20040817Decision Memo.pdf

DECISION MEMORANDUM
TO:COMMISSIONER KJELLANDER
COMMISSIONER SMITH
COMMISSIONER HANSEN
COMMISSION SECRETARY
DON HOWELL
WORKING FILE
FROM:BEVERL Y BARKER
DATE:AUGUST 13, 2004
RE:PETITION FOR RULEMAKING FILED BY
IDAHO COMMUNITY ACTION NETWORK
On July 22, the Idaho Community Action Network (ICAN) filed a "Petition for Rule
Change Once a petition for rulemaking is filed, the Commission has 28 days to "deny the
petition or initiate rulemaking proceedings. . . .Idaho Code 9 67-5230(1)(b). Thus, the
Commission must decide what to do with the Petition no later than August 19, 2004. The Idaho
Administrative Procedure Act (AP A) contemplates that the Commission shall either deny the
Petition in writing stating its reasons for the denial or initiate a rulemaking. Id. The AP A
encourages agencies to utilize negotiated rulemaking whenever if it is feasible to do so. Idaho
Code 9 67-5220(2).
The Commission s Rule 401 adopts the Attorney General's rulemaking procedures. As
the Attorney General's Rule 810 recognizes, negotiated ru1emaking is intended
to improve the substance of proposed rules by drawing upon shared
information, expertise and technical abilities possessed by the affected
persons; to arrive at a consensus on the content of the rule; to expedite
formal rule-making; and to lessen the likelihood that affected persons will
resist enforcement or challenge the rules in court.
ID AP A 04.11.01.810. A decision to initiate negotiated rulemaking "satisfies an agency
obligation to take action on the petition (to initiate rulemakingJ and is not a denial of a petition to
initiate rule-making.IDAPA 04.11.01.822. Conversely, a decision to deny a rulemaking
Petition constitutes "final agency action.Idaho Code 9 67-5230(2). Thus, a decision to deny
DECISION MEMORANDUM - 1 -AUGUST 13 , 2004
ICAN's Petition would constitute "final agency action" and ICAN could seek judicial review.
Idaho Code 99 67-5230(2) and 67-5270(2); IDAP A 04.11.01.821.02(b).
The petition asks that changes be made ~o the Utility Customer Relations Rules.
Specifically, ICAN proposes changes to six existing rules and adoption of one new rule. The
specific changes requested are summarized below.
TERMINATION OF RESIDENTIAL GAS AND ELECTRIC SERVICE WINTER
PAYMENT PLAN (RULE 306)
1. Extend the existing Moratorium 3-month period to include the months of November and
March.
2. Require connection of service during the Moratorium period if a moratorium-eligible
customer requests connection at a residence where service is not currently provided.
SERIOUS ILLNESS OR MEDICAL EMERGENCY (RULE 308)
1. Extend the period during which customers are protected from disconnection due to
serious illness or medical emergency from 30 to 60 days for up to 12 months.
2. Allow unlimited renewal of medical certificates for "as long as the health endangerment
continues
" .
REQUIREMENTS FOR NOTICE TO CUSTOMERS BEFORE TERMINATION OF SERVICE
(RULE 304)
1. Increase the minimum number of days required to provide advance notice of the intent to
disconnect service from 7 to 14 calendar days.
2. With respect to the final oral notice of disconnection provided to customers, require at
least two attempts made at different times of day (instead of the current requirement for a
. "
diligent attempt"
CONTENTS OF NOTICE TO CUSTOMERS BEFORE TERMINATION OF SERVICE
(RULE 305)
1. Require all disconnect notices to include information on the winter moratorium.
2. Require all disconnect notices to include certain information ("warning messages
translated into Serbo-Croatian, Arabic, Spanish, Russian and Farsi as well as any other
language required by the Commission.
3. Require final disconnect notices to state the specific date and time of day that service will
be disconnected.
DECISION MEMORANDUM - 2 -AUGUST 13 2004
RESTRICTIONS ON TERMINATION OF SERVICE OPPORTUNITY TO AVOID
TERMINATION OF SERVICE (RULE 311)
1. Prohibit disconnection on Fridays or days before legal holidays, (The existing rule
prohibits disconnection after 2 p.m. Friday or preceding holidays,
SUMMARY OF RULES (RULE 701)
1. Require notices to be posted in local offices in English and Spanish.
2. Require documents translated into other languages to be made available in local offices,
3, Require summaries to explain the Moratorium, medical certificates, how to complain to
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4, Require summaries to include a statement in each of the five languages identified in Rule
702 notifying customers of the availability of summaries in those languages,
NEW RULE ON MULTILINGUAL NOTICES (RULE 702)
I, Require Summaries of Rules, disconnect notices, and "warning messages" to be
translated into Serbo-Croatian, Arabic, Spanish, Russian and Farsi and made available
upon request to customers.
2, Require utilities to document requests for information in languages other than those
specified above.
STAFF ANALYSIS
Staff has done some preliminary research with respect to other state commissions
policies regarding disconnection of residential service during the winter months, medical
certificates, disconnections on Fridays and days before holidays, and bills or notices in other
languages. Attachment A is a survey of states mentioned in ICAN' s petition. Staff notes that
with the exception of Wisconsin, customers are not unequivocally protected from disconnection
during the Moratorium period as they are in Idaho. Except for Wisconsin, protection extends
only to those customers who make and keep payment arrangements.
State policies vary considerably with respect to medical certificates. Several states
including Oregon, require at least some payment during the period in which the medical
certificate is in effect.
The majority of states surveyed do not allow disconnection on Fridays or days before
holidays. As previously mentioned, Idaho allows disconnection until 2 p,m. on those days,
Oregon is the only state surveyed that requires bills or notices in languages other than
English. Attachment B summarizes information taken from the 2000 U.S, Census, Of those
households where a language other than English is spoken in the home, there are 46 539 persons
DECISION MEMORANDUM - 3 -AUGUST 13 2004
5 years or older who speak English "less than very well"; 78% of those speak Spanish. In
contrast, Oregon has 188 , 958 persons who speak English "less than very well"Attachment C
shows a list of languages spoken by Idaho residents 5 years or older.
Representatives of the Commission Staff, utilities, ICAN and other consumer advocacy
groups have met three times this summer to discuss utility policies and practices and possible
rule changes. A "Best Practices" Task Force was formed to develop guidelines on how best to
implement existing rules. Through a consensus-building process, the Task Force has identified
issues and explored the need to either change rules or modify current utility practices in a manner
consistent with the existing rules. Many of the issues being addressed are the same or similar to
the issues raised by ICAN in its petition.
ST AFF RECOMMENDATION
ICAN's petition raises serious public policy questions that deserve to be fully explored.
The final deadline for proposed rulemaking necessary for legislative review in 2005 is August
2004. Due to time constraints posed by the formal administrative rulemaking process, Staff
is concerned that the Commission will not have adequate time to obtain and consider comments
regarding ICAN's proposed rule changes, j\~ccepting or denying ICAN's proposed rule changes
at this time would detract from the informal consensus-building process already begun.
Therefore, Staff recommends that the Commission accept the petition and initiate a negotiated
rulemaking case. This will allow interested parties to participate in informal workshops to
thoroughly explore the issues and comment on ICAN' s proposed rules before the Commission
review. The work of the Best Practices Task Force could easily be incorporated into this case,
negotiated rulemaking will mean that any Commission-proposed rules would not be ready for
legislative review (and possibly become effective) until 2006,
COMMISSION DECISION
1, Does the Commission wish to accept ICAN's Petition and initiate a Negotiated
Rulemaking case?
2. Or, does the Commission wish to accept ICAN's Petition and issue all the recommended
changes as proposed rules? If so, does the Commission wish to modify any of the rules
as proposed?
DECISION MEMORANDUM - 4-AUGUST 13 , 2004
3. Or, does the Commission wish to accept in part and deny in part ICAN's Petition and
issue some but not all of the recommended changes as proposed rules? Does the
Commission wish to modify any rules?
4. Or, does the Commission wish to deny ICAN's Petition?
i:udmemos/ICAN petition
DECISION MEMORANDUM - 5 -AUGUST 13 2004
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