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HomeMy WebLinkAbout7 1 Rate Study Attachment hdrinc.com 2365 Iron Point Road, Suite 300, Folsom, CA 95630 T 916.817.4700 F 916.817.4747 July 18 , 2016 Mr. Stephen Hollabaugh, Power Supply Engineer Mr. Jeremy Popov, Administrative Services Manager Truckee Don ner Public Utility District P.O. Box 309 Truckee, CA 961 60 RE: Electric Rate Restructure Technica l Memora ndum Dear Mr. Hollabaugh and Mr. Popov: HDR is pleased to present to the Truckee Donne r Public Utility District (District) the summary report for the e lectric rate restructure. The District requested technical assistance from HDR Engineering, Inc. (HDR) to update the electric rat e schedules for its customers. A key goal of the rate schedule update was to enhance the revenue stability of the current rate structure. To accomplish this, the proposed rates reflect an increase in the month ly customer charge and minor adjustments to the energy and demand charge, where applicable, to collect the target level of revenues. This technical memorandum outlines the overall approach used to calculate the electric rates, along with our conclusions and recommendations. This technical memorandum was developed utilizing the District’s 2016 financial master plan, recent customer billing information, and the District’s current rate schedules. HDR has relied upon this information provided by the District to develop the analyses which provided the basis for our findings, conclusions and recommendations. At the same time, the electric rates were developed utilizing industry recognized rate design principles and methodologies. Attached is the summary of the electric rate restructuring, findings, and recommendations. We appreciate the assistance provided by District staff in the development of this study. More importantly, HDR appreciates the opportunity to provide these technica l and professional services to the District. Sincerely, HDR ENGINEERING, INC. Shawn W. Koorn Associate Vice President Truckee Donner Public Utility Distric t 1 2016 Domestic and Commercial Electric Rate Update Introduction HDR Engineering, Inc. (HDR) was retained by Truckee Donner Public Utility District (District) to update and restructure both the domestic and commercial electric rate schedules. A key goal of this rate schedule update was to enhance the revenue stability of the current rate structure. Changes in customer usage patterns are resulting in declines in customer e nergy use as well as increased infrastructure maintenance and operat ion costs. To minimize the long-term impacts to rates, and increase in the revenue stability of the rates, it is proposed that the customer charge be increased to collect the target level of revenues and the energy and demand charge be adjusted as needed to meet target revenue levels. The District provided HDR with the proposed target rate adjustment to es tablish the revenue levels for the rate designs based on the recently updated financial plan. The District’s target adjustments are for a three year period of FY17, FY18 and FY19 with annual rate adjustments of 2%, 3% and 3% respectively. This summary report provides an overview of the basis for the proposed rate adjustments along with the proposed electric rates for the three year period for the domestic and commercial rate schedules. Summary of the Financial Plan The District developed a financial pla n, or revenue requirement, for the electric utility to determine the need for rate adjustments based on the operating and capital needs of the electric utility. The revenue requirement was developed for a 10 year period of FY16 to FY25 using a cash basis approach. This is the typical approach used to set rates for a municipal uti lity such as the District. In addition, reviewing rates over a long-term time period allows for the District to make adjustments to the rates to mee t fund ing needs over a long-term period and minimize the need for significant rate adjustments. The revenue requirement developed for the electric utility is based on the current level of revenues received by the District from its customers at current rate levels. This includes rate revenues and miscellaneous revenues which are used to fund annual operating and capital needs. Revenues were projected based on the historical revenues received by the District. Total operating revenues were budgeted at $22.6 million in FY16. Rate revenues were projected to increase based on assumed customer growth of 1% per year resulting in total operating revenues of approx imately $26.2 million in FY2020, and increasing to $31.8 million in FY25. The annual operating expenses were based on the FY16 adopted budget for the District. The budgeted expenses were then escalated by a 3% per year inflat ion factor to dev elop a projection of annual operating expenses over the ten year time period. Total operating expenses were budgeted to be $20.7 million in FY16 increasing to $23.6 million in F Y20 and $26.6 million in FY25 based on the inflationary increases. The District has one outstanding debt issue the, CalPERS Side fund Liability, which will be fully paid off in FY22. This debt is paid from payroll overheads in both the electric division at 63% and the water division at 37%. The revenue requirement assumed that there will be no addit iona l debt issuances during the ten year period. Truckee Donner Public Utility Distric t 2 2016 Domestic and Commercial Electric Rate Update Historically, the District has attempted to maintain rate adjustments at inflationary levels to fund operating and capital needs. The last rate adjustments were adopted in 2 007 and included rate adjustments through 2009. Since 2009, no adjustments have been made to the District’s electric rates. However, the District has reached a point where current rate levels are not sufficient to maintain Board target minimum reserve levels, maintain target debt service coverage ratios, and fund necessary capital im provements. The District has a target fund balance of $14 million in FY16, increasing in future years to reflect the increase in operating and purchase power costs. The District also has outstanding debt for the electric utility . One of the requirements of the existing long-term debt is maintaining a debt service coverage ratio of 1.20. Howev er, a ratio of 1.20 means that the District is only funding O&M and annual debt service payments and does not allow for the funding of a nnual capital improvements. As a result, targeting a coverage ratio of greater than the minim um allowable provides annual funding in rates for capital. As noted, above, the funding of annual capital improvements plays an important part in establishing the prudent level of rates and long-term rate levels. The level of rate funded capital is typically set at a minimum of annual depreciation expense. This level of minimum funding provides a benchmark that will provide for some replacement funding. However, annual depreciation expense does not reflect replacement costs. Therefore, the typical industry standard fund ing level is something greater than annual depreciation expense. A prudent rate funded capital level is 1.5 to 2 times annual depreciation expense. In this way, the rate funded capital more closely reflects replacement needs. Given that the District primarily cash finances capital improvements, the District should be funding capita l at a prudent levels given that the District’s capital plan ranges from $2.8 m illion to $4.5 million in any given year. Combining the components discussed the financial plan developed by the District provided is shown in Table 1 for the next 5 years. Note that the study went out 10 years to year 2025, but for presentation purposes the next 5-year summary is provided. The full financ ial model is included in the attached appendix. Table 1 Sum mary o f the Fina ncial Plan for FY 2016 to FY 2020 (in tho usands) FY 2016 FY 2017 FY 2018 FY 2019 FY 2020 Operating Cash Flow Operating Revenue $22,6 71 $22,8 99 $24,0 41 $25,2 28 $26,2 30 Operating Expenses (20,674) (21,595) (22,243) (22,910) (23,597) Other Revenue (Expenses) (211) (177) (149) (107) (26) Net Income $1,786 $1,127 $1,649 $2,211 $2,607 Transfer From/(To) Funds 3,423 3,812 2,325 2,257 2,189 Debt Principal Payments (656) (723) (795) (871) (952) Capital Projects (4,55 3) (4,216) (3,040) (2,969) (2,899) Change in Operating Cash $0 $0 $139 $629 $945 Proposed Rate Adjustment 0.0% 2.0% 3.0% 3.0% 3.0% Debt Service Coverage 2.37 1.62 2.06 2.51 2.72 Truckee Donner Public Utility Distric t 3 2016 Domestic and Commercial Electric Rate Update The summary shows that the District is sufficiently funding annua l O&M expenses at current rate levels . However, rate adjustments are necessary to fund ann ual ca pital improvements on a pay as you go basis (e.g ., cash financed) and m aintain Board policy target minimum reserve levels and meet target debt service coverage ratios. To meet Board policies, revenue adjustments of 2.0% in FY17 followed by 3.0% in FY18 and FY19 are proposed. Even wit h these adjustments , the District is projected to have a deficit due to the level of capital improvement needs. These deficiencies will be funded through existing reserve balances. It should also be noted that even with the proposed revenue adjustments the District w ill not be meeting target minimum fund balances. However, with annual revenue adjustments of approximately 3.0% per year, the District will meet target reserve levels in year 10 (FY25) of the plan. As can be seen, it is important to develop a plan that provides a projection of future rate adjustments to fund future operating and capital needs, and meet Board policy targets for fund balance and debt service coverage. The District’s financial plan shows the need for revenue adjustments starting in FY17 of 2% and 3% annually thereafter until FY 2025 to meet target reserve balances and maintain sufficient debt service coverage ratios. The focus of the rate adjustments will be the first three years and rates will be developed for the three years of FY17, FY18 and FY19. However it is important to note that should the outside economic factors or District financial numbers change (i.e. delayed capital projects or slowed growth) the rate adjustment results shown would change. Development of the Prop osed E lectric Rates Based on the rate transition plan developed in the financia l plan, proposed rates can be developed to meet the proposed revenue levels. The starting point of the electric rate design are the current rates for the District’s domestic (residential primary and secondary) and commercial (small, medium, large) customers. Ov ervie w of the Rate Designs The starting point in developing rates is to reflect the rate design goals and objectives of the District. At the forefront of the goals and objectiv es is to develop rates that are cost-based and equitable to the various customer classes of service. Economic theory suggests that the price of a commodity must roughly equal its cost if equity among customers is to be maintained. An electric utility typically incurs capacity-related costs in meeting its peak use requirements (demands ). It follows that the customers who cause maximum peak day demands should pay Truckee Donner Public Utility Distric t 4 2016 Domestic and Commercial Electric Rate Update for demand-related facilities in proportion to their contribut ion to maximum demands. When utilit ies emphasize the establishment of cost-based rates they are in essence embracing this basic and fundamental economic concept. When costing and pricing techniques are refined, consumers have a more accurate picture of what t he commodity costs to produce and deliver. In addition, being cost-based and equitable, the District may take into considerat ion other policy considerations such as revenue stability, ability to pay, continuity of past rate philosophy, encourag ement of economic development, conservation or efficient use, ease of adminis tration, and customer understanding. However, it should be noted that it is difficult , if not impossible, to design a rate structure that meets all of the goals and objectives. As a result, the development of rates takes into consideration the priority of the goals. Present Electric Rates The District’s present electric rate structures are composed of a customer charge and then, depending upon the class of service, an energy charge, or a demand and energy cha rge. Provided below in Table 1 is the District’s present electric rate schedules for the domestic and commercial classes of services. Table 1 Present Domestic and Commercial Electric Rate Schedules Rate Components Present Rate DOMESTIC Primary Residential Customer Charge- $/month $6.76/Month Energy Charge – All kWh ($/kWh) $0.132/kWh Secondary Residential Customer Charge- $/month $6.76/Month Energy Charge – All kWh ($/kWh) $0.151/kWh COMMERCIAL Small Commercial Customer Charge- $/month $13.10/Month Energy Charge – All kWh ($/kWh) $0.159/kWh Medium Commercial Customer Charge- $/month $130.81/Month Energy Charge – All kWh ($/kWh) $0.094/kWh Dem and Charge – All kW $12.86/kW Large Commercial Customer Charge- $/month $573.78/Month Energy Charge – All kWh ($/kWh) $0.097/kWh Dem and Charge – All kW $12.29/kW Key Assumptions of the Rate Design In discussion with District staff, the focus for this analysis is to enha nce the revenue stability of the current rate structure. The proposed rates were designed and based on the District’s most recent 12 months (2015) of detailed usage inform ation by customer c lass, including the number Truckee Donner Public Utility Distric t 5 2016 Domestic and Commercial Electric Rate Update of customers, kWh, and kW for 2015. The rates developed collect the target revenue levels based on the three year proposed annua l adjustments and customer data. These revenue adjustments were made “across th e board” fo r the domestic and commercial customers. In other words, the target revenues for each customer grou p were based on the rate transition plan (i.e., 2.0% FY17, 3.0% FY18, 3.0% FY19). The starting point in the design of the pro posed rates was to adjust the customer charge to reflect a portio n of the fixed costs on the system. However, it should be noted that only one customer clas s energy charge was adjusted. The energy charge for the medium com mercial customers was adjusted to reflect the typical relatio nships between the small, medium, and la rge customers. In this case, the medium commercial energy charge was increased in each year. Proposed Electric Rate Designs For each customer class of service, rate designs were developed for FY17, FY18 a nd FY19. HDR and the District reviewed several rate structu re a lternatives to meet the revenue stability goal. Provided below is the proposed rates for the dom estic and comme rcia l rate schedules . Domestic Rate Schedules The present domestic rate includes a primary and secondary class of service. Both the primary and secondary have a fixed monthly customer charge and a n energy cha rge for a ll consumption. The proposed domestic rate design has adjusted the customer charge only. Provided below in Table 2 is an overview of the present and proposed domestic rate designs. Table 2 Review of the Present and Proposed Domestic Rates; 2017 - 2019 Rate Components Present Rate 2017 2018 2019 Primary Residential Customer Charge- $/month $6.76/Month $8.60/Month $11.35/Month $14.10/Month Energy Charge – All Kwh (S/kWh) $0.132/kWh $0.132/kWh $0.132/kWh $0.132/kWh Secondary Residential Customer Charge- $/month $6.76/Month $8.60/Month $11.35/Month $14.10/Month Energy Charge – All Kwh (S/kWh) $0.151/kWh $0.151/kWh $0.151/kWh $0.151/kWh As can be seen, the customer charge is proposed to be adjusted from $6.76 to $8.60 in FY17. The im pact of the proposed change in the bill is $1.84 per m onth in FY17. The impact of this change is that approximately 10% of the revenue will be collected from the customer charge. This compares to approx imately 8% collected today. The adjustments for FY18 and FY19 are based upon the overall 3%/year increase in revenues. Similar to FY17, the proposed rates reflect the increase in the m onthly customer charge. Bill compa risons for this rate design option are provided within the Technical Appen dix. Commercial Rate Schedules The District has three rate schedules unde r the commercia l class of service. They are small commercial for customers with maximum dema nds that are is less than 50 kW. The small commercial rate structure is similar to the domestic schedule with a customer and energy Truckee Donner Public Utility Distric t 6 2016 Domestic and Commercial Electric Rate Update charge. M edium commercial are customers with maximum demands greater than 50 kW and less than 200 kW. Large commercial are custom ers with maximum demands greater than 200 kW. The medium and large commercia l customers have a customer charge, demand charge and energy charge. The proposed rate adjustments for the commercial rate schedules have been applied to just the customer charge. The energy and demand charge have remained level for the three year perio d. The exception to this is the energy charge for the medium commercial class of service was adjusted in order to re flect the typical cost relationship between the various classes of service. Table 3 provides the present and propos ed rates for the commercial classes of service. Bill com parisons for each schedule are provided in the Technical Appendix. Table 3 Review of the Present and Proposed Commercial Rates; 2017 – 2019 Rate Components Present Rate 2017 2018 2019 Small Commercial (< 50 kW) Custom er Charge- $/month $13.10/Month $16.67/Month $21.99/Month $27.32/Month Energy Charge – All kWh ($/kWh) $0.159/kWh $0.159/kWh $0.159/kWh $0.159/kWh Medium Commercial (> 50 KW) Custom er Charge - $/Month $130.81/Mth $166.42/Mth $219.63/Mth $272.84/Mth Dem and Charge - $/kW $12.86/kW $12.86/kW $12.86/kW $12.86/kW Energy Charge – All kWh ($/kWh) $0.094/kWh $0.097/kWh $0.100/kWh $0.103/kWh Large Commercial (> 200 KW) Custom er Charge - $/Month $573.78/Mth $729.96/Mth $963.37/Mth $1,196.79/Mth Dem and Charge - $/kW $12.29/kW $12.29/kW $12.29/kW $12.29/kW Energy Charge – All kWh ($/kWh) $0.097/kWh $0.097/kWh $0.097/kWh $0.097/kWh These rates have been adjusted for the three year ann ual a djustments of 2%, 3% and 3% for FY17, FY18 and FY19 respectively. Bill com parisons for these rate designs are provided in the Technical Appendix. Summary The proposed rates developed in this technical memorandum are a culmination of the technical analyses undertaken for the District by HDR. The revenue transition plan is based on the District’s current financial plan. The proposed rate designs re flect the D istrict’s goal of enhancing the revenue stability of the electric utility revenues. Should the District not experience the assumption which followed the three annual adjustments of 2%, 3% and 3% (i.e., load growth, projected load assumptions, etc.) the rates will need to be adjusted to reflect those circumstances. The proposed rate designs are intended to collect the rate levels to adequately fund and maintain the utility.