PROPOSED RULEMAKING
PENNSYLVANIA PUBLIC UTILITY COMMISSION
[ 52 PA. CODE CH. 62 ]
[39 Pa.B. 1657]
[Saturday, April 4, 2009][L-2008-2069115/57-266]
Licensing Requirements for Natural Gas Suppliers The Pennsylvania Public Utility Commission (Commission) on December 4, 2008, adopted a proposed rulemaking order which revises the Commission' natural gas supplier licensing regulations regarding level of security needed and forms of security used to satisfy statutory security requirements for licensing.
Executive Summary
In its October 2005 Report to the General Assembly on its investigation into competition in Pennsylvania's retail natural gas market, the Commission found that there was not effective competition in the natural gas retail market based in part on the low number of natural gas suppliers (NGSs) participating in the market. Docket No. I-00040103. The amount of financial security that an NGS needed to provide for licensing was identified as a possible barrier to market entry and participation. See 66 Pa.C.S. § 2208(c)(1)(i).
Based on the Commission's finding, a collaborative of stakeholders (SEARCH) was convened to discuss ways to increase effective competition. The report on SEARCH suggested the use of reasonable criteria for adjusting the amount of security required for licensing and the use as security of NGS accounts receivable in Purchase of Receivables Programs (POR) as two ways to increase the number of suppliers participating in the retail market. The Commission adopted this suggestion in its Final Search Order and Action Plan, order entered September 11, 2008 at Docket No. I-00040103F0002 and directed that the Commission's regulation in 52 Pa. Code § 62.111 (relating bonds and other security) be revised accordingly.
This proposed rulemaking revises § 62.111 to include: (1) the use of NGS accounts receivables in a Commission approved POR program to satisfy part of, or the total security requirement; (2) the adoption of standard language for financial instruments used for security; and (3) the development of reasonable criteria for a natural gas distribution company (NGDC) to use in adjusting the level of security that a NGS must provide to maintain its license. The proposed revisions will better balance the ability of a NGS to provide adequate security to maintain its license with a NGDC's actual risk of financial loss in the event of supplier default.
Public Meeting held
December 4, 2008Commissioners Present: James H. Cawley, Chairpersons; Tyrone J. Christy, Vice Chairperson, Concurring in result only; Robert F. Powelson; Kim Pizzingrilli, Statement attached; Wayne E. Gardner
Licensing Requirements For Natural Gas Suppliers; SEARCH Final Order and Action Plan: Natural Gas Supplier Issues; Doc. No. L-2008-2069115; I-00040103F0002
Proposed Rulemaking Order In its September 11, 2008 Final Order and Action Plan regarding the Commission's Investigation into the Natural Gas Supply Market: Report on Stakeholder's Working Group1 (SEARCH Order), Docket No. I-00040103F0002 (SEARCH Order), the Commission determined that one way to increase effective competition in the retail natural gas market was to revise the natural gas supplier licensing regulations2 in regard to the level of security needed and the forms of security that could be used to satisfy the statutory security requirement for licensing. Accordingly, this proposed rulemaking order sets forth revisions to the Commission's natural gas supplier licensing regulations on these matters.
Discussion Section 2208(c)(1)(i) of the Public Utility Code establishes the security requirements for the issuance and maintenance of a natural gas supplier (NGS) license. The section also authorizes the natural gas distribution company (NGDC) to determine the amount and form of the bond or other security that is required for a NGS license. The bonding amount must be based on criteria that were approved by the Commission in each natural gas distribution company's restructuring filing. This section reads as follows:
(c) Financial fitness.--(1) In order to ensure the safety and reliability of the natural gas supply service in this Commonwealth, no natural gas supplier license shall be issued or remain in force unless the applicant or holder, as the case may be, complies with all of the following:(i) Furnishes a bond or other security in a form and amount to ensure the financial responsibility of the natural gas supplier. The criteria each natural gas distribution company shall use to determine the amount and form of such bond or other security shall be set forth in the natural gas distribution company's restructuring filing. In approving the criteria, commission considerations shall include, but not be limited to, the financial impact on the natural gas distribution company or an alternative supplier of last resort of a default or subsequent bankruptcy of a natural gas supplier. The commission shall periodically review the criteria upon petition by any party. The amount and form of the bond or other security may be mutually agreed to between the natural gas distribution company or the alternate supplier of last resort and the natural gas supplier or, failing that, shall be determined by criteria approved by the commission.66 Pa.C.S. § 2208(c)(1)(i)(emphasis added).
The Commission's NGS licensing regulations became effective on publication in the Pennsylvania Bulletin on July 21, 2001. 31 Pa. B. 3943. Licensing Requirements for Natural Gas Suppliers, Order entered April 19, 2001 at Docket No. L-00000150. Section 62.111 addresses bonds and other security. 52 Pa. Code § 62.111. This section reads as follows:
§ 62.111. Bonds or other security.(a) A license will not be issued or remain in force until the licensee furnishes proof of a bond or other security. See section 2208(c)(1)(i) of the act (relating to requirements for natural gas suppliers).(b) The purpose of the security requirement is to ensure the licensee's financial responsibility. See section 2208(c)(1)(i) of the act.(c) The amount and the form of the security, if not mutually agreed upon by the NGDC and the licensee, shall be based on the criteria established in this section. The criteria shall be applied in a nondiscriminatory manner. The Commission will periodically review the established criteria upon petition by any party.(1) The amount of the security should be reasonably related to the financial exposure imposed on the NGDC or supplier of last resort resulting from the default or bankruptcy of the licensee. At a minimum, the amount of security should materially reflect the difference between the cost of gas incurred and the supplier's charges, if any, incurred by the NGDC or supplier of last resort during one billing cycle.(i) The amount of security established under this paragraph may be modified based on one or more of the following:(A) The licensee's past operating history, including the length of time that the licensee operated on the NGDC's system, the number of customers served and past supply reliability problems.(B) The licensee's credit reports.(C) The number and class of customers being served.(D) Information that materially affects a licensee's creditworthiness.(E) The licensee's demonstrated capability to provide the volume of natural gas necessary for its customers' needs.(ii) The amount of the security may be adjusted, but not more often than every 6 months. The adjustments shall be reasonable and based on one or more of the following criteria:(A) Changes in a licensee's recent operating history on the NGDC's system.(B) Changes in a licensee's credit reports.(C) Changes in the number or class of customers being served by the licensee.(D) Changes in circumstances that materially affect a licensee's creditworthiness.(E) The licensee's demonstrated capability to provide the volume of natural gas necessary for its customers' needs.(2) The following legal and financial instruments and property shall be acceptable as security:(i) Bond.(ii) Irrevocable letter of credit.(iii) Corporate, parental or other third-party guaranty.(3) In addition to the requirements in this section, small suppliers with annual operating revenues of less than $1 million may utilize real or personal property with the following supporting documentation acceptable as security:(i) A verified statement from the licensee that it has clear title to the property and that the property has not been pledged as collateral, or otherwise encumbered in regard to any other legal or financial transaction.(ii) A current appraisal report of the market value of the property.(d) The licensee shall submit to the Commission documentation demonstrating that it has complied with the bonding or security requirement. One copy of each bond, letter of credit, or other financial or legal instrument or document evidencing an agreement between the licensee and the NGDC shall be submitted to the Commission.(e) Licensee liability for violations of 66 Pa.C.S. (relating to the Public Utility Code) and Commission orders and regulations is not limited by these security requirements.In the SEARCH Order, the Commission identified NGDC security requirements as one barrier to supplier participation in the retail market3 . Referencing the SEARCH Report, the SEARCH Order discussed the criteria used by the NGDC in establishing a security level and the extent of the Commission's authority under the law to modify security requirements:
The criteria that are to be used by the NGDC to set the amount and form of the security were established in each company's restructuring proceeding. The level of security is based on a formula that takes into account the NGDC's exposure to costs. For the retail supply market, this formula involves the peak day demand estimate for capacity, number of days' potential exposure in a billing cycle, and commodity estimates for quantity and cost. Offsets to the amount of security that a NGS must provide may include calls on capacity, receivable purchases or receivable pledges. NGDC costs related to supplier default as set forth in Section 2207(k) of the Public Utility Code may also be taken into account when establishing the amount of security required. 66 Pa.C.S. § 2207(k). SEARCH Report, pp. 18-19.If a NGDC and NGS cannot come to a mutual agreement, the level or form of security is determined by criteria approved by the Commission. See 66 Pa.C.S.§ 2208(c)(1). These criteria were established in the Commission's NGS licensing regulations and are to be used to determine security levels and acceptable forms for the security when voluntary agreement is not reached. See 52 Pa. Code § 62.111. Section 62.111(c) permits the use of the irrevocable letters of credit, corporate parental or other third party guaranty, and real or personal property. Personal property would include the use of escrow account or the pledge or purchase of receivables. 52 Pa. Code § 62.111(c). SEARCH Report, pp. 18-19.Also, an individual NGDC's security requirement, including the level of security, is subject to periodic review by the Commission. 66 Pa.C.S. § 2208(c). See also, UGI Utilities, Inc.--Gas Division v. PA PUC, 878 A. 2d 186 (Pa. Cmwlth. Ct. 2005) appeal den. 586 Pa. 732; 890 A.2d 1062 (2005) (the Commission has discretion to approve criteria to be used to determine the financial security necessary based upon financial impact on the NGDC by a default by a NGS). Thus, a supplier is not without a remedy to address unreasonable security requirements of a NGDC on a case-by-case basis.SEARCH Order, pp. 23-24.
The SEARCH Order also discussed the suppliers' position that uniformity in the use of security instruments across NGDC service territories, and greater acceptance of other types of security by the NGDCs would decrease costs for suppliers and remove a barrier to supplier entry and participation.
However, the SEARCH Report states that suppliers observe that the use of security instruments is not uniform among the companies and contend that this variability is a barrier to market entry and multi-system participation. Suppliers also raised concerns about the escalating cost of security to match the growth of their sales, and opined that there should be a limitation on the frequency of review of required security levels, with specific triggers for that review, such as a percentage change in pool size. SEARCH Report, p. 19.Suppliers also view the NGDC's acceptance of only certain financial instruments as a barrier to market entry. Suppliers prefer to use corporate guarantees as the predominant practice. Further, to ensure fairness and remove a possible barrier for market entry, suppliers believe that specific criteria for acceptable financial instruments should be established in a regulation or order rather than permitting companies to set those through tariffs. SEARCH Report, p. 19.Establishing standard language for the form of the financial instrument used for security and reasonable criteria for the amount of security should assist NGSs in obtaining security in an acceptable form and amount, while aiding the NGDC in collecting a claim against the security in the event of supplier default. North American Energy Standards Board (NAESB) forms and business practices could be reviewed for appropriateness to develop uniform language to address this issue. SEARCH Report, p. 21. Also, the use of a POR program should be examined as a way to reduce the level of required security, to lessen the need for frequent credit reviews and to ameliorate adjustments in security level that might normally be triggered by changes in a company's creditworthiness rating, which can occur for reasons unrelated to its immediate business interaction and relationships. SEARCH Report, p. 21.SEARCH Order, pp. 24-25.
After our review of the SEARCH Report, we determined that it is in the public interest to initiate a rulemaking to address security requirements related to NGS licensing. SEARCH Order, p. 25. The task involves the revision of the NGS licensing regulations at Section 62.111 (relating to bonds or other security), and other related regulations in regard to the required level of security and the acceptable forms of security permitted to satisfy the statutory security requirement for licensing at 66 Pa.C.S. § 2208(c)(i) (relating to requirements for natural gas suppliers; financial fitness). The goal is to update the Commission's existing regulations regarding security requirements to better balance the ability of NGS firms to provide adequate security with the NGDC's risk of a supplier default. Specific matters that were to be addressed included (1) the use of NGS accounts receivables in purchase of receivables programs as fulfillment of some part or all of security requirements; (2) the adoption of standard language for financial instruments used for security; and (3) the development of reasonable criteria for NGDCs to use to establish the amount of security necessary for licensing purposes.
With this order, we initiate this proposed rulemaking. The following revisions are proposed to be made to the NGS licensing regulations at Section 62.111(relating to bonds or other security).
Section 62.111(c)(1)(ii)
This subsection states that the amount of the security may be adjusted, but not more often than every six months, and the adjustments must be reasonable. It then lists criteria upon which these adjustments must be based. In response to suppliers' complaints about the frequency of security level adjustments and the need for specific triggering events for creditworthiness reviews and security adjustments, we have revised the criteria to make them more stringent. This means that only significant changes in the NGS's operation that would materially affect the NGDC system operation or reliability or that would materially affect the NGS's creditworthiness can trigger a review and adjustment.
Section 62.111(c)(2)
This subsection lists the legal and financial instruments that shall be acceptable for security. We have revised the list to include escrow accounts, accounts pledged to the NGDC or sold by the supplier in a NGDC purchase of receivables program, and ''calls on capacity'' or other operational offsets that may be mutually agreeable to NGDC and NGS.
Section 62.111(c)(4)
This subsection is a new subsection and states that when practicable, the NGDC shall use applicable North American Energy Standards Board forms or language for financial and legal instruments.
Section 62.111(c)(5)
This subsection is a new subsection that imposes an annual reporting requirement on the NGDCs. The purpose of this reporting requirement is to gather information about the NGDC's application of established criteria to set and adjust levels of security for suppliers that operate on the NGDC's system. The report will be filed with the Commission's Secretary.
Section 62.111(c)(6)
Section 62.111(c)(6) is a new subsection that lists four Commission processes that a NGS may pursue if it is unable to reach an agreement with the NGDC on the form or amount of security to be provided: informal mediation; alternate dispute resolution with the OALJ; litigation of a formal complaint; and petition for Commission review of NGDC criteria for security levels. The first alternative presented, informal mediation, may be requested by filing a dispute with the Commission's Secretary. The Office of Competitive Market Oversight4 will act as the mediator between the NGS and the NGDC.
Conclusion The goal of this proposed rulemaking is to revise the security requirements for NGS licensing, lower barriers to market entry and to increase supplier participation. This is the first step of the SEARCH Order's Action Plan to increase effective competition in Pennsylvania's retail natural gas market.
The Commission seeks comments on the proposed revisions to our licensing regulation. Parties submitting comments are requested to provide supporting justification for requested revisions, and to propose regulatory language for incorporation into the final-form regulation.
Accordingly, under sections 501, 504 and 2203(12) and 2208 of the Public Utility Code, 66 Pa.C.S. §§ 501, 504, 2203(12) and 2208; sections 201 and 202 of the act of July 31, 1968 (P. L. 769, No. 240) (45 P. S. §§ 1201 and 1202), and the regulations promulgated thereunder in 1 Pa. Code §§ 7.1, 7.2 and 7.5; section 204(b) of the Commonwealth Attorneys Act (71 P. S. § 732.204(b)); section 5 of the Regulatory Review Act (71 P. S. § 745.5); and section 612 of The Administrative Code of 1929 (71 P. S. § 232), and the regulations promulgated thereunder at 4 Pa. Code §§ 7.231--7.234, we are proposing to amend our regulation as set forth in Annex A, attached hereto;
Under section 5(a) of the Regulatory Review Act (71 P. S. § 745.5(a)), on March 19, 2009, Commission submitted a copy of this proposed rulemaking to the Independent Regulatory Review Commission (IRRC) and the Chairpersons of the House and Senate Committees (Committees). In addition to submitting the proposed rulemaking, the Commission provided IRRC and the Committees with a copy of a detailed Regulatory Analysis Form prepared by the Commission. A copy of this material is available to the public upon request.
Under section 5(g) of the Regulatory Review Act, if IRRC has objections to any portion of the proposed rulemaking, it will notify the Department within 30 days of the close of the public comment period. The notification shall specify the regulatory review criteria that have not been met by the portion of the proposed rulemaking to which an objection is made. The Regulatory Review Act specifies detailed procedures for review, prior to final publication of the amendments, by the department, the General Assembly and the Governor of objections raised.
Therefore,
It Is Ordered That:
1. A rulemaking docket shall be opened to amend the regulation relating to bonds and other security in 52 Pa. Code § 62.111 as set forth in Annex A.
2. The Secretary shall submit this order and Annex A to the Office of Attorney General for review as to form and legality and to the Governor's Budget Office for review of fiscal impact.
3. The Secretary shall submit this order and Annex A for review and comments to the Independent Regulatory Review Commission and the legislative standing committees.
4. The Secretary shall certify this order and Annex A and deposit them with the Legislative Reference Bureau to be published in the Pennsylvania Bulletin.
5. An original and 15 copies of written comments referencing the docket number of the proposed regulation be submitted within 60 days of publication in the Pennsylvania Bulletin to the Pennsylvania Public Utility Commission, Attn.: Secretary, P. O. Box 3265, Harrisburg, PA 17105-3265. To facilitate posting, all filed comments shall be forwarded by means of electronic mail to Patricia Krise Burket at pburket@state.ps.us, Annunciata Marino at annmarino@state.pa.us, and Cyndi Page at cypage@state. pa.us
6. A copy of this Order and Annex A shall be served on all jurisdictional natural gas distribution companies, all licensed natural gas suppliers, the Office of Consumer Advocate, the Office of Small Business Advocate and all other parties that filed comments at the Docket number I-00040103.
7. That the contact persons for this proposed rulemaking are Patricia Krise Burket, Law Bureau, (717) 787-3463 (legal) and Annunciata Marino, (717) 772-2151 (technical).
By the Commission
JAMES J. MCNULTY,
Secretary
Annex A
TITLE 52. PUBLIC UTILITIES
PART I. PUBLIC UTILITY COMMISSION
Subpart C. FIXED SERVICE UTILITIES
CHAPTER 62. NATURAL GAS SUPPLY CUSTOMER CHOICE
Subchapter D. LICENSING REQUIREMENTS FOR NATURAL GAS SUPPLIERS § 62.111. Bonds or other security.
* * * * * (c) The amount and the form of the security, if not mutually agreed upon by the NGDC and the licensee, shall be based on the criteria established in this section. The criteria shall be applied in a nondiscriminatory manner. The Commission will periodically review the established criteria upon petition by any party.
(1) The amount of the security should be reasonably related to the financial exposure imposed on the NGDC or supplier of last resort resulting from the default or bankruptcy of the licensee. At a minimum, the amount of security should materially reflect the difference between the cost of gas incurred and the supplier's charges, if any, incurred by the NGDC or supplier of last resort during one billing cycle.
* * * * * (ii) The amount of the security may be adjusted, but not more often than every 6 months. The adjustments [shall] must be reasonable and based on one or more of the following criteria:
(A) [Change] Significant changes in a licensee's recent operating history on the NGDC's system that have materially affected NGDC system operation or reliability.
(B) [Changes] A change in a licensee's credit reports that materially affects a licensee's creditworthiness.
(C) [Changes] A significant change in the number of customers or a change in the class of customers being served by the licensee. An increase of 25% in the number of customers would represent a significant change that would justify an NGDC directing that additional security be provided.
(D) [Changes] A change in circumstances that materially [affect] affects a licensee's creditworthiness.
(E) [The] A change in the licensee's demonstrated capability to provide the volume of natural gas necessary for its customers' needs that materially affects NGDC system operation or reliability.
(2) The following legal and financial instruments and property shall be acceptable as security:
* * * * * (iv) Escrow account.
(v) Accounts receivable pledged to the NGDC or sold by a supplier participating in a NGDC purchase of receivables program that is consistent with Commission orders, guidelines and regulations governing the programs.
(vi) Calls on capacity or other operational offsets as may be mutually agreed upon by the NGDC and the NGS.
* * * * * (4) When practicable, the NGDC shall use applicable North American Energy Standards Board forms or language for financial and legal instruments that are used as security.
(5) The NGDC shall file an annual report with the Secretary no later than April 30 of each year. The report must contain the following information for the prior calendar year:
(i) The criteria that is being used to establish the amount of security that a supplier must provide to be granted a license.
(ii) The criteria that is being used to determine the amount of security that a supplier must provide to maintain a license.
(iii) The criteria that is being used to determine that a change in the amount of security is needed for the supplier to maintain a license.
(iv) The number of times in the last quarter that the NGDC determined that a change in the level of security was needed for a supplier to maintain its license.
(v) The types of legal and financial instruments and property, real and personal, that the NGDC accepted as security for licensing purposes.
(6) When there is a dispute relating to the form or amount of security, the NGS may:
(i) Submit the dispute to the Secretary for assignment to the appropriate bureau for informal mediation and resolution.
(ii) File a formal complaint with the Commission and request alternative dispute resolution by the Office of Administrative Law Judge.
(iii) File a formal complaint with the Commission and proceed with the litigation of the complaint.
(iv) File a petition with the Commission and request review of the criteria used by the NGDC.
* * * * *
[Pa.B. Doc. No. 09-620. Filed for public inspection April 3, 2009, 9:00 a.m.] _______
1 The Stakeholders had been convened based on the Commission finding that ''effective competition'' did not exist in the retail natural gas market in accordance with 66 Pa.C.S. § 2204(g) (relating to investigation and report to General Assembly). See Investigation into the Natural Gas Supply Market: Report to the General Assembly on Competition in Pennsylvania's Retail Natural Gas Supply Market, Order entered at Docket No. I-00040103.
2 Natural gas supplier licensing regulations may be found at 52 Pa. Code §§ 62.101--62.114.
3 This subject is fully discussed in the SEARCH Report in Section I (Creditworthiness/Security) at pp. 18-21.
4 In the Action Plan, the Commission directed that an independent unit be created within the Commission to oversee the development and the functioning of the competitive retail natural gas market. SEARCH Order, pp. 8-10 and Ordering Paragraph 5. The unit is to be created by January 5, 2009. The working name for the unit, Office of Competitive Market Oversight, is subject to change.
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