Transition costs in the electricity industry: A summary of issues

Progress is evident as the restructuring debate in the U.S. electricity industry completes its third year. The Federal Energy Regulatory Commission released a final rule on transmission open access-a key element to facilitate more efficient wholesale markets. The majority of states have initiated investigations or discussions on restructuring retail markets. Yet hurdles remain in formulating and implementing state-level restructuring proposals. Perhaps foremost among these hurdles is the issue of transition costs (the potential monetary losses experienced by utilities, consumers, and other economic actors as a result of government initiatives to transform electricity generation from a regulated to a competitive market). Transition costs are approximately equal to the difference between the embedded cost for generation services under traditional cost-of-service regulation and the competitive-market price for power. When government takes action to open current monopoly franchises to multiple generation providers and the competitive-market price falls below embedded generation costs, then transition costs will arise. Transition costs will include one or more of the following four classes of costs: (1) assets, primarily utility-owned power plants; (2) liabilities, primarily long-term power-purchase and fuel-supply contracts; (3) regulatory assets, including deferred expenses and costs that regulators allow utilities to place on their balance sheets; and (4) public-policy programs, such as energy efficiency, low-income programs, and research and development. What is at issue in the transition-cost debate? The debate turns on four questions: (1) How large are the potential transition costs from restructuring? (2) How are these costs estimated? (3) What, if anything, might be done to address these costs? (4) Who will ultimately pay for any remaining costs and how? This paper summarizes some of the key results from a project at ORNL that addresses these four questions.