Deci ion No. R20-0502 BEFORE THE PUBLIC UTILITIES COMMISSION OF THE STATE OF COLORADO PROCEEDING NO. 19F-0620E LA PLATA ELECTRIC ASSOCIATION, INC., COMPLAINANT, V. TRI-STATE GENERATION AND TRANSMISSION ASSOCIATION, INC., Colorado PUC E-Filings System RESPONDENT. PROCEEDING NO. 19F-0621E UNITED POWER, INC., COMPLAINANT, V. TRI-STATE GENERATION AND TRANSMISSION ASSOCIATION, INC., RESPONDENT. RECOMMENDED DECISION OF ADMINISTRATIVE LAW JUDGE ROBERT I. GARVEY GRANTING RELIEF REQUESTED AND SETTING EXIT CHARGE METHODOLOGY Mailed Da e: J l 10, 2020 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 PROCEEDING NOS. 19F-0620E & 19F-0621E Table of Contents I. SUMMARY .......................................................................................................................................... 3 II. FINDINGS OF FACT ........................................................................................................................... 9 III. ISSUES ............................................................................................................................................... 16 IV. APPLICABLE LAW .......................................................................................................................... 17 IV. ARGUMENTS OF THE PARTIES .................................................................................................... 20 A. Arguments of La Plata................................................................................................................. 20 B. Arguments of United Power ........................................................................................................ 23 C. Arguments of Tri-State................................................................................................................ 26 V. DISCUSSION ..................................................................................................................................... 29 A. The Commission has the Authority and Should Determine an Exit Charge ............................... 29 B. The Acts of Tri-State Were Unjust, Unreasonable, and Discriminatory ..................................... 38 C. The Exit Charge Should Not Be Viewed as a Breach of Contract .............................................. 43 D. The Value of Kit Carson and DMEA .......................................................................................... 46 E. Methodology ............................................................................................................................... 49 VI. CONCLUSIONS ................................................................................................................................. 55 VII. ORDER ............................................................................................................................................... 56 A. It Is Ordered That: ....................................................................................................................... 56 2 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 I. PROCEEDING NOS. 19F-0620E & 19F-0621E SUMMARY 1. La Pla a Elec ic A ocia ion, Inc. (La Pla a o LPEA) and Uni ed Po e , Inc. (Uni ed Po e ) (collec i el , Com lainan ) filed he abo e-ca ioned fo mal com lain (Com lain ) again T i-S a e Gene a ion and T an mi ion A ocia ion, Inc. (T i-S a e) on No embe 5 and 6, 2019, e ec i el , e ea onable, and non-di c imina o On No embe con olida ed he Com lain hi Commi ion de e mine a j , e i cha ge fo Com lainan . La Pla a, Uni ed Po e , and T i-S a e, collec i el , a e he Pa ie o hi 2. e ing ha oceeding. 25, 2019, b Deci ion No. R19-0955-I, he Commi ion in P oceeding No . 19F-0620E and 19F-0621E and de igna ed Commi ione F ance Koncilja a he Hea ing Commi ione . 3. ado ed, On Decembe 19, 2019, b Deci ion No. C19-1001-I, a hich incl ded da e fo he Pa ie oced al ched le a o file e imon and ched led an e iden ia hea ing fo Ma ch 23 d h o gh Ma ch 27 h, 2020. In addi ion, Hea ing Commi ione Koncilja o de ed he Pa ie o file b ief b Decembe 20, 2019, o add e Commi ion ha j i dic ion o e all o an 4. he e ion of he he hi a of he claim a e ed in he Com lain . On Decembe 19, 2019, he Po d e Valle 1 R al Elec ic A ocia ion Inc. (PVREA) filed i Mo ion o In e ene. 5. On Decembe 20, 2019, in e on e o he o de in Deci ion No. R19-1001-I, Uni ed Po e and La Pla a filed a Join S bmi ion on he I 1 Decision No. C19-1001-I, paragraph 12. 3 e of he Commi ion Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 PROCEEDING NOS. 19F-0620E & 19F-0621E J i dic ion O e Thi E i Cha ge, and T i-S a e filed i B ief on J i dic ion and Re e fo Hea ing. 6. On Decembe 23, 2019, T i-S a e filed i Mo ion o S a . 7. On Decembe 23, 2019, Mo n ain Vie Elec ic A ocia ion (MVEA) filed i No ice of In e en ion o Mo ion o In e ene. 8. On Decembe 30, 2019, T i-S a e filed i Uno o ed Mo ion fo E ao dina P o ec ion of Highl Confiden ial Info ma ion. 9. On Jan a 6, 2020, he Big Ho n R al Elec ic Com an ; Ca bon Po e & Ligh , Inc.; Ga land Ligh & Po e Co.; High We Ene g , Inc.; High Plain Po e , Inc.; Niob a a Elec ic A ocia ion, Inc.; Whea land R al Elec ic A ocia ion; and W lec Com an , Inc. (collec i el , he W oming Membe ) filed hei Mo ion o In e ene. 10. On Jan a 11. On Jan a 10, 2020, La Pla a and Uni ed Po e filed hei Di ec Te imon . 16, 2020, Whea Bel P blic Po e Di Coo e a i e Coo e a ion, Roo e el P blic Po e Di ic , Mid e Elec ic ic , Chimne Rock P blic Po e Di ic and Panhandle R al Elec ic Membe hi A ocia ion (collec i el , he Neb a ka Membe ) filed hei Mo ion o In e ene. 12. On Jan a 21, 2020, he So hea Colo ado Po e A ocia ion; K.C. Elec ic A ocia ion; Y-W Elec ic A ocia ion, Inc.; Mo gan Co n R al Elec ic A ocia ion; and Highline Elec ic A ocia ion (collec i el , he Colo ado Membe ) filed hei Mo ion o In e ene. 4 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 13. PROCEEDING NOS. 19F-0620E & 19F-0621E On Jan a 30, 2020, b Deci ion No. R20-0073-I, he in e en ion of PVREA, MVEA, he W oming Membe , he Neb a ka Membe , and he Colo ado Membe ee denied. 14. On Feb a 10, 2020, Cen al Ne Me ico Elec ic Coo e a i e, Inc.; Col mb Elec ic Coo e a i e, Inc.; Con inen al Di ide Elec ic Coo e a i e, Inc.; Jeme Mo n ain Elec ic Coo e a i e, Inc.; Mo a-San Mig el Elec ic Coo e a i e, Inc.; No he n Rio A iba Elec ic Coo e a i e, Inc.; O e o Co n Elec ic Coo e a i e, Inc.; Sie a Elec ic Coo e a i e, Inc.; Soco o Elec ic Coo e a i e, Inc.; and So h e e n Elec ic Coo e a i e, Inc. (collec i el , he Ne Me ico Coo e a i e ) filed hei Mo ion o In e ene. 15. On Feb a Koncilja fo nd ha Commi ione La and a 12, 2020, b Deci ion No. R20-0097-I, Hea ing Commi ione he Commi ion had j i dic ion o e n e aded ha he MIECO Inc.2 an ac ion he Pa ie on no ice ha an ac ion a he e iden ia he Com lain . he ee e ec ed o an a o e e The Hea ing nde Colo ado e ion abo hi hea ing. The Hea ing Commi ione al o fo nd he Com lain i e and denied he Mo ion o S a . 16. On Feb a 12, 2020, T i-S a e filed i An 17. On Feb a 26, 2020, T i-S a e filed i An e Te imon . e o he Com lain of La Pla a and Uni ed Po e . 2 The addition of MEICO Inc. as a member/owner of Tri-State was the basis of Tri-Sa e Commission was without jurisdiction in this matter. 5 a g men ha he Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 18. Sched le (S i ched le and PROCEEDING NOS. 19F-0620E & 19F-0621E On Ma ch 6, 2020, he Pa ie filed hei S i la ion Rega ding P oced al la ion). In he S i la ion, he Pa ie o o ed o o ide addi ional e imon conce ning he e ion lemen he oced al ai ed in Deci ion No. R20- 0097-I. 19. On Ma ch 10, 2020, La Pla a and Uni ed Po e filed hei Reb 20. On Ma ch 10, 2020, b Deci ion No. R20-0157-I, he S i 21. On Ma ch 11, 2020, T i-S a e filed i S 22. On Ma ch 11, 2020, he S a e of W oming filed i Mo ion o In e ene. 23. Commi ione Koncilja em e A ne Commi ione 24. a a a 2020. She o ed. a a ked and oin ed and confi med in he ead. o n in on Ma ch 13, 2020. On Ma ch 13, 2020, b Deci ion No. R20-0175-I, he e iden ia oceeding, ched led fo Ma ch 23 d h o gh Ma ch 27 h, 2020, oceeding e la ion a a lemen al Te imon . i ed in Jan a ag eed o con in e o e e n il a ne commi ione al Te imon . ned o he Commi ion a hea ing in hi ended and he ba c. 25. On Ma ch 16, 2020, he Com lainan join l filed hei S 26. On Ma ch 25, 2020, b Deci ion No. C20-0201-I, he Commi ion efe ed he ma e o an Admini 27. lemen al Te imon . a i e La J dge (ALJ). On A il 3, 2020, b Deci ion No. R20-0218-I, a a confe ence a fo A il 14, 2020, and he in e en ion of he S a e of W oming a denied. 6 ched led Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 28. PROCEEDING NOS. 19F-0620E & 19F-0621E A he a confe ence on A il 14, 2020, he Pa ie ag eed o a ched le ha called fo he e iden ia 29. oced al hea ing o commence on Ma 18, 2020. On A il 16, 2020, T i-S a e filed i Mo ion L o E cl de he Reb al Te imon of He ick K. Lid one, J . and Ja on R. Wiene and o Sho en Re on e Time (Mo ion L ). T i-S a e al o filed i Sho en Re on e Time (Mo ion o S 30. Mo ion o S lemen An e Te imon and lemen ). On A il 20, 2020, Com lainan filed hei Mo ion o he Commi ion E Ba c Re e ing Ini ial Commi ion Deci ion. 31. Re onden 32. On A il 27, 2020, Com lainan Mo ion L filed hei Join Re on e in O . On A il 27, 2020, Com lainan filed hei Join Mo ion fo Pa ial S mma J dgemen o De e mina ion of a Q e ion of La 1101(f) No ice and Re e o i ion o and hei Highl Confiden ial Join R le o Decla e Ini ial DMEA E i Cha ge P blic (Re e o Decla e Ini ial DMEA E i Cha ge P blic). 33. L On Ma 4, 2020, b Deci ion No . R20-0330-I and R20-0332-I, he Mo ion and Mo ion o S 34. lemen , e ec i el , e e denied. On Ma 8, 2020, T i-S a e filed i Re on e o Com lainan Re e o Decla e Ini ial DMEA E i Cha ge P blic. 35. On he ame da e, b Deci ion No. R20-0357-I, he Re e DMEA E i Cha ge P blic a g an ed. 7 o Decla e Ini ial Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 36. On Ma 11, 2020, T i-S a e filed i Re on e o Com lainan Pa ial S mma 37. PROCEEDING NOS. 19F-0620E & 19F-0621E J dgemen o De e mina ion of a Q e ion of La . On Ma 15, 2020, b Deci ion No. R20-0371-I, he Com lainan fo Pa ial S mma 38. Join Mo ion fo J dgemen Join Mo ion a g an ed. On Ma 18, 2020, he e iden ia hea ing in he abo e-ca ioned oceeding a called ia ideo confe encing a 9:00 a.m.3 39. A a elimina ma e , Hea ing E hibi 400- 410 and 412-414 and 600-603 e e admi ed b 40. i 100-102, 300-365, 368-378, 382-399 la ion of he Pa ie . La Pla a offe ed he e imon of Je ica Ma lock and S an Tie ne . Uni ed Po e offe ed he e imon of Dean H bb ck and Sand a Ringel e e -Enni (Ringel e e ). T i-S a e offe ed he e imon of Rick Go don, B adfo d Nebe gall, Joel Badlo , B adfo d Co nell, Cha le Cicche i and Pa ick B idge . Hea ing E hibi admi ed. Admini Hea ing E hibi a i e No ice a 366, 367, 411, and 411C 500-512 e e offe ed, b e e offe ed and no admi ed. aken of Colo ado Ho e Bill 20-1225. A he concl ion of he e idence, he eco d a clo ed. The ma e a hen aken nde ad i emen . 3 The hearing was held via video conferencing due to the Covid-19 pandemic. Due to the pandemic, everyone associated with this proceeding had to adjust the normal way of doing things, and sometimes that can cause problems. This time it did not. The undersigned ALJ would like to personally thank everyone involved in this hearing. To all of the attorneys, witnesses and as always, the court reporters, thank you. All Parties worked before and during the hearing to make sure the hearing was conducted without a problem. I personally appreciate and thank those who were active in the hearing and those behind the scenes who probably did most of the work. Finally, this was the first hearing the Commission has conducted via video conferencing. There were many questions and changes about how we would, or even could, hold the hearing between the setting of the hearing to the holding of the hearing one month later. Sometimes I had doubts we would be ready or could even do it. There is no question in my mind it would not have happened without the tireless and unending work of Christie Nicks. Everyone involved in this proceeding owes her a debt of gratitude, although none greater than me. Thank you very much. 8 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 41. P PROCEEDING NOS. 19F-0620E & 19F-0621E an o eco d of he hea ing and a 40-6-109, C.R.S., he ALJ no an mi o he Commi ion he i en ecommended deci ion in hi ma e . II. FINDINGS OF FACT 42. LPEA a fo nded in 1939 b a g o Fede al R al Elec ifica ion Admini Colo adan membe -o ne in Feb a of ci i en and o gani ed nde a ion Ac . LPEA a ed o e o al 1941.4 43. A of 2018, LPEA e e o e 46,000 me e in a 3,370 44. LPEA n il he ea l 1990 o iding he a e-mile e ice a ea.5 a a membe of he Colo ado-U e Elec ic A ocia ion (Colo ado-U e) hen he Colo ado-U e filed fo bank c . Af e lea ing he Colo ado U e, LPEA joined T i-S a e.6 45. LPEA cha e o e f om T i-S a e Elec ic Se ice Con ac (WESC). The WESC e o e f om T i-S a e.8 The WESC 46. n nde a con ac called a Whole ale i e ha La Pla a cha e 95 e cen 7 of i n il 2050. Je ica Ma lock i he Chief E ec i e Office fo La Pla a.9 4 Hearing Exhibit 100, p. 8. Id. 6 Id. at p. 8-9. 7 This is also known as an all-requirements contract. 8 Id. at p. 11. 9 Id. at p. 6. 5 9 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 47. PROCEEDING NOS. 19F-0620E & 19F-0621E Uni ed Po e i a non ofi e ing mo e han 93,000 me e al elec ic di ib ion coo e a i e c en l in Adam , Weld, Jeffe on, Bo lde , Gil in and B oomfield co n ie in Colo ado.10 48. Uni ed Po e i an o iginal fo nding membe of T i-S a e and ha been a membe -o ne ince 1952. Uni ed Po e b hole ale o e and an mi ion e ice f om T i-S a e.11 49. Uni ed Po e ha a WESC o 2050. Uni ed Po e 50. cha e o e and e ice f om T i-S a e h o gh WESC i al o an all- e i emen con ac . John Pa ke i he Chief E ec i e Office fo Uni ed Po e .12 Dean H bb ck i he Chief Ene g Re o ce Office fo Uni ed Po e .13 51. Sand a Ringel e e Enni i a Managing Di ec o in he Ene g , En i onmen , Comm nica ion , and Inf a c e P ac ice of NERA Economic Con l ing (NERA), a NERA Chief O e a ing Office . M . Ringel e e ha o e hi o ked in he elec ici ind ea a an enginee in he e o ce lanning de a men of an elec ic and ga and hen a a con l an in he a ea of fo eca ing, o e lan o e ma ke a e men , al a ion, financing o , d e diligence and 10 Hearing Exhibit 301, p. 10. Id. 12 Hearing Exhibit 301, p. 7. 13 Hearing Exhibit 306, p. 5. 11 10 ell a fo ili , o e ma ke ice an ac ion o , Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 PROCEEDING NOS. 19F-0620E & 19F-0621E emi ion anal e fo Ne So ce Re ie he im la ion of elec ic em .14 52. com liance, and me hodologie and algo i hm fo T i-S a e i a gene a ion and an mi ion coo e a i e co o a ion o e a ed on a no -fo - ofi ba i . I i o ned b 42 no -fo - ofi o e di al di ib ion coo e a i e and ic in Colo ado, Neb a ka, Ne Me ico, and W oming (U ili h ee Non-U ili and la e g e Membe . T i-S a e began o ha e 44 U ili Membe Coo e a i e (Ki Ca on) in 2016, and he (DMEA), effec i e Ma i h 24 U ili 1, 2020. io o he a e abli hed i hd a al of Ki Ca on Elec ic a e-mile a ea. he gene a ion and elec ici ac o c in 56 Colo ado co n ie , 20 Neb a ka co n ie , 28 Ne ome hen i ell a i hd a al of Del a Mon o e Elec ic A ocia ion T i-S a e facili a e a fo - a e, 200,000- Membe Membe ), a blic T i-S a e U ili an mi ion of Membe e e Me ico co n ie , and 14 co n ie in W oming.15 53. T i-S a e b ine T i-S a e i a hole ale elec ic b he Membe , no i ca ied o lie 15 al benefi of all of i . ., an agg ega o of he Membe ili o a di he o e o i U ili Hearing Exhibit 302, p. 7. Hearing Exhibit 400, p. 16. 11 Membe . load . I i o ned eek o gene a e a ofi fo o ide ib ion coo e a i e, T i-S a e ha no e ail ome o e cl i e e ice e i o . Ra he , T i-S a e b an mi , deli e , and ell 14 he m ha eholde , and T i-S a e doe no in e o . Unlike an in e o -o ned c fo and gene a e elec ic o e , and Membe . The U ili Membe , in n, Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 di PROCEEDING NOS. 19F-0620E & 19F-0621E ib e and e ell he elec ici membe -c 54. Sae he cha e a hole ale f om T i-S a e o hei o n e ail ome and a e a e . While all T i-S a e Membe ha e a o e on i e a hole ale elec ic a e , e ice, and da - o-da b ine e on, democ a icall -elec ed Boa d of Di ec o , Membe . Boa d membe li e in he ma e , T i- a e go e ned b a 43- i h one di ec o elec ed b each U ili al a ea he U ili di ec l acco n able o he Membe ; he U ili e fo h in he b la Membe Membe , in e e. T i-S a e Boa d i n, a e di ec l acco n able o hei o n membe -con me and a e a e .16 55. Sho hone Ri e Po e lef T i-S a e in 1985.17 56. Fi e Neb a ka Membe of T i-S a e a em ed o i hd a in 2009.18 57. Ki Ca on i hd e in 2016 and DMEA i hd e effec i e Ma 1, 2020.19 58. D ane Highle i he Chief E ec i e Office fo T i-S a e.20 Rick Go don i Chai man of he T i-S a e Boa d of Di ec o and MVEA e e en a i e on T i-S a e Boa d.21 B ad Nebe gall i a Senio Vice P e iden , Ene g Managemen , fo T i-S a e.22 Joel Badlo 16 Id. at 16:15-17:9. Id. at 21. 18 Id. 19 Id. at p.22. 20 Hearing Exhibit 400, p. 3. 21 Hearing Exhibit 401, p. 3. 22 Hearing Exhibit 402, p. 3. 17 12 i a Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 PROCEEDING NOS. 19F-0620E & 19F-0621E Senio Vice P e iden , T an mi ion, fo T i-S a e.23 Pa ick B idge i a Senio Vice P e iden and Chief Financial Office fo T i-S a e.24 59. B adfo d Co nell i he Managing Di ec o of he Be kele Re ea ch G o Co nell ha 40 ea of e i ela e e ience in e ea ching, eaching and con l ing on al a ion and ho o acco n ing info ma ion.25 Cha le Cicche i i al o a Managing Di ec o and a Membe of he Be kele Re ea ch G o 60. In Ma 2017, LPEA Con ac Commi ee, i h a e cen and allo o o al .26 e en ed a hi e a e o a con ening of he T i-S a e o o al o inc ea e he fi e- e cen elf-gene a ion allo ance o en ho e Membe o he Membe . The 61. . M. no ili ing hei elf-gene a ion allo men o ha e i ih e e no acce ed.27 The T i-S a e Con ac Commi ee a di ol ed in J l of 2017 i h no change made o allo Membe an addi ional elf-gene a ion allo ance.28 62. The T i-S a e Con ac Commi ee a efo med in J ne of 2019.29 63. On J l 2, 2019, LPEA bmi ed a le e o T i-S a e officiall cha ge.30 23 Hearing Exhibit 403, p. 3. Hearing Exhibit 406, p. 5. 25 Hearing Exhibit 404, p. 3. 26 Hearing Exhibit 405, p. 3. 27 Hearing Exhibit 100, p. 13. 28 Id. 29 Id. at p. 15. 30 Id. at Attachment JM-4 24 13 e e ing an e i Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 64. CEO Highle PROCEEDING NOS. 19F-0620E & 19F-0621E On A g o di c 19, 2019, a mee ing Af e he A g o e and ho ing le e . 19, 2019 mee ing, o he membe o iding e i fee and LPEA e economic, finance and e ho ing le e o k on he e i 33 o T i-S a e Membe ela ed o blic n il he T i- e .34 A of he da e of he hea ing, LPEA ha no been calc la ion, an e i cha ge, o a ho i fo e i fee 32 S a e Con ac Commi ee fini hed i 68. made e e In a Se embe 2019 boa d mee ing, T i-S a e Boa d o ed o lace a em o a mo a o i m on 67. een LPEA Boa d and T i-S a e o ion fo calc la ing an e i fee.31 65. 66. a held be o ided an indica i e b o ing le e f om T i-S a e. e D . S an Tie ne i a Senio Ad i o a Anal i G o a eg con l ing fi m. D . Tie ne ha 35 ea of e ili ie , , Inc., an e ience in olic a e and fede al a emaking and eg la ion, and ene g and en i onmen al olic .35 69. In Ma of 2018, he Uni ed Po e Boa d of Di ec o e i emen con ac 36 decided o eek a a ial- i h T i-S a e.37 31 Hearing Exhibit 100, p. 18; Hearing Exhibit 400, p. 42. Hearing Exhibit 400, p. 43. 33 This letter authorized members to investigate the cost of obtaining an alternative supply of power if it withdrew from Tri-State. See Hearing Exhibit 100, Attachment JM-5 34 Id. 35 Hearing Exhibit 102, pp. 5-6. 36 A partial-requirements contract would allow United Power to purchase less than 95 percent of its energy from TriState. 37 Hearing Exhibit 301, p. 13. 32 14 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 70. In A g 71. On A g an email PROCEEDING NOS. 19F-0620E & 19F-0621E of 2018, Uni ed Po e a ked fo an indica i e b o calc la ion. 38 16, 2018, Michael McInni of T i-S a e en Uni ed Po e CEO Pa ke i h an indica i e b o n mbe of $1,254,572,000. Thi n mbe a calc la ed ing he Sho hone Me hod. In he email, M . McInni de c ibed he Sho hone me hod a follo : an e ima e i made of he e en al e of a e en e a de a ing membe aid o T i-S a e h o gh he emaining e m of i con ac . i h a ho 39 72. T i-S a e 73. T i-S a e doe no con ide he indica i e n mbe calc la ed me hod o be a b o o ided Uni ed Po e amo n , no doe i con ide ea onable e i cha ge. Ra he , i con ide o ld ha e ing le e in A g he indica i e n mbe he indica i e b o of 2019.40 ing he Sho hone o be a fai and calc la ion o be a a ing oin fo nego ia ion .41 74. A of he da e of he hea ing, T i-S a e ha no o ided Uni ed Po e e i cha ge. 75. Ki Ca on made a fo mal e e fo a b o n mbe in Decembe 2014.42 76. Ki Ca on a n mbe of $119,000,000.43 77. Ki Ca on ag eed o a an e i cha ge of $37,000,000.44 o ided an indica i e b o 38 Id. at p. 20. Id. at Attachment JDP-10. 40 Hearing Transcript Vol. II, p. 70:4-21. 41 Id. 42 Hearing Exhibit 395, p. 12. 43 Hearing Transcript Vol. II, p. 70:20. 39 15 i h an Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 78. PROCEEDING NOS. 19F-0620E & 19F-0621E In Oc obe of 2015, he T i-S a e Boa d of Di ec o a o ed he b o n mbe fo Ki Ca on.45 79. T i-S a e con ide he e i cha ge aid b Ki Ca on o be fai , j and ea onable and non-di c imina o .46 80. DMEA a o ided an indica i e b o n mbe of $322,000,000.47 81. DMEA ag eed o a an e i cha ge of $62,500,000.48 82. T i-S a e con ide he e i cha ge aid b DMEA o be fai , j and ea onable and non-di c imina o .49 83. T i-S a e doe no o o e a me hodolog o calc la e an ac al e i cha ge fo La Pla a o Uni ed Po e .50 nj III. ISSUES 84. I T i-S a e ef al o o ide an e i cha ge o La Pla a and Uni ed Po e ef al o o ide an e i cha ge o La Pla a and Uni ed Po e and n ea onable? 85. I T i-S a e di c imina o ? 44 Hearing Exhibit 305, p. 35. Hearing Exhibit 395, p. 12. 46 Hearing Transcript Vol II, p. 178:9-18. 47 Id. at p. 249:5. 48 Hearing Exhibit 305, p. 35. 49 Hearing Transcript Vol II, p. 178:24-179:3. 50 Hearing Exhibit 400, p. 61:7-10. 45 16 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 86. PROCEEDING NOS. 19F-0620E & 19F-0621E Wha non-di c imina o i he o e APPLICABLE LAW 87. A a ion in hi 4C C 88. he o onen of a Commi ion o de , Com lainan oceeding a R E ce a ie o ided b 24-4-105(7), C.R.S. A a a commencing a e i ence. S a . C D an m of e idence ha con i a ha me hi b den of fa o of ha 90. in ca e in a a i e P oced e Ac on he o onen of oceeding. He e, he Com lainan a e he oof b a e onde ance of he e idence. S , e onde ance anda d e i e he finde of . R e a , 717 P.2d 507 (Colo. A obable han i non- .1985). While he e onde ance canno be ed ced o a im le fo m la, a oof hen he e idence, on he hole and ho e e ligh l , i in . The e onde ance of he e idence anda d i hich: (a) he e a e di of an im o an i oceeding he e i ence of a con e ed fac i mo e a he b den of oceeding h o gh he filing of hei e ec i e Com lain . 13-25-127(1), C.R.S.; 4 CCR 723-1-1500. The he he e, he Admini a i e adj dica o Com lainan bea he b den of o de e mine bea o ided in Commi ion R le 1500, 4 CCR 723-1, [ ]he o onen a he commenced he fac ea onable, and (CCR) 723-1. oof in admini o onen of he o de i ha 89. , an o R le 1500 of he R le of P ac ice and P oced e, a o he im o e he b den of an o de . o calc la e a j e i cha ge fo La Pla a and Uni ed Po e ? IV. e me hodolog nde ood and a lied mo ea il ed fac ; and (b) he e ol ion of he di o i i e i e, de end on he fac a de e mined b 17 he deci ion-make . e, o Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 91. On he o he hand, he a lied in he con e i e ado PROCEEDING NOS. 19F-0620E & 19F-0621E e onde ance anda d i le ea il of a a e ca e beca e: (a) man of he ho nie and mo e i e olic -ba ed deci ion ; (b) a ie o change a a ic la eaking, do no di e fac olic o a e en fac o e oach ( . ., eg la o ; and (c) he Commi ion ma e a .C 2012). Fo e ol ing i 92. a O c C he e ea on , he ALJ e in hi C inci all con o e ial inci le) and gene all ecific em i ical C a e ba ed on he o in he fo m of . PUC, 275 P.3d 656, 660 (Colo. a lied he ea onable ba i anda d The Colo ado Con i ion e he Commi ion blic ili i h he o e o eg la e he o e a ing i hin Colo ado. 51 Th o gh he P blic U ili ie La , he Gene al A embl ha al o a ho i ed he Commi ion and eg la e all a e , cha ge , and a iff of e e o do all hing , he he he e o, hich a e nece a 93. Tha hen oceeding. facili ie , e ice, a e , and cha ge of e e and ood and ade he deci ion-make o e idence a a hole and need no ba e i deci ion on d o da a. nde o con enien in he e e ci e of e abli hed o fi ed an nla f l ili ili of hi a e o co ec ab e ecificall de igna ed in A icle 1 o 7 of hi i le o in addi ion o e incl de com lain alleging ha a blic o go e n hea ing com lain ch o e . 52 alleging ha a blic ili ha le, eg la ion, o cha ge.53 The Commi ion can al o hea ha e abli hed 51 See Colo. Const. art. XXV See § 40-3-102, C.R.S. 53 See § 40-6-108(1)(a), C.R.S. 52 18 efe en ial o di c imina o a e o cha ge . 54 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 94. C.R.S., PROCEEDING NOS. 19F-0620E & 19F-0621E The Commi ion can hea claim a i ing f om an omi ion nde hich allo he Commi ion o hea com lain omi ed o be done ha i le of he [C]ommi ion. claim beca e i i he Commi ion a iff blic of e e conce ning an ac o hing done o . . . in iola ion, o claimed o be in iola ion, of an o of an o de o ili d of hi nde 40-3-102, C.R.S. 95. The i e in hi o i ion of la And, he Commi ion can hea he e a ic la . . . o go e n and eg la e all a e , cha ge , and a e o co ec ab e ; [and o] di c imina ion and e o ion in he a e , cha ge and a iff of ae 40-6-108, oceeding i a ma e of blic nj ili ie of hi blic in e e . The Commi ion ha an inde enden d o de e mine ma e U , 692 P.2d 1085, 1089 (Colo. 1984). A a e l , he Commi ion i no C bo nd b he Pa ie nece a oa eco d o o o al . ha a e ch e en The Commi ion ma e ha he final e l i j he e l a i hin he blic in e e . Ca do ha , ea onable, and in he .P b c he Commi ion deem blic in e e he he ea on fo he choice made ( . ., olic deci ion ) a e a ed. 96. In reaching his decision in this matter, the ALJ is mindful of these principles and of he Commi ion d . The ALJ has considered all arguments presented, including those arguments not specifically addressed in this Decision. Likewise, the ALJ has considered all 54 See § 40-6-111(4)(a), C.R.S.; see also Proceeding No. 18F-0866E, Decision No. C19-0297-I (April 1, 2019), at ¶¶ 16-23 (explaining that Colorado law empowers the Commission to hear, among other things, a member coo e a i e com lain alleging ha T i-S a e membe hi -e i fee i di c imina o , nj , o n ea onable. ). 19 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 PROCEEDING NOS. 19F-0620E & 19F-0621E evidence presented at the hearing, even if the evidence is not specifically addressed in this Decision. IV. ARGUMENTS OF THE PARTIES A. A 1. 97. e f La P a a Public Utilities Law Governs this Proceeding La Pla a a g e ha f om he on e of hi cha ac e i e hi oceeding a a con ac ca e. con ac ca e b a he , fi ml fall ea onable, and non-di c imina o 98. La Pla a oin nde oceeding, T i-S a e ha a em ed o La Pla a con end he Commi ion ha hi ca e i no a j i dic ion o e abli h a j , e i cha ge fo LPEA. o he Commi ion holding in P oceeding No. 18F-0866E in hich he Commi ion, in a nea l iden ical com lain S a e, held ha DMEA com lain did no a e oceeding in ol ing DMEA and T i- a b each of con ac claim b a he , a go e ned b P blic U ili ie La .55 99. La Pla a f R20-0097-I in hi hich a he a e ha he Hea ing Commi ione oceeding, and la e he Gene al A embl igned in o la Ma ch 27, 2020, o finding in Deci ion No. a age of Ho e Bill 20-1225, he finding ha hi ma e i o e abli h an e i cha ge and i no a b each of con ac ac ion. 2. 100. La P a a E C a e Me d La Pla a a e ha D . Tie ne de elo ed he me hodolog Pla a and con i en i h adi ional a emaking 55 i ho in f om La inci le . La Pla a S a emen of Po i ion, . 6 (citing Proceeding No. 18F-0866E, Decision No. C19-0297-I, at 4-5, ¶¶ 1113 (mailed Apr. 1, 2019)). 20 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 101. inc D . Tie ne PROCEEDING NOS. 19F-0620E & 19F-0621E me hodolog e he a emaking ence ( a e ba ed on co ); and (3) an a enc . inci le of (1) fai ne ; (2) co - D . Tie ne define each of he e inci le he follo ing a : a) Fai he me hodolog m no di c imina e be een de a ing and emaining membe , and m no c ea e incen i e o ei he a i h o e i T i-S a e. A fai , non-di c imina o e i cha ge ha m nei he emaining membe no he de a ing membe , no i i ni i e in a manne hich e en membe f om being able o lea e a all. b) Co -ba ed- he me hodolog m be ba ed, o he e en o ible, on ac al and na oidable co al ead inc ed b T i-S a e in an ici a ion of o iding e ice o he de a ing membe . A me hodolog ho ld el a li le a o ible on nce ain, bjec i e, and o en iall -a oidable long- e m co ojec ion and ho ld in ead foc on he de a ing membe ha e of he financial benefi and b den a ocia ed i h T i-S a e o ne hi , incl ding an anded a e o liabili ie hich o ld fall o he emaining membe . c) T an a enc he me hodolog m be aigh fo a d, e ifiable, and ba ed on blicl -a ailable info ma ion, o he e en o ible. Thi e e o ed ce he admini a i e inefficienc , an ac ion co , and info ma ion a mme ha ha e di ad an aged T i-S a e membe eeking o o e l eigh he co and benefi of hei con in ed membe hi .56 102. D . Tie ne me hodolog of o al a e (A), liabili ie (L), and e i e blicl a ailable info ma ion and a fo nda ion (E). The fo m la i a follo : E i Cha ge = A L E, he e: A = La Pla a % Sha e of T i-S a e A e , L = La Pla a % Sha e of T i-S a e Liabili ie & Economic Commi men , and E = La Pla a e i La Pla a o ld 56 57 in e e in T i-S a e ( . ., La Pla a ende ( . ., effec i el La Pla a S a emen of Po i ion, . 9-11. Hearing Exhibit 101, p. 34:13-20. 21 a onage ca i al), hich a o e o T i-S a e) on i hd a al.57 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 103. PROCEEDING NOS. 19F-0620E & 19F-0621E In Hea ing E hibi 501 and Table SFT-1 con ained in Hea ing E hibi 101, he incl ion and e cl ion fo he A e , Liabili ie and E 104. U ing D . Tie ne 3. La Pla a ae 106. e La Pla a a g e ed P e ha P a me hodolog i a ea onable al e na i e b e and ha D . Tie ne ide of he coo e a i e b ine Ringel e e fU ha Uni ed Po e lack he benefi of being im le o he o ne hi a e li ed. me hodolog , he e i cha ge fo La Pla a i $96.990 million. La P a a A e 105. i me hodolog mo e f ll ca e model.58 Uni ed Po e me hodolog ili e a mo e com lica ed alloca ion a oach calc la ion.59 La Pla a al o belie e ha M . Ringel e e i h he a o o ed b M. eigh ed in age of deb me hodolog fail o inco o a e he a e ide of he balance hee in he calc la ion of he e i cha ge. 107. me hodolog con ide La Pla a al o a g e i efe able o D . Tie ne emo ing he me hodolog con i en 4. 108. 59 o e ha M . Ringel e e me hodolog , he Commi ion ho ld ongl cha e ag eemen (PPA) com onen of M . Ringel e e i h he ecommenda ion in he Reb al Te imon . A Hybrid Approach Finall , La Pla a of en, in a emaking 58 ha if he Commi ion deem e en oceeding , ado ed a h b id a ch an a La Pla a S a emen of Po i ion, . 16. Id. at p. 17. 22 oach, no ing ha oach. he Commi ion ha Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 109. PROCEEDING NOS. 19F-0620E & 19F-0621E La Pla a i h D . Tie ne gge ing Uni ed Po e 2019- ha e-of-membe - ale a in age- ha e-of-deb a 110. ecificall La Pla a million, con i ing of he oach o e ing he alloca o , e lacing he oach ed b M . Ringel e e . ae ing hi a oach e i cha ge me hodolog , b o ld e l in an e i cha ge of $175.915 ende of $74.446 million in ndi co n ed a onage ca i al and $101.469 million in ca h. B. A 1. e fU ed P e Public Utilities Law Governs this Proceeding 111. Uni ed Po e , like La Pla a, a g e 112. Uni ed Po e al o oin ha hi ma e fall nde P blic U ili ie La . 0866E in o he Commi ion holding in P oceeding No. 18F- hich he Commi ion, in a nea l iden ical com lain oceeding in ol ing DMEA and T i-S a e, held ha DMEA com lain did no a e a b each of con ac claim b a he , a go e ned b P blic U ili ie La .60 113. he he Uni ed Po e a g e ha he Commi ion i i h he abili o de e mine a e , oll , fa e , en al , cha ge , o cla ifica ion demanded, ob e ed, cha ged, o collec ed b an blic ili n ea onable, di c imina o , o 60 e ed Uni ed Po e fo an e ice, efe en ial. S a emen of Po i ion, . 6. 23 od c , o commodi . . . ae nj , Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 114. PROCEEDING NOS. 19F-0620E & 19F-0621E Uni ed Po e f cha ge a defined b a he a e 115. a d C o e an e i e e WESC, e i men lea e , and he like). omi o no e , o o iona e ha e . . . of [T icha ed elec ic ene g , f el, lan o 62 Ba ed on hi (1) Uni ed Po e hich e mi b an iall all of i a e , o eo gani e o me ge, o and di cha ge . . . ha membe S a e ] long- e m obliga ion ( ch a o i ion, M . Ringel e e o a a ha e of T i-S a e me hodolog a e e o fac o : indeb edne ; and (2) Uni ed Po e ha e of in T i-S a e.63 117. indeb edne a e and d . S ecificall , Uni ed Po e look o A icle II, Sec ion 4, he membe he e i he a ho i Uni ed Po e a g e ha i e i cha ge me hodolog i ba ed on and con i en a Membe o an fe o di o e of all o 116. oceeding i o e abli h a , ea onable, and non-di c imina o .61 U ed P e P ed Me , and Note Purchase Agreements i h T i-S a e b la long a o e of hi e and ha he Commi ion ha cha ge fo Uni ed Po e ha i j 2. Tri-S a e B a ha he Uni ed Po e f he ho ld be off e b ha Membe ha T i-S a e b la ag e ha an e i ing Membe ha e of he e i and a licable coo e a i e la ca i al o membe -o ne . 61 Id. at pp. 7-8. Id. at p. 8. 63 Id. 62 24 o aa ha e of in T i-S a e. Uni ed Po e e i e he e n of a onage Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 118. Pa ie PROCEEDING NOS. 19F-0620E & 19F-0621E Uni ed Po e concl de e inen doc men ha an e i cha ge me hodolog and con i en i h common en e i j o ed b he , ea onable, and non-di c imina o .64 3. 119. U ed P e Me C Uni ed Po e a g e ha in o de o a e i im o an o com a e he me hodolog 120. d Uni ed Po e and T i-S a e oin e O e E he ea onablene o he e i cha ge o he e imon of T i-S a e Boa d Chai man, M . Go don, o he Ca on and DMEA e i cha ge made he non- i hd a ing Membe 121. nj 4. Discriminatory ee j e imon , ea onable, and non-di c imina o ha he o o i oceeding. he a g e ha T i-S a e o ided no e idence ha he o o ed , n ea onable, o di c imina o . Tri-S a e I d ca eE C a e U ,U ea ab e, and Uni ed Po e a g e ha he indica i e e i cha ge o ided b T i-S a e o o ld e l in an nj , n ea onable, and di c imina o e i cha ge. Uni ed Po e 64 in hi Uni ed Po e f me hodolog i he Ki hole and a i fied he Uni ed Po e al o efe ence M . Go don and M . Highle [ o o ed] me hodolog 123. o o i ion ha con ac al obliga ion o T i-S a e. Ki Ca on and DMEA e i cha ge 122. of an e i cha ge, i aid b Ki Ca on and DMEA. Chief Financial Office , Pa B idge , o i hd a ing Membe C a e Id. at pp. 10, 12. 25 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 124. PROCEEDING NOS. 19F-0620E & 19F-0621E In o of hi a g men , Uni ed Po e ci e Pa ke , a ing ha he indica i e e i cha ge n mbe he e imon of i CEO, M . a onl a a ing oin fo nego ia ion , no an ac al e i cha ge ha i fai and ea onable.65 C. A e f T -S a e 1. The Commission Should Not Create an Exit Fee Due to Prior Cases and the Failure of Complainants to Follow Tri-S a e Bylaws the WESC 125. T i-S a e a g e ha WESC a e e en ial o 126. T i-S a e con in e ha enfo ced. Thi a g men i ba ed . S R P Ta A ca 127. an in ance In o e l f nc ioning ene g ma ke . a e and fede al co on T -S a G ha e a a e ed ha WESC m Ta , I c., 805 F.2d 351 (10 h Ci . 1986), and T -S a , I c. . S R P ca G , I c. a a , I c., 874 F2d 1346 (10 h Ci . 1989). o of i a g men ha he WESC m hen fi e Neb a ka Membe A be be enfo ced, T i-S a e al o ci e o a em ed o i hd a f om T i-S a e in 2009 and a elied on he omi e made b La Pla a and Uni ed Mon ana ca e f om 1971. 128. T i-S a e ae ha i ha Po e in he WESC o finance i Gene a ion and T an mi ion and ha La Pla a and Uni ed Po e ha e benefi ed f om he WESC. 129. T i-S a e a g e ha he i b la in A icle I, Sec ion 4. Thi con ac al obliga ion befo e i 65 incl de a o ion of he b la e ie ill be e mi ed o i hd a . Id. at p. 13. 26 o i ion fo a Membe o he e i ing Membe i hd a o mee all Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 130. hi PROCEEDING NOS. 19F-0620E & 19F-0621E T i-S a e f he a g e ha he Com lainan ha e done no hing o com l o i ion, nlike Ki Ca on and DMEA ee di c he e he ag eed- on e m of he fficien o a i f each Membe con ac al obliga ion . 131. he Com lainan T i-S a e claim ha declined ih i hd a al o engage in imila ion . 132. T i-S a e a g e ha fo he e ea on , he Commi ion ho ld no allo La Pla a and Uni ed Po e o change he e m of he WESC. 2. The Commission Should Not Create an Exit Fee For Failure to Demonstrate Tri-State Acted Unjust, Unreasonable, or Discriminatory 133. Colo ado la A an ini ial a g men , T i-S a e a e ha he e i no e add e ing e i cha ge and he efo e, no e i emen e abli h an e i cha ge in hi oceeding. Wi ho an e lici fo nd b oceeding o ld ha e no o he Commi ion in hi 134. T i-S a e f he a g e cha ge, he Commi ion i demon a ing ha he S a e con end 67 o i ion in he Commi ion e i emen , an e i cha ge nde Colo ado la .66 ha if he Commi ion de e mine i can e an e i ill e i ed o find ha Com lainan e en e i cha ge, o he lack he eof, i nj ha e me hei b den of and n ea onable. 67 T i- ha he e i no ba i in he eco d fo hi finding d e o he Commi ion no allo ing T i-S a e o 66 ha lici e en i e i cha ge me hodolog . Tri-S a e S a emen of Po i ion, Id. at pp. 21-22. . 20-21. 27 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 135. e ec PROCEEDING NOS. 19F-0620E & 19F-0621E T i-S a e con in e o di c imina ion. imila l S ecificall , Com lainan ha e failed o mee hei b den ih failed o demon ae a e ha he i a ed o Ki Ca on and DMEA.68 136. T i-S a e f e lemen ag eemen eej ha he Com lainan i ho he a g e ha beca e Ki Ca on and DMEA ca e ended in a a Commi ion deci ion finding ha he ag eed- on e i cha ge and ea onable, he Commi ion canno e oac i el make ha finding. Ab en hi finding, T i-S a e a g e i i i ele an ha T i-S a e i elf deemed he e lemen ag eemen , and he e ec i e e i cha ge incl ded he ein, j and ea onable and he efo e no alid efe ence o de elo an e i cha ge. 137. Finall , T i-S a e a g e ha if he Commi ion deem an e i cha ge i T i-S a e ho ld be di ec ed o file a 3. o o ed e i cha ge. T i-S a e make a e ie of a g men ba ed in con ac . Fo emo i ha an e i cha ge ho ld make T i-S a e Membe e l , an e i fee m bo ne had he emained Membe o hold . . . emaining membe hole and nha med. T i-S a e a e : (1) eflec he co h o gho ha mle 69 ha in o de o LPEA and Uni ed Po e o ld ha e he f ll e m of hei WESC ; and (2) be f om inc ea ed e on ibili obliga ion . . . a he ime of [LPEA and Uni ed ] i hd a al. 68 i ed, The Commission Should Treat any Exit Fee as a Breach of Contract 138. achie e hi e Id. at p. 22. Tri-S a e S a emen of Po i ion, . 30. 28 69 fo fficien he financial Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 139. o PROCEEDING NOS. 19F-0620E & 19F-0621E T i-S a e al o a g e ha he i hd a ffe a c edi do n g ade and o offe o of he Com lainan e a cena io , acco ding o T i-S a e, co ld lead o bank 140. T i-S a e ake i e ih he o o ed me hodologie a emaking T i-S a e a g e ha La Pla a me hodolog a ake in o acco n co de a o $182.8 million in deb . fo anded inf a c The e 70 c . Com lainan . T i-S a e a g e ha he do no follo 141. ma ca e T i-S a e e en ed b he inci le . o o ed b D . Tie ne doe no e, he leng h of he WESC, o he effec of a e on o he T i-S a e Membe .71 142. T i-S a e find fa l i h Uni ed Po e me hodolog a o ided b M. Ringel e e fo i fail e o acco n fo he emaining ime of he WESC. T i-S a e al o ake i e i h M . Ringel e e fail e o incl de an mi ion ela ed deb in he calc la ion.72 V. DISCUSSION A. T eC a 143. The ec en heme h o gho he Commi ion ha he a ho i eA o add e a dS hi d De e ea E oceeding ha been he he elief e e ed b C a e e ion of he Com lainan . The Com lainan a e adaman no onl in hei belief ha he Commi ion ha he a ho i on an e i fee b 144. ha i i onl h o gh Commi ion ac ion ha he T i-S a e, on he o he hand, ha been j no ha e hi a ho i . Id. Id. at pp. 36-37. 72 Id. at p. 38. 71 29 o le ill ecei e an e i cha ge. a adaman ha he Commi ion doe In making hi a g men , T i-S a e ha a em ed almo 70 he he e e Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 PROCEEDING NOS. 19F-0620E & 19F-0621E concei able de ice f om e e Commi ion (FERC) a hea ing, in age of i fo o dela o den hich T i-S a e a o filing a he Fede al Ene g hi Commi ion g an ing of he e e ed elief. Af e e en ed no me hodolog o calc la e an e i fee,73 he fi 45- age S a emen of Po i ion do no e en add e he me hodologie he Com lainan . Ra he , T i-S a e im lo e he Commi ion ei he o no o o allo T i-S a e, a hi la e da e, o 145. The fi Commi ion ha i e, and he a ho i Commi ion doe no ha e 146. of he ima he he defen e i ha he he im e ion, i i im o an o nde and he he he and if o, he he i ho ld e an e i fee in hi ma e . he e-filed e imon , he hea ing i elf and i of a b each of con ac . T i-S a e ha f amed hi Fo he limi ed o ide an e i fee, defen e of T i-S a e, i M ch of T i-S a e Po i ion, T i-S a e ha enco aged he Commi ion o ie he Commi ion no ac o o ed b o ide a me hodolog fo calc la ing an e i cha ge.74 o e an e i fee. Beca e hi i a ca e of fi Th o gho 34 ch a ho i , o if i doe , i ho ld no do o. Commi ion ha hi a ho i 147. a Reg la o he nde l ing di oceeding a a con ac di S a emen of e in he con e e o e e on he e e ed elief and al e na i el , o make i Membe o e of de e mining he he hi oceeding fall ha hole. nde P blic U ili ie La o Con ac La , T i-S a e con ac claim a e add e ed belo . 148. fi 73 74 While hi i a ca e of fi ime ha a Membe of T i-S a e ha im e ion o each an e iden ia hea ing, i i no he e e ed he Commi ion g an he elief o gh he e Hearing Exhibit 400, p. 61:7-10; Hearing Exhibit 404, p. 14:13-18. Tri-S a e S a emen of Po i ion . 44-45. 30 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 in a com lain oceeding. No i i he fi lack j i dic ion o 149. PROCEEDING NOS. 19F-0620E & 19F-0621E le on A he o di c ch elief. e,i m a defined b Colo ado la ime ha T i-S a e ha claimed he Commi ion be a ed ha T i-S a e doe no di and did no di e i i a P blic U ili e hi fac in an of he e io oceeding ed belo . 150. Membe 75 In P oceeding No. 13F-0145E, a com lain a filed b a n mbe of T i-S a e again T i-S a e conce ning a e inc ea e im lemen ed b T i-S a e. I ha T i-S a e failed o follo Colo ado a 151. e T i-S a e filed a Mo ion o Di mi j i dic ion. The Mo ion a ba ed on man Comme ce Cla e of he Fede al Con i e io l 152. j i dic ion 153. hen he a e inc ea e eg la ed T i-S a e e e enac ed. claiming he Commi ion heo ie incl ding a alleged a i ho ohibi ion d e o he ion, and beca e he Commi ion had ne e ae . ALJ Gome had he a ie e-file e imon and held a hea ing olel on he e ion. In Deci ion No. R13-1119-I, ALJ Gome j i dic ion o hea he Com lain oceeding.76 ALJ Gome held ha he Commi ion had a ed b de ailing he o e and d ie of he Commi ion. He en on o find ha he Commi ion had j i dic ion o de e mine he he a a e of T i-S a e a j and ea onable. S ecificall , ALJ Gome 75 a ed: La Plata Electric was among the Complainants in this case. There were other non-members of Tri-State that also filed the complaint with the Tri-State members. 76 See Decision No. R13-1119-I in Proceeding No. 13F-0145E. 31 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 PROCEEDING NOS. 19F-0620E & 19F-0621E 54. The language of § 40-6-111(4)(a), C.R.S., precludes cooperative electric associations from establishing, charging, or collecting discriminatory or preferential rates which would not only violate § 40-6-111, C.R.S., but also § 403-106(1), C.R.S. Notably, § 40-3-106(1), C.R.S., does not contain a requirement that a rate considered under that section must have been previously filed with the Commission. But most importantly, it is apparent that the legislature provided a clear avenue for members or customers of electric cooperative associations to seek relief for any rate violations pursuant to either of those two statutory provisions. 55. Further, incorporating §§ 40-6-108(1)(a) and (b), C.R.S. ( he Commi ion primary complaint procedure statute) into the interpretation of Commission rate jurisdiction with §§ 40-6-111(1) and (4)(a), C.R.S., it becomes apparent that not only are these provisions consistent with each other, but the last sentence of § 406-111(4)(a), C.R.S., in effect lessens the requirements of § 40-6-108(1)(b), C.R.S., which requires that a complaint as to the reasonableness of any rates or charges of an electric utility must be signed by not less than 25 customers or prospective customers of the public utility, which in turn, as stated supra, eases the regulatory burden on cooperative electric associations. Colorado-Ute Electric Association, Inc. at 637. This interpretation is further augmented by § 40-6-110, C.R.S., hich o ide ha [a]n blic ili ha a igh o com lain on any grounds upon which complaints are allowed to be filed by other parties, and the ame oced e hall be ado ed and follo ed a in o he ca e . (Em ha i added). 56. Reading those statutes together, along with § 40-3-102, C.R.S., nothing can be ascertained which would diminish any of the Commi ion j i dic ional o e under Public Utilities Law to investigate tariff changes and, if necessary, to prescribe just and reasonable rates as applicable to Tri-State. Consequently, it is found that the Public Utilities Law and specifically the statutory provisions cited above (and harmonized) provide the Commission with state jurisdiction over TriS a e a e .77 154. ALJ Gome di ing i hed No. 13F-0145E beca e ho e e io e io oceeding had no been ini ia ed b com lain . He hen made he deci ion immedia el a 77 oceeding f om he filing in P oceeding ealable o he Commi ion Decision No. R13-1119-I in Proceeding No. 13F-0145E (citation omitted). 32 he filing of a ba c. Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 155. PROCEEDING NOS. 19F-0620E & 19F-0621E T i-S a e filed an a eal befo e he Commi ion. In Deci ion No. C14-0006-I, he Commi ion na o ed he co e of he ma e e led i ho 156. P and a ho i na oceeding b a hea ing. im l , P oceeding No. 13F-0145E e abli hed he Commi ion j i dic ion nde P blic U ili ie La e of a a e o de e mine he ea onablene deci ion made b ALJ Gome a c , he nde igned ALJ belie e In P oceeding No. 18F-0866E, DMEA filed a com lain oceeding. Once again, T i-S a e con ended he e i fee a o follo e e ing he e ed in he in an e ioned he j i dic ion of he Commi ion. T i-S a e ide of he Commi ion ional claim , and a g ed ha he No. C19-0297-I, he Commi ion, 158. ha he and on fi m legal g o nd. Commi ion de e mine an e i cha ge f om T i-S a e. The ame elief e S a e Con i o di c imina o e c ibed b T i-S a e h o gh he filing of a com lain b a T i-S a e Membe . Al ho gh he Commi ion i no bo nd b 157. main ained j i dic ion.78 Ul ima el , he a emaking j i dic ion, a e ed Uni ed oceeding a a con ac di e. In Deci ion ba c, ejec ed each of he e a g men . S ecificall , he Commi ion add e ed T i-S a e j i dic ion a g men a : 22. Tri-State contends that the fee cannot violate any provision of law over which the PUC has jurisdiction because § 40-3-101(1), C.R.S., excludes the exit fee from the Public Utilities Law entirely. But § 40-3-101(1), C.R.S., does not operate to that effect. Instead, § 40-3-101(1), C.R.S., sets forth general requirements for 78 Included in Decision No. C14-0006-I was a blistering dissent to the limiting of the scope by Commissioner Ta e , hich incl de hi a age: T C b also made clear in Colorado-Ute E c c A ca , I c. . P b c U C , 760 P.2 627, 639 (C . 1988): U G a Assembly changes the law, the Commission possesses not only the power and authority, but also the duty to prescrib a a b c c .” 33 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 PROCEEDING NOS. 19F-0620E & 19F-0621E certain public utility rates and charges. And, because it is not the only section that governs public utility rates and charges, it provides one of a few standards against hich a blic ili ac ion , a e , o cha ge can be e ed. 23. In this case, § 40-6-111(4)(a), C.R.S., provides that when a public utility files a complaint, the Commission shall determine whether the rate or charge in question is contrary to the standards in that section, in § 40-3-106(1), C.R.S., or in § 40-3-111, C.R.S. The standards in § 40-3-106(1), C.R.S., prohibit public utilities from establishing preferential or discriminatory rates or charges. So, the Commission can determine whether the exit fee is preferential or discriminatory. Section 40-3-111, C.R.S., empowers the Commission to go beyond the general guidelines Tri-State focuses on in § 40-3-101(1), C.R.S., by prohibiting, among other things, unjust or unreasonable charges for, or in connection with, any service, product, or commodity. Under this section, the Commission may consider whether a charge to leave behind Tri-State membership (and the attendant purchase and generation of electric power, along with the transmission, delivery, and sale of that power to electric cooperatives) is just and reasonable. Coupled i h he Commi ion d o eg la e the rates and charges of every public utility of this state to correct abuses, these statutory provisions enable the Commission to determine whether such a charge is discriminatory, unjust, or unreasonable. 159. The Commi ion al o add e ed T i-S a e con ac a g men : 11. The allegations in the complaint begin by asserting that Tri-S a e ha e a punitive exit charge that is unjust, unreasonable, and discriminatory in violation of Colo ado la . Thi lang age mi o 40-3-101, -102, and -111(1), C.R.S. 2018, which provide that the Commission shall determine a just and reasonable charge if, upon complaint, it finds a charge is unjust, unreasonable, or discriminatory. From the outset, it appears that DMEA relies on the Public Utilities Law rather than Tri-S a e b la a he fo nda ion of i claim . 12. The first claim for relief alleges that the amount of the exit fee violates the Public Utilities Law because it is not just and reasonable. It references statutory provisions empowering the Commission to hear complaints and asks the Commission, pursuant to that statutory authority, to determine a just and reasonable amount. The second claim for relief alleges that the amount of the exit fee violates the Public Utilities Law because it is discriminatory in light of the exit fee cha ged o he Ki Ca on coo e a i e. I al o efe ence he Commi ion statutory authority and asks the Commission to use that authority to determine a just and reasonable exit fee. 13. Neither claim for relief is pleaded as a contract claim. Both claims allege that the exit fee violates the Public Utilities Law. So, we conclude that on its face the complaint asserts statutory claims. 34 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 PROCEEDING NOS. 19F-0620E & 19F-0621E 14. And the substance of the complaint is not a breach of contract for two reasons. First, while the complaint describes, by way of background, the internal dispute process governed by Tri-S a e b la , he o claim fo elief do no lace a i e he b la in e e a ion o a lica ion. Second, he com lain elie on he Public Utilities Law, not obligations contained in Tri-S a e b la , o a e i two claims. While DMEA and Tri-State have a relationship governed in part by Tri-S a e b la , he ela ion hi i al o go e ned in a b he P blic U ili ie Law. Because the complaint seeks to test the exit fee against the requirements of the Public Utilities Law, we conclude that the substance of the complaint seeks to enforce obligations arising from statute, not contract. 160. ha binge of f Ul ima el , P oceeding No. 18F-0866E e l ed in a e lemen . Ye a a e T i-S a e ac ion , he Commi ion in clo ing P oceeding No. 18F-0866E a ed he follo ing: 3. A he Commi ion J l 17, 2019 Weekl Mee ing, e oiced o conce n that the settlement might not be in the public interest, that its terms could be onerous and would be hidden from the public and the Commission, that the third party in this proceeding the Colorado Energy Office had been silent on the settlement, and that throughout this proceeding, Tri-State had employed dilatory tactics that were detrimental to stakeholders and the Commission. 4. To protect the public interest and the dignity of this tribunal, we ordered the Colorado Energy Office to submit a filing indicating whether its counsel believed the terms of the agreement were in the public interest and we ordered the parties to file a public version and a highly confidential version of the executed settlement agreement. 5. For the same reasons, and concerned that Tri-State had been working to undermine our jurisdiction as we and the other parties worked to resolve this dispute, we ordered Tri-State to file a summary of all actions taken by Tri-State, its employees and any third party consultants, including attorneys, from the period January 1, 2019, through Friday, July 12, 2019, concerning the steps it has taken to consider and move Tri-State toward regulation by FERC. 35 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 PROCEEDING NOS. 19F-0620E & 19F-0621E 6. Tri-State never filed its summary.79 161. T i-S a e P im l , he Commi ion e-affi med he finding of ALJ Gome and ejec ed a g men ha he oceeding a a con ac di e. The nde igned ALJ again belie e ha he e deci ion a e on fi m legal g o nd and hall be follo ed. 162. In he in an a g men o ho e made in he a e oceeding, T i-S a e ha e io o e en ed he Commi ion oceeding di c i h a imila ed abo e. T i-S a e, once again, con ac heo ie and a g e ha he Commi ion doe no ha e a ho i o de e mine an e i cha ge. 163. a em La Pla a and Uni ed Po e , ho e e , emind he Commi ion of he n cce f l b T i-S a e o e ade Commi ion a ho i o de e mine an e i cha ge i h he e a g men . 164. The nde igned ALJ ag ee fi ml e abli hed ha hi e ea he di c i on all fo oceeding fall 80 he Commi ion ha nde P blic U ili ie La . I i no nece a i h he i a ion of DMEA. Thi he e i cha ge oceeding follo Com lain fall The i a ion i h La Pla a i Po e ha e alleged ha 79 ha o ion f om P oceeding No. 18F-0866E. The i a ion conce ning Uni ed Po e oceeding in holding ha Uni ed Po e 165. i h he Com lainan a el he logic in he DMEA nde P blic U ili ie La . ligh l diffe en . 80 On one hand, DMEA and Uni ed o o ed b T i-S a e i nj , n ea onable, and See Decision No. C19-0690 in Proceeding No. 18F-0866E. This difference was not addressed by Tri-State but for a full record it will be addressed by this decision. 36 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 PROCEEDING NOS. 19F-0620E & 19F-0621E di c imina o . La Pla a, on he o he hand, allege cha ge i nj 166. fail e o o ide an e i , n ea onable, and di c imina o . The a ho i he e T i-S a e ha failed o Koncija in hi ha T i-S a e fo he Commi ion o de e mine an e i cha ge in he i a ion o ide an e i cha ge a add e ed b Hea ing Commi ione oceeding in Deci ion No. R20-0097-I. She fo nd a follo : 24. La Plata also asserts two claims. It alleges that Tri-S a e fail e o o ide i with any exit charge at all is: (1) unjust and unreasonable; and (2) discriminatory because other members have received exit charges. While this presents a new variation on the exit charge theme, the Commission can hear claims arising from an omission under § 40-6-108, C.R.S., which allows the Commission to hear com lain conce ning an ac o hing done or omitted to be done b T i-State ha i . . . in iola ion, o claimed to be in violation, of any provision of law or of an o de o le of he [C]ommi ion. And, he Commi ion can hea he e a ic la claim beca e i i he Commi ion d . . . o go e n and eg la e all rates, charges, and tariffs of every public utility of this state to correct abuses; [and to] prevent unjust discriminations and extortions in the rates, charges and a iff of ch blic ili ie of hi a e (em ha i added) nde 40-3-102, 81 C.R.S. 167. Al ho gh a diffe en fac a e n, he a ho i e i fo he Commi ion o le on hi a e nde P blic U ili ie La . 168. T i-S a e al o a g e an e i cha ge, i long- anding ha e en if he Commi ion ha ho ld no e e ci e ha a ho i blic olic . T i-S a e o hi coo e a i e ha e a em ed o e ade a WESC.82 81 82 Decision No. R20-0097-I, ¶ 24. See Tri-S a e S a emen of Po i ion, n.25. 37 he a ho i beca e doing o emi e o de e mine o ld be con a i h a e ie of ca e in o hich Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 169. PROCEEDING NOS. 19F-0620E & 19F-0621E The fa al fla i h T i-S a e a g men i ha he ca e ci ed fall nde con ac la and no P blic U ili ie La . ie 170. In addi ion, he Gene al A embl ha made i ab ndan l clea ha i doe no hi e of di e a being an ackno ledged he Commi ion e a ion j i dic ion and adj dica e a com lain conce ning j of a con ac . ie The in an Com lain nde igned ALJ find d o de e mine he con a o f T -S a e We e U 172. T i-S a e a g e ee Commi ion ha he a ho i T i-S a e fi ha nj , im o an l , he i e o ld be con i en l , U ea he Commi ion m ab e, a d D c a make he de e mina ion ha n ea onable, and di c imina o befo e finding ha he he o de e mine an e i cha ge. ag e ec ed, e l ed in de a ha T i-S a e ha 84 and, mo blic olic . ac ion of T i-S a e 83 hole ale fall nde P blic U ili ie La ; no con ac la . The o e e i cha ge o e i cha ge me hodolog . To find o he T e Ac o ld be e of he Commi ion o 83 he Commi ion ha j i dic ion, a ho i B. 173. he d and ea onable e i cha ge a e ed b a elec ic coo e a i e again a e ail elec ic coo e a i e. 171. i The Gene al A embl ha he nego ia ed e i fee of DMEA and Ki Ca on a e fee ha a e diffe en f om he ea ed all Membe e all Colorado House Bill 20-1225 (signed March 27, 2020). Tri-S a e S a emen of Po i ion, . 19. 38 e en oceeding and i h ega d o i hd a al. 84 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 174. PROCEEDING NOS. 19F-0620E & 19F-0621E T i-S a e con in e ha he Commi ion canno e oac i el de e mine ha he DMEA and Ki Ca on e i cha ge S a e and ho e Membe 175. imila l eej and ea onable. F ha he e i cha ge Finall , T i-S a e a g e ha e ej he , he de e mina ion b T i- and ea onable i i ele an . he Com lainan ha e no ho n ha he a e i a ed o Ki Ca on and DMEA. T i-S a e a g e ha nego ia ed e lemen ha e no eceden ial al e fo a a ie condi ion , and o he 176. ni of ea on , incl ding he a age of ime, changed ma ke e fac o .85 While i ma no be nece a n ea onable, and di c imina o o find ha he ac ion of T i-S a e e e nj , befo e de e mining an e i cha ge, fo he ake of a g men , he ac ion of T i-S a e ill be e amined. 177. To find ha he ac ion of T i-S a e Uni ed Po e and La Pla a a e imila l 178. e e di c imina o , i m be fo nd ha i a ed o Ki Ca on and DMEA. La Pla a and Uni ed Po e a e, i ho e ion, imila l and DMEA. La Pla a, Uni ed Po e , DMEA and Ki Ca on ei he of T i-S a e. The all igned WESC con ac . The a e all i a ed o Ki Ca on e e o a e membe /o ne e i emen membe of T i- S a e.86 179. Ne , he ac ion of T i-S a e ega ding Ki Ca on and DMEA m Each of he e Membe of T i-S a e e e ed an e i cha ge and a ho 85 be e amined. ing le e . Bo h Id. at pp. 23-24. Although the addition of Non-Utility Members has not been found to be legal under Colorado law, none of these members are Non-Utility Members. 86 39 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 PROCEEDING NOS. 19F-0620E & 19F-0621E ecei ed an indica i e n mbe n mbe and a ho ing le e . Ki Ca on ecei ed an indica i e of $119,000,000. DMEA ecei ed an indica i e n mbe 180. T i-S a e e en all en e ed in o nego ia ion of $322,000,000. i h Ki Ca on and DMEA, and ho e a ie ag eed on an e i cha ge. The Ki Ca on nego ia ed e i cha ge The DMEA nego ia ed e i cha ge a $62,500,000. The nego ia ion a $37,000,000. i h bo h Ki Ca on and DMEA e l ed in an e i cha ge ha , acco ding o T i-S a e CEO Highle , made T i-S a e hole, me Ki Ca on and DMEA con ac al obliga ion , and a j 181. T i-S a e in i e imon a ea fo de e mining an e i cha ge. A Membe e o ide an indica i e n mbe ha i onl a le e . The e ac ion Membe e e a he ca al con ac al commi men and i j T i-S a e o e e a oce and ea onable.87 ha ha been a cha ge and a ho ed in he a ing le e . T i-S a e a ing oin fo an e i cha ge and he ho o a nego ia ed ag eemen ha mee ing he e i ing and ea onable o bo h he de a ing Membe and emaining Membe . 182. Com a e ho e e e ience o he Com lainan 2019, La Pla a e e ed an e i cha ge and a ho in he in an ca e. In J ne of ing le e . On A g a held be een LPEA Boa d and T i-S a e CEO Highle o di c 19, 2019, a mee ing o ion fo calc la ing an e i cha ge. A he end of he mee ing, nei he an e i cha ge, no an indica i e n mbe , no a ho e e 87 ing le e , a o ided o La Pla a. One mon h la e , T i-S a e laced a mo a o i m on all fo e i cha ge and ho ing le e . A of he hea ing, La Pla a ha no ecei ed an Hearing Transcript Vol II, pp. 200:24 201:24. 40 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 PROCEEDING NOS. 19F-0620E & 19F-0621E indica i e n mbe ,88 an e i cha ge, o nego ia ion 89 183. Uni ed Po e 184. a ho ing le e , no ha T i-S a e cond c ed i h La Pla a conce ning an e i cha ge. In A g a of 2018, Uni ed Po e e e ed an e i cha ge and a ho o ided i h an indica i e n mbe of $1,254,572,000 and a ho The indica i e n mbe i he onl e i cha ge ha ha been ing le e . ing le e . o ided o Uni ed Po e .90 The e i no e idence ha he T i-S a e and Uni ed Po e engaged in nego ia ion af e T i-S a e e en ed he indica i e n mbe . 185. The Pa ie ee he indica i e n mbe in a diffe en ligh . T i-S a e ie ed i a an ini ial ball a k e ima e ha efinemen h o gh di c o ide a o gh o de of magni de ion ie ed he n mbe a an o i h he ageo ecific Membe . 91 hich i bjec o f he Uni ed Po e , on he o he hand, e i cha ge, ha , if he o ld ha e ag eed o i , o ld ha e been acce able o T i-S a e.92 186. He e, he e i no e ion ha La Pla a ha no been ea ed in he ame manne a Ki Ca on and DMEA. The ac ion of T i-S a e a e di c imina o 88 i h e ec o La Pla a. T i- In Mr. Bridges Answer testimony, Hearing Exhibit 406, p. 67:1-4, a make hole n mbe fo La Pla a i a ed, $614,500,000. There is no evidence that this number was provided to La Plata in any other form than Answer Testimony. 89 It is noted that generally the negotiations of the Parties toward a settlement are not admissible. In the instant case, no evidence was presented that the Parties had conducted negotiations. The substance of any negotiations would not be admissible. The relevance of the lack of negotiations with United Power and La Plata is only to show the actions of Tri-State toward Kit Carson and DMEA were not the same as Tri-S a e ac ion o a d he Com lainan in he instant case. 90 In the Answer Testimony of Patrick Bridges, Hearing Exhibit 406, p. 67:5-9, a ne make hole amo n , $1,730,000,000, i a ed fo Uni ed Po e . The e i no e idence ha hi da ed make hole o indica i e number was provided to United Power in any form other than the Answer Testimony. 91 Hearing Exhibit 401, p. 32:10-12. 92 Hearing Transcript Vol II, p. 69:15-24. 41 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 PROCEEDING NOS. 19F-0620E & 19F-0621E S a e ha failed o add e he e i cha ge, o ide a ho ing le e o o k o a d de e mining an e i cha ge fo La Pla a. 187. ac ion Al ho gh he ac ion of T i-S a e o ad none hele Ki Ca on and DMEA, T i-S a e di c imina o . While T i-S a e e i cha ge of Ki Ca on and DMEA, i DMEA, T i-S a e lef Uni ed Po e Po e a lef a no j o ac ion a ed he oce ed af e he fi o ad ha a hich e en b ea onable. Ki Ca on and DMEA 188. a ne e o de e mine ha i ni o o ld no an e i cha ge and hen den 189. he e imon of T i-S a e o n e e e en all 93 i hd a a he e imon i ne e , o ided e i cha ge ha and ea onable e i ha Uni ed Po e ma no e en f om T i-S a e. M . Highle e ified ha T i-S a e co ld e mi Uni ed Po e o e i T i-S a e.93 To allo one Membe o a ha o o ni o ano he Membe i di c imina o . The Com lainan ha e ho n ha he a e imila l DMEA and ha he ed o de e mine he o ided o Uni ed Po e . Al o bol e ing hi a g men be gi en he o ee e . Unlike i h Ki Ca on and T i-S a e deemed o mee hei con ac al obliga ion and e l ed in a j cha ge. Thi Uni ed Po e i h he indica i e n mbe a i e i cha ge. Tha i , Uni ed i h an e i cha ge, o i h e ec o Uni ed Po e a e clo e o i e e ea ed in a di c imina o See Hearing Transcript Vol II, pp. 188:22-189:1-24. 42 manne . i a ed o Ki Ca on and Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 PROCEEDING NOS. 19F-0620E & 19F-0621E C. T eE C a eS dN 190. Con a o made b T i-S a e co n el d ing he hea ing and in i a emen S a emen of Po i ion,94 T i-S a e did no The An Be V e ed a a B eac fC ac o ide an e i cha ge me hodolog in hi e Te imon of T i-S a e CEO Highle oceeding. a ed he follo ing: Q: IS TRI-STATE PROVIDING AT THIS TIME A BUYOUT NUMBER FOR LPEA OR UNITED, OR A METHODOLOGY BY WHICH SUCH A NUMBER CAN BE CALCULATED? A: No.95 191. And f om T i-S a e e e D . Co nell: Q: HAVE YOU BEEN ASKED TO PROPOSE AN EXIT FEE CALCULATION OR METHODOLOGY? A: No. I understand a committee of the Tri-State Board of Directors is in the process of developing a recommended approach, which the Board will consider. I am only discussing general economic principles that should apply to the analysis and explaining flaws in the approaches offered by Dr. Tierney and Ms. [Ringelstetter].96 192. Ra he han o o e a com e ing me hodolog , T i-S a e ed a a eg of a em ing o h a he Commi ion of i j i dic ion and enco aging he Commi ion no o e e ci e i and o find fa l a ho i i h Com lainan e e fo hei fail e o ie he e i cha ge a a b each of con ac . 94 The Commi ion m e lain he a ho i e mi ing i o igno e he e m of T i-S a e b la and he WESCs and simply create an exit fee, rather than ordering Tri-State to establish a fee for review, or reviewing the exit fee methodology Tri-S a e e d e c e f ee ceed . (emphasis added). Tri-S a e Statement of Position, p. 4. 95 Hearing Exhibit 400, pp. 61:7-10. 96 Hearing Exhibit 404, p. 14:13-18. 43 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 193. PROCEEDING NOS. 19F-0620E & 19F-0621E A di c ed abo e, hi i a com lain ca e ha fall I i no a ca e ha fall nde con ac la . B he nde P blic U ili ie La . e ion emain he he he e i cha ge ho ld be a e ed a a b each of con ac . 194. incl de e ec anc damage 195. hen a T i-S a e a g e , a o o ing a me hodolog , ha he e i cha ge ho ld and make hole o he Membe of T i-S a e. T i-S a e, again ie ing hi b eache a con ac , i i a g men fail ba ed 196. i ho e oceeding a a b each of con ac ca e, ae ha i ed o B hi a e ec anc damage . 97 on he e imon of T i-S a e o n i ne e . The indica i e cha ge gi en o Ki Ca on, DMEA and Uni ed Po e Sho hone me hod o de e mine he cha ge o he make e he hole n mbe . Ye , T i-S a e i clea ha hi me hod i onl a a ing oin o nego ia ion and gi e an n ea onable and nj e i cha ge. Acco ding o he e imon of T i-S a e Boa d Chai man, M . Go don, an e i cha ge ha i ba ed on he make hole n mbe doe no S ecificall , M . Go don e ified a follo 97 98 e l in a j and ea onable e i fee. : ALJ GARVEY: Q. So the Shoshone method, which can also be making whole, is not necessarily the fair and reasonable number that I should look at, but I should look at that from a negotiated standpoint as a starting point for Tri-State? That s what I took from that. MR. GORDON: A. Yes, I think that s fair. I think that s fair.98 Tri-S a e S a emen of Po i ion, . 29. Hearing Transcript Vol. III, p. 51:15-21. 44 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 197. onl PROCEEDING NOS. 19F-0620E & 19F-0621E The make hole n mbe , hen ie ed a a b each of con ac amo n , ed a a nego ia ion a ing oin fo Ki Ca on and DMEA. The e i cha ge Ca on and DMEA, Membe hole, hich T i-S a e e e no a aid b Ki a ed me all hei con ac obliga ion and made o he ea ed a a b each of con ac fo o e of calc la ing ho e e i cha ge . 198. ne The e make hole n mbe 30 ea . A be , he e fo eca al o e i e fo eca ing gene a ion need fo he a e a g e . In addi ion, hi o ld ca e a de a ing Membe o a fo i gene a ion f om home e he cha e he gene a ion in he f make hole e i emen ice, once o T i-S a e and hen again e. On i face, hi i nj and n ea onable. 199. a fe ea Finall , hi o ld ha e een Membe S a e. T i-S a e o file a com lain o ide no g idance fo T i-S a e Membe a k fo an e i cha ge; hi ol ion a o no a me e. The i h e i ance f om T i- o ide an e i cha ge me hodolog b i h he Commi ion. Af e he com lain in he f ca e he Membe e e filed, T i-S a e a em ed o a oid he j i dic ion of hi Commi ion. 200. I i im o an ha Membe ho i h o eek al e na i e can ea il a e o and con of main aining membe hi . The e idence ea on hi oceeding a filed, make i clea e en ed in hi lef in he hand of T i-S a e i he o e o ible ol ion if he goal i a j fee. 45 oceeding, and he ha T i-S a e i no o e l conce ned add e ing he conce n of i Membe . An e i cha ge me hodolog he ih i ing 30- ea fo eca and ea onable e i Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 201. Al o in e i fee fo a FERC he 202. nj ili c i e i a ecen FERC coo e a i e. In A W ling in a com lain E A 61,033 (2019), a non- an mi ion o ne in a a cha ged o a PROCEEDING NOS. 19F-0620E & 19F-0621E and a nj S ili P P , I c., 167 co-o alleged ha he e i fee i , n ea onable, and di c imina o . The e i fee m of he i hd a ing membe oceeding conce ning an a defined b he co- e i ing obliga ion a he ime of i hd a al. FERC de e mined ha he e i fee a a lied o non- an mi ion membe 99 100 a n ea onable and di ec ed he coo e a i e o elimina e he e i fee fo non- an mi ion o ne .101 203. incl de he He e, he e i cha ge hall no be ie ed a a con ac b each and h , make hole n mbe e i ed nde ill no he Sho hone and Ma ke o Ma ke he ele ance of he e i cha ge aid b Ki me hodologie .102 D. T e Va e f K Ca 204. T i-S a e ha a em ed o do n la Ca on and DMEA. N me o di ega d he e e i cha ge a he a d DMEA ime in i e imon , T i-S a e ha e e nego ia ed a 99 ged he Commi ion o a of a e lemen ag eemen . A ca W E A .S P P , I c., 167 FERC ¶ 61,033, at ¶ 3, EL19-11-000 (April 18, 2019). 100 It is noted that FERC made this ruling due to the fact that the owners were non-transmission owners. FERC noted that the loss of a transmission owner would have a greater financial impact. It is noted to support the proposition that exit charges have been found to be unjust and unreasonable when the exit charge requires meeting all financial obligations. 101 Id. at ¶ 2. 102 Yet another problem with using these calculations is the testimony that the Shoshone and Market to Market me hodologie e l in make hole n mbe , b he ag eemen i h Ki Ca on and DMEA, hich ielded e i charges well below these numbers, also made Tri-State Members whole. 46 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 205. PROCEEDING NOS. 19F-0620E & 19F-0621E The fac nde igned ALJ. de e mine a com a able he e i cha ge In a emaking, i i o e de e mine he ha e n on e i a nego ia ed make he common ili in a o go ac ice o look a (ROE). T icall , a o e ROE. The nde igned ha ne e no diffe ence o he o imila go ili ie o ill be looked a o e ioned o had he alidi e ioned d e o he fac ha he ROE of a a he e l of a e lemen ag eemen . 206. Ra emaking i no an e ac de e mine he cience and he e idence a a o fo me T i-S a e Membe . de e mined ha he e cha ge made i Membe hole and e e j o he e idence ha i nea l a hel f l in de e mining a j T i-S a e de e mined ha Ki Ca on emaining Membe cha ge ha mee ho of T i-S a e. The Com lainan and ea onable e i cha ge a e. and DMEA e i cha ge and and did no ha m he a k he Commi ion o de e mine an e i he e anda d . In addi ion, m ch of T i-S a e ca e con i ed of a a ning o he Commi ion of emaining Membe . T i S a e CEO Highle in hi e imon nde igned ALJ o con ide he e fac o .104 104 ee j o iding an e i cha ge o he Com lainan co ld lead o di e con e ence fo T i-S a e and i 103 The T i-S a e Boa d and ea onable. The e i no ea onable, f lfilled he con ac al obliga ion of he de a ing Membe 208. ed o o e a e.103 The e i no be e e idence of ha an e i cha ge f om T i-S a e i han he ag eed- on e i cha ge fo 207. hole can be Colorado Office of Consumer Counsel, 275 P.3d at 660. Hearing Transcript Vol. II, p. 210:12-19. 47 ecificall enco aged he Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 209. PROCEEDING NOS. 19F-0620E & 19F-0621E The e a , ho e e , no e idence of ca e T i-S a e. Beca e T i-S a e a io e i cha ge of he de a ing Membe 210. o ld be c ed b The be o each he ame e l a i ho Membe hole. ill ca e he he e i cha ge i h i o he Membe , DMEA and Ki Ca on. I i a o ld no ha e ag eed o an e i cha ge ha ca ed i elf o i lea ing he he he de imen al effec a fo he nde igned o de e mine an e i cha ge ha da e of he hea ing in hi o ld ca e he e i cha ge making emaining Membe lea amo n of ha m o T i-S a e i o a em T i-S a e ag eed o a onl be ha m o T i-S a e T i-S a e did no e abli h if he me e e i of he e Membe o ed ha mf l con e ence , no did T i-S a e e abli h ill an if ho fo T i-S a e. The e ha if he Com lainan lea e T i-S a e, he e c and i Membe . B o gh o o ed me hodolog , i did no o ld ha e diffe en de imen al effec ec la i e e imon he o ided no ha e ac ha m he e i cha ge ha med ha T i-S a e ha m. And a of he oceeding, he e i no e idence ha he fea ed e l of Membe making he o he Membe hole105 ha manife ed i elf af e Ki Ca on and DMEA lef T i-S a e. 211. An e i cha ge m n ea onable ha m and al o m a em o o ec c no enco age Membe en Membe f om o lea e T i-S a e. J nj o a im o an ho gh, he e i fee canno be one ha make i im o ible fo a Membe o lea e. A FERC fo nd, an e i fee i nj Membe d e o he inabili and n ea onable o a hen i c ea e a ba ie o en fo f e he e i cha ge.106 105 Making whole in this context is defined as paying expectancy damages. There is no question that according to Tri-State, Kit Carson and DMEA made the other Members whole without paying expectancy damages. 106 American Wind, 167 FERC ¶ 61,033, at ¶ 54. 48 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 212. Membe PROCEEDING NOS. 19F-0620E & 19F-0621E In addi ion, a men ioned abo e, he ac ion of T i-S a e ha e led m l i le o eek an e i cha ge. In fac , d e o he n mbe of Membe e i fee, T i-S a e a mo a o i m on Com lainan in hi oceeding. The e i cha ge m Membe and an f e Membe . Me 213. D ing he hea ing, e e eeking an o iding an indica i e e i cha ge and ho The de e mina ion of an e i cha ge me hodolog i a la ge i E. ha ing le e . e han one affec ing j o ide g idance o all c he en T i-S a e d an e i cha ge. La Pla a o o o ed me hodologie ee e en ed fo calc la ing o ided a me hodolog and a e l an e i cha ge, and Uni ed Po e e en ed a me hodolog and a e l an e i cha ge. T i-S a e, ho e e , failed o o oea me hodolog fo he Commi ion o con ide . 214. Beca e he de e mina ion of an e i cha ge me hodolog , and he e l ing e i cha ge fo Uni ed Po e and La Pla a, i one of fi no e io oceeding again ba ic a emaking 1. 215. o e e a g idance. Bo h o o al ill be e amined and hen e inci le of he Commi ion o de e mine he La P a a Me La Pla a im e ion fo he Commi ion, he e a e me hodolog inci le : (1) fai ne ; (2) co -inc o e me hodolog . d a o o ed b D . Tie ne ado h ee a emaking ence ( a e ba ed on co ); and (3) an a enc . 49 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 216. PROCEEDING NOS. 19F-0620E & 19F-0621E D . Tie ne define no he de a ing Membe , no i i fai a an e i cha ge ha ha m nei he emaining Membe ni i e in a manne hich e en Membe f om being able o lea e a all.107 217. al ead inc She define ed b T i-S a e in an ici a ion of ho ld al o el a li le a co ojec ion benefi co ba ed a ba ing he e i cha ge on ac al and na oidable co o ible on nce ain, and ho ld in ead foc and b den a ocia ed liabili ie o iding e ice o he de a ing Membe . I bjec i e, and o en iall -a oidable long- e m on he de a ing Membe ha e of he financial i h T i-S a e o ne hi , incl ding an anded a e o hich o ld fall o he emaining Membe .108 218. D . Tie ne define an a en a blicl a ailable info ma ion, o he e en 219. He e i cha ge me hodolog aigh fo a d, e ifiable, and ba ed on o ible.109 e he follo ing fo m la: (A) (L) (A) e e en a e , (L) e e en liabili ie and (E) e e en e i . D . Tie ne e l in he follo ing calc la ion of an e i cha ge: $ ho and $236,509 (A) -$259,053 (L) = -$22,544 -$74,446 (E - a onage ca i al) = $96,990 E i Cha ge110 107 La Pla a S a emen of Po i ion, . 10. Id. 109 Id. 110 Hearing Exhibit 501. 108 50 (E), he e fo m la Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 2. U 220. ed P Uni ed Po e Membe Membe PROCEEDING NOS. 19F-0620E & 19F-0621E e Me d me hodolog a o a a ha e of T i-S a e indeb edne o o ed b M . Ringel e e i im l (ba ed on T i-S a e SEC filing ) min a he a onage ca i al.111 221. Uni ed Po e e licable, and fai indeb edne 222. al ead ae o T i-S a e ha hi me hodolog i emaining Membe an a en , ea il im lemen ed, beca e i di cha ge hem f om an nde aken o e e Uni ed Po e .112 Unde M . Ringel e e be calc la ed a follo if me hodolog , he e i cha ge fo Uni ed Po e ing a o e o ld cha e ag eemen (PPA) obliga ion: $ ho and $354,678 (deb ) -$119,903 (Pa onage Ca i al) = $234,775 E i Cha ge113 3. 223. Discussion The nde igned find ha bo h me hodologie a e an a en , ea and gi e g idance fo T i-S a e Membe ali ie a e im o an fo f di c imina o e o e lica e o de e mine hei o n e i cha ge. All h ee of he e e and o en e ha all Membe ae ea ed in a non- manne . 111 Uni ed Po e S a emen of Po i ion, . 9. Uni ed Po e S a emen of Po i ion, . 10. 113 Hearing Exhibit 503. Ms. Ringelstetter also provides an exit charge of $156,250,000 without PPAs. 112 51 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 224. PROCEEDING NOS. 19F-0620E & 19F-0621E Bo h o o ed me hodologie o ide a clea an con ide ing lea ing T i-S a e. The e i no black bo o e i e e en i e o k o 225. B o ide a Membe o an e i ed n mbe f ha a e nce ain o o o he T i-S a e Membe , onl o ed. One me hodolog canno be a o ed o de e mine an e i cha ge fo La Pla a and a diffe en me hod fo Uni ed Po e . The e m me hodolog 226. In a e ing hich me hodolog ea onable. In o de o achie e a j 227. be onl one ha i a licable fo all T i-S a e Membe . o ado , o o o al , i i im o an o nde and and emembe e i cha ge e Membe i h a di ce nable e i cha ge amo n . d e o he need o e end hi me hodolog one of he e me hod can be a e he he o de ia e f om he ha he e i cha ge m and ea onable e l , he onl g ide o be j and a ailable a e he aid b Ki Ca on and DMEA. T i-S a e official ha e e ified ha he e i cha ge fo Ki Ca on and DMEA made he o he Membe hole, f lfilled hei con ac al obliga ion , and ee j and ea onable. 228. The e ha been no e imon b Ki Ca on and DMEA e e no j 229. In e amining he he me hodolog nego ia ed, i m ha he e i cha ge a e ed o and ea onable. o ha mo clo el Ca on and DMEA. he Com lainan o o al , he nde igned ALJ find j e l in an e i cha ge in line and ea onable i h he e i fee aid b Ki While he e i cha ge fo Ki Ca on and DMEA ma ha e been be emembe ed ha e am le of Ki Ca on and DMEA a emaking i no an e ac ill lead o a j 52 cience and follo ing he and ea onable e i cha ge fo Membe Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 eeking o lea e, a PROCEEDING NOS. 19F-0620E & 19F-0621E ell a Membe eeking o a , in T i-S a e. The e i cha ge non-di c imina o , and nei he enco age no di co age Membe Membe Membe ; b The e i cha ge ho ld a em i al o ho ld no c ea e a o ca e li le o no di The ALJ ag ee he e i cha ge e i e i h Uni ed Po e ha a common- en e a ha i be ba ed o a a ha e of indeb edne on T i-S a e and in he e en of b ac ing a Membe he , i ho ld aid b Ki Ca on and DMEA. e i ing Membe . Bo h he WESC and T i-S a e b la indeb edne ion o he emaining indfall fo he emaining Membe . F and ea onable in com a i on o he e i cha ge 231. i f om lea ing T i-S a e. All ill be ea ed he ame. 230. be j ill al o be o anding deb oach o calc la ing a ib able o he efe ence he need fo a Membe o a an fe b a Membe . Taking ha a onage ca i al, a a g ed b Uni ed Po e , o al o ld lea e T i-S a e in a o i ion had he Membe ne e joined T i-S a e.114 232. B o he e i cha ge eej e l in e i cha ge ha a e com a able aid b Ki Ca on and DMEA. T i-S a e ha and ea onable, f lfilled he de a ing Membe emaining Membe 114 mo im o an , hi me hodolog a ed ha he e e i cha ge con ac al obliga ion , and made he hole. And as testified by Ms. Ringelstetter perhaps even better. See Hearing Transcript Vol II, pp. 148:20 149:8. 53 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 233. PROCEEDING NOS. 19F-0620E & 19F-0621E Table 5 of Hea ing E hibi 305 ho a lied o Ki Ca on and DMEA, fall e Membe me hodolog , hen clo e o he ac al e i cha ge each of he e aid.115 234. ae ha Uni ed Po e oi In ado ing Uni ed Po e me hodolog a o o ed b M . Ringel e e , he e e ha emain; he he o incl de in he e i cha ge calc la ion (1) he PPA con ac and/o (2) an mi ion i 235. e. M . Ringel e e , in he Di ec Te imon , incl ded a laceholde fo he PPA con ac in he e i cha ge calc la ion fo Uni ed Po e beca e he info ma ion conce ning he PPA had no been 236. o ided b T i-S a e.116 I i clea ha in hi ini ial anal i , M . Ringel e e belie ed he PPA con ac ho ld be a of he deb calc la ion o de e mine an e i cha ge. In he Di ec Te imon , he ecificall a ed: In ofa a T i-S a e incl de hem a 237. con ac af e PPA ma be j PPA igge deb -like obliga ion , i i a of T i-S a e o e all indeb edne . In he Reb ea onable o 117 al Te imon , M . Ringel e e ecei ing he info ma ion in di co e . B e he ac al n mbe fo he PPA he belie e ha e cl ion of he ified fo e e al ea on .118 115 Uni ed Po e me hodolog e l in an e i cha ge of $47,000,000, com a ed o he ac al cha ge of $37,000,000, and results in a DMEA exit charge of $70,000,000, compared to the actual charge of $62,500,000. 116 Hearing Exhibit 305, p. 32:3-9. 117 Hearing Exhibit 302, p. 20:5-6. 118 Id. at p. 33. 54 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 238. PROCEEDING NOS. 19F-0620E & 19F-0621E In he j ifica ion no o incl de he PPA , M . Ringel e e doe no di ec l ef e he ini ial a emen ha he PPA ma 239. igge deb -like obliga ion . In addi ion, in Table 5 of Hea ing E hibi 305, he e i cha ge Uni ed Po e i 1.7 ime billing , billing ) and Ki Ca on (2.2 hich i mo e in line i h he e i cha ge of DMEA (1.7 billing ), han he 1.1 ime billing e i cha ge me hodolog in line i h PPA fo i ho PPA . To kee he i h Ki Ca on and DMEA, and in ligh of M . Ringel e e ini ial anal i and ea oning, he PPA ill be incl ded in he deb calc la ion o de e mine he e i cha ge. 240. a i a The i e of an mi ion cha ge of he me hodolog o o ed b a no a of he e lemen in DMEA, no M . Ringel e e , and he efo e ill no be con ide ed in de e mining he e i cha ge. 241. he Membe ado ed b 242. Beca e Uni ed Po e of T i-S a e a j me hodolog a o o ed b M . Ringel e e , ea onable, and non-di c imina o o ide e i cha ge, i ill be he Commi ion. A echnical confe ence hall be ched led o da e an financial n mbe and o ide an e ac e i cha ge. nj VI. CONCLUSIONS 243. T i-S a e ef al o o ide an e i cha ge o La Pla a and Uni ed Po e a ef al o o ide an e i cha ge o La Pla a and Uni ed Po e a and n ea onable. 244. T i-S a e di c imina o . 55 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 245. PROCEEDING NOS. 19F-0620E & 19F-0621E Uni ed Po e o e me hodolog e i cha ge me hodolog a o calc la e an e i fee fo Membe e i cha ge a e fo T i-S a e, con i en o i h he di c o o ed b M . Ringel e e i he of T i-S a e and ion abo e. VII. ORDER A. I I O de ed T a : 1. The ef al b T i-S a e Gene a ion and T an mi ion A ocia ion, Inc. (T i-S a e) o ide an e i cha ge o La Elec ic A ocia ion, Inc. (La Pla a) a a ill be ado ed a an nj and n ea onable. 2. T i-S a e ef al o o ide an e i cha ge o La Pla a a di c imina o . 3. T i-S a e ef al o o ide an e i cha ge o Uni ed Po e Inc. (Uni ed Po e ) nj and n ea onable. 4. T i-S a e 5. Uni ed Po e o e me hodolog ef al o o ide an e i cha ge o Uni ed Po e e i cha ge me hodolog a o o ed b M . Ringel e e i he o calc la e an e i fee fo Membe of T i-S a e and i he efo e ado ed a an e i cha ge a e fo T i-S a e, con i en 6. a di c imina o . i h he di c ion abo e. Thi Recommended Deci ion hall be effec i e on he da i become he Deci ion of he Commi ion, if ha i he ca e, and i en e ed a of he da e abo e. 7. be e ed 8. A o ided b 40-6-106, C.R.S., co ie of hi Recommended Deci ion hall on he Pa ie , ho ma file e ce ion o i . Re on e ime o e ce ion hall be ho ened o e en da . 56 Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 9. PROCEEDING NOS. 19F-0620E & 19F-0621E If no e ce ion a e filed e iod of ime a ho i ed, o on i and bjec o he o i ion of If a a e ce ion , ha no e ice o he ecommended deci ion i i hin an e ended a ed b he Commi ion a 40-6-114, C.R.S. eek o amend, modif , ann l, o e e e a ba ic finding of fac in i m e e la e o o ion of he an c i an c i admini af e o n mo ion, he ecommended deci ion hall become he deci ion of he Commi ion 10. i nle i hin 20 da o a i e la i and a fo a acco ding o he an c i o be filed, o oced e a ed in la ion i filed, he Commi ion i bo nd b 40-6-113, C.R.S. If he fac j dge; and he a ie canno challenge he e fac . Thi he a ie ma e o ill limi b he ha he Commi ion can e ie if e ce ion a e filed. 11. If e ce ion age in leng h, nle o hi Recommended Deci ion a e filed, he he Commi ion fo good ca e ho n e mi 57 hall no e ceed 30 hi limi o be e ceeded. Before the Public Utilities Commission of the State of Colorado Decision No. R20-0502 (S E A L) PROCEEDING NOS. 19F-0620E & 19F-0621E THE PUBLIC UTILITIES COMMISSION OF THE STATE OF COLORADO ROBERT I. GARVEY ________________________________ Administrative Law Judge ATTEST: A TRUE COPY Do g Dean, Di ec o 58