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Giving Balance
It is my pleasure to present the AnnualReport of the New Brunswick Energy andUtilities Board for the fiscal year 2008-2009.I’d like to take this opportunity to talk aboutthe past year and some of the ongoingefforts by the Board to serve NewBrunswickers.
The Board is committed to providingregulation and oversight that protects theinterests of both consumers and theregulated companies. The Board is alsocommitted to providing this regulation in atimely and cost effective manner.
We, like other provincial agencies,implemented a two-year wage freeze andexamined our budget for places whereexpenditures could be cut, such as delayingthe filling of vacancies.
As part of this ongoing effort to be costeffective, the Board has begun investigatingthe implementation of electronic, orpaperless, hearings. In these hearings, theBoard would shed the cumbersome burdenof binders and paper files. We believe thiswould both speed up hearings and reducethe cost for regulated companies. Weanticipate beginning pilot projects in thecoming year.
Connected to this project is thedevelopment of a new website for theBoard. The website at www.nbeub.ca andwww.cespnb.ca will act as a conduit forinformation about the Board’s proceedings.A document management system that willallow consumers to gain access to thedocuments filed in rate hearings through thewebsite is also being investigated. Atpresent, almost all documents involved in ahearing are public, but gaining access tothem may not be practical. Our hope is thatby giving access to Board documentsthrough the internet, the process will bemore accessible and transparent for theconsumers of the province.
The past year has also brought changesin the Electricity Act giving the Boardauthority over new deferral accountsassociated with the Lepreau refurbishment.It also clarifies that the Board has authorityto initiate a hearing to establish fees forthose large electricity consumers who wishto look for other suppliers for theirelectricity. At this time we have notscheduled hearings for those issues.
I would also like to take thisopportunity to talk about the members ofthe Board. The field of energy regulationcan be complicated and requires asignificant commitment on behalf of theBoard members to ensure that decisions arejust and reasonable. Eight of the Boardmembers fulfill their obligations on apart-time basis and I wish to thank thempublicly for their dedication and effort.
Supporting the Board members is astaff of 13 who deal with a variety of tasks.The breadth of responsibilities for such asmall staff requires that staff beknowledgeable in a variety of areas,handling both administrative and regulatorytasks simultaneously. While this canproduce challenges for the Board we believeit provides a valuable service in an efficientmanner.
I want to acknowledge theaccomplishments of the staff who havetaken on the challenges facing the Boardand commend their effort over the past year.
Raymond Gorman Q.C.
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Chairman’sMessage
The Board members andstaff are dedicated to providingNew Brunswick with effectiveand efficient service within thejurisdiction of the Board.
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Introduction
The Board strives tocarry out its duties in a fair,independent and accessiblemanner.
The New Brunswick Energy and
Utilities Board is an independent
quasi-judicial body created by the
Legislature to regulate the charges passed
on to consumers by utilities. The Board
strives to carry out its duties in a fair,
independent and accessible manner.
The principle behind such utility
regulation is that, in some instances, there
are some institutions where it is in society’s
interest to give one company a monopoly to
serve a market. In exchange for this “natural
monopoly,” the company gives up the right
to set its own rates and tolls. Instead, the
utility’s rates must be approved by a
regulatory board. This Board must consider
what is just and reasonable for both the
consumer and the utility.
The Board has been given limited
jurisdiction to regulate the charges rates and
tolls for the NB Power Distribution
Company as well as other specific aspects of
the electricity market. The Board regulates
portions of the natural gas, motor carrier
and pipeline sectors. Additionally, the Board
ensures the safe construction and operation
of pipelines carrying natural gas, petroleum
products and hazardous materials.
The Board’s responsibilities also
include the administration of a formula to
set maximum prices for petroleum products.
Most recently, the Board was given the
responsibility for setting interest rates for
payday loans, although the regulations
required for doing this have not been
proclaimed. The various pieces of
legislation giving the Board its jurisdiction.
The Board’s day-to-day operations are
funded by the industries they regulate by
way of levies and fees. In the case of
electricity, natural gas and pipelines, the
costs are divided proportionally. In these
three industry sectors, costs directly related
to hearings are paid for by the applicant. In
the case of petroleum products, the
operations and hearing costs are paid for by
a flat levy on petroleum product sales of one
fortieth of a cent per litre. In the case of
motor carrier regulation, the Board received
a small grant from the Province of New
Brunswick to offset the costs of regulation.
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The Legislation
The Board’s responsibilitiesare carried out by a staff of 15people including a full-time chairand vice-chair.
Energy and Utilities Board ActElectricity ActGas Distribution ActPipeline ActPetroleum Products Pricing ActCost of Credit Disclosure ActMotor Carrier Act
THE BOARD, FULL-TIMEMEMBERSRaymond Gorman Q.C.Cyril Johnston
PART-TIMEMEMBERSDon Barnett FrederictonWanita McGraw ShippiganRoger McKenzie Saint JohnEdward McLean Saint JohnConnie Morrison BathurstYvon Normandeau CaraquetRobert Radford, Q.C. Pointe-du-CheneSteve Toner Dieppe
STAFFRaymond Gorman, Q.C. Chair and CEOCyril Johnston Vice-ChairLorraine Legere Secretary to the BoardEllen Desmond Director, Legal and AdministrationDoug Goss Director, Regulatory Affairs and FinanceTodd McQuinn Director Pipeline SafetyJuliette Savoie Assist. Secretary to the BoardJoan Chamberlain Assistant to the Chair and the Vice-ChairTracy Cyr Administrative AssistantDavid Rhydwen Pipeline InspectorIan McDonald Pipeline InspectorDon Persaud Pipeline Inspector (On Leave of Absence)John Lawton Senior AdvisorTrudy Atherton Payroll and Accounts AdministratorDavid Keenan AdvisorDavid Young Advisor
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4
Electricity
At the direction of theMinister of Energy, the Boardreviewed the DistributionCompany’s increase of threeper cent effective April 1, 2008.
The electricity sector is the largestsector regulated by the Board. It is also themost varied. The Board’s jurisdiction rangesfrom licensing companies that buy and sellpower in the province to morecomprehensive, general supervisory powers.The largest of the companies regulated bythe Board is the NB Power Distribution andCustomer Service Corporation. The Board’sauthority is limited to applications toincrease electricity rates by more than threepercent. There was no application for suchan increase last year, however; at thedirection of the Minister of Energy, theBoard did review the DistributionCompany’s increase of three per centeffective April 1, 2008.
The investigation into the rate increasewas ordered under Section 24(1) of theEnergy and Utilities Board Act and wassignificantly different in nature from atypical application for a rate increase. It wasalso the first investigation of its kind. As aresult, the Board developed a modifiedprocess for the investigation. The Board feltthat given the fact that the increase wasalready being charged to consumers - andthat the Board could only makerecommendations to the Minister - therewas an even greater imperative on thetimeliness of the report. An expeditedprocess that could produce a report by theend of June was adopted.
To begin the process the Board orderedthe company to file the information relied onby its Board of Directors to support the rateincrease. The Board also hired a financialconsultant to review some of the purchasingcontracts and deferral accounts. A two-dayhearing was held in May and the report wasdelivered to the Minister on June 26th.
In February, NB Power Distributionand Customer Service announced it willincrease rates by three percent effective
April 1, 2009. The Board was once againdirected by the Minister to investigate thenecessity of the increase.
In other aspects of the electricitymarket, the Board received an applicationfrom the New Brunswick System Operatorfor a change to the Open AccessTransmission Tariff in March of 2008. Thetariff determines the rates and conditions forusing the Province’s transmission serviceand is a crucial element in the market forelectricity in the region. The SystemOperator is the independent operator of thetransmission system and oversees the accessand use of the transmission system. TheSystem Operator also ensures that there is asufficient and reliable supply of electricityinto the grid.
The Board held a hearing into theproposed amendments to the transmissiontariff and in November issued a decision. Inpart, the Board’s decision established a newsystem for the System Operator to fund itsoperations. Under the new procedure, theSystem Operator will apply for approval offunds for its budget alone without changesto the other aspects of the tariff. Thisorganization could collect the revenue itrequires in monthly instalments. Themethod should produce hearings that aremore streamlined and cost effective. Thefirst such hearing was held in March of thisyear and a decision was pending at the endof this reporting period.
As part of the Board’s oversight of theelectricity sector, companies that wish to usethe transmission grid either to deliverelectricity in the province or elsewhere,must be licensed by the Board. In the pastyear the Board approved two new licencesbringing the total number of licensed marketparticipants to 31.
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Natural Gas
The Board ordered ahearing to determine thescope and timing of theissues that must be decidedupon concerning the end ofthe development period.
The Board oversees the Natural GasMarket in the province under the authorityof the Gas Distribution Act. The Act givesthe Board jurisdiction over the rates andtolls charged by Enbridge Gas NewBrunswick, the holder of the distributionfranchise in the province.
As part of this authority, the Boardapproves the rates charged to the consumer.The Board also has the authority to resolvedisputes between Enbridge and itscustomers. The Board was not called uponto resolve any disputes in the past year.
Enbridge Gas New Brunswickexpanded its distribution system adding1213 new customers in the year endingMarch 31, 2009. This brought the totalnumber of customers on the Enbridgesystem to 9583 at the end of March.Throughput, the amount of natural gasdelivered through the EGNB network ofpipes during that same period, was 5178.3terrajoules (1 terrajoule = 1000 gigajoules)
The rates charged to consumers are notset based on costs, but rather, based on themarket conditions. These market-basedrates are geared to give consumers a savingsbased on the heating fuel they previouslyused. The formula takes into account thepredicted prices of natural gas and heatingoil or electricity as well as the energyconsumption of a typical customer. Duringthe last year, the Board reviewed theformula for setting the rates for distribution.A decision on the market-based formula waspending at the end of the reporting period.
The market-based rates were crafted tobe used while the company developed thenatural gas market. This “developmentperiod” was established at the initiation ofthe franchise to account for the likelihoodthat the company would not be able torecover its costs through rates while the
market is being developed. Specifically, thedevelopment period allows the use of ratesthat are below cost in order to attract newcustomers. The losses that result from thesebelow costs incentive rates are tracked in adeferral account. The company is allowedto recover the amount in the deferralaccount - plus a return – over time.
The development period is approveduntil the end of 2010 and the Board hasinitiated a number of proceedings to preparefor the end of the development period. In adecision issued in April 2008 the Boardordered a series of technical conferences tobegin discussions on the criteria used by theBoard to best determine the end of thedevelopment period. Following theconferences the Board ordered a hearing todetermine the scope and timing of the issuesthat must be decided upon concerning theend of the development period. In March adecision was issued setting the first hearingfor this Fall.
The Board annually reviews thefinancial statements as well as sales ofnatural gas by Enbridge. The review of thefinancial statements is to ensure that theappropriate amount is added to the deferralaccount, while the review of natural gassales is to ensure that the gas is pricedaccording to the regulation that permitsEnbridge to sell natural gas. At the end ofthis process, the Board approved theaddition of $15.7 million dollars to thedeferral account. The Board also found thatthe natural gas sold by Enbridge was pricedin the manner prescribed by the GasDistributors Marketing Regulation.
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Pipeline
Enbridge Gas NewBrunswick has installedapproximately 106 km ofpipeline. Inspectors fromthe Pipeline Safety Divisioninspected the installation ofthis pipe.
The Pipeline Safety Division’s mandate
is to promote safety and to ensure that
companies design, construct, operate and
abandon pipelines safely. Additionally, the
Board investigates leaks and breaks in
pipelines and recommends charges when
appropriate. This compliance and
investigation activity is carried out by the
Board’s Safety Division through the use of
inspection, education, compliance audits and
damage prevention programs.
Enbridge Gas New Brunswick has the
franchise to distribute natural gas in the
province, and installed approximately 106
km of pipeline in 2008. Inspectors from the
Pipeline Safety Division inspected the
installation of this pipe. The company also
applied to expand its distribution system
along Hanwell Road outside of the city of
Fredericton. The hearing was scheduled for
late Spring 2009.
Corridor Resources applied for, and
was issued, a permit in May 2008 and
August 2008 to construct pipelines and
wellsite production facilities as part of their
2008 natural gas gathering system
expansion in Penobsquis. The existing
operating license was revised in October
and December of 2008 as part of this
expansion.
Potash Corporation of Saskatchewan
applied for, and was issued, a permit in
January 2009 to construct a 30km pipeline
to transport brine from their mine in
Penobsquis to Cassidy Lake. Upon
completion of the pipeline, the company
expects to discontinue trucking the brine to
Cassidy Lake, removing 300 trucks per day
from the roads.
Irving Oil Limited was granted
permission by the Board to temporarily
suspend operations of the fuel oil pipeline to
the NB Power’s Coleson Cove Generating
facility in February 2009. Operations are
expected to resume in the fall of 2009.
The Safety Division will carry out
general pipeline safety compliance audits of
Xstrata’s Brunswick Mine ARD disposal
pipeline and Corridor Resources natural gas
gathering and transmission facilities.
Construction, operations and maintenance
procedural manuals and records will be
reviewed and compared against the
requirements of the Pipeline Act, 2005 and
regulations including the CSA Standard -
Z662 Oil and Gas Pipeline Systems.
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7
Petroleum
The Board conducted thefirst review of the margins sincethe implementation of thepetroleum price regulation inJuly of 2006.
The Energy and Utilities Board has the
responsibility of setting the maximum price
for motor fuels and heating fuels in the
province. This is done weekly according to a
strict formula set out by regulation. As a
result, the maximum price set involves no
discretion on the part of the Board.
The price set is based on the average
price of the refined petroleum fuel trading
on the New York market in the previous
week. That average petroleum price from
New York is converted to Canadian dollars
per litre. The appropriate taxes and
specified margins are then added.
There are two margins specified by the
Petroleum Products Pricing Act. The first
margin of six cents per litre is allotted to the
wholesaler who buys the product from the
refinery and sells to the retailer. The second
margin, 5 cents per litre, is set for the
retailer.
During the past year, the Board
conducted the first review of the margins
since the implementation of the petroleum
price regulation in July of 2006. The
margins are the amounts in the price setting
formula to account for the operations of
both the wholesale companies and the retail
operations.
To initiate the review, the Board hired
Gardner Pinfold Consulting Economists to
independently review the industry and any
changes since the implementation of price
regulation that would warrant changes in
the margins. The resulting report
recommended an increase in the margins for
both motor fuels and heating fuels. Gardner
Pinfold also recommended the Board
increase the maximum delivery charge from
two cents per litre to three cents per litre.
The delivery charge is the maximum amount
a retailer may add to the maximum price to
account for delivery costs.
A hearing into the matter was held in
October where the Board heard form a
cross-section of the industry and the public.
A decision was issued in December, the
margins were maintained at the existing
levels. The Board raised the maximum
allowable delivery charge to 2.5 cents per
litre.
The Board also deals with complaints
by consumers who believe they have been
charged in excess of the maximum price
allowed. Such complaints must include a
receipt. While the Board has received a
number of enquiries from consumers
concerned about the price of fuel, the
resulting investigations revealed no
violations of the law.
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Motor Carrier
HMS Transportation soughtpermission of the Board todiscontinue its service betweenSt. Andrews and Saint John.
The Board regulates the motor coachindustry through the licensing of charter busservice and the regulation of scheduledintercity bus service.
In April of 2008 the Board received anapplication from Acadian Coachlines Ltd.for a 6.2 per cent increase in its rates. Aconcurrent application was made to theNova Scotia Utilities and Review Board forsimilar increases. As has been done in thepast, the two Boards agreed to hold thehearing together to save on expenses andtime. On June 13 the Energy and UtilitiesBoard issued a decision approving theincreases.
The Board received two other requestsfor increases in rates for scheduled service.The first application was from Saint JohnTransit which runs a commuter servicebetween Saint John and the communities ofHampton, Quispamsis, Rothesay and GrandBay. The transit commission requestedapproval of an increase in its cash fares andpasses. The Board approved the increaseseffective January 1, 2009.
The second application for an increasein fares came from Trius Inc., anothercommuter service operator. Trius runsregular service between Fredericton andChipman. Citing increased insurance andfuel costs, as well as capital costs for a newbus, the company sought approval forincreases in its cash fares and passes. TheBoard approved this request.
As part of the Board’s jurisdiction overscheduled service, changes to service mustbe approved by the Board. In July of lastyear, HMS Transportation sought
permission of the Board to discontinue itsservice between St. Andrews and SaintJohn. The service included stops in St.Stephen, St. George and Pennfield. Theservice was launched n 2007 following thediscontinuation of service by AcadianCoachlines. Representatives from HMStold the Board that the ridership was lowerthan had been expected.
The Energy and Utilities Board, andthe Public Utilities Board before it, assumedthe jurisdiction over the Motor CarrierIndustry after taking on the responsibilitiesof the Motor Carrier Board. Included inthose responsibilities is authority to hearappeals of decisions of the Registrar ofMotor Vehicles. In the Fall of last year theBoard received such an appeal. F and DAuto Sales filed an appeal of the registrar’sdecision to revoke the company AutoDealers Licence. A decision was stillpending at the end of the reporting year.
The Board’s activities in relation to theCharter Bus industry in the province aresummarized below:
CHARTER APPLICATIONSReceived 6Opposed 0Granted as Advertised 6Granted with Amendments 0Abandoned or Dismissed 0
LICENCESDenied 0Cancelled or Revoked 0Active at Year End 45
MOTOR CARRIERSPlates Issued 242Temporary Plates Issued 13
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BoardMembers
Don Barnett
Roger McKenzie
Connie Morrison
Robert Radford, Q.C.
Raymond Gorman, Q.C.
Wanita McGraw
Edward McLean
Yvon Normandeau
Steve Toner
Cyril Johnston
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10
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