20150821Comments.pdf

DAPHNE HUANG
DEPUTYATTORNEYGENERAL idy^\, ,; .: .i ..1 i.,x r.{nIDAHOPUBLICUTILITIESCOMMISSION ' ',,i..,,.
PO BOX 83720
[phone]
IDAHO BAR NO. 8370
Street Address for Express Mail:
472 W. WASHINGTON
BOISE, IDAHO 83702-5918
Attorney for the Commission Staff
BEFORE THE IDAHO PUBLIC UTILITIES COMMISSION
IN THE MATTER OF rDAHO POWER )
COMPANY'S APPLICATTON FOR APPROVAL ) CASE NO. IpC-E-1s-20
OF CAPACITY DEFICIENCY TO BE USED FOR)
AVOIDED COST CALCULATIONS. ) COtvtMENTS OF THE) coTvTMISSIoN STAFF
)
COMES NOW the Staff of the Idaho Public Utilities Commission, by and through its
Attorney of record, Daphne Huang, Deputy Attomey General, submits the following comments.
BACKGROUND
On July 2,2015, Idaho Power Company filed an Application with the Commission for an
Order approving the capacity deficiency period to be used for the Company's avoided cost
calculations under the Public Utility Regulatory Policies Act (PURPA). The Company asked that
the Application be processed under Modified Procedure.
Under PURPA, electric utilities must purchase electric energy from qualif,,ing facilities
(QFs) at rates approved by the applicable state regulatory agency - in Idaho, this Commission. l6
U.S.C. $ 824a-3; Idaho Power Co. v. Idaho PUC,155 Idaho 780,789,316 P.3d 1278,1287
(2013). The purchase or "avoided cost" rate shall not exceed the "'incremental cost'to the
purchasing utility of power which, but for the purchase of power from the QF, such utility would
STAFF COMMENTS AUGUST 2I,2OI5
either generate itself or purchase from another source." Order No. 32697 at 7 , citing Rosebud
Enterprises v. Idaho PUC, 128 Idaho 624, 917 P .2d 781 ( I 996); 1 8 C.F.R. $ 292.101(bX6)
(defining "avoided cost").
In calculating avoided cost, the Commission found it "reasonable, appropriate and in the
public interest to compensate QFs separately based on a calculation of not only the energy they
produce, but the capacity that they can provide to the purchasing utility." Order No. 32697 at 16.
As to the capacity calculation, the Commission found it appropriate "to identify each utility's
capacity deficiency based on load and resource balances found in each utility's IRP." Id. The
Commission elaborated :
In calculating a QF's ability to contribute to a utility's need for capacity, we
find it reasonable for the utilities to only begin payments for capacity at such
time that the utility becomes capacity deficient. If a utility is capacity surplus,
then capacity is not being avoided by the purchase of QF power. By including
a capacity payment only when the utility becomes capacity deficient, the
utilities are paying rates that are a more accurate reflection of a true avoided
cost for the QF power.
Id. at 21.
The Commission directed that "when a utility submits its [RP] to the Commission, a case
shall be initiated to determine the capacity deficiency to be utilized in the SAR Methodology." Id
at 23. The Commission also stated "utilities must update fuel price forecasts and load forecasts
annually - between IRP filings. . . . We find it reasonable that all other variables and assumptions
utilized within the IRP Methodology remain fixed between IRP filings (every two years)." Id. at
22.
ln2014, the Commission confirmed July 2021 as Idaho Power's capacity deficiency period
for use in the incremental cost IRP methodology. Order No. 33159 at 9.
Idaho Power states it o'currently utilizes a first capacity deficit of July 2021." Application
at 2. AIso, the Company notes that it filed its 2015 IRP (Case No. IPC-E-15-19) with the
Commission on June 30,2015. According to Idaho Power, its 2015 IRP "identifies the first
capacity deficit occurring in July 2025." Id.
Idaho Power's Application includes Table 1, which "shows a first capacity deficiency of
14 megawatts [(MW)] occurring in July 2025." Id. at3. According to the Company, this
"includes 461 MW of PURPA solar that was under contract when the analysis of Table 1 was
completed for the 2015 IRP." .Id However, after Table I was developed in the 2015 IRP, "four
PURPA Energy Sales Agreements ("ESAs") were terminated due to failure of the projects to
STAFF COMMENTS AUGUST 2I,2OI5
perform" per their terms and provisions. 1d., citing Case Nos. IPC-E-14-28, IPC-E-14-29,IPC-E-
14-30, and IPC-E-14-31. Idaho Power provides that the "total amount of capacity for these four
terminated ESAs was 141 MW." Id. at3-4.
Idaho Power's Application also includes Table 2, which shows anotpdated peak-hour
surplus/deficit chart," reflecting removal of the 141 MW of PURPA. Id. at 4. Idaho Power states,
"Removal of the 141 MW of terminated PURPA solar projects results in a first capacity deficit of
47 MW in July 2024, one year earlier than that shown in Table 1 and the 2015 IRP." Id. The
Company asks that o'a first capacity deficit of July 2024be utilized for avoided cost calculations
for both the SAR and IRP methodologres." Id.
STAFF ANALYSIS
The 2015 IRP indicates that a first capacity deficiency of l4 MW occurs in July 2025 (See
boxes in Attachment A). Since the 2015 IRP analysis was completed, however, four PURPA
projects have been terminated, totaling 141 MW. The removal of the 141 MW of solar projects
affects two variables in the IRP analysis: Cogeneration and Small-Power Producers (CSPP), and
Market Purchases (See triangles in Attachment A). This results in a first capacity deficiency of 47
MW that occurs in July 2024.
For each of the removed projects, a capacity credit (approximately 53%) is applied to 141
MW nameplate capacity to reach a final, effective reduction of 74 MW. Therefore, the CSPP
(PURPA) values in the analysis are reduced by 74 MW. In addition, the Market Purchases values
need to increase, within the transmission limit, to compensate for the decrease in CSPP (PURPA)
generation. As a result, the new first capacity deficiency occurs in July 2024. Staff Table 1 shows
the effects of the four solar projects on the CSPP, the Market Purchases, and the Monthly
Surplus/Deficit.
Staff Table 1. Effects of Four Solar Pojects
Original Values
for July 2024 (MW)
New Values
for July 2024 (MW)
CSPP (PURPA)405 405-74=331
Market Purchases 239
239+74=313>266
(2 66 :transmission capacity available)
Monthly Surplus /Deficit 0 74-(266-239):47
STAFF COMMENTS AUGUST 2I,2OI5
Based on the revised capacity deficiency, Staff updated the Surrogate Avoided Resource
(SAR) Model, and calculated new avoided cost rates (see Attachment B).
RECOMMENDATIONS
Staff has reviewed Idaho Power's updated capacity deficiency as a result of the removal of
141 MW of solar projects, and confirms that the new first capacity deficiency occurs in July 2024.
Staff also updated the SAR Model and the avoided cost rates, and recommends that the
Commission approve the new rates to reflect the removal of the 141 MW of solar projects.
Respectfully submitted this 2, (f day of August 2015.
Technical Staff: Rick Sterling
Yao Yin
i : umisc:comments/ipce I 5.20djhrpsyy comments
Daphne
Deputy Attorney General
STAFF COMMENTS AUGUST 2I,2OI5
Attachment A
IPC-E-1s-20
Staff Comments
08/21n5
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IDAHO POWER COMPANY
AVOIDED COST RATES FOR WIND PROJECTS
xxxx,2015
$/MWh
New Contracts and Replacement Contracts without Full Capacity Payments
Eligibility for these rates is limited to projects {00 kW or smaller.
LEVELIZED NON-LEVELIZED
SONTRACI
LENGTH
/YFARS\
ON-LINE YEAR
CONTMCT
YEAR
NON.LEVELIZED
RATES2015 2016 2017 2018 2019 2020
1
2
a
4
5
6
7II
10
11
12
13
14
15
16
17
18
19
20
33.36
33.70
33.92
34.31
35.17
36.24
37.33
38.34
39.27
40.31
41.32
42.29
43.14
43.87
44.52
45.12
45.70
46.26
46.81
47.35
34.06
34.23
34.68
35.72
36.96
38.1 I
39.30
40.30
41.44
42.52
43.55
44.45
45.22
45.89
46.50
47.10
47.70
48.27
48.83
49.39
34.42
35.03
Jb.Jb
37.84
39.23
40.44
41.51
42.73
43.88
44.98
45.92
46.71
47.40
48.03
48.65
49.2s
49.84
50.42
51.01
51.60
2E AO
37.46
39. '17
40.68
41.96
43.0s
44.33
45.54
46.68
47.65
48.45
49.14
49.77
50.39
51.01
51.61
52.20
52.81
53.42
54.00
39.37 43.0541.14 44.4642.63 45.6143.86 46.5844.90 47.9446.22 49.20
47.44 50.39
48.61 51.3749.58 52.1450.36 52.7951.04 53.3951.66 53.99
52.27 54.6152.88 55.22
53.49 55.82
54.09 56.46
54.70 57.1055.33 57.7255.93 58.3655.55 59.04
2015
2016
2017
2018
2019
2020
2021
2022
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033
2034
2035
2036
2037
2038
2039
2040
33.36
34.06
34.42
35.69
39.37
43.05
46.00
48.19
49.99
54.59
57.23
59.91
60.85
61.00
61.68
62.91
64.98
67.39
69.48
71.93
75.31
78.62
80.55
84.88
90.07
95.53
Note: These rates will be further adjusted with the applicable integration charge.
Note: The rates shown in this table have been computed using the U.S. Energy lnformation Administration (ElA)'s Annual Energy
Outlook20l5,releasedApril 14,2015. SeeAnnual EnergyOutlook20'l5,Table3.SEnergyPricesbySector-Mountainat
http: //www. eia. gov/forecasts/aeo/tables-ref . cf m#supplemenU
IDAHO POWER COMPANY PA9C 1
Attachment B
rPc-E-ls-20
Staff Comments
08/21115 Page I of 5
IDAHO POWER COMPANY
AVOIDED COST RATES FOR SOLAR PROJECTS
xxxx,2015
$/MWh
New Contracts and Replacement Contracts without Full Capacitv Pavments
Eligibility for these rates is limited to projects 100 kW or smaller.
LEVELIZED NON.LEVELIZED
}ONTMCI
LENGTH
lYFAEIS\
ON.LINE YEAR
CONTRACT
YEAR
NON.LEVELIZED
RATES2015 2016 2017 2018 2019 2020
1
2
a
4
b
7
8
I
10
11
12
13
14
15
16
17
18
19
20
33.36
33.70
33.92
34.3 1
35.1 7
36.24
37.33
38.34
39.27
42.40
45.1 3
47.54
49.62
51.40
52,97
54.37
55.67
56.88
58.00
59.05
34.06
34.23
34.68
35.72
36.96
38.19
39.30
40 30
43.86
46.90
49.54
51,80
53,71
55.37
56.85
58.22
59.48
60.66
61.76
62.82
34.42
35.03
36.36
37.84
39.23
40.44
41.51
45.58
48.97
51.87
54.30
56.34
58.09
59.65
61.07
62.39
63.61
64.76
65.85
66.91
35.69
37.46
39.17
40.68
41.96
43.05
47.74
51.52
54.68
57.29
59.44
61.26
62.87
64.34
65.69
66.95
68.12
69.25
70.33
71.34
39.37 43.05
41.14 44.4642.63 45.6143.86 46 5844.90 53.1250.36 57.89
54.58 61.62
58.01 64.5260.77 66.8263.00 68.7164.88 70.3566,51 71.8368.00 73.20
69.37 74.47
70.64 75.66
71 .83 76.8172.97 77.9374.08 78.9675.10 79.9976.11 81 .02
2015
2016
2017
2018
2019
2020
2021
2022
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033
2034
2035
2036
2037
2038
2039
2040
33.36
34.06
34.42
35.69
39.37
43.05
46.00
48.1 I
49.99
85.12
88.22
91.35
92.75
93.37
94.51
96.23
98.78
101 .69
104.28
107.25
111.14
114.98
117.44
122.31
128.05
134.07
Note: These rates will be further adjusted with the applicable integration charge.
Note: The rates shown in this table have been computed using the U.S. Energy lnformation Administration (ElA)'s Annual Energy
Outlook20l5,releasedApril 14,2015. SeeAnnual EnergyOutlook20l5,Table3.SEnergyPricesbySector-Mountainat
http://www. eia. gov/forecasts/aeo/tables_ref . cf m#su pplemenU
IDAHO POWER COMPANY Page 2
Attachment B
IPC-E-15-20
Staff Comments
08121115 Page 2 of 5
IDAHO POWER COMPANY
AVOIDED COST RATES FOR NON.SEASONAL HYDRO PROJECTS
xxxx,2015
$/MWh
New Contracts and Replacement Contracts without Full Capacity Pavments
Eligibility for these rates is limited to projects smaller than 10 aMW.
LEVELIZED NON.LEVELIZED
]ONTRACT
LENGTH
/YFARS\
ON.LINE YEAR
CONTRACT
YtrA P
NON-LEVELIZED
AATtrS2015 2016 2017 2018 2019 2020
1
2
J
4
5
b
7I
9
10
11
12
13
14
15
tb
17
18
19
20
33.36
33.70
33.92
34.3 1
35.17
36.24
37.33
38.34
39.27
42.20
44.76
47.03
48.99
50.67
52.1s
53.47
54.70
55.85
56.91
t7 0,
34.06
34 23
34.68
35.72
36.96
38.1 I
39.30
40.30
43.63
46.47
48.96
51.08
52.88
54.45
55.85
57.14
58.34
59.46
60.51
61 52
34.42
35.03
36.36
37.84
39.23
40.44
41.51
45.30
48.48
51.20
53.49
55.40
57.06
58.52
59.86
61.1 1
62.27
63.36
64.41
65.42
35.69
37.46
s9.l7
40.68
41.96
43.05
47.41
50.94
53.91
56.35
58.37
60.09
61.60
62.98
64.27
65.46
66.58
67.65
68.69
69.66
39.37 43.05
41.14 44.4642.63 45.6143.86 46.5844.90 52.6249.96 57.0453.89 60.53
57.10 63.25
59.69 65.39
61.78 67.1763.54 68.7065.07 70.1066.47 71 .4067.77 72.6068.97 73.7470.11 74.8471.20 75.9'l72.26 76.90
73.24 77.89
74.21 78.89
2015
2016
2017
2018
2019
2020
2021
2022
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033
2034
2035
2036
2037
2038
2039
2040
33.36
34.06
34.42
35.69
39.37
43.05
46.00
48.19
49.99
82.16
85.21
88.30
89.65
90.23
91.33
92.99
95.50
98.36
'100.90
1 03.82
107.66
111.45
1 13.86
1 18.67
124.37
130.33
Note: The rates shown in this table have been computed using the U.S. Energy lnformation Administration (ElA)'s Annual Energy
Outlook20l5,releasedApril 14,2015. SeeAnnual EnergyOutlook20l5,Table3.SEnergyPricesbySector-Mountainat
http: //www. eia. gov/forecasts/aeo/tables-ref . cfm#supplemenU
IDAHO POWER COMPANY Page 3
Attachment B
IPC-E-15-20
Staff Comments
08l2ll15 Page 3 of 5
IDAHO POWER COMPANY
AVOIDED COST RATES FOR SEASONAL HYDRO PROJECTS
xxxx,20{5
$/MWh
New Contracts and Reolacement Contracts without Full Caoacitv Pavments
Eligibility for these rates is limited to projects smaller than 10 aMW.
LEVELIZED NON.LEVELIZED
CONTRACT
LENGTH
ryFARS'I
ON-LINE YEAR
CONTRACT
YtrAP
NON-LEVELIZED
FIATtrS2015 2016 2017 2018 2019 2020
1
2
3
4
5
b
7I
o
'10
11
12
13
14
15
16
17
18
19
20
33.36
33.70
33.92
34.31
35.1 7
36.24
37.33
38.34
39.27
43.62
47.35
50.60
53.40
55.79
57.90
59.77
61.48
63.06
64.52
65.88
34.06
34.23
34.68
35.72
36.96
38.1 9
39.30
40.30
45.28
49.45
53.04
56.08
58.66
60.90
62.89
64.70
66.36
67.89
69.31
70.65
34.42
35.03
36.36
37.84
39.23
40.44
4 t.51
47.24
5't.94
55.89
59.19
61.96
64.33
66.43
68.32
70.05
71.64
73.12
74.51
75.83
35.69
37.46
39.17
40.68
41.96
43.05
49.72
55.01
59.35
62.91
65.85
68.34
70.52
72.47
74.26
75.89
77.41
78.84
80.20
81.46
39.37 43.05
41.14 44.4642.63 45.6143.86 46.5844.90 56.1552.78 52.9558.74 68.16
63.50 72.20
67.30 75.38
70.38 78.0072.95 80.2475.18 82.2477.17 84.0578.99 85.7080.64 87.2382.18 88.69
83.63 90.0785.01 91.3686.29 92.6187.53 93.84
201 5
2016
2017
2018
2019
2020
2021
2022
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033
2034
2035
2036
2037
2038
2039
2040
33.36
34.06
34.42
35.69
39.37
43.05
46.00
48.19
49.99
1 02.93
106.29
109.69
I'l 1.35
112.24
1 13.67
'l 15.66
I 18.50
121.70
124.58
127.84
132.04
1 36.1 9
1 38.96
144.14
150.21
156.55
Note: A "seasonal hydro project" is defined as a generation facility which produces at least 55% of ils annual generation during the
months of June, July, and Augusi. Order 32802.
Note: The rates shown in this table have been computed using the U.S. Energy lnformation Administration (ElA)'s Annual Energy
Outlook 2015, released April 14, 2015. See Annual Energy Outlook 2015, Table 3.8 Energy Prices by Sector-Mountain at
http://www. eia. gov/forecasts/aeo/tables-ref. cfm#supplemenU
IDAHO POWER COMPANY Page 4
Attachment B
IPC-E-15-20
Staff Comments
08l2lll5 Page 4 of 5
IDAHO POWER COMPANY
AVOIDED COST RATES FOR OTHER PROJECTS
xxxx, 2015
$/MWh
New Contracts and Replacement Contracts without Full Capacity Payments
Eligibility for these rates is limited to projects smaller than 10 aMW.
LEVELIZED NON-LEVELIZED
CONTRACI
LENGTH
ryEARS)
ON-LINE YEAR
CONTRACT
YtrAEI
NON.LEVELIZED
PATtrS2015 2016 2017 2014 2019 2020
I
2
3
4
5
6
7II
10
11
12
IJ
14
'15
16
17
18
19
20
33.36
33.70
33.92
34.31
35.1 7
36.24
37.33
38.34
39.27
41.6s
43.76
45.65
47.28
48.69
49.92
51.04
52.O7
53.05
53.97
54.83
34.06
34.23
34.68
3s.72
36.96
36.19
39.30
40.30
42.99
45.32
47.38
49.1 5
50.65
51.95
53.12
54.21
55.23
56.1 9
57.1 0
57.98
34.42
35.03
36.36
37.84
39.23
40.44
41.51
44.55
47.',t4
49.39
51.28
52.87
54.24
55.46
56.59
57.65
58.65
59.59
60.50
6't.39
35,69
37.46
39.1 7
40.68
41.96
43.05
46.51
49.36
51.80
53.8'l
55.47
56.89
58.1 5
59.31
60.40
61.42
62.38
63.32
64.23
65.09
39.37 43.0541.14 44.4642.63 45.6143.86 46.5844.90 51.2548.86 54.75
52.01 57.57
54.62 59.78
56.74 61.5258.45 62.9759.89 64.2461.16 65.4062.33 66.5063.43 67.53
64.45 68.51
65.43 69.47
66.39 70.42
67.32 71.30
68.19 72.1969.06 73.09
2015
2016
2017
2018
20't9
2020
2021
2022
2023
2024
2025
2026
2027
2028
2429
2030
2031
2032
2033
2034
203s
2036
2037
2038
2039
2040
33.36
34.06
34.42
35.69
39.37
43.05
46.00
48.19
49.99
74.11
77.05
80.02
81.25
E1.70
82.68
84.22
86.59
89.32
91.7 4
94.51
98.22
't01.87
104.14
108.81
1 14.36
120.18
Note: "Other projects" refers to projects other than wind, solar, non-seasonal hydro, and seasonal hydro poects. These "Other projects"
may include (but are not limited to): cogeneration, biomass, biogas, landfill gas, or geothermal projects.
Note: The rates shown in this table have been computed using the U.S. Energy lnformation Administration (ElA)'s Annual Energy
Outlook 2015, released April 14,2015. See Annual Energy Outlook 2015, Table 3.8 Energy Prices by Sector-Mountain at
http://www. eia- gov/forecasts/aeo/tables_ref . cfm#supplemenU
IDAHO POWER COMPANY Page 5
Attachment B
IPC-E-15-20
Staff Comments
08121115 Page 5 of 5
CERTIFICATE OF SERVICE
I HEREBY CERTIFY THAT I HAVE THIS 2I't DAY OF AUGUST 2015,
SERVED THE FOREGOING COMMENTS OF THE COMMISSION STAFF IN
CASE NO. IPC-E-15-20, BY MAILING A COPY THEREOF, POSTAGE PREPAID, TO
THE FOLLOWING:
DONOVAN E WALKER
REGULATORY DOCKETS
TDAHO POWER COMPANY
PO BOX 70
BOrSE rD 83707-0070
E-mail: [e-mail]
dockets@ idahopower. com
RANDY ALLPHIN
TESS PARK
IDAHO POWER COMPANY
PO BOX 70
BOrSE ID 83707-0070
E-mail : rallphin@idahopolvg{.com
[e-mail]
CERTIFICATE OF SERVICE