaccuracy, excess prots,
and excesive rates. Furter, a future test year relies heavily on utilty
management's expections, and it is likely that management wil err on the high
side when estimating future costs and on the low side when estimating future
revenues.
Consumer Advocate believes giving the utilty the option of a future test year
invites abuse of the regulatory process. It would mean that utilty companies
would submit the type of filing most beneficial to shareholders at any given point
in time. Making an option available allows gaming of the system to the
advantage of the part that is granted the option to choose.
Ag Processing states that a future test-year filing does not necessarily reflect a
more accurate cost of service. It believes there are more appropriate ways to
match revenues and costs and send price signals to customers.
The Board has the authori to allow additional evidence into the recrd afer the
initial filing. In a situation where only part of a proposed adjustment is known at
the time of filing, additional updates have been allowed up through the date of
the hearing. The Board also is able to consider other evidence outside the test
period. Recently, the Board allowed year-end rate-base adjustments for major
plant additions and considered several changes to capital structure that occurred
aftr the test year. It also indicated a wilingness to consider alternatives to the
thirteen-month average capital structure.
In additon, the Legislature has recently enacted provisions that address the
desire for regulatory input Into capital investment decisions, regulatory risk
related to environmental requirements, and regulatory lag. Iowa Code § 476.53,
enacted in 2001 , provides for advanced ratemaking principles for new generation
and trnsmission projects. Both IPL and MidAmerican have requested and
received advanced rate making principles that are binding on future ratemaking.
These advanced ratemaking principles have led to the following capital
investment in Iowa:
· IPL's 568 MW natural gas-fueled generation plant in Mason City
· MidAmerican Energy's 540 MW natural gas-fueled generation plant in
Pleasant Hil
· MidAmerican Energy's 900 MW coal-fueled generation plant in Council
Bluffs
· MidAmencan Energy's 310 MW wind energy facility in northwest Iowa
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e. Conclusion
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Iowa Code section 476.6(25) allows utilities to look to the future with respect to
emission contrls on coal-fired generating plants. Utilitie are required to
develop a plan and budget designed to meet environmental requirements. The
Board then must include the reasonable costs of implementing the plan in rates.
Amendments to Iowa Code § 476.33 enactd during the 2003 Session allow the
Board to consider capital infrastucture investents in service within nine months
after the conclusion of the test year and cost-of-cpital changes that occur in that
time period for new generating plants, thus lessening regulatory lag related to
large investments.
Since these statutory provisions allow for future costs of large investments to be
considered in a rate case, a future test year would provide little additional benefit.
The Board concludes the implementation of the future test-year option would
significantly increase costs of ratemaking during the trnsition and probably in
the long-term. It also finds use of a future test year over the current hybrid
approach wil not necessarily provide rates that more accurately reflect a utilty's
cost of providing servce. Iowa's hybd approach allows for consideration of
evidence outside the historical test year. The implementation of two new laws
allowing regulatory assurances for capital investment decisions and for
environmental improvements; and the abilty to consider capital investments and
cost of capital changes after the test period alleviate the major concerns rased
by IPL.
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2. Deferred Eipenses and Reveues Occurring Outside the Test Year
a. Description of the Proposal
IPL proposes that deferred accounting would be a useful proceure to support a
future test-year case. Large abnormal expenses and revenues occurring outside
a test year could be accounted for in a deferrd account and reflected in the
utilitys next rate case.
Consumer Advocate argues that deferrd accounting is just a variation of piecemeal, or
single-issue, ratemaking. Single-issue ratemaking occurs when a cost or revenue item
is considere without considering other costs and revenues. Not generally accepted,
single-issue ratemaking can lead to an improper matching of costs and revenues, and
potentially unjust and unreasonable rates. Consumer Advocate sttes the inclusion of
costs without matching revenues will produce excessive rates; the inclusion of revenues
without the matching costs will deny the utility reasonable rates. It adds that the
relationship between costs and revenues is an importnt component in the
determination of just and reasonable rates. If deferr accounting is used appropriately
and is properly matched to other costs of providing service, it need not result in single-
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issue ratemaking. However, deferred accounting can distort the revenue requirement jf
other offsetting cost savings or revenue increases are ignored.
b. Is the Proposal Cost Effective?
Allowing the use of deferred accunting in a rate case would not have a
significant financial impact on the cost of the rate proceeding since the Board has
current authority to allow defer.red accounting.
c. Would the Proposal Result in Rates That More Accurately
Reflect a Utiltys Cost of Providing Service?
If the costs in a deferrd account are properly matched against related cost
reductions and revenues, they could result in rates that more closely reflect the
cost of providing service. Since a utilty controls the information concerning
these accounts, there is the potential that this matching may not occur.
d. Conclusion
Deferred accounting is available under current law. Utilties may request
accounting rulings from the Board. However, rulings made outside a rate case
are only advisory, not binding, when considered in a future rate case. The utility
may account for costs and revenues in a deferred account but the Board retains
the authonty to determine whether the costs and revenues wil be allowed in
rates, and under what terms and conditions.
3. Government-Mandated Costs Outside a Rate Case
8. Description of the Proposal
MIdAmencan proposed that government-mandated expenditures should be
recovered through an automatic adjustment rather than through a rate case.
These are non-fuel items such as capital projects for the relocation or
improvement of any facilties when the expense of these items are venfiable or
mandated by a government entity or are outside of the control of the utilty's
management. Mandated expenses could also include emission control
equipment, manufactured gas plant remediation, or expenses related to
upgrading facilties to thwart terronsm attacks. MidAmerican says the automatic
adjustment mechanism is particularly appropriate in situations where it is
desirable to obtain a better matching of costs and revenues in a specified period
than could be accomplished by infrequent rate cases.
Aquila believes that government-mandated expenditures should be recovered
through an automatic adjustment including expedited recovery for mandated non-
fuel expenses and those required by the Offce of Homeland Security.
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b. Is the Proposal Cost Effective?
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Consumer Advocate argues that government-mandated costs should not be
automatic because they are not volatile and may be offet by other cost changes
that are not verifable. Furthermore, automatic recovery provides no incentive to
minimize costs. Consumer Advocate believes the Board currently has the
authority to provide for automatic adjustment clauses.
Although Iowa law allows for automatic rate adjustments, the types of expenses
discussed in this proposal have not been allowed. The Board would have to
approve any new automatic adjustment. The cost involved would be the
additional time necessary to establish the automatic adjustment and to verify that
reasonable accounting was used for all of the major elements of the proposed
government-mandated expenditure.
c. Would the Proposal Result in Rates That More Accurately
Reflect a Utiltys Cost of Providing Service?
An automatic adjustment would allow a utility to recover the cost of government-
mandated items in a timelier manner and without the necessity for a rate case;
however, it may also allow for piecemeal ratemaking if consideration of matching
cost and revenue changes do not take place.
d. Conclusion
Iowa law already allows for the automatic adjustment of rates outside a rate case.
For example, the Board currently allows automatic adjustment of electc rates for
fuel-related costs. These fuel costs are beyond direct control of management, are
subject to sudden significant changes in level, are an importnt factor in
deteniining costs, and are readily, precisely, and continually segregated in
accounts. Automatic recovery is also allowed for energy effciency expenditures.
All amounts recovered through automatic adjustments are subject to prudence
reviews.
The types of expenses discussed in this proposal have not been historically
allowed to be collected through an automatic adjustment mechanism. Any
automatic adjustment mechanism for government-mandated costs would need to
meet similar criteria as fuel-related costs and meet the requirements of the
matching principle to ensure just and reasonable rates.
It should be noted that when a utilty has voluntarily agreed to forego rate
increases for a period of years, allowance of new automatic recovery for
expenses incurrd during this period would change the conditions under which
the agreement was reached. Any new automatic adjustments should not be
implemented during such a period.
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a. Description of the Proposal
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4. Use of Single-Issue Ratemaking
MidAmerican proposes that rate adjustments producing small amounts of
revenue should be allowed outside of a general rate proceeding.
b. is the Proposal Cost Effective?
If a utility were allowed to file for a rate increase based upon a single cost item,
there would likely be an increase in filings and the regulatoiy costs would
increase. Some, If not most, of these single-issue ratemaking filings could
become time-consuming contested cases and would place an additional burden
on Board, Consumer Advocate, and third-part resources. There may be a
decrease In general rate cases since there would be allowances for rate recoveiy
between rate cases.
c. Would the Proposal Result in Rates That More Accurately
Reflect a Utilty's Cost of Providing Service?
The proposal does not provide for the proper matching of costs and revenues
that is essential in setting just and reasonable rates. For the filing to result in
rates that more accurately reflect a utilty's cost of providing service, any
corresponding cost savings or additional revenue would have to be reviewed for
possible offset. Allowing the costs to be recovered without the offsetting
revenues or reduction in costs would not accurately reflect the cost of providing
service. Rates are best established in a general ratemaking proceeding where
all the costs and revenues can be reviewed. If a utilty is allowed to file for rate
relief eveiy time an increase in costs occurs, rates wil likely be higher than under
existing procedures.
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d. Conclusion
This proposal would allow a utilty to file for rate increases without having to give
consideration to offsetting decreases in costs or increases in revenue In violation
of the matching principle. The Board has allowed single-issue ratemaking
outside of a general rate case In specific cases. However, single-issue
ratemaking should be a rare occurrence and not become an accepted way of
setting rates.
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5. Adjustments to Year-End Data
a. Description of the Proposal
IPL proposes changes to require the Board to consider data that wil become
known and measurable within twelve months from the commencement of the
proceeding. The proposal would require that any pro forma adjustments be
made using a year-end test year, rather than a thirteen-month average test year.
b. is the Proposal Cost Effective?
The proposed statutory changes would make it mandatory for the Board to
consider all post test-year changes, not just changes that exist at the
commencement of the proceeding. As previously stated, the Board has the
ability (and has used it) to adjust historical test year data beyond known and
measurable changes related to data that exists as of the date the proceeding is
filed regarding known and measurable changes in costs not associated with a
different level of revenue and revenues not associated with a different level of
cost, that wil occur within twelve months from the date of filing by the utilty. The
authority to do so exists in Iowa Code § 476.33(4), which states the Board's
ability to nconsider other evidence". In recent proceedings, the Board has
considered these types of issues under its current statutory authonty. Therefore,
the resources needed to review a rate case in the context of the statutory
changes would be similar to the resources needed currently. Given the Board's
use of already existing authonty, the benefits of changing the statutory language
are not obvious.
c. Would the Proposal Result In Rates That More Accurately
Reflect a Utilty's Cost of Providing Service?
The use of a year-end rate base and capital structure could reduce regulatory lag
to some degree by allowing full rate treatment for items that were placd in
service late in the test year. Potentially, this could make rates better reflect the
costs of the utility.
Consumer Advocate states that an annualized, or year-end, test period is
somewhat more conducive to known and measurable changes beyond the test
year end and does have the effect of eliminating up to six months of regulatory
lag. However, Consumer Advocate believes there is no advantage to the use of
either the average or year-end-annualized test period approach that cannot also
be achieved with known and measurable changes routinely considered by the
Board under existing ratemaking procedures. It points out that the average test
year reduces the dependence on only a single data point, which could be
distorted by unusual accounting entries or one-time trnsactions. Also, by using
the average approach. the income statement presentation is simplifed.
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Customer levels, employee levels, depreciation. propert taxes, and other costs
do not need to be adjusted to reflect year-end annualized numbers.
With respect to the capital structure, a thirteen.month average capital strcture
for determining rates helps to eliminate distortons caused by issuance of new
preferred stock and long-term debt, equity infusions, security retirements, and
fluctations in retained earnings. Further, if a year.end test year were used, any
of these one-ime events could distort the capital strcture, making the capital
ratios unrepresentative. The thirteen-month average capital structure averages
these potential events over several months to provide a better match between
capital structure, rate base, revenues, and expenses.
Any capital issued outside the test year is not normally included in the capital
structure because it would violate the matching principle. The thirteen-month
average capital structure supports the thirteen-month rate base. By using data
for only one point in time, the utilty could include an equity infusion in the month
of December such that the rates are set using a capital structure with a higher
common equity ratio. Common equity is the most expensive source of capital
available. Therefore, the customers' rates would support a higher overall cost of
capital than rates determined using an average capital structure.
d. Conclusion
The current sttute already allows the Board to consider year-end evidence. Any
proposal to use a year-end test year, annualize single items, or approve
appropriate pro forma adjustments is reviewed and considered on a case-by-
case basis by the Board to ensure compliance with the matching principle.
6. Temporary Rate Implementation
a. Description of the Proposal
IPL proposes to modify the way in which temporary rates are implemented.
First, it proposes to eliminate language requiring the Board to apply previously
established regulatory principles in determining the appropriate level of
temporary rate relief. Second, IPL proposes to reduce the time frame for
implementation from 90 days to 10 days.
In addition, IPL argues that since its proposal would eliminate three months of
review for temporary rates, the ten-month period allowed to reach a final decision
should be reduced to seven months.
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MidAmerican agrees with IPL's proposal but argues the utilty should have the
option of implementing temporary rates immediately or using the existing
temporary rate procedures.
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Consumer Advocate argues that if temporary rates are implemented
immediately, without review, the ten-month time frme should be extended to
allow for additional review of the final rates.
b. Is the Proposal Cost Effctive?
Implementing temporary rates witin 10 days, rather than allowing 90 days for
review and approval, would probably not add cost to the rate proceeding.
However, the ultmate issues to be decided in the case would remain. Most of
the costs that would be saved by eliminating analysis and approval of temporary
rates would be shifed to the remainder of the case. Therefore, it would not likely
be cost effective, or even possible, to shorten the schedule in the manner
proposed. The proposal to shorten the schedule appears to proceed from the
assumption that temporary rate review requires a signifcant part of the first 90
days, but experience has shown that review of temporary rates actually requires
very lite in the way of Board resources.
c. Would the Proposal Result In Rates That More Accurately
Reffect a Utilty's Cost of Providing Service?
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The current statute allows 90 days for implementation of temporary rate
increases. Increases based on established reulatory principles are allowed. If
the utility seeks recovery for expenditures that have been denied in the past or
are new, it mustwait until the Board has approved the expense before it can
recover these expenses in rates. IPL proposes to eliminate the requirement in
the statute that past Board precedent is used in determining an appropriate
increase for temporary rates. Instead, the entire increase sought by the utilty
could be implemented in temporary rates. Consumer Advocate argues there
must be some reasonable constraint on temporary rates. If temporary rates are
put into effect without any regulatory review, utilties could use ratepayers as a
source for instant rate relief when cash flows are below desired levels.
Consumer Advocate contends that refunds with interest at the end of a case are
not a suffcient remedy for customers who may have diffculty paying their utilty
bils even before the rate increases.
Eliminating the use of previously established regulatory principles when setting
temporary rates would probably make temporary rates less, rather than more,
accurate. The use of previously established regulatory principles results in
temporary rates that are based on prior Board decisions and are therefore likely
to bear a reasonable relationship to the final rates. Removal of this factor would
mean potentially unlimited temporary rates that would have no relationship to
actual costs.
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d. Conclusion
IPls initial proposal removes the requirement that temporary rate increases be
based on previously established past Board precedent. It also would implement
temporary rates in 10 days rather than the current gO-day penod for review and
approval. In the workshop IPL indicated a willngness to use past Board
precedent in order to implement temporary rates without Board review. The
Board believes that the current requirements, past precedent and a gO-day
review period provide a balance that gives the utilty expedited rate relief while
the case progresses. It also protects the customer from excessive temporary
rate increases.
Becausè IPL's proposal would essentially eliminate three months of the review
process, it also proposes to reduce the current ten-month rate case review pertod
to seven months. Even if review of temporary rates is removed, other issues
requinng a full ten-month proceding remain. Verification of company figures
and calculations often require the full time period.
Finally, If the statutory method is modified to allow implementation of temporary
rates within 10 days, the current interest rate should be retained. (See the next
issue.) The relatively high interest rate serves as a constraint on the utilty to
discourage it from using the ratepayers as a source of funds dunng the pendency
of the proceeding.
7. Interest Rates on Refunds
8. Description of the Proposal
Iowa Telecom proposes to reduce the interest rate on refunds. The current rate
is two percentage points above the 24-month consumer loan rate. MidAmerican
states the rate should: (1) not be so high that it works to prevent utilties from
seeking needed rate relief, (2) be high enough to discourage utility use of
excessive temporary rate relief for financing purposes, and (3) adequately
reimburse customers for the use of their money. MldAmencan encourages the
Board to consider using a public utility bond yield as representative of the utility's
credit quality. This long-term rate has a built-in penalty. Short-term financing
would be used as a source of funds during the penod that temporary rates are in
effect. Since short-term rates are cheaper than long-term sources, the utility
would pay a "penalty" if the utility were required to make refunds to the
customers. The customers would receive a return higher than any other
investment option of the same duration and recover their opportnity cost of
lending funds to the utility.
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Consumer Advocate opposes any change to the interest rate on refunds. It
argues that to reduce the current average commercial bank rates to money
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market account rates would be unfair. Many customers have outsnding credit
card balances, bank loans, and mortgages at higher rates of interest such that
their cost of money would likely be higher thn money market rates of return. It
is Consumer Advocate's position that the currnt rate is more indicative of the
opportnity cost of capital for ratepayers. Also, utilities may be overly aggressive
in temporary rate requests if extremely low interest rates are used. This would
make customers involuntary investors in the utility. The interest rate should be at
or above the average consumets marginal cost of capital.
IPL proposes to implement temporary rates immediately without Board review
and approval and did not propose any change to the current rate. Owest also
agrees that no change is needed.
b. Is the Proposal Cost Effective?
Changing the refund interest rate has no cost implications for implementation. It
would simply require looking to a different indicator to set the rate.
c. Would the Proposal Result in Rates That More Accurately
Reflect a Utiltys Cost of Providing Service?
The interest rate is not intended to reflect a utilty's cost of providing service. It is
intended to partially or fully compensate the consumer for the use of money
during the pendency of a rate case. It may also provide a deterrnt to collectng
excessive temporary rates. The 24-month consumer loan rate is a borrwing
rate, not an investment rate. Based on August 2003 data, this rate was 11.95
percent, slightly lower than the Credit Card Plan (All Accounts) rate of 12.49
percent for the same time period. After adding the additional tw percent, as
required in Iowa Code, the refund rate exceeds the credit card plan rate. The
high refund rate that results from this formula suggests that it is used to protect
Uie customers from the utility charging excessive temporary rates. If excessive
temporary rates were in effect, a customer may be forcd to either use funds that
would have been used to reduce other debt obligations such as credit cards or to
borrow funds to pay the bil. This assumption seems consistent with the position
held by the Consumer Advocate. If a refund were necessary, the consumers
would more likely receive their opportunity cost of money, providing better
protection than if a lower rate were used.
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MldAmerican suggests that the existing rate is excessively punitive and should
be lower. MidAmerican argues that the public utilty bond yield is more
representative of the utilty's credit quality. It also claims that the customer would
eam a higher return than for any other investment for that duration. However,
the concern may not be with recovering a customets opportunity cost of
investment, but Instead with covering customers' potential borrowing rates.
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Most Iowa utilties have bond ratings in the range of A to Caa. Using August data
from the Merchant Bond Record, the yields for an "A" rating and a "Baa" rating
ranged from 6.78 percent to 7.08 percent. The recommended bond utilty rate is
almost half of the current consumer rate. Refunds would be based on the
individual rating of each utilty.
d. Conclusion
The proposed change is neutral with respect to cost-effectveness but would not
tend to produce more accurate rates. The existing rate is set at a high level to
protect customers from paying excessive temporary rates. If the utiit wishes to
avoid paying this rate on potential refunds, it should only request reasonable
rates when it files for temporary relief. As discussed previously, IPL is proposing
a statutory change that would allow it to collect temporary rates immediately
without Board review. If this change were allowed, the need for maintaining the
current refund rate is even greater.
8. Electronic Delivery of Proposed Rate Increase Notices
a. Description of the Proposal
MidAmencan proposes a statutory change to allow for electronic delivery
of proposed rate increase notices.
b. Is the Proposal Cost Effective?
The comments lack suffcient information to conclude that electronic delivery of
customer notices meets the cost-effectiveness criterion. Electronic delivery
potentially reduces notice costs. However, the utilties that commented on this
proposal indicated that their systems currently are not set up for electronic
delivery of customer notices. No comments estimated the start-up or program
change costs and ongoing expenses. Qwest's comments concerning the use of
radio and television indicate that "electronic" may be too broad a tenn, but no
alternative term was offered.
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c. Would the Proposal Result in Rates That More Accurately
Reflect a Utilty's Cost of Providing Service?
The form of notice does not significantly affect costs recovered as part of the rate
proceeding.
d. Conclusion
By the conclusion of the inquiry, MidAmerican indicated that Iowa law may
already allow for the electronic delivery of rate notices. Qwest and MidAmerican
encouraged the Board to allow for electronic delivery and allow parties to work
out details in the future as technologies develop.
9. Notification Within 30 Days of Filng of a Proposed Rate Increase
a. Description of the Proposal
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MidAmencan proposes to change the notice penod from no more than 62 days
pnor to filing to within 30 days after the filng. The utilty would then be able to
work with the Board to include preliminary public comment heanng dates and
locations on the notice of proposed rate increase filngs. The prctcal effect of
the change may not be very great; however, under current law, most utilties
send the notice the day before they file the rate case. Under the proposed
change, they would be able to delay the notice by two or three days and then
include the notice in the regular bils to customers.
b. Is the Proposal Cost Effective?
The change would not incur additional costs and might allow utilties to avoid the
postage expenses associated with mailng separate rate case notices. It could
be beneficial, as the Board might have the opportunity to set up preliminary dates
and locations for public comment heanngs and work with the utilty to list the
dates and locations in the notice of proposed rate incrase to its customers.
However, that can be accomplished with the existing process as well.
c. Would the Proposal Result in Rates That More Accurately
Reflect a Utility's Cost of Providing Service?
The time frame for rendenng the notice does not playa role in the costs that are
considered as part of the rate proceeding.
d. Conclusion
The statute currently requires rate-regulated utilties to provide notice of a
proposed rate increase within sixty-tw days prior to the time the application for
the increase is filed with the Board. The proposed change would potentially
allow utilities to save postage costs, because they could send a rate case notice
as a part of the regular biling cycle. However, this would mean different
customers would receive the notice at different times, which could cause
customer confusion. Thus, it is difcult to say if the proposed change would be
an improvement.
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10. Rates for a Fixed Period
a. Description of the Proposal
MidAmerican proposes to establish a mechanism that would allow filing
and approval of a ratemaking plan that would establish rates for a fixed
period of time. While Consumer Advocate has agreed to such multiyear
plans in the past, it opposes the Board having the authority to approve
such a plan over its objection.
b. Is the Proposal Cost Effective?
This proposal may be a more cost-effective method of ratemaking since it would
set rates for a certin period of time. A review of the rate cases filed since 19816
shows that rate cases are often fied at three-r four-year intervals. Allowing a
utilty the option of filing a multiyear ratemaking plan could fit this pattern.
Both the utility and Consumer Advocate would be precluded from bringing cases
during this time. That could result in savings if a rate case would otherwise have
been filed. But the savings only exist if a rate case would otherwise have been
brought, i.e., rates need to be changed.
A multiyear rate filing would be subject to the same analysis with respect to costs
of review as was discussed in the future test year filing. The utility, the Board,
Consumer Advocate, and interveners would be required to consider data
concerning an historical test year as well as data concerning a future period.
This future data would be very similar to data to support a future test year.
MidAmerican has suggested that other alternative ratemaking procedures might
be proposed to determine the rates under a multiyear rate plan. Any alternative
ratemaking proceures could increase the cost and complexity of a ratemaking
proceeding.
c. Would the Proposal Result In Rates That More Accuraly
Reflect a Utilty's Cost of Providing Service?
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!MidAmerican argues that allowing for multiyear ratemaking would provide rate
predictbilty for businesses, government, and other Iowa consumers. However,
the predictabilty of rates does not necssarily mean that the rates accurately
reflect a utilitys cost of service. In periods of high inflation and increasing costs,
it is likely a utilty would make annual filings, and in times of low inflation and
declining costs, the utility would file a multiyear plan. Consumer Advocate would
then be precluded from filing a rate reduction case. While there may be public
policy objectives achieved through multiyear plans that are mutually beneficial to i
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6 Atthment A 10 Consuer Advocate's Reply Comments fied October 3.2003.
24
d. Conclusion
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the utility and to its customers, more accurately reflecting a utility's cost of
providing service is not a primary goal or a likely result.
This proposal would make a statutory change to allow the utilty to propose and
the Board to approve a multiyear rate plan. There have been several periods
when multiyear agreements have been approved by the Board based upon a
settement among the parties to a general rate proceeding. This method of
settng rates for a period of time has provided rate predictbilty and has
protected consumers. MidAmerican has recognized that current proceures
have worked to its benefit as well as the benefit of customers. The current
produres in which the parties negotiate a multiyear plan and bring it to the
Board for its approval is a better method of developing rates that are set for a
fixed period.
25
KE C. QUIN. GØVOl
STATEOFNEV.AA .
PVBlJC UT COMMSION OF NEVADA
i ) 50 Ea Wiliam Str
Ca Cftý, Nov 89701.3109
Policy (175) 68-6107 · Fix (775) 6Øtio
SCú(7.!) 681QI . Fii mS) 68120 .'htt!i.st.ny.\§ ,
, . ()'Ó - 701;
,
RUR NEA0
SS W, Sih S~ No 20
im Ncwà lI0)
(75) 73-4914 . F~ (775) 7'7 -.SOl NEV AD OfICElOI~O:_Dr..Sui~
.. V.. Nc 89109
(10248niO . Fu (702)4J67l
'Mày 10,2006
Lore Malewch
Difto of the Legilative Counl Bucau401 S. Ca St
Carn City, Nevad 89701-4747
RE: The Publie Uties CommiiOD of Nevada's Reprt to die 74. Seion Or the
Nevada Legilature OD Alterties töthe mstorica Test Year Metodology
Use by Publi UtiUes iD Nevad
De Mr. Maew:
Secon 7 of Nevad 'Sene Bil 238 ("SB 238''), pa at the 73td Session of th Nev
Letu, di th Publc' Utities Cosion of Nev (th "PUCN to exlor
alte to the histrica test yea metodlogy cuy used in Nevad for geer rate
apons fi by public utes. Th PUCN couc an ines into th ma with
th assiir of the Rcgulat Opons St of th PUCNt th Buau of Co .Prectin, public utties operat in Nevad an oth inted paes. Addtionaly, th
, PUCN held a woks in th ma to prvie al inteed paes an op pren
thir .commts and suesons.
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SB 238 di the PUCN 1D submt a wr re of its fidigs an recomon to di
. Di of th Legilative Coun Bur for tnua to th 74th Seio of th Nevad
Le no late th Ocbe t, 2006. Put to ths dietve, th PUCN ba dred arepor contani its fidings an recommen at he.
Should you have any queons or coce ple co my Admti Attey,
Cassaa C ova at ( 2) 48-7233.
. g
Ch Pu c Utiities Common of Neva
'Enlos
Qø Cjtyei75 68100 CONSUM DMSIO:La V~704826 0d ÑC-l Ex 681~
EXHIBIT NO. 703, Page 1 of 30
Case No.: IPC-E-08-10
D. Peseau, Micron
. '. ..
REPORT TO TH 74m SESSION OF TH NEVADA LEGISLATU:
ALTERNATIVS TO TH HISTORICAL TEST YEAR MEODOLOGY FOR
SETTG PUBLIC UTILITY RATES IN NEVADA
Public Uties Conission of Nevada
May 10,2006
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TABLE OF CONTNTS
i. NEVADA SENATE BILL 238 iII. HISTORICAL TEST YEAR 2
m. METHOD USED BY COMMSSION TO GATHR COMMS AN DATA 4
N. ALTEATI RATEMAING MEODOLOGIES USED IN OTHJUSDICTIONS 5
V. ALTERNATIV RATEMAG METIODOLOOIESTO TI HISTORICAL
TEST YER 5
a. Option i w Futu test year with al elements fuly forased to refect the. f'peD ras are in effect" , 6
b. Opon 2 - Hybrd te penod tht st with th most ftcent 12-month
histoncaI data an in which aU major rate cas element ar adjuste for
"reaonably known and meaurle" data to reflect the pe raes arin effect, 7'
c. Opton 3 - Hybnd test pe tht sta with th most recent 12-moD.
historica data an in wlnch all major rate case elemmts ar adus for
"reanably known an mele" data up to 7-month af the genral
rate case fig da
d. Commission's Recommendaton: Qption 2, Hybrid Test Perod
VI. DISCUSSION OF TH ALTERNATI RATEMAGMETHODOLOGIES .
a. The rae impact on cusmer an wheter the methodlogy would result
in rats that more acctey refect th cos of providing servçe
b, Th co effecvenes of !be metodologyc. The fisc impat on stte and loc agences .
d. Th prcedures and mechasms necssa to implernt the metologies
e. Any other matter the pares dee apppriate
i. Ra Indexing
Ü. True-Up Prces'
ii. Filing Reguients
iv. Teleouncaons Ca; Non-Ru Incumbet Loca Exche
Qiines .
VI. COMMISSION RECOMMNDATIONS
VIL. PROPOSED LEGISLATION TO AUTHORI AN ALTERNATI
RA TEMAG METHODOLOGY: TH HYBRI TET PERIOD
AITACHMNTS
AITACHMT 1
ATTACHMEN 2ATIACH 3
1. NEVADA SENATE BILL 238
The Nevada Le~slat passed Nevada Sente BUl ("SB'') 238 at its 73rd Sesion: SB
238 bee effecve on June i 4, 2005. Secon 7 of SB 238 dicted the Public Utiit
Commission of Nevad ("Commssion") to open an invesgatory docke to "...stdy, exne
and review the varous processes, theories and metodologies tht may be us to estlish just
and reable rates in cases involving genera rate applications fied by public utlities." Over
the past several year ther has be mountig conc tht in a rapid growt stte such as
Nev~ the historical te year metdology may not be the most accurte metodology in
detnig general rats. Therefore 1h Legislat spcificaly reuested tht th Comssion
open an investigatory doket to explor altetives to 1h historca tet yea methlogy used
in Nevada for caes involvig gene ra aplicaons :fleô by public utties.
Puuat to ths legslatve ditive. on July 27, 2005, the Commssion opened
Commission Docket No. 05.7048 to exlore alternive rateg metodologies to the
historica test yea metodology for genera rate caes. Ths maer was conduct by the
Commssion pursut to the Nevada Revised Sttus ("") and the Nevada Adinisttive
Code ("NAC"). Chapters 233B. 703, ~d 704. SB 238 fuer direte th COIDssion to
subit a wrttn reprt of its fmdigs and recommendatons to the Director of th Legislaive
Counl Burau for tranmitt to the 14l1 Seson of the Nevada Legislatu no lat th
, Ocbe i. 2006. Ths report is mae pursua to th Legilatve dictve.
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IL mSTORICAL TEST YEAR
Public utilties ar consider na monopolies afecte with a public inte. A
natul monopoly works withn a specific servce ar, and generly bui and opete large
expensive-equipment with lower unt cost at incrasing levels of output to produce and supply
an essetial everday sece. Dir competion with a natual monopoly is unecomical
since it would reui duplicate investents in simlarly large exensive equiment. The lak of
competon in the public utiity's servce ar alows th utility to restct outut, rase price and
cQJlect monopoly profits. The public interest view of regulation is to prote cusomer agai
tJese prtices for a serce tht is essntial to evday life. As a reult, public utlities ar
subjected to regulation, and the role of reguaton is to prvide a substitute for th ecnomic
contls of compettion in assunng far prces and adeqte servce to cumer.
In Nevada the Public Utilities Coision's mechan for settng fai prces (rate)
an proteting the customer is basd on a hitorica te yea an is codfied in NRS 704.110(3).
Puuat to ths st, if a public utty fies a gener ra ca wit1 th Comssion to chage
the nies, th Comisson reviews the rerde results of opeon for the inos ret twlve
(12) months that da wa available. Esentially, the procedur for caculatig ras is to add up
the varous cost mCW.ed in providing sece dug a rent 12-mont period commonly
refer to as th historical te-year, and divide that by the sales volumes (e.g., kilowa hour
'~kWh" or ther). Additionally. a linite update for knwn an meaable events tht occur
withn six months afr the end of the historica test year is also pertted. Th cost of
prvidig serce include operating and maenance expnses, depreciation and amorttion
exenses, ta expese, interest expese and profit. Investrs receive a re on thir investment
via tht porton of rates covering intert and prfit (cost of equi). Oter thgs bei equal, if
the costs of servce increas. rats incre.
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The bac assmnption underlying the us of a historica peod for setg fu rate is
tht histrica conditons ar sufciently predictve oflikely futu ciumstces to sere as a
reliable method for predict fu costs. Historical cost have the adde benet of offerg
ready vercation. However) unde rapidly chaging conditions, lie th vas an contiuous
grwt exprience by Nevada utilities, historica costs ca fail to acurly predict fu costs
or allow for the timely reovery of new investents. In addiion to their raid grwt) Nevada's
public utities ar coping with industr-wide chaenges asciat wi changing us
charterstcs, chaigi technologies and chgi wholesae maret sttu. Ifunt cost
ar reasnaly comtt, the use of a historica tÇ8t yea is a. vile raemak metdology) but
to acunt for the raid grwt an changes cutl beng expeen by Nevad's public
utlities usin a tet yea with histoncal costs can be chengin and ineffective.
In toda's envinmnt, tiely ras captu new:invesens and opering cost ar
an import sour of grwt-related reenue for the utiit. The new reenue also alows for
. an imprved capita stctue and lowe cata costs. Witout revenue tht matche the co of
providi servces, Nevad's utilities wi reui lare amountS of debt and equi fi~cigs to
build the necessa infrasctu to sece its grwt. Ths ficing reults in cumer rates
tht ar much higher due to higher capita co A ficialy stng public utlity with
investen gre crdit is in,the be inrets ofèusomer and will ultiately lower a
custnier's rates over the life of the new invesents coed to a utilit with weak credt
ratings.
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m. MEOD USED BY COMMSSION TO GATHER COMMS AND DATA
SB 238 dird th Commssion to conduct its invesgaton with the help of inreed
paries, including the Reguator Operations Staff of the Commission ("Sta'). the Consumer's
Advocate an the Bureau of Conser Protecton in the Ofce of th Ättrny Geer ("Bep").
each public utity opeg in Nevad an all other intested persons. On Aug 26, 200S,
th Prsiding Offcer commenc the investgation by reueg comment fr intersted
paes to be fied by Octobe 31, 2005. The Commssion received and reiewed comments fr
the followLg: jointly fi Siera Pacfic Power Copany and Nevada Power Compay ("the
Companes"); Veri; Utities, Inc.; Sprit; Southwet ~ Corration (''SWG;; Souther
Nevad Water Autrity (''SNWA''); Newmont Ming Corpraton ("Newont;; AT&T;
Nevada Rur ILECs; Sta an the Bep (collectively referr to herein as "the Commeniors").
1b Commentors provided the Commssion with sustion for alterntive rateking
metdologies an provided inormon on methodlogies us in other jursdictions.
Basd .on these íitíaI commen, the Commission was able to develop severa altetive
ratemaking metodlogies for disussion by the ConeniS. On Deber 15, 2005, the
Cossion issued a second reuest for comments and Notice of Workshp, scheuled for
Febru 7 ~ 20~6, tò. discus these altetives. The Comssion reeived an reviewed
comments frm the second reues from the following Commentors: th Copanes; SWG;
SNW A; Newont; AT&T; Nevad Rur !LECs; Sta; and th Bep. At the workop, th
pares wer given an opportty to mae a short presentation of their commnts and to prvide
the Cossion with an other prosas not discusse in their writtn co~ens.
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IV. ALTERNATI RATEMG METHODOLOGIES USED IN OTH JUDICTIONS
May of the Coentors refernce a sty releaed by the National Assoiaton of
Regator Utlity Commssionrs ("NARUC") in 199-1995.1 The sty showed that
approximately 24 pent of jursdíet~ns indicaed tht they us fuy forecased test year. In
the West. Calorna, Orgon and Uta utiiz either a fuly forecasd òr a 12-montb foreas test
yea. Caiforna utliz a fuly forecas te yea for both electc and gas utilities. Historic
. data is filed and then upate as much as possible. Oregon,allows al utlities the option of usng
èither a fu or historic test yea. Uta allows its gas and electrc utlities to choose eiter a
:lly forecas test period or some combinon of histal and fu month in the test
peri utilizin a 12-month foreast. (See Attchment 1). .
V. ALTERNATI RATEMAKIG METIODOLOOIE TO HITORICAL TEST YE
As dicusd above, the Commision identified seera distct altetive mtemang
metodologies. The metologies differ frm one anothr in how thy inorp cost levels
from a speified peod intt! rates th the rateng prce. The Commssion chose th
of these options and asked th Commentos to addess the merits of each. The firs option .
t'Option 1") utilies a fully forecaed futue te yea based on esat and for~ which .
may or may no be baed on a hiorical te year. Th secnd option ("Option 2") is a hybrd
approah that begins with the historica condition and then, afer the applicaon has been fi1ed.
maks adjustmnts for all reasonably knwn and meable data uiugh the rate effecive
period, which is dat tht is not fuy l'orded on th utility's books and recs when the
. histca tes year ends, such as new investents and e~nse chges. The thd opton
'("Opon 3") also begins with histrical condtions but is more restctive th Option 2 bee
it does not ext~d into th rate effective period For eah of thes options the "period rats ar
in effec" is defined as the first ye fates go into effec For example for rate effective on
Janua l, 2006. the "peod rate are in effect" is defined as Janua 1. 2006 though Decembe
31,2006. Eah of thse oJ!tions is discuse in det below.
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i This stdy ba not be up by NARUC since i 994- i 995.
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a. Option i - Fyt te year with all elemts fuly forecated to reflec th "perod
rates ar in effect"
A fue test yea can be based on the most recent l2-month lustorica da with
adjustments tlt esmate and fuy forecas the cost of serce to reflec the period rates are in
effect) or the enti fue test year ca be bad solely on estmate and fores. Regardless of
its bais using a futu test yea would be the most effve met to accoui for the impacts
that rapid intrct and loa gr ca impose on a utlity and its cusomer. But it is no
without controvery. It is contveral be the us of esmated an forected da is not
base on actu, verfiable, audiiable inrmaton. Instea. it is copr of somees
subjective esmates and foreas of fu billg detennts, revenues, expenses an rate
bas. Becuse thse estmaes and foreas may be subectve, they may yield the lea accurte
reults in term of uneanable raes, whicb ca be eith too high or to low. For intae,
paries to a mtemg proce have a vest intest to keep ra as high or low as possble.
The closer the cost of sece ar to actu verifiable costs the less biased rat will be.
There ar, howeve, sever advatages to us a fuy foreased futue test ye verus
a historica test year. The fi is collec the exectd costs of servce in rate improves the
ficial position of the utlity, thus lower its caita costs. Utilizng a fuly forecasted futu
te year also improves the utility's revenue poion, which is an import sour of growt
related reene for the utty. Anoter is economic effcien:2 when utity rate reflect the
costs of sece tht ar expeted to occur duing th peod rate ar in efect, conser wil
more effciently choose how to use the utlity's servces, Le., thugh the purha of energy-
effcient appliances, thugh the puhae of products and serce tht promote energy
conseation, or by using less energy'(e.g., twg down th therostat).
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i..i Consstnt wi pnnciples of ecnomic effcien, price (i.e. ras), shod reflect cm costs insofa as
poible. a.tomcr shou.d reeive a "corr pnce sigal an thos who cause cost to be ÛWed will be
reiiponsìble for paying for them. Paing for costs on a cut bais helps to keep raes predictale and avoids fu
rate shocs when "catch uJl" payments would otherse ne to be made.
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b. Opton 2 - Hybrid te period that sta with the most recet 12~inonth hiorca data
and in. whch al major ra cas elements ar adjust for "reasona\?1I known aad
~blen3 data to reflt th period Ates ar, in eff
Ths metod is refer to as a hybrd test peod bese it is a combintion of hitorica
data an estatd data Ths is an extrely effective meod to acunt for the imp~ th
rapid incte and load grwt ca impose on a utiity and its customer. The hybrd test
peod may be just as effective as a fuly foreas futu test year. The hybrid te period sts
with the most rece 12.mont historical data and adjusts it for "rasnably known æi
meaurleu data to reflect the peod rates are in efect. Ágai ifunt cost ar reasnaly
constat, the us of a historica test yea is a viable rateak methodology. However, in
peods of rapid grwt, modifcations to the hitorica test. year ca enhce its vibility mor
effecively th using a fully for~ futue test year. The desre to us the most recet 12-
mont histrica data and to alow th utility a reasble apportty to collec its curt costs
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of seice ca be aoomplishd by adjusng the historica data wi reasonbly known and
meale ne investments and expe changes.
Reasnably knwn and meable rae bas adtions an expens chages ar more
defendable th foreass and ca be more easily calculated than resortng to th forca usd
in a fu forecd fu test yea bec they are tyicåy bad on actl auitale data.
For example, revenue requiment impts of major rae base additions, which ar alost
completed whn the historiea test yea ends but are not sceduled for commercial operation iml
the ra effective perod ar easy to esate. Certn expens chages, such as anua union pay
incrses alady approved in a contract but not scheduled to go into effect unti the rate efective
penod, can be caculated with mima controver. Bot of thse examples reuc the chae
of regutory lag and eargs shortalls.
The hybrd test perod accomplishes many of th positive thngs the fuly foreted
fu tet period does, i.e., mathing curt revenues with load growt to imve fmacia
position, which lowe capita costs withut reverg to totaly subjectve estmates.
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L "Rnably kIwn and measle" da is da that is not fuly rerd on the utiity's books an recrd when
the historica te yea ends. Therefor "reanably kn and memalc" data, although mosly actu, doesinclude minimal estimats. .
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c. Option 3 - Hybrd tes period that st with the mos rent 12-month historical da
and in which all major rate cas elements ar adiusted for "reasonably known an
meaurble" data up to 1-month afr the generl rate cas filing da
Ths hybrd tes period st with the most reent i 2-month histrical data and adjus it
for "reanably known and meaabletl data up to 7-month afer the genera rate case's filing
date. Ths metod is the similar to Option 2, but it is more restctve because the adjustments to
th historica te ye do not exten in the rate effecve period. As in Option 2. reaonaly
know atd meaable events reflect act recorded costs plus minor estmat. Ths method
reflects the same chages 1he Legislat mae to NR 704.110(4) by SB 238 for ga utlities. It,
may nol, howevr, go fa enough in reflectg the co of sece into the rate efftive peod
since it is limted to seven month beyond th rat ca fiUng date. Therefore, its drawback is
tht reenue could be lower th reui reucin th source of grwt relate reenue for the
utlity an impacng the utlity's finacia position, thus lea to hir capita cots and
highr rate for the utility's cumers.
d.Commsion's Remmenon: Opon 2. Hybrid Tes Perod
Aftr anyzng all the opns and carfuly reewig th comments received frm
interesd paes, the Commssion believs th Opton 2, the hybrid tes peod, would most
acuratly refleçt costs of serce wh detemJlng general rates in times of rapid grwt
However. the Commision shoul not be limited to on metlogy when facd with a genera
rate case. The mai concern of the Commssion is that cost of service shuld reflect the cost
incu durg the peod rates ar in effec. Whle the hybrid met may provide the most
accurte reflection of costs in peods of rapid growt the historica ramak methodology is
stll th prfeed choice when unt cost ar renably consant. Therefore, th Conuission
believes th the hybrid tet peod showd be added as an alterntive to the hisorica rateakg
methodology, and the Commssion should be able to choos whicbmethology is the most
apprpriat when consdeg a gener rate application frm a public utilit.
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Vi. DISCUSSION OF 1l ALTEATIVE RA TEMAG METHODOLOGIE
SB 238, section 7(2), dircted the Coission to addrs the followig area with respet to
eah alteative ramang metodology: (l) the mte impac on cutomers an wheter the
metodology would resut in raes tht more accurtely reflect the costs of providing service to
those cusomers; (2) the cost effectivenss of using the methodology; (3) the fiscal impa on
sta an local agencies; (4) the procedures and mechasms necessa to implement the
metodology; and (5) any other related matt that the Commission de apprpnat. The
Commssion intrd th Commen to ads thes issues in their wrtten comments. Eah
of these aras is discuss in de below.
a. The rat impact on customer and wheter the methodolo¡ would reult in ras that
mgre accurtely reflect th cos of providig serce
Most Commento agree th in gene, any rama methodlogy tht allows the
utlity to upe major cost of servce (plan revenues, operatig and capit expees) beyond
the histncal tes year would, bý design, result in rates th mor accutely reflect the costs of
prviding ser as compa to a stct historica tes year with mi adjusnts allowed
for chages tht occur subsequent to the tes penod. Ths is p$cuarIy tre in times of swy
chaging conditions, i.e. high infltion, raid custmer and inasct grwt when histrica
data genraly is not reretative offu rets. Th hybrd tet perod would prvide for
reasnably kno~ and meaurle adjustments to test yea histrical co for chanes that
would occur thughout th period rats ar in effect. This would signficatly reduc reguatory
lag and produce rates which generally would be more refl~tive of cots tht will be inurd
durng the e1fective rate perod. Either the fuly forecd test peod or the hybrid test penod
will be 1he most likely raema alterntives to produce rates tht will allow rever of the
costs th would be inc durg the period rats are in efect.
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It is not possible to qutify wi preision what, if any, rae im ther will be on
cusmers when comparng and contrasg the thee opns, sice the facts and cirstce
ar differnt depenng on the test perod imer considetion when a utility files for a chage in
gen rates. The elements of the cost of servce ar constantly chaging. Commentois noted
tht in Nevad at leas for the las several yeas, signcant growt ha caued co to stadily
incre as utiities insta facilties to sere Dew custmer and th increaed inctu
nees to continue to prvide sae and reliale sece to exist cusme. On the oth
ha. there may be inst wh a utility is about to implemen a new syste or operating
procedur th wi have a signfican positive impac ori the utilitys pructvity. By usg a
ratemng methodology that considers changes beyond the trtional histcal test yea, these
proect and other impaced ratemakng elements whch benefit customers thug lower costs,
wod be considere as wen.
In a trition to a ratemakg metology tht more acctely matche rae recover
to cost incurd, the Commentor state th ther may intíy be an upwa imact on raes to
cutomers Th should only occu in th fi trantion to the alterve methodology.
Thereafr, once a reguar rate case cycle and methodology'aI eslish~ rates should not
chan any mor or less from ca to ca th they would under th exstig methdology. but
rates and costs would be more acctey matched.
In looking at whether sttes with hybnd tes periods have rae levels apreiably differ
from states with Wstorical te year, there wa no appaent corlaton; ras in difert states
appea to depnd far more on intern fators th on test yea st.
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b. The cost effectiveness of the metodology
The Commentors agre th geneal rae cas alternves tht rely more on mstorica data
rather than foreased inrmaton ar less expenive and easier for utlities to prare ~d for all
paes to litiga, at least iniàlly. However, the difernce in cost of preg and prcessing
a general rae case, under an of the four meodologies, would be mini. Ther would be
trsition costs associatd with the intrduction of a new or alteratve rateakg methodology.
For exaple, the utility mus develop a new gener rate cae model, as well as the relatd
testimony to suppo it. Intervening pares, including Sta may also have some cost relate to
time spent to reew and/or revise metods they employ to evaluate the utilit's fuing, for
additiona irn& OJ th may underte to develop and employ new analytca teques.
The initial invesent would not be recur and may not be signficant.
The prar differnce between the th altetive ramang methodologies, an the
exiing ratemng metodology, is the tie period th utility is allowe to consider beo~d the
hiorica test yea. Comment agre tht it mak'ver litte dierence, in ters of inc
cost or time, whetr the alowable updated period is five month, seve months, twelve month
or encompases a fully-foreased test perod. Eah alterative, regardless of th adjustmnts
allowe to updae the mstorical test year, wil be fuly litiga by th pares involved. As noted
ealier, the use of a rateng methodolog that more accurtely mahes reenu recovery
with cost incurnce wi le to long-te benefits for all pares to th raemakin process.
Inert in those benefits is increased effciency and efecvenes in th us of sc utlity, the
BCP, and Commission resur.
c. The fisc impact on stae and local agcies
The Conuentors state there would be litte, if any, fiscal impa on state and loc
agencies on an ongoing basis, regardless of which of the Uieè altertive rateng
metodlogies is adopted. Althoug there could be some mior one-time "leang cue" an
adstrative proeeg costs in transitionig to any new rang methodology.
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d. Th procedur and mechaims neCessa to imement the methodologies
, Implementation of any of the above-mentioned alterntive r.ateakg methodologies
will necessaly increa the level of complexity of rate cae proeedings. However, it is helpfu
that many of th chages neèded to implemet the proosa ar not entirely new. Commsson
Sta the BCP and th Commento ar familar with forecastg techniques and widerlyin data
which the Commssion ha relied upn to make deisions. For example, resour plag is
aly based upon forecased reurce options, loads an capita costs. Energy suly plans ar
develope with the us offorctc inormon. Ccr raes' for exple gas and electrc
utilities' ba taff energ rate ("BTE") ar aly caculated using forecaste saes, fuel and
power price.
The Commentors st it is highy derable to set grund rues at the outet regag
aceptable paameter for a new alternve to the historical test year to enur that rae
proceedigs ar not deraied by dispute over tehnques and method. Adjusent mechas
to reign mtes an co as nee could also sere to ameliora concern over th prsion of
foreas co and needed utilty renue. It is esseial to esblish gener agent on
these proes and on accepble levels of precision before the fact in order to aver
contentitmess dug the trition rae cass. In adition, clear gudelins shuld reuce the
costs of these proceed to all concered. The new pr shoud be adsed by the
Commsson in a futu ruemg, where the Commssion ca ado, amend, or reea
reguations.
Whle ther is an expetion that eliminng the lag betwen cost causaton an
collecton will íitialy lead to higher ras, the data are inconclusive regarg rate levels in
futu test year States compa with historica test yea State. Over time, it should be expected
tht there will be an intial bump in rates durng th "catc up" phas followed by a decline from
what rates would othere be as fiancial maet respond 10 the more favorabl~ less risky
regutory environment by reucing costs of caitaL.
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e. Any other matter th paes de awriate
The Commeitors addrsed seve ar of conce t1ughout this investigatory docket
tht should be invesgad by the Commsion if the Legislatu adopt an alteative
ratemak metodo1ogý. Firt, severa Commentor suggèste tht a public utity should be
permitted to us ra indexing wherby a public utit co~d make periodic adjustents to ras
basd on an approp~e cost in~ex. Secn~ one Commento'proposed that a tr-up prss
'should be adopted. which would requ a public utility to update renably known and
meaurable adusents afer they becom act. Thrd, the filing reuirmets for genera rate
caes would nee to be modfied to provide th Commssion with gudace in detennnìg wha
data ca be identified as reonably known an measble. Finy, Commenrs we
concerned that rate of ret regulation ha becoe antiqua for competitive
telecomuncaions carers and shOuld be modified so th it enompases the priple that
compeon seres consmers bett th region. These conces ar more fulý desbe
below.
i. Ra Inde
Severa Commentors reommened tha th Commission should adpt a ra inx.
syste wlüch allows a public utility to make periodc adjutments to rates bas on an
apppnate cost index, suh as th effeçts of ination and effciency gai on opetig and .
maintece expens. Ra indexing is usfu whe bas rates ar se, ever two~yea sinc it
keeps the cost of serVce curent with the rat effectve peod.4 Ths would reui a.mimn
of admsttive efort on behalf of th Commssion Sta to ovee. An adusent
m~hasm, combined with a foreased test year, whch bègis the day tht ra are e~pete to
become effective, would reult in a cost~effcient proces of setg rat that shod cll;sely
reflect the ac cost of seng customers.
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4 Puua to NRS 704_ i 10(3), an electrc utlit mus file a general rae applicaon at least evry 24 month, The
Comission has drft a Bil Draft Request tht would requir a public uti1it which piuhaes Dlltul gas for
real to file a general rae applicaion ever 36 month. (Soo Atthment 2).
13
ii. TruUp Prces
Anothr proposal by one oftbe Commentors would reui a public utity to update
reably known and meaable adjusents afer they becme ac. However, by adopti
ths proposal, th Commssion would be faced with a signficant increas in the administtive
effon require to prepare an process a genem rate cae. The efrt involved in prearg a full
se oftr-up schedules, wor pape an testiony would be the ne equivalentofñli an
entily new general rate Cas. In addition, Sta and othr Commentors would have to dedicate
signfica resources to analyze ths "tr-up" inormtion. Th Compaes support ths
process, but SWG does not.
ii. Filng Requiments
One Commtor suggesd th pnor to the time an' altetive ratemakg methodology
is available to th utlities. the gener ra1e cas fiing reuits, as se for in NRS 704. i 10
and NAC 703.2201 thugh 703.2452, should be reviewed and modified. Th curnt. .
requiments do not addrs the issue of wh documnts would need to be. filed in order for the
Commsion to make a deterion of wh ca be defied as renaly known an
measuble data, nor do they addss th procedur and mechaisms the Commission would be
reui to utiiz to mae this detenninaton. Ths review and modficaon should al include
th maer data request. The curent filing requint may not be ently' suitable or
appoprate for an altetive or new ratemakng methodology.
iv. Telecmmuncation Caer: Non-Rw Inbe Loca Exchan Compaes
A new apach is neede to Commssion reon of rateakg th bales th
inst of consumer an th reguat caer but at th sae ti is more effcient an. '
retlve of a competive malac. Trational rae ca for large telecommuncations
caner have become relics of the pa. Only five stes stll ra ree all incumbet loca
exchange caers usng tritional raf.f-re reguatin. Most of~e states w includg
Nevada. have adopte some form of prce cap reguation. Ra cas ar not praccal for
lage integrated telecommuncaons companes prvidi servces and prouc in a
competitive marketplae.
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Today, in Nev there are tw telecommuncaons compancs th were reently
formed as the resu of merge. The merger be AT&T and sac Nevad fonIed AT&T
Nevada. The merger between Sprt and Nextl formed Emba. Nevada telecommunications
companes, along wi their afiat, make and provide .~ona voice serce, as well as,
hi sped dat serce, voite mal, custm calig feaes, dial-up Internet access DSL
sece inside wig, satellte TV progrg, Centr, cusomer prems equipment,
PBXs, key sysems, 911 and Enced 911 serces, public phone intr and intee
long dist servces, Caller-ID, cal ceer management; voice over inert prtocol
("V olP"), wiless telephone serve, WI inteet acs, two-way paging, instt wireless
messag servces. alan an line monitori an privat netrks. Whle a few of thes
seices ar stil subject to tron ra reguation, the prts and most of the services
have ben deemed "competitivett or "degute" and thfore are no longer subject to ra
reguaton Attmptig to alloc the cost of telephone compay equipment and persnnel
th prvide ths wide varety of proucts and seces betee regute versu unguate is
inreasgly more cómplex, arbitr and uncessa. .
Probably the mai disade with rate of retU reguation, in the increasingly
complex telecommuncations indu which provides mulle reguated an uneguatd
serces over one join netork, is th setng cos-bas prces is incrgly time-
cODSng and aritrar.
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The presnc of comp.etition fuer wideres the~ effectiveness of trtiona rate-of-
retu reon. Loc telephone servce is no longer a "natal monopoly" - ther ar
compeitor. Under the Telecommwicaons Act of 1996 ("Telecm Act"), competive loc
exchae caer ("CLECsIJ) ca offer serces 1ht diretly compet with the incwbent loc
ex~Ge caer ("iLECs"). As of th end of200, the FCC esated th CLECs provide
18.5% of th swtched ac lines. Even with the recent changes reardi the aVaabilty of
Unbundled Netork Elements ("UN") adoptd by the FCC in th Trienal Review
procegs; CLECs stll have acs to th ILECs local loop plat to prvie a competive
alteatve to its services. In adtion to being entled to cost-ba UNs, CLECs ar also
entitled to resell th telecommuncatons seice's of the ILEe at a substtial dioun. CLECs
in Nevad ar not subjec. to rate reguation. in fac. Nevad (along with the other stes)
prvides the CLEs with th grtest flexbility, even when compared to stas tht do not
review CLECs' rate. Competive caer in thes four sttes ar not reui to fie taff or
provie notificaon of chages and the rate chaes ar not normly reviewe by thir
respective state commssons.
Th COßlsson encourages the Legilat to adopt a new frewok for
telecommuncaton bas on the prciple th competon sees consuers bett fu
reguation. Ths frework can incorporate a "safet net" to ense that basic telepone servce
rens aforble and available to reidets thugut Nev~ by requi the contue
availabilty of both Lifeli sece and a basc servce offring whch can be surtd by
unver serice fidi. Ths apoac stres an approprie ba b~en t1e need for a
saety pe and the existe of competion. hi addtion, it acknwleges tht one si doe no
fit al whcm it comes to local exchmie caers. By th tie th 2007 Leslatu adses
ths proposa. it wil be ver ,appriate to relae PAR regulation with a frework that
acknowledges the ne competitive maetplace whe contui to as the avaiabity of
Lifeline sece.
The telecommuicaons maket cotiues to be reviewe ver closely at the federa
level and as a result dereguaton may oc at the fedra level before states have tie to
efectively put dergulation in plac.
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The Commsson regnize that telecommuncatin,ns wil1contiue to chage in ways
that are drven more by consumr demand th regulaton. The Commssion also reognzes
tht Sta reguation of th telecom indust may need to be fur liberaiz in light of
techology, markets and coumer demand. The Commssion stds ready to assis the: 2007
Legislate in any effort to review an~ updat Nevada telecommuncations law.
VII. COMMISSION RECOMMEDATIONS
.
The Commission reomends the hybrid te peod for its energ utities th st with
the most recent 12-month hitorial da and adjust al major co of seice elemens for
renably known and measble da though the rate effecve perod. The Commssion
believes th hybrd test peod ha more advantaes than either the fuly forecd metodology
i
or the more restctve hybrid methodology, whch adju~ for 7-month of da to succly
deal with unreceted inasctu and load grwt, chagig use charterstcs, changi
tehnologies and changing wholesale maket stctu, which ar be imposed on Nevad's
energy utilities and thei cumers. At the same tie, this hybnd approah leveres the
existi ratemakng metodology, providing consers regued utlities an th reguatry
communty with mor consisenc th th fuly forecate test year methdology.
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I.
Th hybrid approac ha an advange over the fuly forecasted methodology becaus it
st with the 12-month historica test year and adjusts it with reanably known and meaable
data which is base on specifc events whose cost ar veriable an easily esmate ino the
rate effective period, rather th relying on adjusents tht ar unfiable an baed pury on
foreast. It ha the advantae over the more restctive hybrid appoac since it adjusts the 12-
month mstorica te year thugh the rae effectve peod rater th to a point in tie before
rates become effective. As a result, ths hybrid metodology would prouce rates th would
better reflect the actu costs of servce that ar expctd to be inurd dwng the period rats
ar in effect thus improving accy and redcig reguatory lag. Reflecng the act costs of
servce in rates would also sen an economically correct prcing sig thus helping cusmers to
effciently choose how to us th utitrs serces. le. thugh th purase of ener-effcient
applianc~ th~gh th purha of prduc and servces th promote ene conson, or
by using less energy (tug down the thermostt). Finaly, reflectg curnt cost ofserce in
. ra would improve the ficial position of th utilty thus lowering its cost of cait and
imrovi its soure of grwt related revenues to buld its inctu and load.
The Cosion agrees with the Commnto that it is highy desirable to set growid, .
rues at the out regaring aceptable paeters for a new alternatve to th histoca te year
to ~e tht ra proceedigs ar not deraled by disputes over technques and method. It is
essntial to eslish genera agrent on thes proceses an on acptable levels of presion
before the fact in orde to ave contentiousness durg the transition rat cass. In adition,
clear gudelines should reuc th cost of thse proceeng to al conceed Therefore, th
Comnssion believes tht if the hybrid appoa is autoried by th Legislatue, th new
proceurs would be address by the Comssion in a fu nilemaIg.
The comments regadig rate indexig an tre-up processes are ,very helpful to the
Commission. The Commission, however; believes that ¡fthe hybrd approach is adpted,
coupled with the development of the approprite procedurs dug a rulemakng plu a fuly
litigate rate case fied by the utiity will be suffcient. The Commssion also remmend th
the Legislatu review an update Nevada telecommuncátins law. .
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VII. PROPOSED LEGISLATION TO AUTORIE AN ALTERNATIVE RATEMAKlO
METIOOOLOGY: mE HYBRID TEST. PEROD
.
The Commssion ha draed a Bil Draf Rees ("BDR~') encompassing the elements
necessar to implement the hybrid te perod as an alteve raemng methodlogy. (See
Atthment 3). As discussed above, the main conce of the Commission is tht costs of sece
should reflect the costs incud ~urg the perod rate ar in effec. The hybrid te period
provides the most accW'te reecon of costs in perods of rapid grwt, but the histrica
ratemakg metodology is prefeed when unt costs ar rèanably constt. Thus, the
Commsion reconds th the Legislatue adpt the hybrid tet peod as an alertive to the
lustcal raemakg methodolog, but leave the Commssion with the option to choose whch
methodology is the mos apprpriate when consder a general rate applicaton frm a public
utilit.
The language used in the BDR pennits a public utility to elec to use the hybrd
methodology, but if the public utlity so elects, it will need to provide the Commission with 1he
12pmonth mstonca1 da as well as with data reflecng all expete chges in circumces
whch ar reasonably known an meaurble and which ar reasonably fore to becoe
effective during the rate effective period. The Commisson ca then deine whch
metodology, eith the histrica metodlogy or the hybrid metodology, most acely
reflects the costs of service th ar expectd to be incur dug the perod rates ar in effect.
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... ".
ATTACHMENT 1
20
..TYPE OF TES YER USED IN DETERMNIG RATE ELECfC AN GAS
UTLITIES
AGENCY TEST YE USED IN DEIERMINING RATE
ELECTC GAS
FERC ForectIisto 11/Historic 6/ALAMPSC 211 Historic 11 141 Historic 11 141
ALSKA PUC Historic HistoARONACCHistricHitocARKSAS PSC HisricllU Forcat.Historic/P ForecaCALORN PU Fu Foreast Full Forst
COLORAO PUC Hiric 121 Histoc 121
CONNCTICUT DPUC Forec HistoricIoret 11DELWAR PSC HistcIorct 31 HistricIorell 3/
DCPSC Historar Fore Histric: ForFWRIAPSCHistojecedHisrlcljec
GEORGlAPSC Ful Forecat HirorlcIai Forcat 41
HAUAlIPUC Full Forcast Full Forect
IDAHO PUC Histoar Foret 51 HicIar Forcat 51
ILINOISCC HisorelCUlCItl Historcut/fuINIAAURCHisoricHistor
ioWAUB Hisc HiorKAASSCCHisic7/Hisc
KEIDCKY PSC Hisicorec 17/19/HisricIort 17/191
LOUISIANA PSC Hisic Hisorc
MA PUC Hiric 121 Historc 121
MARYLD PSC Histocl Forect 17/Hisic Forecast 17/
. MASACHSETTS DPU Historic JI Histork II
MICmGAN PSC Ful Forast (lage)/istric (smal)81 same 8/MITA PUC FuU Fort (I8lge)/istonc (sm)81 same 81
MISSISSIPPI PSC Full Forc Full Forecaisoric
MISSURI PSC Histric Hisoric
MONTANAPSC Historic Hioric
NEBRASKA PS PSC ha DO jursdiction over en utilites
NEVADA PUC Historc 131 Historic 13/
NEW HAMPSHI PUC Histric Historic
NEW JERSEY BPU 21/Par Forcas 4/Paial Forecast 4/¡
NEW MEiCO PUC Hitoric Histic or Foret I.
INEYORKPSCFull Foreca (lare)Iistie (smal)8/same 81 rNORTH CAROUNA UC Histric 17/Historc 11/i
NORTH DAKOTA PSC Par or Full Foret 9/Par or Full Fore 91 i
OHIO PUC Pa Forecastlistoric 101 Par Forcaistoric 101
IOKLAHOMCcHistoriWIHistorc201¡
OREN PUC FuU Forecistolc Full Fortlistnc IPENSYLVANA PUC Full Forcct (.lc)/Hisric (sml)81 sa 81
I
RHODE ISLAN PUC Historic & For Histori & Foreca 11
BOur CAROLINA PSC Hitoric 171 Historic 17/i
iSOUl DAKOTA PUC Hioric Hitoric
l.
TENNSEE PSC Historic & Forec Hitori & Forec
TEXA PUC TEXAS RC Hisoric Does not regulate.
UTAHPSC Hisorc/J2-mo forca Hiorc!J2-mo forecast i
VEONTPSB 21/Histric Historic
VIGINA SCC Historic wI pro fo~ adjs Historc wI pr fon adjs
21
WASHGTON UTe
WET VIGI PSC
WISCONSIN PSC
WYOMIGPSC
VIRGIN ISLANDS PSC
ALBERTAEUB
NOVA SCOT DAR
ONTARO EB 211
QUEECNGB
HistricHistric 121Full Fort Oare)lc (small) 8/Histri
. Histc
Fu Forecast 151
Fu ForastFul Fore 21
Does not relate
Histoc
Histricsac
Hitoic
none in juriscton
Full. Forecas
none ùi jursdic
Full Foreças
Full Foreçii
121
81
FOTNOTE - TYE OF TEST YE USED IN DETRMING RATES
li Histic tet year is requim to be nonalii thus reovig or ave any ODusua Occuences and updatin
informon for known an measble cbans. Cossion is investigatin use of focastd te period;
compaies ma fi futu test pe iithoug form guidelin or regulans have not yet been add
2/ For Onio Hydr's bu power ra, Power Corpraion Ace presuPpoes fuI for year.
31 Test yea must be histric. Tes period used in dein ra ça be hfsonc or prjec, but DO more than
nine months prjecd.
41 Often when parial forost is filed it Is up to ac by tlc time case is taken uner iiemei therbybein hiric te yea. .
51 CoissloD normy use bisoric tet yea wi 12-monUl avee rae ba bu lu de fr this in
seer rate cases by apving use of paal or ful for tet ye in approprte cicumnces.61 Generly, ra iises are bas on 12-month hisorc dat endi not mor th four mont prior to filin
da and aQjusd fo known chis within nine month afr the la mont of actul exriene.
7/ Geerally use Histic Tes Year, although ful forca test year used in a recnt case. Geneal Inadequate
utility budgg proedus prevt Commision from actely tesag prjecd data
81 Maj çompanes us full foret; smller utilties permtted to use'historic tes yea.
91 Histc test year da mus be submed as suplementa infonnIon. Telehone not subjec to ra of re
reguaton.
) 01 Use ofbitoric or paal foreas test year is permtt prided tlt the te yea ends.no mor th ni months
subsqut to the date of th filig of the application for an incre in rate and no less th Oi mo1h ()f actlda js us.
111 Major elecc ra Incrase ar baed on fore 12-monthte perd data Ot increas may be ba on
receot hioric dat. .
121 Coission normy uses historic te yea, bu has allowed paally or fuly ford tes ye on Illiite
bais.
. 131 Historic test yea wit six-mon upd subequent-eens and caital itms must be exerence and
cefied. Revenue, siiar expene, depration exp, and Feder Inco Taxes ar anuali.
141 New rae cocept prebe for Alaba Power Co. (elecic) and Alabam Gas Cor. Sée Alaba Gas Cor.
Settlement. Docket Nos. 1804 an i 8328, Alab Powe Co. Setmen Nos. 18117 and 184 16.
Unde the EleCc Enegy Marketin Act, the price at which elecc energy is sold by the thee uties to the
Albrta Eleet Energy Marketing Agency is se on a Full Forect basis. Th prce Is inbjec to retroactve
adjustment on a Hisc te yea basis. Puose of the Agency is to averge wholesle elecic i:ates and roD bak to
the utti at a unfonn ra
Tes ye may be lustric or us up to 6 months projecte. Test year data ma be fuer adjused for known Il
measurle chges occur wi sucçeeding 12 month. '.
Historic Test ye Is requid to be nomializd, thus reovg or aveiÍlg any unusal occuce an upating
Infonnion for knwn and meaW'le chages.
181 Reguates gà pipeline caier an common çaer oil pipelines.
t 9/ Fored te ye pemiitt by 1992 legi, De regulations offecve 3/1213 estalish rues for fifore test ye applicatons .
1994 legiiaton req the CC to "give eftet to known and meale çJanges occurng or renaly çertn to
occur wi six months of the en of the te period upon which th rate revew is based."
21/ Coission did not n:iipond to request fo update infonation; this da may not be cut
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ATTACHMENT 2
23
BILL DRA REQUEST FOR 3.YEAR GAS RATE CYCLE
-
I
EXPA nON - Mane In IIIl is new maCT in stedgl emilk ma~ is maial to be omind.
704.Uß
. 3. If a public utlity fies with the Commission a gener rate application, the public utity shall
submit with its application a stteent showí the recordd results of revenues, exenes,
invesents and costs of capita for its most recnt 12 month for which data wer available
when the application was prep. Excet as otherwse pr.ovide in subsection 4, in dete
whether to approve Of disarove any incrd rates, the Commssion shall. consider evidence in
support of the increed rates bad upon actu recorded reults of operions for th sae 12
mon~ adjusd for incrased revenue, any incred investt in facilties, increased
expnses fo depreciaton, cer other opertig expes as approved by the Coission and
chages in the cost of secuties which are known and ar meable with renable accucy
at the tie of filing and whih will become effctve with 6 months afer the last mont of
those 12 mont but th public utility shall not pla into effect any incre ra unti the
chage have be exprienced and cefied by the public ut to the Commssion and the
Commssion has apprved th ind rates. The Commssion shal also consider evide
,supportg expens for depciation, caculat on an anua bais, applicale to major
components of the public utility's plant placed in sece dur the recrd tet period or the
peod for certification as set forth in the aplication Adjustments to reenues opeting
expenses and cots of securties must be caculate on an 'anua bass. With 90 days afr the
date on which the certificaon required by this subseon is filed with th Comon, or
with the peod se fort in subsection 2, whichever tie is longer, the Commion shl make
suh order in refeence 10 the increa rat as is requied by ths chater.
(a) An electc utili sha1 file a gener rate application puruat to this subsection at lea
once every 24 month ba on th followig schedule:
(1) An elecc utlity th priarly sees less denly populated couties shl fie a
genera rate application on or before October 3, 200,. and at leas once every 24 month
thereaer.
(2) An electrc utilty tht priary sees deely populated coties sha fue a genera
rate applicaton on or before November 15,2006, and at l~t once every 24 months ther.
(b) A public lIit whkh purcas natlUl gas for resale shall jie a general rate
applicatn punuant to this subsectn at leas once ~ery 36 nwnths based on the foUowing
schedule:
(1) A public utiit which purchlles liat gufor resale that prirlly serv less
densely populated countie shidl fle a genera ,ate applicaton on or before Nove 7, 2008,
and at least once every 36 months thereafter. .
(2) A pubüc util which purhas naural ga for resale that prirüy ser densely
populated countie shal jie a general rate apliaton on or before October 5, 1009, and #t
Ittast olle every 36 mont thereafer.
24
12
(e) 4lA public uti which purchtles natur gaslOf l'saletkat primariy ser less densely
popUUted COlltis'~ 1ifl the meoning tlcribed to it in NBS 704.185.
(ß t~ public util whkh purchases natural gas for resale that prillily seres densely
populated counti" hIl the meaning ascrib to it in NRS 704.185.
704.185
4. As used in this sectn:
(a) "A public util which purchlles iiat gll lor resale that prinily serv densely
populad counti" means a utlU that with red ro the provision o/puih(ling natural
gas for reale, deries more of it lIiiuøJ gross opratg reenue in this Stiite from cusromers
located in r:01lti whose populatin is 400,00 or more than It do from cusers located
in CQlinties whose popølon is les than 400,000.
(b) U A public util whic purchases natural gas for reale that primariy serv le densely
populated coun" means a util ti, wit rad to the provision ofpul'chasing natural
gas for resal, deriv more of it fR1Jual gross operatig rePIJue in this State from custom
locted in counie whose populatn is les than 400,000 than it doesfrom cusmers lowed
in counties whose populatio is 400,000 or more
i
I.
i
25
I.
i
I
,
ATTACHMNT 3
26 .
i
I
i
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I;
"
BILL DRA REQUEST FOR PROPOSED RATEMANG MEmOOOLOY
EXLAA nON - Ma in ita is nli in ii stgh eAll! Alatøl is IIrløl to be omitt
704.110
4. In addion to submitt the staent required purant to susection 3, a public utlity
whiel purs aatUf ga fer reale may submit wi its general rate aplicaion a stement
showig th effects. on an anuaiz bais. of al expeeted chages in cicumtaces. If such a
stment is filed. it must include all incrases and decreases in revenue and expns which may
() with 575 m-ys af th date on which its geiera rate application is fied with the
Coims$Ion if such expected chanes in cirstces are reonably known and ar
meaurable with reonable accuiy. If a public utlity submts su a statement, the public
utility ha the burden of prving that the expectd chges in cirstces set fort in the
staent ar renably known an ar measable with renable acurcy. If the
CommiSSion detennines that th public utility has met its buren of prof:
(a) The Commission shal consider th stement submitted purt to ths subtion and
evidece reevan to th sten in addition to th stat requid purant to subsecton 3
as evidençe in esblish just and renale ras for the public utiity; and
(b) The pubJic utity is not requid to fie with the Commssion the cefication tht would
otherse be requid pursut to subsction 3.
27
REQUEST NO. 23: Please update the estimated normalized power supply costs
for the test period using the updated future closing NYMEX pnces provided in
responses to Request Nos. 21 and 22 above, If it is not possible to update the
normalized power supply costs for the test period, please estimate the impact of the
change in NYMEX prices on normalized power supply costs for the test period.
RESPONSE TO REQUEST NO. 23: As it did in Response Nos. 21 and 22.
Idaho Power objects to the extent this Request is vague, ambiguous. imprecise, or
utilzes terms subject to multiple interpretations and are not properly defined or
explained for purposes of this Request. For instance, Idaho Power cannot ascertain if
this Request seeks one monthly report covering a future 12~month period, or 12 monthly
reports covering 12-month periods of futures. Notwithstanding and without waiving this
objection. Idaho Power used the assumptions stated in the previous responses,
Request Nos. 21 and 22, to respond to this Request. Idaho Power believes the single
index futures gas prices requested in Requests Nos. 21 and 22 are not representative
of a normal condition appropriate for ratemaking purposes, Rather, forward market
prices reflect current conditions in the near term and revert to normal some time in the
future. The gas price forecast Idaho Power develops for its Test Year looks at multiple
years and multiple indices in an attempt to normalize any changes that may occur in the
short term market. History shows that natural gas prices are volatile and can change
dramatically based on short term changes in the economy, especially when relying on a
single price index, While the Company does not believe the requested data is relevant
in this case, attached are two spreadsheets that detail the Net Power Supply Expenses
of using these NYMEX prices.
IDAHO POWER COMPANY'S RESPONSE TO MICRON TECHNOLOGY,
INC.'S FIRST SET OF DISCOVERY REQUESTS TO IDAI-IO POWER COMPANY. 25
Exhibit No. 704
Case NO.IPC.E.08.10
Peseau, Micron
Page 1 of3
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Idaho Power Company
O&M Exns Adjusted by Compound Gro Rates
Ex.pense 2007 Actl
Steam Operation Expnse 18,979,077
Steam Maintenance Expense 29,479.799
IPCPropo
20,333,96
31,584.657
IPC
Increas
1,354,89
2,104.858
IPC
Percent
7.14%
7.14%
Max
Increase
02%Adjustment
Hydro Operaion Expense 24,394,953 26.353,868 1,958,915 8.03%
Hydro Maintenance Expense 8,551,183 9,237.843 686,660 803%
oth Power Operation 1,188,339 1,328,087 139.748 11.76%
oth Power Maintenance 008,885 1,015,770 100,885 1176%
Load control 77,489 86,802 9,113 11.76%
Other Expenses 2,400,000 2,739,193 288,233 11.76%
Transmission 08.M 18,188,474 16,832,775 844,301 3.98%
DIstribution O&M 44,601,780 44,913,992 312,212 0.70%
Customer Accounts 16,005,846 16,075,185 9,539 0.06%
Customer Service 9,607,619 9,613,384 5,765 000%
Admin 8. General 89,376,659 97,787,203 8,410,54 9A1%
Total 261.870,863 217,002,528 16,031,665 6.12%5,237,417 (10,794.248)
Exhibit No. 705
D. reseau, Micron
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9
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3
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9
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36
,
8
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66
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3
5
2
18
,
1
4
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4
8
26
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1
9
5
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5
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1
48
EA
N
I
N
G
S
D
E
F
I
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N
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40
,
7
6
1
,
0
9
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11
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2
7
3
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9
5
5
73
3
,
4
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52
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4
6
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9
4
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6
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3,0
4
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7
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0
6
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8
49 50
RE
V
U
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R
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T
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51
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67
3
,
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6
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5
4
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31
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0
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70
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77
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52 53
RE
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T
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(
%
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40
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6
3
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54 55
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74
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33
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52
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75
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56
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57
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58 59
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60
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9 10
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51
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52
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11 12
R
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14 15
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16 17
T
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18 19
T
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80
9
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8
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20 21
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26 27
T
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(9
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29 30
T
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31 32
T
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13
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AD
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36 37
R
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39
A
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53
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7
1
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57
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40 41
R
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42
R
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8.5
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43 44
R
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74
0
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0
9
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2
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8
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58
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63
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7
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8
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47
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44
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4
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4
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0
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5
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3
2
9
48
E
A
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N
G
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D
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F
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C
I
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N
C
Y
40
,
7
6
1
,
0
9
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(5
9
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4
5
5
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(5
7
1
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2
1
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35
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3
9
2
38
5
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1
6
8
32
7
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4
3
3
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2
4
6
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5
8
3
49 50
R
E
V
N
U
E
R
E
Q
U
I
R
E
M
E
N
T
F
O
R
R
A
T
E
D
E
S
I
G
N
51
T
O
T
A
L
I
D
A
H
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S
A
L
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S
R
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V
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N
U
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67
3
,
1
6
9
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5
4
0
96
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4
9
1
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3
1
4
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2
6
1
15
5
,
2
0
3
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8
2
8
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1
7
5
5,
0
1
8
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1
5
9
20
,
0
0
3
,
9
5
8
52 53
R
E
Q
U
E
S
T
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D
C
H
A
N
G
E
I
N
R
E
V
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(
%
)
9.
9
4
%
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0
.
1
0
%
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0
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5
3
%
37
.
4
4
%
10
.
8
5
%
10
.
7
1
%
10
.
2
3
%
54 55
S
A
L
E
S
R
E
V
N
U
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R
E
Q
U
I
R
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D
74
0
,
0
9
9
,
2
5
4
86
8
,
8
6
5
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3
7
6
,
3
3
2
21
3
,
3
1
6
6,
4
6
0
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6
2
2
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5
5
5
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8
0
4
22
,
0
5
0
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8
4
7
58
R
A
T
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O
F
R
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U
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N
A
T
R
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R
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8.
5
5
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79
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81 82
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83
SU
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44
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91
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18
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(A
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18
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($
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79
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3
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25
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26
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32
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54
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54
5
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54
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54
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57
1
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57
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2
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57
4
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9
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57
5
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R
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0
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58
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CU
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0
53
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58
3
UN
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8
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58
4
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56
6
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7
CU
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0
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9
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15
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T
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16
CU
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19
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20
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21
SU
B
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2M
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22
PL
A
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7
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23 24
TO
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2,0
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5
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8
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2
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6
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2
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25 26 27
RE
T
U
R
N
U
N
D
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P
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28
SA
L
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1
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3
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15
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29
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15
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2
1
5
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9
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30
TO
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A
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S
80
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31 32
OP
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A
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P
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33
OP
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A
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N
&
M
A
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N
T
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N
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N
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S
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PA
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3
C
52
2
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7
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2
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2
23
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2
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5
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7
10
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9
2
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7
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2
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9
7
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7
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9
10
9
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7
8
7
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3
0
72
6
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1
9
4
62
,
1
6
1
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9
1
3
64
,
2
3
0
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2
6
7
34
DE
P
R
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C
I
A
T
I
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N
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X
P
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S
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PA
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3D
91
,
3
4
4
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9
42
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6
3
4
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9
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1
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1
0
3
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6
6
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4
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1
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4
18
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5
6
5
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5
8
4
34
,
5
6
9,
1
7
8
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7
4
0
12
,
8
3
3
,
9
0
7
35
AM
O
R
T
I
Z
A
T
I
O
N
O
F
L
I
M
I
T
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D
T
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R
M
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T
PA
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3
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6,8
4
7
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5
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2
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1
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9
7
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2
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1
6
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6
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3
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3
2
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1
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4
70
7
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0
4
6
95
5
,
4
9
9
36
TA
X
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S
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T
H
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T
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A
N
I
N
C
O
M
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PA
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3
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18
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1
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7
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6
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38
1
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2
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6
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6
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4
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2
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7
2
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2
7
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5
7
2
2,5
4
2
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3
6
6
37
RE
G
U
L
A
T
O
R
Y
D
E
B
I
T
S
/
C
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E
D
I
T
S
PA
G
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3
G
0
0
0
0
0
0
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0
38
PR
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V
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F
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F
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0
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9
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6
1
4
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2
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2
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7
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5
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1
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2
2
9
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8
B
,
2
7
8
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8
6
8
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9
6
0
39
IN
V
E
S
T
M
E
N
T
T
A
X
C
R
E
D
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T
A
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J
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T
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E
31
2,8
0
5
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6
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3
0
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9
0
4
58
,
5
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6
65
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56
9
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4
8
1,3
0
5
29
0
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9
2
9
39
1
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6
6
1
40
CO
N
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C
T
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O
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W
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K
I
N
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7,
2
5
7
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3
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9
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1
3
7
10
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3
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5
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1
1,6
7
5
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3
9
9
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3
1
3
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2
9
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5
4
8
80
5
,
4
5
2
41
FE
D
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A
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1
19
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0
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1
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4
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2
45
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9
1
7
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1
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4
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9
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2,7
8
6
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6
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42
ST
A
T
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I
N
C
O
M
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T
A
X
S
PA
G
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1
(3
,
6
6
1
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7
9
)
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6
8
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5
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6
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5
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0
)
(7
5
2
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3
9
8
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(1
,
3
5
6
)
(3
7
0
,
7
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7
)
(5
3
5
,
2
5
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)
43
TO
T
A
L
O
P
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R
A
T
I
N
G
E
X
P
E
N
S
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S
67
7
,
9
3
2
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2
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3
30
1
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8
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9
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2
14
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3
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7
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1
16
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6
0
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1
9
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5
6
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8
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3
78
8
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5
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78
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2
4
3
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2
9
9
85
,
8
7
9
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5
1
1
44 45
OP
E
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A
T
I
N
G
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N
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M
E
13
1
,
9
5
9
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7
4
0
68
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6
0
8
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9
6
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8
6
4
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8
5
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9
3
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4
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29
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7
7
7
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0
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5
35
7
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9
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14
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1
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5
4
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8
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0
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7
46 47
AD
D
:
I
E
R
C
O
O
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A
T
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G
I
N
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PA
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1
6,
4
7
2
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7
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3
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4
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6
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6
1
6
91
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6
5
18
8
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3
5
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1
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0
8
5
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5
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97
6
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4
75
0
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48
CO
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13
8
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4
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71
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2
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15
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6
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1
3
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49 50 51
RA
T
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O
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R
N
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6.6
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7
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4
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6
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.
4
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52
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NO
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9 10
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11
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12
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17
,
5
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,
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7
2
50
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6
0
5
23
SU
B
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5
,
3
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7
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9
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0
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5
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5
9
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5
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7
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6
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15
NE
T
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16
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9
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17
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21
18
3
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1
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18
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8
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7
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19
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1
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7
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51
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7
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20
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8
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7
30
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8
7
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21
SU
B
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78
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3
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22
PL
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5
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3
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1
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5
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7
8
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2
4
6
27
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8
7
7
23 24
TO
T
A
L
R
A
T
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B
A
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2,0
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8
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6
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8
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5
4
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5
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2
51
9
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6
3
15
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8
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16
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4
3
6
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6
1
52
,
1
5
5
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8
8
9
25 26 27
RE
T
U
R
N
U
N
D
E
R
P
R
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S
E
N
T
R
A
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28
SA
L
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E
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1
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3
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1
6
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4
0
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4
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20
,
0
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9
5
8
29
OT
H
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C
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6
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7
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2
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9
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8
1
3
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6
9
1
30
TO
T
A
L
O
P
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R
A
T
I
N
G
R
E
V
E
N
U
E
S
80
9
,
8
9
1
,
9
8
3
1,1
1
7
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2
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7
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6
8
2
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3
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1
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9
7,
5
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5
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3
2
4
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1
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,
4
4
8
25
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8
1
7
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6
4
9
31 32
OP
E
R
A
T
I
N
G
E
X
P
E
N
S
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S
33
OP
E
R
A
T
I
O
N
&
M
A
I
N
T
E
N
A
N
C
E
E
X
P
E
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S
PA
G
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3
C
52
2
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7
3
4
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2
9
2
65
7
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4
9
4
1,
5
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0
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6
5
7
14
6
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8
5
5
5,
4
9
8
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0
9
3
4,
9
7
6
,
3
8
3
18
,
9
0
1
,
0
8
2
34
DE
P
R
E
C
I
A
T
I
O
N
E
X
P
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N
S
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PA
G
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3D
91
,
3
4
,
2
1
9
10
8
,
0
2
7
24
3
,
7
9
1
22
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8
2
0
67
2
,
0
6
9
62
5
,
0
5
3
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2
2
6
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9
2
9
35
AM
O
R
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A
T
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O
F
L
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M
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M
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PA
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3
E
6,
8
4
7
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5
0
2
8,
3
1
6
13
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3
1
3
1,7
1
0
52
,
2
8
3
51
,
1
3
3
19
7
,
4
9
9
36
TA
X
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S
O
T
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T
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A
N
I
N
C
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M
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G
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3
F
18
,
1
5
7
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0
4
5
22
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9
0
5
37
,
8
8
5
4,
5
9
5
14
4
,
8
2
7
13
7
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8
7
4
48
,
8
0
37
RE
G
U
L
A
T
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R
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D
E
B
I
T
S
/
C
R
E
D
I
T
S
PA
G
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3
G
0
0
0
0
0
0
0
38
PR
O
V
I
S
I
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N
F
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D
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F
E
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R
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3
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13
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3
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5
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1
16
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3
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7
26
,
1
4
1
3,3
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3
10
3
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2
7
3
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2
6
2
33
5
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)
(1
,
0
0
3
)
(0
)
(6
7
)
(4
9
0
)
45
ST
R
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E
T
L
I
G
H
T
S
DA
3
7
3
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7
6
)
0
0
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0
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0
45
7
IN
S
T
A
L
L
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3
7
1
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7
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0
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7
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0
45
8
0
45
9
CU
S
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0
46
0
ME
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9
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1
CU
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9
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0
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46
2
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CW
9
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4
0
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0
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46
3
MI
S
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C1
0
0
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0
0
0
0
0
0
46
0
46
5
CO
N
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M
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R
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M
A
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0
46
CU
S
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0
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46
7
SA
L
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46
AD
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47
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47
1
MI
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0
47
2
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9
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0
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47
3
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9
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0
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47
4
CU
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0
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47
5
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2
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47
6
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47
7
SU
B
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0
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8
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9
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T
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PA
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2
J
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1
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4
2
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4
,
2
9
4
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7
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6
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Ex
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7
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Pa
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26
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f
73
41
9
ID
A
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PA
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42
0
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1
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42
1
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42
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42
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42
4
FU
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C
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42
5
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42
6
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1
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42
7
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42
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42
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43
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0
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43
1
EN
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0
0
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43
2
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E1
0
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0
0
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43
3
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0
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43
4
43
5
TR
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43
6
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1
0
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43
7
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0
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8
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43
9
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3
5
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9
0
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0
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44
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44
1
DI
S
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44
2
SU
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0
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3
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3
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44
3
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3
6
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2
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44
LIN
E
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-
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D2
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8
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44
5
LIN
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44
LIN
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3
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7
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8
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0
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0
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44
7
LI
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0
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0
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9
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0
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1
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2
9
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7
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0
0
45
1
LIN
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0
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1
7
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0
0
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45
2
LIN
E
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03
0
(3
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8
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0
0
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45
3
LI
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0
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8
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(1
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0
0
0
45
4
SE
R
V
I
C
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CW
3
6
9
(3
,
8
2
9
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0
0
0
0
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0
45
5
ME
T
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R
S
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3
7
0
(3
,
8
1
8
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(0
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(0
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(1
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(1
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(1
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(5
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45
6
ST
R
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T
L
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DA
3
7
3
(2
7
6
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0
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7
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0
0
0
0
45
7
IN
S
T
A
L
L
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3
7
1
(1
7
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0
0
0
0
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0
45
8
45
9
CU
S
T
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M
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A
C
C
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U
N
T
I
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46
0
ME
T
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R
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A
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9
0
2
0
0
0
0
0
0
0
46
1
CU
S
T
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M
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R
A
C
C
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T
S
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9
3
0
0
0
0
0
0
0
46
2
UN
C
O
L
L
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B
L
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9
0
0
0
0
0
0
0
46
MI
S
C
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0
0
0
0
0
0
0
0
46 46
5
CO
N
S
U
M
E
R
I
N
F
O
R
M
A
T
I
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46
CU
S
T
O
M
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R
A
S
S
I
S
T
C1
0
0
0
0
0
0
0
0
46
7
SA
L
E
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X
P
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N
S
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C1
0
0
0
0
0
0
0
0
46
8
AD
V
E
R
T
I
S
I
N
G
C1
0
0
0
0
0
0
0
0
46
9
MI
S
C
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0
0
0
0
0
0
0
0
47
0
47
1
MI
S
C
E
L
L
A
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47
2
DE
M
A
N
D
D9
9
U
0
0
0
0
0
0
0
47
3
EN
E
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G
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E9
9
U
0
0
0
0
0
0
0
47
4
CU
S
T
O
M
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R
C1
0
0
0
0
0
0
0
0
47
5
RE
V
E
N
U
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R0
2
0
0
0
0
0
0
0
47
6
OT
H
E
R
R0
1
0
0
0
0
0
0
0
47
7
SU
B
S
T
A
T
I
O
N
C
I
A
C
CIA
C
0
0
0
0
0
0
0
47
8
47
9
TO
T
A
L
S
PA
G
E
2
J
(8
1
,
4
2
3
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(1
5
2
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(3
8
4
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(2
0
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(1
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Ex
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i
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.
7
0
7
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e
N
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I
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-
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8
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1
0
Pe
s
e
a
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i
c
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n
Pa
g
e
2
7
0
1
7
3
48
0
ID
A
H
O
P
O
W
E
R
C
O
M
P
A
N
Y
PA
G
E
2
K
48
1
3C
P
/
1
2
C
P
C
L
A
S
S
C
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O
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S
E
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V
I
C
E
S
T
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D
Y
48
2
TW
E
L
V
E
M
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N
T
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S
E
N
D
I
N
G
D
E
C
E
M
B
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R
3
1
,
2
0
0
8
48
3
-
T
A
B
L
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8
-
W
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K
l
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C
A
P
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A
L
-
AL
L
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T
I
O
N
T
O
C
L
A
S
S
E
S
48
4
(A
)
(B
)
(C
)
(D
)
(E
)
(F
)
(G
)
(H
)
48
5
FU
N
C
T
I
O
N
AL
L
O
C
A
T
I
O
N
TO
T
A
L
S
GE
N
S
R
V
GE
N
S
R
V
AR
E
A
LG
P
O
W
E
R
IR
R
I
G
A
T
I
O
N
48
6
FA
C
T
O
R
RE
S
I
D
E
N
T
I
A
L
GE
N
S
R
V
PR
I
M
A
Y
SE
C
O
N
D
A
R
Y
LI
G
H
T
I
N
G
PR
I
M
A
R
Y
SE
C
O
N
D
A
R
Y
48
7
(1
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(7
)
(9
-
P
)
(9
-
S
)
(1
5
)
(1
9
-
P
)
(2
4
-
5
)
48
8
DE
M
A
N
D
-
B
A
S
E
-
L
O
A
D
T
O
T
A
L
10
,
9
6
2
,
2
8
7
48
9
DE
M
A
N
D
-
B
a
s
e
-
l
o
a
d
S
u
m
m
e
r
D1
0
B
S
3,4
8
7
,
1
0
4
1,
2
3
6
,
5
4
6
46
,
0
4
2
81
,
1
2
1
68
1
,
8
5
4
0
37
3
,
8
1
4
90
1
,
1
0
0
49
0
DE
M
A
N
D
-
P
e
a
k
D1
0
P
4,5
9
2
,
6
1
4
1,
7
2
3
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6
0
8
64
,
2
9
7
11
2
,
9
7
8
95
0
.
6
7
1
0
52
1
,
2
6
2
98
8
,
3
3
1
49
1
DE
M
A
N
D
-
B
a
s
e
-
l
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a
d
N
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-
S
u
m
m
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D1
0
B
N
S
7,4
7
5
,
1
8
4
3,
5
7
3
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M
B
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3
1
,
2
0
0
8
1 2 3
-
,
N
C
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4 5 6
D
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7 8 9
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N
C
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A
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V
A
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10
T
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11 12
E
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W
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13 14
I
N
C
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B
E
F
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C
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A
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15 16 17
I
N
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-
A
L
L
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18 19
T
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L
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I
N
C
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A
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20
T
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C
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21
T
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22
P
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23 24 25
I
N
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A
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)
26 27
S
T
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I
N
C
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F
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28
S
T
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29
S
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A
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A
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30
T
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A
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C
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31 32
F
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A
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33
F
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34
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35
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36
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37
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38 39 40
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41 42
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92
,
2
6
1
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5
1
8
17
1
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3
3
7
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8
5
9
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4
6
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5
5
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92
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3
6
5
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8
4
7
17
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1
7
0
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6
5
5
20
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6
0
0
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6
6
80
9
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8
9
1
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9
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37
0
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5
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6
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9
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5
78
2
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8
5
5
76
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6
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5
83
,
6
2
8
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1
1
1
16
,
2
4
3
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2
7
9
13
8
,
3
9
6
,
0
9
8
66
2
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5
3
1
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2
8
2
29
4
,
8
2
3
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7
7
0
13
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9
8
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6
6
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7
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1
15
,
6
8
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2
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3
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4
0
6
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3
5
7
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3
8
6
32
,
9
4
1
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7
6
1
14
7
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3
6
0
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7
0
0
75
,
6
6
3
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1
3
5
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1
8
1
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9
8
7
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3
5
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2
5
6
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2,
7
8
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6
5
5
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2
5
1
,
3
9
9
14
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6
2
%
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5
2
,
3
9
8
)
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9
1
7
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1
4
4
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1
6
4
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7
4
6
20
.
5
5
%
(1
,
3
5
6
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0
5
8
5,
7
0
3
0.
0
4
%
(3
7
0
,
7
0
7
)
1,
9
2
9
,
9
8
1
1,
5
5
9
,
2
7
4
10
.
1
2
%
(7
5
,
3
8
9
)
39
2
,
4
9
2
31
7
,
1
0
3
2.
0
6
%
(8
6
,
5
2
0
)
45
0
,
4
3
9
36
3
,
9
2
0
2.
3
6
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(3
,
6
6
1
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4
7
9
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19
,
0
6
2
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4
3
9
15
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4
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0
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9
6
0
10
0
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0
0
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(1
,
6
8
1
,
8
3
9
)
8,
7
5
6
,
0
1
1
7,
0
7
4
,
1
7
2
45
9
3
%
(9
,
0
3
7
)
o o
(9
,
0
3
7
)
(3
8
9
,
6
4
7
)
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(3
8
9
,
6
4
7
)
(2
1
4
,
5
1
5
)
o o
(2
1
4
,
5
1
5
)
(1
0
8
,
2
6
8
)
o o
(1
0
8
,
2
6
8
)
(8
1
8
,
5
0
6
)
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(8
1
8
,
5
0
6
)
(3
,
6
6
1
,
4
7
9
)
o o
(3
,
6
6
1
,
4
7
9
)
(1
,
8
8
0
,
5
0
3
)
o o
(1
,
8
8
0
,
5
0
3
)
(7
9
,
0
6
3
)
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(7
9
,
0
6
3
)
2,0
2
8
,
5
B
5
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2,
0
2
8
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5
8
5
1,
6
3
8
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9
3
8
10
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6
4
%
1,
1
1
6
,
8
0
9
o o
1,
1
1
6
,
B
0
9
90
2
,
2
9
4
5.
8
6
%
56
3
,
6
6
7
o o
56
3
,
6
6
7
45
5
,
3
9
9
2.
9
6
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4,
2
6
1
,
3
1
5
o o
4,
2
6
1
,
3
1
5
3,
4
4
2
,
8
0
9
22
.
3
5
%
47
,
0
4
8
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47
,
0
4
8
38
,
0
1
1
0.
2
5
%
9,
7
9
0
,
2
9
8
o o
9,
7
9
0
,
2
9
8
7,
9
0
9
,
7
9
5
51
.
3
6
%
41
1
,
6
1
9
o o
41
1
,
6
1
9
33
2
,
5
5
6
2.
1
6
%
19
,
0
6
2
,
4
3
9
o o
19
,
0
6
2
,
4
3
9
15
,
4
0
0
,
9
6
0
10
0
.
0
0
%
(9
,
0
3
7
)
47
,
0
4
8
38
,
0
1
1
02
5
%
(3
8
9
,
6
4
7
)
2,
0
2
8
,
5
8
5
1,
6
3
8
,
9
3
8
10
.
6
4
%
(2
1
4
,
5
1
5
)
1,1
1
6
,
8
0
9
90
2
,
2
9
4
5.
8
6
%
(1
0
8
,
2
6
8
)
56
3
,
6
6
7
45
5
,
3
9
9
2.
9
6
%
(8
1
8
,
5
0
6
)
4,
2
6
1
,
3
1
5
3,
4
4
2
,
8
0
9
22
.
3
5
%
(3
,
6
6
1
,
4
7
9
)
19
,
0
6
2
,
4
3
9
15
,
4
0
0
,
9
6
0
10
0
.
0
0
%
(1
,
8
8
0
,
5
0
3
)
9,7
9
0
,
2
9
8
7,9
0
9
,
7
9
5
51
.
3
6
%
(7
9
,
0
6
3
)
41
1
,
6
1
9
33
2
,
5
5
6
2.
1
6
%
Ex
h
i
b
i
t
N
o
.
7
0
7
Ca
s
e
N
o
.
f
P
C
-
E
-
D
8
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1
0
Pe
s
e
a
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M
i
c
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o
n
Pa
g
e
64
o
f
73
1
ID
A
H
O
P
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C
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A
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2
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/
1
2
C
P
C
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C
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3
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I
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B
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3
1
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2
0
0
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4 5
(I
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(J
)
(K
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6
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S
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M
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7
SY
S
T
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P
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C
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8
(4
0
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(4
1
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(4
2
)
9
I
N
C
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M
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T
A
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S
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V
A
R
I
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10
T
O
T
A
L
R
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V
E
N
U
E
S
80
9
,
8
9
1
,
9
8
3
1,
1
1
7
,
2
9
7
2,6
8
2
,
1
2
0
19
3
,
1
3
9
7,
5
8
5
,
3
2
4
7,
1
0
6
,
4
4
25
,
8
1
7
,
6
4
9
11 12
E
X
P
E
N
S
E
S
W
I
T
H
O
U
T
I
N
C
O
M
E
T
A
X
E
S
66
2
,
5
3
1
,
2
8
2
82
4
,
3
0
2
1,
8
5
6
,
2
2
5
1B
2
,
2
2
5
6,5
9
0
,
9
7
3
5,9
9
3
,
2
4
1
22
,
5
3
7
,
5
1
0
13 14
I
N
C
O
M
E
B
E
F
O
R
E
I
N
C
O
M
E
T
A
X
E
S
14
7
,
3
6
,
7
0
0
29
2
,
9
9
5
82
5
,
8
9
6
10
,
9
1
4
99
4
,
3
5
1
1,
1
1
3
,
2
0
7
3,
2
8
0
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1
3
9
15 16 17
I
N
C
O
M
E
T
A
X
E
S
.
A
L
L
O
C
A
T
E
D
B
Y
R
A
T
E
B
A
S
E
18 19
T
O
T
A
L
S
T
A
T
E
I
N
C
O
M
E
T
A
X
(3
,
6
6
1
,
4
7
9
)
(4
,
5
4
0
)
(4
,
9
8
7
)
(9
0
8
)
(2
7
,
7
4
7
)
(2
8
,
7
1
5
)
(9
1
,
1
1
8
)
20
T
O
T
A
L
F
E
D
E
R
A
L
I
N
C
O
M
E
T
A
X
19
,
0
6
2
,
4
3
9
23
,
6
3
8
25
,
9
6
3
4,7
2
6
14
4
,
4
5
8
14
9
,
4
9
5
47
4
,
3
7
9
21
T
O
T
A
L
I
N
C
O
M
E
T
A
X
E
S
15
,
4
0
0
,
9
6
0
19
,
0
9
8
20
,
9
7
6
3,8
1
8
11
6
,
7
1
1
12
0
,
7
6
0
38
3
,
2
6
1
22
P
E
R
C
E
N
T
O
F
T
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T
A
L
10
0
.
0
0
%
0.1
2
%
0.1
4
%
0.0
2
%
0.7
6
%
0.7
8
%
2.4
9
%
23 24 25
I
N
C
O
M
E
T
A
X
E
S
-
A
L
L
O
C
A
T
E
D
B
Y
I
N
C
O
M
E
B
E
F
O
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E
T
A
X
E
S
(
N
O
N
E
G
A
T
I
V
E
T
A
X
A
L
L
O
W
E
D
)
26 27
S
T
A
T
E
I
N
C
O
M
E
T
A
X
-
F
I
R
S
T
P
A
S
S
(3
,
6
6
1
,
4
7
9
)
(7
,
2
8
0
)
(2
0
,
5
2
1
)
(2
7
1
)
(2
4
,
7
0
7
)
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7
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60 61
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67
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75
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76
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77
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78
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79
CA
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80
CA
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9
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81
CA
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82
CI
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83
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CI
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86 87 88
B
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(
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&
K
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89
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S
M
I
S
S
I
O
N
98
DE
M
A
N
D
-
P
O
W
E
R
S
U
P
P
L
Y
D1
1
U
22
,
6
8
1
,
1
9
6
0
0
0
37
7
,
5
8
0
28
7
,
2
5
4
1,
0
1
8
,
1
4
0
99
DE
M
A
N
D
-
T
R
A
N
S
M
I
S
S
I
O
N
D1
3
U
22
,
6
8
1
,
1
9
6
0
0
0
37
7
,
5
8
0
28
7
,
2
5
4
1,
0
1
8
,
1
4
0
10
0
DE
M
A
D
-
S
U
B
T
R
A
N
S
M
I
S
S
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O
N
D1
5
U
22
,
6
8
1
,
1
9
6
0
0
0
37
7
.
5
8
0
28
7
,
2
5
4
1,
0
1
8
,
1
4
0
10
1
10
2
B
A
S
I
C
L
O
A
D
C
A
P
A
C
I
T
Y
10
3
SU
B
S
T
A
T
I
O
N
S
-
G
E
N
E
R
A
L
D1
0
U
19
,
3
5
6
,
9
9
4
0
0
0
0
0
0
10
4
LI
N
E
S
-
P
R
I
M
A
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Y
D
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M
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1
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19
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3
5
6
.
9
9
0
0
0
0
0
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10
5
LI
N
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T
R
A
N
S
-
P
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I
M
A
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Y
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M
A
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D1
2
U
19
,
3
5
6
,
9
9
4
0
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0
0
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10
6
LI
N
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T
R
N
S
-
S
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C
O
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D
D
E
M
A
N
D
D1
3
U
19
,
3
5
6
,
9
9
4
0
0
0
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0
0
10
7
LI
N
E
S
-
S
E
C
O
N
D
A
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A
N
D
D1
4
U
19
,
3
5
6
,
9
9
4
0
0
0
0
0
0
10
6
12
0
NU
M
B
E
R
O
F
B
I
L
L
I
N
G
S
5,6
1
0
,
9
7
1
22
,
2
6
5
1,5
4
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2,
6
4
9
12
12
12
Ex
h
i
b
i
t
N
o
.
7
0
7
Ca
s
e
N
o
.
I
P
C
-
E
-
0
8
-
1
0
Pe
s
e
a
u
,
M
i
c
r
n
Pa
g
e
7
3
o
f
73