20170825Comments.pdf

38ffi*.
An TDACORP Company
DONOVAN E. WALKER
Lead Counsel
[e-mail]
August 25,2017
Diane M. Hanian, Secretary
ldaho Public Utilities Commission
472 West Washington Street
Boise, ldaho 83702
Case No. IPC-E-14-15
Clark Canyon Hydro, LLC - Comments of ldaho Power Company
Dear Ms. Hanian:
Enclosed for filing in the above matter please find an original and seven (7)
copies of the Comments of ldaho Power Company.
Very yours,
?
Donovan E. Walker
DEW:csb
Enclosures
1221 W. ldaho St. (83702)
P.O. Box 70
Boise, lD 83707
Re
VIA HAND DELIVERY
DONOVAN E. WALKER (lSB No. 5921)
Idaho Power Company
1221West ldaho Street (83702)
P.O. Box 70
Boise, ldaho 83701
Telephone: [phone]
Facsimile: [phone]
dwalker@idahopower. com
IN THE MATTER OF THE APPLICATION
OF IDAHO POWER COMPANY TO
APPROVE OR REJECT ENERGY SALES
AGREEMENT WITH CLARK CANYON
HYDRO, LLC FOR THE SALE AND
PURCHASE OF ELECTRIC ENERGY
FROM THE CLARK CANYON PROJECT
CASE NO. IPC-E-14-15
COMMENTS OF IDAHO POWER
COMPANY
;-J D..: t.. 4 "ii ii '3 'L\'/
;.1lCF,j
Attorney for ldaho Power Company
BEFORE THE IDAHO PUBLIC UTILITIES COMMISSION
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ldaho Power Company ("ldaho Power" or "Company"), pursuant to the procedural
schedule set forth in Order No. 33810, hereby files the following Comments.
I. INTRODUCTION AND SUMMARY
This case is forthe ldaho Public Utilities Commission's ("Commission") review, and
approval or rejection, of the submitted Energy Sales Agreement ("ESA') between ldaho
Power and Clark Canyon Hydro, LLC ("Clark Canyon"). The issue, as acknowtedged by
Clark Canyon, is that because of the lengthy delay in these proceedings where Clark
Canyon lost and then regained its required Federal Energy Regulatory Commission
("FERC") license, the Scheduled First Energy Date and Scheduled Operation Date from
COMMENTS OF IDAHO POWER COMPANY - 1
the submitted ESA have already past. ln addition, the project configuration is now
different. Because of this, the Commission cannot approve "all terms and provisions
hereof without change or condition" as is required before the ESA becomes a fully
effective contract.
Clark Canyon requests that the Scheduled First Energy Date and Scheduled
Operation Date be modified and changed and that the remaining terms and conditions of
the ESA, most particularly the price, remain in place. ldaho Power has communicated to
Commission Staff ("Staff') and to Clark Canyon that because of the substantialdifferential
in avoided cost rates contained in the submitted ESA and that which is available today,
that the Company cannot simply agree to extend the Scheduled Operation Date. The
Commission must determine whether it is in the public interest to modify the submitted
ESA and approve the same-including the much higher avoided cost rates contained
therein that will be passed on to ldaho Power customers if the ESA is approved.
II. BACKGROUND
This is not the first time that ldaho Power and Clark Canyon have faced this very
issue. This is, in fact, the third time that Idaho Power and Clark Canyon have had a fully
signed ESA where Clark Canyon has failed to construct the project and failed to meet the
Scheduled Operation Dates that it chose contained in those ESAs.
A. 2011 ESA.
Clark Canyon and ldaho Power signed an ESA on May 20,2011, for the project to
be constructed at the Clark Canyon Reservoir in Montana with a 4.7 MW nameplate
capacity and a Scheduled First Energy Date of November 1 , 2012, and a Scheduled
Operation Date of March 31,2013. This ESA was approved by the Commission on July
19,2011. Case No. IPC-E-11-09, Order No.32294.
COMMENTS OF IDAHO POWER COMPANY - 2
B. 2013 ESA First Amendment Extendinq the Operation Dates.
Clark Canyon was delayed in beginning construction of the project and was not
going to achieve the Scheduled First Energy Date or the Scheduled Operation Date that
it requested in the 201 1 ESA. Clark Canyon asked the Company to extend the Scheduled
First Energy Date and Scheduled Operation Date with an amendment to the 2011 ESA.
ldaho Power and Clark Canyon executed the First Amendment to the 201 1 ESA on March
14,2013, in which the parties agreed to: (1) extending the Scheduled First Energy Date
to November 30, 2013, and extending the Scheduled Operation Date to December 31,
2013; (2) adding a provision granting ldaho Power a first right of purchase should the
facility be sold; and (3) providing for the payment of Delay Liquidated Damages and the
continued maintenance of Delay Damage Security. Case No. IPC-E-13-07, Motion and
First Amendment.
As stated in ldaho Power's Motion to Amend the 2011 ESA:
The avoided cost rates contained in Clark Canyon's FESA
[the 2011 ESA] are substantially similar to the avoided cost
rates the project would receive in a new contract today. ln
addition, ldaho Power and its customers receive half of the
Renewable Energy Credits associated with the project with
the current FESA. The Amendment provides that Clark
Canyon will pay $211,500 (the Delay Liquidated Damages
amount from the FESA) to ldaho Power and its customers.
Additionally, Clark Canyon will maintain the posting of liquid
financial security in the amount of $211,500 ($45 times 4,700
kilowatts nameplate capacity) as specified in the FESA as
Delay Damage Security with an expiration no sooner than
April 30, 2014.
/d., p. 3. Commission Staff performed an analysis to compare the estimated energy
payments under the 2011 ESA with estimated energy payments under a contract at the
then current, 2013, avoided cost rates. "Staff determined that continuing under the
current contract 12011 ESA] would cost ldaho Power less than entering into a new
COMMENTS OF IDAHO POWER COMPANY - 3
c
contract at today's rates 120131." Order No. 32814 , p.2. Based upon Staff's analysis, the
Commission approved the 2013 First Amendment to the 2011 ESA stating, "Allowing
amendments to the existing contract, including payment of liquidated damages by Clark
Canyon to ldaho Power, ultimately inures to the benefit of ldaho Power ratepayers.
Therefore, we approve the proposed amendments without material change or condition."
Order No. 32814, p.2.
2014 ESA and Memorandum of Understandins Terminatinq the Amended
2011 ESA.
Clark Canyon again failed to construct the project and missed the extended
Scheduled Operation Date of December 31, 2013. Clark Canyon again requested that
ldaho Power extend the Scheduled Operation Date of the 2011 ESA. ldaho Power and
Clark Canyon then entered into a Memorandum of Understanding ('MOU') which
established a mechanism for a third revision to the Scheduled Operation Date for the
project by providing terms and conditions for the termination of the 201 1 ESA and entering
into a new ESA for the project. This is the 2014 ESA which is currently before the
Commission for its approval or rejection, and to which Clark Canyon now requests a fourth
revision to again extend its required Scheduled Operation Date.
The MOU was filed with the Commission along with the 2014 ESA for its review
and approval or rejection, Case No. IPC-E-14-15, which is the current matter now before
the Commission. As summarized in the Application in this case:
5. The project did not come on-line prior to the revised
December 31, 2013, Scheduled Operation Date and
contacted ldaho Power and advised it also would not be on-
line within 90 days of the Scheduled Operation Date (March
31, 2014) as required by the FESA and, in fact, construction
had not even begun. March 31 ,2014, has significant meaning
in the FESA because after that date, if the project has not
come on-line, ldaho Power is allowed to collect Delay
Liquidated Damages from the Delay Security if necessary and
has the option to terminate the agreement.
COMMENTS OF IDAHO POWER COMPANY - 4
6. The project submitted two letters to ldaho Power dated
March 18,2014, and March 24,2014, respectively, in which it
requested to terminate the existing FESA and replace it with
a new Seasonal Hydro Energy Sales Agreement. ldaho
Power had significant concerns with the project's request to
terminate the existing FESA and replace the FESA with a new
Seasonal Hydro ESA just days before ldaho Power's option
to collect Delay Liquidated Damages and terminate the FESA
was reached. Subsequent to the previous FESA's approval,
the Commission had issued Order No. 32697 in which revised
PURPA avoided cost pricing methodologies were established;
new contracting requirements, terms, and conditions were
established; a Seasonal Hydro resource category was
established; and Delay Liquidated Damages provisions were
revised. Idaho Power and the project met to discuss the
issues and ultimately agreed to a Memorandum of
Understanding ("MOU") that was executed between ldaho
Power and Clark Canyon addressing the termination of the
previous FESA and execution of a new Seasonal Hydro
Project ESA. A copy of the MOU is attached to this
Application as Attachment 1. ln negotiating these terms and
conditions with Clark Canyon, ldaho Power adhered to its
PURPA obligation to contract with this new proposed QF
project, addressed the project's previous lack of performance,
satisfied the project's requests to contract and purchase in a
timely and reasonable manner, and maintained the value from
the terminated FESA for ldaho Power and its customers by
requiring terms and conditions that would carry certain
provisions from the terminated FESA forward into the new
ESA. ln summary, the MOU provides for the following:
(a) Termination of
approved) FESA;
the existing (previously
(b) Collection by ldaho Power of Delay Liquidated
Damages;
(c) Negotiation and execution of a new Seasonal
Hydro ESA that retains the Delay Liquidated Damages
provisions of the previous FESA, requires the project to post
Delay Security for the new ESA at $45 per kilowatt of
nameplate, and allows the project to offset this Delay Security
amount by the previously forfeited Delay Security;
(d) Any energy deliveries to Idaho Power in the
months of March or April will be paid the market value of
energy and not the Surrogate Avoided Resource ("SAR")
published avoided cost rate;
COMMENTS OF IDAHO POWER COMPANY - 5
(e) !f the project fails to meet the Seasonal Hydro
Project requirements (55 percent of generation delivered
during the months of June, July, and August), payments will
be revised to reflect Non-Seasonal Hydro SAR published
avoided cost prices; and
(f) The provision from the terminated FESA
whereby ldaho Power owns 50 percent of the Renewable
Energy Certificates/Credits associated with the project is
carried forward to the new ESA.
Application, pp.4-5.
ldaho Power and Clark Canyon signed the present ESA on May 30,2014, and on
June 4, 2014, ldaho Power filed an application requesting the Commission accept or
reject an ESA between ldaho Power and Clark Canyon entered into pursuant to the Public
Utility Regulatory Policies Act of 1978 ('PURPA"). The Commission subsequently issued
a Notice of Application and Notice of Modified Procedure setting forth comment deadlines.
Order No. 33064. During Staff's review of the ESA, "some discrepancies were discovered
between Clark Canyon's FERC license and its Power Purchase Agreement with ldaho
Power." Order No. 33088, p. 1. The parties agreed that it was reasonable "to suspend
the schedule until Clark Canyon is able to resolve and/or clarify the discrepancies." ld.
On July 31,2014, Staff filed a motion with the Commission to suspend the procedural
schedule until pending matters could be resolved.
On August5,2014,the Commission granted the requested suspension and stated:
YOU ARE HEREBY NOTIFIED that the procedural schedule
set by Order No. 33064 is suspended. ldaho Power and Clark
Canyon, as parties to the Power Purchase Agreement, are
directed to notify the Commission as soon as the
discrepancies and underlying matters are resolved so that the
Commission may proceed in considering the Application filed
on June 4,2014.
Order No. 33088, p. 1.
COMMENTS OF IDAHO POWER COMPANY - 6
D. 2017 Status of ESA. FERC License. and Proiect Construction.
On April 26, 2017, Clark Canyon notified ldaho Power that it had received its
renewed FERC license on March 31, 2017 . This was the first written correspondence
ldaho Power had received from Clark Canyon regarding the status of the FERC license,
the powerhouse construction, and Clark Canyon's transmission line construction from the
powerhouse to the Peterson substation since July 31 ,2014.
The ESA between Clark Canyon and ldaho Power contains a Scheduled First
Energy Date of April 1,2017, and a Scheduled Operation Date of June 1,2017. More
than three years have passed since ldaho Power and Clark Canyon executed the ESA
and submitted the same to the Commission for its review and approval or rejection. lt is
ldaho Power's understanding that Clark Canyon has not started construction of the
generator powerhouse, nor started construction of the 69 kilovolt transmission line from
the Clark Canyon Reservoir to ldaho Power's Peterson substation, approximately 10
miles, which is the point of interconnection to ldaho Power's system.
The parties met with Staff on May 11,2017, to discuss the status. At that meeting,
the parties agreed to recommend lifting the suspension and to propose a procedural
schedule for submitting the ESA for the Commission's review. Subsequent to the
Commission lifting the suspension of the procedural schedule, Clark Canyon retained
legal counsel. The schedule was again suspended to allow another meeting with Clark
Canyon, Idaho Power, and Commission Staff, which included Clark Canyon's counsel.
III. COMMENTS
As summarized above, this case is for the Commission's review, and approval or
rejection, of the submitted ESA between ldaho Power and Clark Canyon. The issue, as
acknowledged by Clark Canyon, is that because of the lengthy delay in these proceedings
where Clark Canyon lost and then regained its required FERC license, the Scheduled
COMMENTS OF IDAHO POWER COMPANY - 7
First Energy Date and Scheduled Operation Date from the submitted ESA have already
past. ln addition, the project configuration is now different. Because of this, the
Commission cannot approve "allterms and provisions hereof without change or condition"
as is required before the ESA becomes a fully effective contract.
Clark Canyon requests that the Scheduled First Energy Date and Scheduled
Operation Date be modified and changed and that the remaining terms and conditions of
the ESA, most particularly the price, remain in place. ldaho Power has communicated to
Commission Staff and to Clark Canyon that because of the substantial differential in
avoided cost rates contained in the submitted ESA and that which is available today, the
Company cannot simply agree to extend the Scheduled Operation Date. The
Commission must determine whether it is in the public interest to modify the submitted
ESA and approve the same-including the much higher avoided cost rates contained
therein that will be passed on to ldaho Power customers if the ESA is approved.
Filed herewith as Attachment 1 is ldaho Power's Response to Clark Canyon's First
Set of Production Requests, Request No. 2, incorporated herein by this reference. ln this
Response, ldaho Power has used the project's estimated monthly generation from the
2014 ESA and compared the estimated cost to customers using the different avoided cost
rates that were in place for the 2011 ESA, the 2014 ESA, and the currently approved
2017 avoided cost rates. The difference in a 20-year, levelized rate is approximately $114
in the 2014 ESA, as compared to approximately $72 for a current,2017 ESA. The net
present value in total cost to customers over the 20-year contract is $17,924,845 for the
2014 ESA, and $1 1,337,522 for a 2017 ESA-a net present value difference of over
$6,587,000. See Attachment t hereto.
Clark Canyon has raised several common law contractual issues and/or claims in
its initial Comments, which are interesting and informative but not dispositive of the
COMMENTS OF IDAHO POWER COMPANY. S
Commission's role, responsibility, and authority in this matter. At the end of the day, the
Commission has the full authority to approve or reject this signed ESA according to its
evaluation as to whether it is in the public interest or not. This authority is based on and
from the express terms of the ESA itself, the Commission's case-by-case implementation
of federal PURPA requirements for the state of ldaho, and the Commission's inherent
authority to annul, supersede, or reform the contracts of the public utilities it regulates in
the public interest. Ag. Prods. Corp. v. Utah Power & Light Co., 98 ldaho 23,29,557
P.3d 617, 623 (1976)("Private contracts with utilities are regarded as entered into subject
to reserved authority of the state to modify the contract in the public interest."). The
Commission, in its role as the regulatory authority for implementing PURPA in the state
of ldaho, has an independent obligation and duty to assure that all PURPA contracts
entered into by ldaho Power are in the public interest. Rosebud Enterprises, lnc. v. ldaho
Public Utilities Commission, 128 ldaho 609, 613-14, 917 P.zd 766 (1996XThe
Commission, in acting pursuant to PURPA, must strike a balance between "the local
public interest of a utility's electric consumers and the national public interest in
development of alternative energy resources.").
The express terms of the contract clearly and unequivocally state that, "This
Agreement shall only become finally effective upon the Commission's approval of all
terms and provisions hereof without change or condition and declaration that all
payment to be made to Seller hereunder shall be allowed as prudently incurred expenses
for ratemaking purposes." 2014 ESA, p. 31 (emphasis added). The main problem here
is that if the Commission were to approve the submitted 2014 ESA without changing the
Scheduled Operation Date, then Clark Canyon, with no ability to bring its project on-line
within those required dates, which have already past, will be in default and breach and
subject to contract termination. The further problem is that rates for that same project in
COMMENTS OF IDAHO POWER COMPANY - 9
a current ESA today are more than $6.8 million dollars less for customers than those
contained in the submitted 2014 agreement. Staff has made clear that both Staff and the
Commission expect ldaho Power to "ruthlessly enforce" the terms and conditions of
PURPA contracts that it enters into for the protection of ldaho Power customers. Given
that, Idaho Power has no ability to agree on its own to an extension of time in the 2014
ESA, where that would extend the application of higher prices to ldaho Power customers.
That decision is only one that the Commission could make by finding it to be in the public
interest-or not-to extend the dates in the 2014 ESA.
IV. CONCLUSION
This case is for the Commission's independent review and subsequent approval
or rejection of the submitted 2014 ESA between ldaho Power and Clark Canyon. This is
the third time that this same project has failed to meet the required Scheduled Operation
Dates in its ESAs with ldaho Power and the fourth time Clark Canyon has requested to
extend those required deadlines. The submitted 2014 ESA is only a valid, fully effective
contract if it is approved without change or condition. lf it is approved without change or
condition, it will be terminated as the dates for performance have come and gone with no
ability to cure. The rates contained in the submitted 2014 ESA are substantially higher
than the rates that would be available for this project in a current ESA today.
Consequently, ldaho Power cannot agree to extend the dates, as it has done in the past.
The Commission must determine whether it is in the public interest to modify the
submitted ESA and approve the same-including the much higher avoided cost rates
contained therein that will be passed on to ldaho Power customers if the ESA is approved.
Respectfully submitted this 25th day of Augu
Attorney for ldaho Power Company
COMMENTS OF IDAHO POWER COMPANY - 1O
CERTIFICATE OF SERVICE
I HEREBY CERTIFY that on this 25th day of August 2017 I served a true and
correct copy of the within and foregoing COMMENTS OF IDAHO POWER COMPANY
upon the following named parties by the method indicated below, and addressed to the
following:
Gommission Staff
Daphne Huang
Deputy Attorney General
ldaho Public Utilities Commission
47 2 W est Washington (83702)
P.O. Box 83720
Boise, Idaho 83720-007 4
X Hand Delivered
_U.S. Mail
_Overnight Mail
_FAXxEmail daphne. huanq@puc. idaho.qov
CIark Canyon Hydro, LLC
Gregory M. Adams
Peter J. Richardson
RICHARDSON ADAMS, PLLC
515 North 27th Street
Boise, ldaho 83702
_Hand DeliveredX U.S. Mail
_Overnight Mail
_FAXX Email [e-mail]
peter@richardsonadams. com
Christa , Legal
COMMENTS OF IDAHO POWER COMPANY - 11
Attorney for ldaho Power Company
BEFORE THE IDAHO PUBL]C UTILITIES COMMISSION
DONOVAN E. WALKER (lSB No. 5921)
ldaho Power Company
1221 West ldaho Street (83702)
P.O. Box 70
Boise, ldaho 83707
Telephone: [phone]
Facsimile: (208) 388€936
dwalker@ idahopower. com
IN THE MATTER OF THE APPLICATION
OF IDAHO POWER COMPANY TO
APPROVE OR REJECT ENERGY SALES
AGREEMENT WITH CLARK CANYON
HYDRO, LLC FOR THE SALE AND
PURCHASE OF ELECTRIC ENERGY
FROM THE CLARK CANYON PROJECT
CASE NO. tPC-E-14-15
IDAHO POWER COMPANY'S
RESPONSE TO CLARK CANYON
HYDRO, LLC'S FIRST SET OF
PRODUCTION REQUESTS
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COMES NOW, ldaho Power Company ("ldaho Power" or 'Company"), and in
response to Clark Canyon Hydro, LLC's First Set of Production Requests to ldaho
Power Company dated July 10,2017, herewith submits the following information:
IDAHO POWER COMPANY'S RESPONSE TO CLARK
CANYON HYDRO, LLC'S FIRST SET OF PRODUCTION REQUESTS - 1
. i::-i.,|,\-!1,-i;
REQUEST NO. 2: Please provide the work papers in ldaho Power's possession
supporting any calculations of the rate differential between the present value revenue
requirement of the purchase of Clark Canyon's output under the ESA proposed for
approval in this case with an ESA that would be available under the seasonal rates in
effect at the time of this request. lf not apparent from the work papers, please describe
the basis for the major inputs, including rate assumptions, REC values, output
projections, operation date, etc.
RESPONSE TO REQUEST NO. 2: Please see the Excel file provided on the
enclosed non-confidential disk.
The response to this Request is sponsored by Michael Darrington, Energy
Contracts Leader, ldaho Power Company.
IDAHO POWER COMPANY'S RESPONSE TO CI.ARK
CANYON HYDRO, LLC'S FIRST SET OF PRODUCT]ON REQUESTS - 3
BEFORE THE
IDAHO PUBLIC UTILITIES COMMISSION
GASE NO. IPC-E-14-15
IDAHO POWER COMPANY
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