VII. Conclusions of Law
1. Southwest Gas filed its Reply brief late with good cause and without prejudicing other litigants.
2. The market structure of the gas industry should be reformed cautiously in light of recent energy and gas price rises.
3. The interests of the many stakeholders in the gas industry should be balanced by approving the IS and its appendices in part and disapproving them in part.
4. The IS should be approved, with modifications, because it is in the public interest, reasonable in light of the record as a whole and consistent with law.
5. With regard to the choice given to the Commission in the IS, Section VII.E, on how to deal with risk in storage unbundling, we should adhere to the provisions of the Joint Recommendation approved in D.00-04-060, for 50/50 ratepayer/shareholder risk-sharing.
6. We should not unbundle the storage held in excess of meeting core reliability requirements from core rates.
7. Sections III, X, XI, and XIII should be modified by deleting that portion of each section limiting the Commission's ability to approve the settlement in part. Those portions of each of these sections should be disapproved.
8. Section III of the IS should be modified to set forth criteria for expansion of Wheeler Ridge, but provide that upon the meeting of that criteria, SoCalGas shall submit an application, if appropriate under Public Utility Code Section 1005.5, for an expansion of the receipt point capacity. That application shall be processed regularly, with all issues subject to Commission decision.
9. The modification in Section III should be in the first sentence of the first full paragraph on page 8. The words "apply to" should be inserted after "SoCalGas will". The IS language in the middle on page 8 beginning with the words "This Settlement" through the end of the paragraph, and the concomitant language in Appendix A setting the cost at $12 million in 1999 dollars should be disapproved.
10. The exemplary tariffs attached to the IS should not be approved, although SoCalGas should file similar tariffs as part of the implementation of this decision.
11. In order to deter any question of the applicability of this decision if any of the parties to the IS no longer support the IS with the modifications we make, this decision should be viewed as a decision on the record made in R.98-01-011 and I.99-07-015 and officially noticed facts, as well as an approval of the settlement as modified.
12. The provisions in this decision and the IS regarding core aggregation programs do not substantially change the existing core aggregation program so as to exclude core aggregators from providing billing to their customers.
13. SoCalGas should withdraw Advice Letter No. 2837 and file instead a tariff embodying the IS provisions we are approving.
14. SoCalGas' Advice Letter No. 2895 and SDG&E's Advice No. 1185-G should be rejected. The protests of SCGC, CIG/CMA, TURN, Aglet and ORA should be granted.
15. Because Advice Letter No. 2895 is rejected, within 10 business days from the effective date of this decision, SoCalGas should file a new advice letter to implement a gas industry restructuring memorandum account with the restricted purpose of implementing the IS, including "developing and implementing new or enhanced computer systems" with a ceiling of $3.5 million. This advice letter should not include the provisions disapproved in Advice Letter No. 2895 at pp. 66 to 69 in this decision. The costs booked should be limited to those beginning on the effective date of this decision. The booked costs should be subject to review for their reasonableness, duplicativeness, and their incremental nature in the next BCAP.
16. As of the effective date of the tariffs arising out of this decision, the core should stop contributing to the noncore ITCS, and the noncore should pay all the noncore ITCS.
17. SoCalGas should not unbundle its core interstate transportation costs from core rates at this time.
18. SoCalGas should not change the brokerage fee of $.0201/Dth.
19. SoCalGas should file a rate adjustment advice letter regarding noncore ITCS and related matters within 30 calendar days from the effective date of this decision. The revised rates should become effective within 60 days of the effective date of this decision.
20. No core subscription contracts should be let after April 1, 2001, and contracts let between the effective date of this decision and April 1, 2001, should expire on July 31, 2001.
21. The revenues from those core subscription customers switching to core status should be recorded in the CFCA.
22. SoCalGas should post on its GasSelect system operating information as extensive as that required of PG&E and including post-OFO data by customer class sufficient to allow readers to understand why an OFO was called.
23. SoCalGas and SDG&E should work with customers and/or ESPs to provide customer-specific information like consumption data in consistent formats across different contexts, consistent with consumer protection and privacy considerations. Customers and/or ESPs should pay the reasonable costs of any requests for such information.
24. SoCalGas and SDG&E should be authorized to file applications for rate changes based on needed expenditures to cope with customer transfers to core aggregators when transfers exceed 8% of total core volume has switched from utility procurement to core aggregator procurement. An application or BCAP proposal for a rate increase to fund, in conjunction with ESPs, necessary computer hardware, software, training and education efforts at that point should closely match customer needs instead of being well in advance of such needs.
25. The Energy Division should first deal with any disputes concerning the content of a utility-provided insert. This process may lead to a recommendation for a resolution, with other offices of the Commission participating as parties.
26. The costs of the retail reforms should be paid by the utilities until the next PBR or rate case.
27. SoCalGas should withdraw Advice Letter No. 2895.
28. SoCalGas should file one or more compliance advice letters to implement this decision within 10 business days from the effective date of this decision unless another provision of our order allows longer for a specific matter. The new and revised tariffs should be effective unless rejected by the Energy Division within 30 days after their filing.
29. The compliance filing should specify compliance monitoring, cost responsibility, and enforcement measures.
30. Sempra, on behalf of SoCalGas and SDG&E, should file a Market Assessment Report with the Energy Division two years after the effective date of the tariff revisions ordered in this decision, elucidating the effect on the market of the reforms instituted herein, and, in cooperation with PG&E, the effect on the market in northern California of the reforms instituted through the earlier decisions in this docket at least through the end of 2002 and longer if desired.
31. Upon receipt of the Market Assessment Report, a new investigation may be initiated by the Commission to determine whether further reforms are needed in the gas industry structure in southern California. If initiated, such an investigation should begin by requesting responses to the utilities' market assessment report and may be consolidated or otherwise linked to extant proceedings regarding the gas industry structure in northern California.
32. The terms of the IS that are adopted, and the other reforms adopted herein should continue in place until changed by action of the Commission.
33. The proposed decision herein should be our draft report to the Legislature. The final decision should be our final report.
34. The Commission should establish natural gas consumer protections as outlined in our 1999 consumer protection report to the Legislature.
35. This proceeding should be closed.
36. This order should be effective today, so that the restructuring provisions found in the settlement and adopted by us with modifications may be implemented expeditiously.
IT IS ORDERED that:
1. The motion of Southwest Gas Corporation to allow the late filing of its Reply Brief is granted.
2. The Joint Motion for Approval of Interim Settlement Enhancing and Enabling Competitive Markets on the Southern California Gas Company (SoCalGas) System, filed December 27, 1999, is granted in part and denied in part.
3. We approve sections II, V, VIII, and IX and associated appendices of the Interim Settlement (IS), which is attached in full as Appendix I to this Opinion.
4. We do not approve sections III, X, XI, and XIII insofar as each section limits the Commission's ability to approve the settlement in part.
5. We approve that portion of Section III of the IS that sets forth criteria for expansion, but provide that upon the meeting of that criteria, SoCalGas shall submit an application, if appropriate, for an expansion of the receipt point capacity. That application shall be processed regularly, with all issues subject to Commission decision.
6. We approve the third paragraph of section IV of the IS, which requires SoCalGas to provide certain operating and OFO information.
7. We approve section VI.C of the IS, which allows for continued trading of monthly imbalances and for the trading of OFO imbalances.
8. Thus, we will modify the IS in the first sentence of the first full paragraph on page 8. The words "apply to" shall be inserted after "SoCalGas will." We specifically disapprove the IS language in the middle on page 8 beginning with the words "This Settlement" through the end of the paragraph, and the concomitant language in Appendix A setting the cost at $12 million in 1999 dollars.
9. We do not approve the exemplary tariffs filed along with the IS, although we expect similar tariffs to be filed as part of the implementation of this decision.
10. The provisions regarding core aggregation programs shall not be construed as substantially changing the existing core aggregation program so as to exclude core aggregators from providing billing to their customers.
11. SoCalGas shall withdraw Advice Letter No. 2837 and file instead a tariff embodying the IS provisions we are approving.
12. SoCalGas' Advice Letter No. 2895 and San Diego Gas & Electric Company's (SDG&E) Advice Letter No. 1185-G are rejected. The protests of Southern California Generation Coalition, California Industrial Group and California Manufacturers Association, The Utility Reform Network, Aglet Consumer Alliance, and the Office of Ratepayer Advocates are granted.
13. Because Advice Letter No. 2895 is rejected, within 10 business days from the effective date of this decision, SoCalGas shall file a new advice letter to implement a gas industry restructuring memorandum account with a ceiling of $3.5 million and the restricted purpose of implementing the IS including "developing and implementing new or enhanced computer systems." This advice letter shall not include the provisions disapproved in Advice Letter No. 2895 in this decision. The costs booked shall be limited to those beginning on the effective date of this decision. The booked costs shall be subject to review for their reasonableness, their duplicativeness and their incremental nature in the next BCAP.
14. The costs of the retail reforms shall be paid by the utilities until the next PBR or rate case.
15. As of the effective date of the tariffs arising out of this decision, the core shall stop contributing to the noncore interstate transition cost surcharges (ITCS), and the noncore shall pay all the noncore ITCS.
16. SoCalGas shall not change the brokerage fee of $.0201/Dth.
17. SoCalGas shall file a rate adjustment advice letter regarding noncore ITCS and related matters within 30 calendar days from the effective date of this decision. The revised rates will become effective within 60 days of the effective date of this decision.
18. No core subscription contracts shall be let by either SoCalGas or SDG&E after April 1, 2001, and contracts let between the effective date of this decision and April 1, 2001, must expire on July 31, 2001.
19. The revenues from those core subscription customers switching to core status shall be recorded in the Core Fixed Cost Account.
20. SoCalGas shall post on its GasSelect system operating information as extensive as that required of Pacific Gas and Electric Company (PG&E) and including post- operational flow order (OFO) data by customer class sufficient to allow readers to understand why an OFO was called.
21. SoCalGas and SDG&E shall work with customers and/or energy service providers (ESPs) to provide customer-specific information like consumption data in consistent formats across different contexts, consistent with consumer protection and privacy considerations. Customers and/or ESPs shall pay the reasonable costs of any requests for such information.
22. SoCalGas and SDG&E may file applications for rate changes based on needed expenditures to cope with customer transfers to core aggregators when 8% of total core volume has switched from utility procurement to core aggregator procurement. Such applications shall include provision for ESP or CTA contribution.
23. SoCalGas shall file compliance advice letters to implement this decision within 10 business days from the effective date of this decision except for those provisions of this decision for which we have explicitly ordered that more time can be taken. The new and revised tariffs shall be effective unless rejected by the Energy Division within 30 days after their filing.
24. The compliance filing shall specify compliance monitoring, cost responsibility, and enforcement measures.
25. Sempra, on behalf of SoCalGas and SDG&E, shall file a Market Assessment Report with the Energy Division two years after the effective date of the tariff revisions ordered in this decision, elucidating the effect on the market of the reforms instituted herein, and, in cooperation with PG&E, the effect on the market in northern California of the reforms instituted through the earlier decisions in this docket at least through the end of 2002 and longer if desired.
26. Upon receipt of the Market Assessment Report, a new investigation may be initiated to determine whether further reforms are needed in the gas industry structure in southern California. Such an investigation, if any, shall begin by requesting responses to the utilities' Market Assessment Report and may be consolidated or otherwise linked to extant proceedings regarding the gas industry structure in northern California.
27. The terms of the IS that are adopted, and the other reforms adopted herein shall continue in place until changed by action of the Commission or its staff.
28. This proceeding is closed.
This order is effective today.
Dated __________ , 2001, at San Francisco, California.
ATTACHMENT A
LIST OF APPEARANCES
Dave` Finigan |
Marc D. Joseph Attorney At Law |
Harold Orndorff |
Kevan Hensman |
James Weil |
Christine H. Jun |
Evelyn Kahl Elsesser |
Edward G. Poole |
Gary Binger |
Catherine E. Yap |
John W. Jimison |
John Burkholder |
Page 2
Matthew Brady |
Jennifer Tachera |
Karen Norene Mills |
Michael Rochman |
Craig Chancellor |
Ronald Davis |
Bernard Palk |
Grant Kolling CITY OF PALO ALTO |
Raveen Maan |
Rufus Hightower |
Tom Beach |
Edward W. O'Neill |
Page 3
Lindsey How-Downing |
Dan L. Carroll |
Joseph M. Paul |
Gregory T. Blue |
Lynn M. Haug |
Andrew J. Skaff |
Darwin Farrar |
Brian Cragg |
James W. Mc Tarnaghan |
Michael B. Day |
Richard H. Counihan |
Patrick L. Gileau |
Page 4
John Steffen |
Steven Kelly |
Mark A. Baldwin |
Norman A. Pedersen |
Mark Moench |
Jose Atilio Hernandez |
Susan E. Brown |
Christopher A. Hilen |
Robert L. Pettinat |
Alvin Chan |
John W. Leslie |
Michael D. McNamara |
Page 5
Ronald G. Oechsler |
Donald D. Dame |
Steve Frank |
Edward V. Kurz |
Alan C. Reid |
John J. Cattermole |
Patrick J. Power |
Tom Bradley 531 ENCINITAS BLVD., SUITE 200 |
Gary Hinners |
Glen Sullivan |
Stefanie Katz |
Douglas Porter |
Page 6
Gloria M. Ing |
Kelvin Yip |
Andrew W. Bettwy |
John C. Walley |
Lyn Hebert |
Keith Mc Crea |
Marcel Hawiger |
Susan Scott |
Gerard Worster |
Brian Dingwall (416) 498-6298 |
Terri M. Dickerson |
Thomas R. Dill |
Page 7
Joe Karp |
Joseph M. Karp |
Paul M. Amirault |
Roger T. Pelote |
Michael J. Thompson |
Ed Yates |
(END OF ATTACHMENT A)
APPENDIX I
INTERIM SETTLEMENT ENHANCING AND ENABLING
COMPETITIVE MARKETS ON THE SOCALGAS SYSTEM
Note: See CPUC Formal Files for `SoCalGas Pooling' pages.
APPENDIX II
COMPARISON OF COMPREHENSIVE, INTERIM,
AND POST INTERIM SETTLEMENTS
Comparison of Comprehensive, Interim, and Post Interim Settlements | |||
CPUC IDENTIFIED MOST PROMISING OPTIONS |
INTERIM SETTLEMENT |
POST INTERIM PROPOSAL |
COMPREHENSIVE SETTLEMENT |
Effective dates |
Effective first day of second month after month of approval. Continues through 12/31/02. |
Same effective date as Interim. Continues through August 31, 2006. |
Implementation is phased from 90 days after approval through 10/1/01. Continues through August 2006 |
TRANSMISSION |
|||
Create Firm, Tradable Intrastate Rights |
No |
No |
Yes |
Create Secondary Market for Intrastate Rights |
N/A |
N/A |
Yes -- The secondary market will not be regulated with respect to price or term. |
Place Utility at Risk for Unused Capacity Resources |
Utility at risk for 25% of noncore transmission revenues through 12/31/02. No risk for core transmission capacity. |
Same as Interim through 12/31/02. Issue open for consideration after 1/1/03. |
Utility at risk for 100% of noncore backbone transmission capacity. Utility at risk for 25% of noncore local transmission capacity through 12/31/02, unresolved after 1/1/03. No risk for retail core transmission capacity. |
Develop Clear Procedure for Allocating Capacity |
Receipt point capacities established on basis of physical maximums. Allocation through receipt points based on upstream pipeline capacity rights system. |
Same as Interim. |
Receipt point capacities initially established based on physical maximums. Defined backbone rights are then established through an open season effective 10/1/01. |
Make Hector Road Delivery Point |
Yes |
Yes |
Yes |
CPUC IDENTIFIED MOST PROMISING OPTIONS |
INTERIM SETTLEMENT |
POST INTERIM PROPOSAL |
COMPREHENSIVE SETTLEMENT |
STORAGE |
|||
Create Firm, Tradable Storage Rights |
Customers granted right to assign storage contracts. CTAs have option to reject portion of core's 35 Bcf and associated injection. |
Same as Interim. |
Customers given firm storage inventory, withdrawal, or injection rights. |
Create Secondary Market for Storage Rights |
Provides for assignment of storage contracts. Creates EBB to facilitate trading. |
Same as Interim. |
Customers can trade any portion of their storage injection, withdrawal and inventory rights in the secondary market. Expanded trading opportunities through third-party provider ALTRA. |
Place Utility at Risk for Unused Storage Resources |
Utility at risk for 50% of unbundled storage through 12/31/02. |
Utility at risk for 50% of unbundled storage through 12/31/02. Utility 100% at risk after 1/1/03. |
50/50 risk between shareholders/ratepayers through 3/31/02. 75/25 through 3/31/03. SoCalGas 100% at risk effective 4/1/03. |
BALANCING |
|||
Examine structural means for SoCalGas to provide balancing services without drawing on core assets |
Maintains system-wide balancing. |
Same as Interim. |
Separate balancing of core and noncore. |
Cost and Rate Separation for Balancing Services |
Maintain bundled balancing service through 12/31/02. |
Same as Interim through 12/31/02. Issue open for consideration after 1/1/03. |
Customers may opt out of the default balancing service and elect to self balance while receiving a self-balancing credit. |
Electronic Trading of Imbalances |
Permit daily and winter imbalance trading. |
Same as Interim. |
Expanded imbalance trading flexibility and independent trading opportunities through third-party provider ALTRA. |
CPUC IDENTIFIED MOST PROMISING OPTIONS |
INTERIM SETTLEMENT |
POST INTERIM PROPOSAL |
COMPREHENSIVE SETTLEMENT |
HUB SERVICES |
|||
Separate Utility Hub Services from Procurement Function |
Hub revenues in GCIM through 12/31/02. |
Same as Interim through 12/31/02. Issue open for consideration after 1/1/03. |
Core Hub revenues in GCIM through 12/31/02. Separates core Hub activity and creates gas operations HUB. |
CORE PROCUREMENT |
|||
Re-Examine Utility Role in Core Procurement Once a Specified Competitor Market Share has Been Established |
No |
No |
Within 6 months of settlement approval, SoCalGas shall file an application to address competitive alternatives. |
Eliminate Core Aggregation Transportation Thresholds After Adoption of Consumer Protection Measures |
Does not address. |
Does not address. |
Reduces participation eligibility to 120,000 therms/year and eliminates 10% market cap. |
Unbundle Utility Interstate Capacity Costs for Core Customers |
No |
Unbundles all interstate capacity for CTA customers. Stranded costs allocated 50/50 between core transport and core sales. |
Unbundles all interstate capacity for CTA customers. Stranded costs allocated 50/50 between core/noncore (with cap) until 12/31/01; and within core class after 1/1/02. |
Unbundle Utility Storage Costs for Core Customers |
Unbundle 50% of core injection and inventory storage reservation for CTA customers. |
Same as Interim. |
Unbundle all storage costs (associated with non-reliability and reliability storage for CTA customers) subject to certain caps. |
Eliminate Core Subscription Service |
Does not address. |
Does not address. |
Yes |
Separate Costs and Rates for Core Utility Services. Treat Utility Core Procurement Departments as Any Other Utility Customer |
Core procurement subject to same rules and penalties as noncore for monthly, OFO and winter balancing, except winter flowing supply requirements continue to apply to core. |
Same as Interim. |
Core procurement subject to same rules and penalties as noncore. |
CPUC IDENTIFIED MOST PROMISING OPTIONS |
INTERIM SETTLEMENT |
POST INTERIM PROPOSAL |
COMPREHENSIVE SETTLEMENT |
INFORMATION |
|||
Provide Real-Time, Customer-Specific Information |
No change to current system. |
No change to current system. |
Offers noncore customers real-time access; provides for daily customer data. |
Provide Details of Completed Transactions |
No change to current system. |
No change to current system. |
Adds information regarding open season contracts. |
Establish Secondary Market Via a Utility Electronic Bulletin Board |
Yes |
Yes |
Yes -- Also includes a third party auctioneer, ALTRA, for imbalance trading. |
Provide pipeline operator demand forecasts by customer class |
Yes |
Yes |
Yes |
REVENUE CYCLE SERVICES |
|||
Provide for Competitive Metering Technologies |
Does not address. |
Does not address. |
Customer meter ownership and add-on pilot program through 12/31/02. |
Provide Competitive Billing Options to Customers Similar to Those Offered in the Electric Industry |
Does not address. |
Does not address. |
Yes |
Other Relevant Issues (not identified as "Most Promising Options") |
|||
Creation of Pools for Transmission |
Creates receipt point pools. |
Creates receipt point pools. |
Creates both receipt point and city gate pools. |
Provide for Wheeler Ridge Expansion |
Yes -- Automatic trigger on expansion during Interim period. |
Same as Interim. |
Does not address. |
Eliminate Core contribution to traditional ITCS |
No |
Yes -- Effective 1/1/02 Noncore will bear 75% of costs SoCalGas will bear 25% of the costs of traditional ITCS. |
Yes -- Effective 1/1/2002, Noncore will bear full costs of traditional ITCS. |
APPENDIX III
LIST OF ACRONYMS
SOCALGAS - Southern California Gas Company
SDG&E - San Diego Gas & Electric Company
IS - Interim Settlement Agreement
PI - Post-Interim Settlement Agreement
CS - Comprehensive Settlement Agreement
PG&E - Pacific Gas and Electric Company
OFO - Operational Flow Order
ITCS - Interstate Transition Cost Surcharges
ALJ - Administrative Law Judge
PGA - Purchased Gas Account
CAT - Core Aggregation Transportation
BCAP - Biennial Cost Allocation Proceeding
NSBA - Noncore Storage Balancing Account
ORA - Office of Ratepayer Advocates
ESP - Energy Service Provider
CTA - Core Transport Agent
GCIM - Gas Cost Incentive Mechanism
ECPT - Equal-Cents-Per-Therm
TURN - The Utility Reform Network
UDC - Utility Distribution Company
GIRMA -Gas Industry Restructuring Memorandum Account
IRMA - Industry Restructuring Memorandum Account
SCGC - Southern California Generation Coalition
MFV - Modified-Fixed Variable
LRMC - Long-Run Marginal Cost
PBR - Performance-Based Ratemaking
NFCA - Noncore Fixed Cost Account
CFCA - Core Fixed Cost Account
DASR - Direct Access Service Request
CERTIFICATE OF SERVICE
I certify that I have by mail this day served a true copy of the original attached Alternate Proposed Decision of Commissioner Wood on all parties of record in this proceeding or their attorneys of record.
Dated November 26, 2001, at San Francisco, California.
/s/ EVELYN P. GONZALES |
Evelyn P. Gonzales |
NOTICE
Parties should notify the Process Office, Public Utilities Commission, 505 Van Ness Avenue, Room 2000, San Francisco, CA 94102, of any change of address to insure that they continue to receive documents. You must indicate the proceeding number on the service list on which your name appears.
* * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * *
The Commission's policy is to schedule hearings (meetings, workshops, etc.) in locations that are accessible to people with disabilities. To verify that a particular location is accessible, call: Calendar Clerk (415) 703-1203.
If specialized accommodations for the disabled are needed, e.g., sign language interpreters, those making the arrangements must call the Public Advisor at (415) 703-2074, TTY 1-866-836-7825 or (415) 703-5282 at least three working days in advance of the event.