Commission Failed Georgians in Nuclear Fiasco — Episode 176 of Local Energy Rules

So I ran SECC for a decade and that gave me a front row seat into what was happening across the country at other state commissions with other utilities. And I saw a lot of great work. And then I would come back to Georgia and be disappointed that those things weren’t happening here. And there was one incident in 2019 where the Georgia Commission was considering and eventually did adopt a demand charge rate plan for residential consumers. And I was invited to present some of our research during the rate hearing that showed that consumers didn’t want that rate plan and didn’t understand that rate plan. And I brought other research from RAP, the regulatory assistance project, showing that rate plan actually harms consumers.

But that rate plan passed and I was surprised and disappointed and I went to see my opponent to ask him, at that time he wasn’t my opponent, he was just one of the most approachable commissioners, to ask him why he voted for it and why the commission allowed this to pass because it clearly harms low income customers. And he did not have good answers. It was clear to me he didn’t understand the rate plan, that he hadn’t read the research that was provided to him. And of course the commission went against its own staff’s recommendations. The staff recommended not approving this plan since he didn’t understand the plan. And that was his responsibility was to understand rate plans and protect consumers from monopoly pricing power and price gouging. I just realized, wow, things are worse than I realized and that somebody needed to do something. And you know that old saying, if not me, who <laugh> for a while I looked for someone else to run and then I decided it just needed to be me. Now that’s my story.

It’s a common fallacy where people think, well I’ve spent a lot, I can’t stop now or I’ve wasted that money. But in fact, if you will waste more money by continuing, it is the rational decision to stop. And that is what the analysis was. The analysis found from public service commission staff and expert testimony, a lot of nuclear expertise was brought in and public opinion was strongly against continuing. By all accounts, this plant should have never continued. The commission voted for it anyway, in defiance of all of that input and feedback, and to answer your question about their oversight, it has been abysmal. Georgia is one of only three states in the country with no consumer utility council, which is a separately funded sometimes departments, sometimes agencies, sometimes division where it’s staffed with experts, experts in utility regulation and people whose only job is to protect the public interest. And Georgia defunded its state consumer utility council in 2008 during the great recession under the guise of budget cuts.

Since then of course we’ve had multi-billion dollar budget surpluses, but no effort to bring back the CUC and I find it hard to believe that in 2008 that office was defunded. And then in 2009 here comes planet Vogtel the very next year with no cost caps and no consumer protections in place. Like who gets to build something with no cost caps? But that’s what happened here in Georgia and again in 2017, the commission put no cost caps in place and no consumer protection. So consumers are on the hook for all of the money and literally the sky’s the limit. And the sky has been reached, if you will, because it’s now at 34 billion, under construction since 2009. It was supposed to be delivered in 2016 for 14 billion. Here it is 2023 and we’re at 34 billion, or 20 billion over budget more than twice of what they said it would cost.

And consumers, if the commission allows, of course the commission can choose to not allow cost recovery on all these cost overruns, which is what I think they should do because there are independent monitors, there’s an independent Vogtel monitor that files a report every six months to a year. And there’s also public service commission staff that are working on providing oversight. And there is extensive reporting from both entities that this project has been mismanaged, that the management onsite skip steps, try to double up testing, don’t do the paperwork they’re required to do, don’t follow IEEE engineering standards and on and on. There’s no scenario in which a for-profit company would miss their budget by more than twice as much miss their delivery window that they’ve committed to by more than seven years and still make a profit on all of it. So a monopoly shouldn’t be able to do that either.

And that’s what I think the commission is, where they have failed the people of Georgia. That’s one of many ways where they failed the people of Georgia in this plant. And lemme just end by saying 34 billion is not the total cost, that’s just direct costs. There are a lot of indirect costs that are not included in that. And I’ve been encouraging the media here in Georgia to do better at reporting those indirect costs because for example, the commission gives Georgia Power unusually high profit margins, a very high return on equity. The average return on equity for utilities is 9.5% in 2019. The commission gave Georgia Power 10.5% and they can earn up to 12% from this thing called an earnings band. The commission also gave Georgia Power an upside down capital structure where they have a different debt to equity ratio that delivers more profits for Georgia power. All these things together are done to prevent Wall Street from punishing Southern Company, the parent of Georgia Power, in their stock and to prevent credit agencies from downgrading bonds because the risk is so high for this plant that their stocks and bonds would be downgraded or decline if the commission weren’t doing a backstop with delivering wheelbarrows full of profits. None of that’s counted toward the cost of plant Vogtle and it should be. That’s another failure from the commission.

And according to the Atlanta Journal Constitution who did the numbers, customers have now paid over a thousand dollars on their bills total for that NCCR tariff and Georgia Power has earned 9 billion in profits from the delays because they’re getting a profit on that tax from the delays on this project. And that is another reason that I’m very upset about the quality of the oversight from the Public Service Commission. I mean there’s just instance after instance, this being a big one, the commission should have never allowed this to continue since the project was delayed. And since they started getting reports that showed the delays where the fault of the company, it’s not like they could be held blameless and they could say, well we didn’t have the talent or Covid happened or there was a recession. All those things were factors, but they’re minor factors and the reporting shows that they’re minor factors and shows what the major factors were.

And it was the failures I mentioned earlier, yet we’re still paying as though nothing has happened. Like none of that is known. Well it is known and it’s wrong and 34 billion is federal levels of money spent by one state on one power plant. In fact, I’m calling it the most expensive power plant ever built on earth. And it might be the most expensive construction project of any ever built on earth because the only things I could find more expensive was the International Space Station at 60 billion and the Federal highway system at a hundred billion dollars. There could be something more expensive than those two or more expensive than 34 billion. But I, I haven’t found it and that’s just awful to do to the people of Georgia. You know, we’re not a rich state and we have among the lowest cost of living in the country, yet we’re paying national average for utility rates, above average for utility bills, and we’ll be number one in the country once all these costs get put into rates. And that’s just ridiculous. That’s horrible. That’s a failure of the mandate of the Public Service Commission to protect the public interest. And that’s another reason that I’m running because somebody needs to do something to correct what’s happening down there and I intend to be that person.

So the monopoly on power generation is no longer necessarily true. That was sort of like fundamental to this decision of how we structure our market. And then you think about things like transmission capacity, there’s a lot of conversation among folks advocating for clean energy. Oh we need more transmission and they’re probably right, but there’s also a lot of non-construction related technology. There’s things like dynamic line ratings that allow more power to be pushed based on the temperature and the wind speed outside. There are things like reconductoring lines instead of building new lines that are less expensive but maybe not as interesting to a utility that makes money by spending money on building things.

You’re running for office in part to just hold the regulatory system accountable to its promise, which is to oversee a monopoly utility. But I’m just sort of curious like in your thinking about how to make the system better for consumers, is there something that needs to change in the way that Georgia is regulating utilities? I mean, do you need to go the way that Hawaii did and try to pay utilities more on performance? Are there other things that you’re thinking about that maybe big picture, maybe not in your first term if you got elected that you would want to see happen?

So it was just, well I don’t know how recently, but I just found out about it recently from Rocky Mountain Institute, a very credible nonprofit that Amory Lovins founded decades ago that is still doing a lot of great work. And they had a webinar and issued a report advocating that utilities look at this or that. State commissions look at this as a business model reform to eliminate what they call CapEx bias. And so Totex instead of meaning capital means total. And so the CapEx bias is what we talked about where utilities make more money the more and bigger, more expensive things they build, they don’t make any money on operations O&M costs. So Totex is saying, what if they made money on operations and then they wouldn’t be pushing against the things that need to happen in this country. Like what you referred to – dynamic line ratings. There’s also [inaudible], there’s virtual power plants, there’s distributed energy. I mean the list is long.

So this report and this webinar talks about how to restructure the way utilities earn their compensation so they can make a return on those other investments too and this capital bias because that worked well for a hundred years in the 20th century, we wanted to build out a massive grid across a very large country. So that business model, the CapEx bias worked well for the United States. It was great, but in the 21st century it’s not working well anymore because we have new goals. We need to accelerate clean energy, we need to build resilience and harden the grid. We need to engage customers and we need to keep costs low. And CapEx model is not doing that, as we’ve seen in Georgia.

And we’ll see once plant Vogtel goes online, a lot of Georgians have no idea this is happening. People don’t pay attention to energy policy and energy regulation. And Georgia has unfortunately named our state regulatory office service commission instead of utility commission. So it’s even harder for voters and customers to know like what does a public service commission do? What does service mean? It doesn’t mean anything. So I’ve been advocating for legislators to rename it public utility commission so at least people have a clue that they’re regulating utilities and that’s where decisions are being made on how much you’re paying.

So yes, I would look at utility business model reform. I would look at Totex rate making because I respect Rocky Mountain Institute a lot. They’ve said that no states have done that yet, but it is happening in Europe with some success. I would also look at performance-based rate making. I would like to see a Consumer Bill of Rights, a utility consumer bill of rights that shows the rights that consumers have. Georgia State law has a mandate like many states or maybe even all states, I don’t know, on setting just and reasonable rates. That’s the law in Georgia. It’s a law in most or maybe all states. And we clearly are violating that state mandate.

The best example I have is the demand charge rate plan I mentioned, I mentioned that’s why I launched my campaign. But actually that rate plan was ended the end of last year. In December of 2022, the commission had another rate case. Every three years there’s a rate case and they eliminated that rate plan as the default option for new customers, which they had approved in 2019. It went into effect in 2021. I launched my campaign and all that. I said, so the rate plan was the default for new customers for two years, all of 2021 and all of 2022, it’s no longer happening. And so for really for a brief moment, I thought about ending my campaign because the main thing I launched for was gone except for all the other things I discovered such as plant Vogtel’s lack of oversight. And so we know Georgia’s not setting just and reasonable rates or that demand charge rate plan wouldn’t have happened. I mean there’s no state commission in the country that would adopt a new rate plan without doing a customer impact study. Like that’s why they exist. And Georgia didn’t do one.

So I would look at an one of those models. One of the things I advocate is that a state, an independent state commission be convened to look at why Plant Vogtel happened, how it can be prevented in the future from ever happening again. And utility business model reform would be part of that commission. If I couldn’t get the state to create such a commission, then I would create it out of the Public Service Commission. If I were elected, we would look at everything on the table like that.

Hey, thanks for listening to Local Energy Rules. If you’ve made it this far, you’re obviously a fan and we could use your help for just two minutes. As you’ve probably noticed, we don’t have any corporate sponsors or ads for any of our podcasts. The reason is that our mission at ILSR is to reinvigorate democracy by decentralizing economic power. Instead, we rely on you, our listeners. Your donations not only underwrite this podcast, but also help us produce all of the research and resources that we make available on our website and all of the technical assistance we provide to grassroots organizations. Every year ILSR’s small staff helps hundreds of communities challenge monopoly power directly and rebuild their local economies. So please take a minute and go to ilsr.org and click on the donate button. And if making a donation isn’t something you can do, please consider helping us in other ways. You can help other folks find this podcast by telling them about it, or by giving it a review on iTunes, Stitcher, or wherever you get your podcasts. The more ratings from listeners like you, the more folks can find this podcast and ILSR’s other podcasts, Community Broadband Bits and Building Local Power. Thanks again for listening. Now, back to the program.

But another thing that has been floated that I thought is really interesting and I’m curious if you’ve ever heard of it or if there’s any way to include it in the conversation, is about the monopoly franchise that utilities have That monopoly service territory that they get is not permanent. It’s not a guarantee, it, I mean it’s been treated as something permanent in almost every case. But one of the things I think is really interesting is that the law would give a public service commission the right to say, well Georgia Power, we’re not going to close you down for your failure, but we’re gonna give the exclusive service territory that you have to another utility that maybe would do a better job. And it could be a public utility, a publicly owned one, it could be another private company like Duke Energy or someone else that already serves the Southeast. Is there any conversation at all about this idea that maybe a utility that performs so badly just shouldn’t have an entitlement to the franchise anymore?

And I sent him and we looked at together the document that creates the pricing structure and we’re paying a demand charge fee on natural gas too, which is a fee that you’re assessed for the highest usage that a customer has during their bill cycle. That’s nonsensical. Demand charges are meant for, and were created for, commercial and industrial businesses that need to use the maximum output the grid has. And so the utility builds the grid to meet that and service that need. Residential customers don’t come anywhere near maximizing the grid need a demand charge is unnecessary and punitive. And that’s what the research showed that I gave the commission that they didn’t pay attention to. But also, let’s say you care about peak time charges, which this commission does not, but if you did, you would simply do a time of use plan or a peak time rebate. I mean there’s so much easier, less expensive ways to send price signals for customers to reduce their energy during peak times.

But back to your question, I think the problem here lies with the Public Service Commission not doing their job and less of Georgia Power not doing its job. Although it did do a bad job with this project, this project should have never been approved. It shouldn’t have been approved in 2009 and it shouldn’t have been approved in 2017. And if it was approved either time, customer protection should have been put in place and cost caps and a budget should have been put there. So that’s a failure of the commission, not the utility. And also what I like to tell people is that Georgia Power has a monopoly granted to them by the people of Georgia. It’s not permanent to your point, it’s granted to them by the people of Georgia through the state legislature. The same in any state. So if the people knew more and demanded more from their legislators, we could fix and should fix some of these issues, which is why I’ve been calling for an independent commission to look into what the failures are that created this plant Vogtel disaster for Georgia.

I’m gonna take this in a little bit different direction and to talk a little bit about your own election or your own campaign because I feel like it dovetails a little bit with what you talked about in terms of the role of the legislature. So one of the things that ends up being true in many states is that not only are utilities have they captured their regulators, they also have often captured their legislatures. Virginia has been a really poignant example of this in which the utility lobbied for a bill that allowed them to keep excess profits. So when they over collected fees and rates from customers, the commission wasn’t even allowed to force them to give the money back to Virginians. And then I remember there was another subsequent bill, so they started to get some scrutiny for that and a subsequent bill allowed them instead to reinvest that money in the grid and earn a profit on it a second time to essentially double dip sort of famously. So there are some other issues here too that are even outside of like the regulatory model itself, but about the like interface with state law and state legislatures and the political power of utilities. I don’t know if any of that is a perfect lead in to the saga that you’ve been enmeshed in. But could you talk a little bit about what’s going on with your attempt to run for the commission and how there have been some hijinks there in terms of your ability to even be a candidate?

But the key takeaway that I had was that the reason commissions exist at all is to gather expertise with utility regulation and energy policy. And so diffusing that or allowing that to bleed over into legislators, decision making influenced by utility lobbyists is a complete distortion of that creation of that structure that is meant to protect customers. That’s why they exist. And if you’re gonna have legislators coming in and telling them what to do and making alternate decisions, then people get hurt. As you saw in Virginia and as I’ve seen in Georgia. So his, I feel a little bad, you know, I’ve spent a lot of time on this discussion talking about how I want the legislature to do this and do that and set up an independent commission and utility business model reform. But I don’t know how else to do it because it’s not gonna happen in the commission. But it’s a double-edged sword. It should not be happening at the legislature either.

And a long time ago I worked for a green space nonprofit and a lot of public parks in Atlanta get funding from the city, really all, most fundings from the city, but they do their own fundraising as part of getting funding, they had to sign an agreement that they will not lobby against the city in accepting that funding and they wouldn’t speak badly of the city. And we were talking about how frustrated we were once about not getting something from the city and somebody said, well let’s write letters to the editor and let’s show up at the next hearing. And people are like, whoa, wait a minute. We signed something that said we weren’t, you know, we’re not gonna do that. And shut that whole conversation down. And since then, of course I’ve seen the magnitude a thousand fold worse for utilities being able to lobby and donate to legislators and commissioners that shouldn’t be happening. If it can’t happen for a little park, it should not be happening for an essential service like energy. They should not be allowed to lobby and donate because then we get what we’ve gotten, which is this kind of distortion and failure points.

In terms of my campaign, my campaign was paused last year because of litigation from four Black plaintiffs who alleged racial discrimination in the way the elections are held. They said that the statewide nature of the election in Georgia for Public Service Commission violates the voting rights because they cannot elect a black person to the commission. And in fact, in 140 years, only one Black person has ever been elected and he was appointed first. So he had incumbency. They won their case, as they should have, in federal court. They did an amazing job of proving racial discrimination. I attended hours of those hearings. It was compelling, it was sad, it was shocking. And they won. And the state of Georgia appealed saying, no, no, it’s not racial discrimination, it’s just partisanship. We just want Republicans to win. That’s why we have the districts the way we do. That’s why we have the structure the way we do. That appeal was heard last December in the 11th circuit Court of appeals and everyone is expecting the ruling to happen any day. It hasn’t happened yet.

So we’re all waiting. If the plaintiffs lose, I’m sure they’ll appeal. It’ll be a bitter pill to swallow after having won. If the state wins and the plaintiffs lose, then they’ll appeal. If the state continues to win on appeal, then they’ll continue the election as it was before, which is a statewide race. If the plaintiffs win on appeal, then the state is obligated to redraw the district so they don’t privilege white voters, which they do right now. That was proven in court. And to require the election to be held districtwide and not statewide so that people in that district have a chance to elect someone that represents their views and interests, which is not possible now with a statewide vote. So that’s what we’re all waiting for. Of course, I don’t know which way the court will rule, but in either case it’s likely to be a special election this fall, I’m guessing September. That’s what the state law says for special elections in odd numbered years, which this is, so it’d be probably December 19th I think is the date. Once the ruling is in, the Secretary of State’s office has to set that date. And so I don’t know, I mean that’s a lot of unknowns, but that’s what I know.

During discovery, I was able to get, my lawyer actually was able to get text messages between my opponent and the commission chair sharing my address, making sure that my address was removed from the district. And I was able to get those texts published in the Atlanta Journal. I put ’em all over social media, we submitted them to court and the judge agreed with me that I had been unfairly targeted. It’s against the law,  it’s obviously legal to redraw a district, but it’s against the law to target an opponent and disqualify him or her from that district. And so the judge ruled in my favor and I remain eligible for district two. I won the primary. That happened right before the primary.

In fact, the night before the primary that the Secretary of State, Brad Raffensperger contacted all of Georgia’s polling areas and said put up signs so that voters know not to vote for Duran, she’s not eligible. And they did. And we rushed to court the next morning with an emergency appeal asking for an injunction and having, asking for the Secretary of State’s office to have those voting areas take those signs down and to allow me to be eligible for the primary until the full case could be heard. And the judge granted that too. So I won the primary and then won that case. So yeah, it’s been a while. I’ve seen more lawyers in the last 10, 12 months than I have my entire life. <laugh>.

And especially in the southeast where I live, Georgia Power has blocked rooftop solar. So we are 43rd in the nation for the amount of rooftop solar penetration, and we’re the 14th sunniest state right now. I think the numbers are 0.3% of the grid is served by rooftop solar generation. It’s practically untrackable. It’s so tiny. So I’m frustrated because our commissioners often say derogatory things about California, like, oh, look at how badly they’re regulating PG&E, they’re going bankrupt. But when California redrew their net metering program to be less incentivizing, they were all over that, look, California’s not doing it. We shouldn’t do it either. But the fact is that California has about 20% of its generation in rooftop solar. So they’re light years ahead of us. And they were trying to repair a failure in rate making that had occurred that caused a distortion in rates in their state. And it’s too complicated to get into here, but they were repairing a problem. Whereas all that’s happening in Georgia is blocking rooftop solar because it doesn’t make money for Georgia Power.

Net metering helps customers make money. I mean they don’t really make money. It just reduces the payoff sooner. Instead of like 25 years, it drops to like 15 years with a good net metering program or maybe even 10 years if it’s a great net metering program. And the reason I said it’s sad and frustrating is because studies show that if utilities or commissions would examine and analyze exactly where on the grid rooftop solar could relieve congestion, where could we have more solar? So we wouldn’t need a substation upgrade, we wouldn’t need new transmission or new power plant. Where could we reduce peak energy costs? But those studies don’t happen because utilities don’t want them to happen because they don’t want to add that kind of generation to the grid. We don’t know. We don’t know how much money could be saved from rooftop solar and then could incentivize customers in those locations if we knew.

And that leads into my frustration with small modular reactors and these other claims that we have to have nuclear if we wanna address climate change. Really? Why don’t we look at all the things that are less expensive, available now, that’s being blocked by utilities and state commissions. What about energy efficiency? Georgia has no demand response. We don’t have rooftop solar and we’re one of many states. Let’s get the roadblocks out of the way and go for these cheap things that are not happening before we do yet another iteration of yet another claim that nuclear is gonna save the day when it never has met any of the claims and promises that’s been made. So yeah, rooftop solar is frustrating to me. I admire states like New Jersey and California that have incentivized it. And even South Carolina, once they canceled Plant Summer, that opened up a whole world of renewable opportunities and they have one of the best net metering programs in the country. They’ve got five, or I forget, five or 10 times the amount of rooftop solar that Georgia does with half the population. Those kind of things are great and should be happening everywhere.