BILL ANALYSIS Ó ----------------------------------------------------------------- |SENATE RULES COMMITTEE | SB 1112| |Office of Senate Floor Analyses | | |(916) 651-1520 Fax: (916) | | |327-4478 | | ----------------------------------------------------------------- UNFINISHED BUSINESS Bill No: SB 1112 Author: Cannella (R) Amended: 8/11/16 Vote: 27 - Urgency SENATE ENERGY, U. & C. COMMITTEE: 11-0, 4/19/16 AYES: Hueso, Morrell, Cannella, Gaines, Hertzberg, Hill, Lara, Leyva, McGuire, Pavley, Wolk SENATE APPROPRIATIONS COMMITTEE: Senate Rule 28.8 SENATE FLOOR: 39-0, 5/26/16 AYES: Allen, Anderson, Bates, Beall, Berryhill, Block, Cannella, De León, Fuller, Gaines, Galgiani, Glazer, Hall, Hancock, Hernandez, Hertzberg, Hill, Hueso, Huff, Jackson, Lara, Leno, Leyva, Liu, McGuire, Mendoza, Mitchell, Monning, Moorlach, Morrell, Nguyen, Nielsen, Pan, Pavley, Roth, Stone, Vidak, Wieckowski, Wolk NO VOTE RECORDED: Runner ASSEMBLY FLOOR: 78-0, 8/18/16 (Consent) - See last page for vote SUBJECT: Utilities: water and sewer systems corporations: transactions SOURCE: California Public Utilities Commission DIGEST: This bill allows the California Public Utilities Commission (CPUC) discretion to retroactively approve, or conditionally approve, specified transactions related to property valued at $5 million or less of small water or sewer corporations, as specified, when the utility fails to obtain SB 1112 Page 2 prior approval. Assembly Amendments extend this bill's provisions applied to small water corporations to include entities merging with or acquiring control of a water or sewer system corporation; and add an urgency clause to this bill. ANALYSIS: Existing law: 1)Establishes that private corporations and persons that own, operate, control or manage furnishing of water to or for the public are public utilities subject to control by the Legislature. Authorizes the CPUC to fix rates, establish rules, examine records, and establish a uniform system of accounts for all public utilities subject to its jurisdiction. (California Constitution Article XII) 2)Establishes that "public utility" includes every water corporation and sewer system corporation where the service is performed for, or the commodity delivered to, the public or any portion thereof. (Public Utilities Code § 216) 3)Prohibits a public utility (except for certain railroads) from selling, leasing, assigning, mortgaging, or otherwise disposing of, or encumbering the whole or any part of its plant, system, or other property necessary or useful in the performance of its duties to the public, or any franchise or permit or any right thereunder, or by any means whatsoever, directly or indirectly, merge or consolidate its plant, system, or other property, or franchises or permits or any part thereof, with any other public utility, without first having either secured an order from the CPUC authorizing it to do so for qualified transactions valued above $5 million, or for qualified transactions valued at $5 million or less, filed an advice letter and obtained approval from the CPUC authorizing it to do so. (Public Utilities Code §851) 4)Requires the CPUC to determine the types of transactions SB 1112 Page 3 valued at $5 million or less that qualify for advice letter handling. (Public Utilities Code §851) 5)Authorizes the sale, lease, encumbrance, or other disposition by any public utility of property that is not necessary or useful in the performance of its duties to the public. (Public Utilities Code §851) 6)Provides that water utilities, with service connections of 10,000 or less, are not prohibited from any assignment, acquisition, or change of control without advance authorization from the CPUC under circumstances when a decedent to a member of the decedent's family in the manner provided in Section 240 of the Probate Code or by a will, trust, or other instrument. (Public Utilities Code §853(c)) 7)Prohibits a person or corporation from merging, acquiring, or controlling either directly or indirectly any public utility organized and doing business in this state without first securing authorization to do so from the CPUC. Requires that any merger, acquisition, or control without that prior authorization is void and of no effect. (Public Utilities Code §854) 8)Establishes that any corporation or association that is organized for the purposes of delivering water to its stockholders and members at cost, including use of works for conserving, treating, and reclaiming water, and that delivers water to no one except its stockholders or members, or to the state or any agency or department thereof, to any city, county, school district, or other public district, or any federal agency that provides fire protection or operates park facilities, or to any other mutual water company, at cost, is not a public utility. Provides that a mutual water company may perform specified activities without becoming a public utility and becoming subject to the jurisdiction, control or regulation of the CPUC. (Public Utilities Code §2705) This bill: 1)Requires water or sewer system corporations with less than 2,000 service connections or entities merging with or SB 1112 Page 4 acquiring control of the water or sewer corporations to obtain prior approval from the CPUC before entering into a transaction related to property subject to Public Utilities Codes §§851 and 854 and valued at $5 million or less. 2)Provides that if a water or sewer system corporation or entity merging with or acquiring control of the water or sewer corporations fails to obtain prior approval, the transaction is voidable by the CPUC unless the CPUC takes the following action: a) Retroactively approves the transaction upon a determination that the transaction is in the best interests of both the corporation and its ratepayers. b) Conditionally approves the transaction, subject to specified conditions that would ensure the transaction is in the best interest of the corporation and its ratepayers. 3)Authorizes the CPUC to delegate the authority to make the determinations in this bill to the director of the division that investigates water and sewer system service quality issues and analyzes and processes utility rate change requests. Background CPUC-regulated water and sewer utilities. After decades of consolidations, mergers, and acquisitions by municipalities, special districts, and mutual water companies, the CPUC now has jurisdiction over 12 sewer and 108 water companies that provide water service to about 16 percent of California's residents with annual water and wastewater revenues totaling $1.4 billion. Approximately 95 percent of those residents are served by nine large water utilities each serving more than 10,000 connections. However, the majority of the CPUC-regulated water utilities (94) have service connections of 2,000 or less, with 70 of those having service connections of 500 or less. Total Water Companies: 108 Class A Companies: 9 (Ă 10,000 Service Connections) SB 1112 Page 5 Class B Companies: 5 (Ă 2,000 Service Connections) Class C Companies: 24 (Ă 500 Service Connections) Class D Companies: 70 ( 500 Service Connections) Total Sewer Companies: 12 Why is this bill needed? According to the CPUC, there have been instances when small water corporations sell their utilities unaware that they must first get approval from the CPUC for any transactions involving the "property necessary and useful in the performance of its duties to the public," as required by Public Utilities Code §851 and also restated in CPUC Rule 3.6 and further defined in General Order 173. In those instances, the CPUC has only one option - to void the sale - as required by Section 854 and re-affirmed in Henderson v. Oroville-Wyandotte Irrigation District (1913) 213 Cal 514, 529-530. Some case studies. The CPUC provides some examples of small water corporations who sold their company without the necessary prior approval from the CPUC, including: January Water Company in Tulare County, Black Butte in Glenn County, and Sonoma Springs Water Company and Wendell Water Company both in Sonoma County. In these situations, the CPUC must track down the original owner and explain that the sale is now void. However, locating the original owner may be very difficult as the owner may have died, may be out of state, or not able to cooperate. Although there are fewer water corporations than in the recent past, many of the owners of these corporations are aging and due to death or illness the sale of these utilities are likely to grow exponentially. The CPUC expects the challenges will be particularly acute in the Central Valley where the majority of the Class C and Class D CPUC-regulated water utilities are located. Although the CPUC attempts to educate owners of these utilities of their many responsibilities, including those related to the sale of property, through the application process for a certificate of public necessity and convenience (CPCN) and SB 1112 Page 6 subsequent rate case application processes, many sales may still occur without CPUC prior approval, particularly when the operator dies and a family member inherits the utility and is not aware of the responsibilities and requirements. What this bill does. This bill provides the CPUC some discretion to make a post-sale approval, or conditional approval, determination for transactions involving small water and sewer utilities, those with 2,000 service connections or less, for specified transactions valued at $5 million or less. This seems reasonable considering ownership of these utilities is more likely to change hands with owners not knowing they need the prior approval. This bill provides the CPUC some flexibility to not have to void those transactions that are determined to be in the best interests of the ratepayers and the corporation. Additionally, this bill delegates authority to the CPUC Director of the Division of Water and Audits to make these determinations without approval from the Executive Director. Emergency transactions. There may be instances that necessitate an emergency transaction, such as a large water transfer to another utility lacking water. Under emergency situations, the CPUC has authority, provided by Government Code §11125.5 and reflected in Rule 14.6 of the CPUC's Rules of Practice and Procedures, to reduce or waive the period for public review and comment on a proposed decision, draft resolution, and their alternates. Examples of the CPUC exercising this authority include a recently approved request of California Water Service's (Cal Water) request to supply trucked water to homeowners with private wells that have gone dry in the East Porterville area of Tulare County. Another example is the provision of emergency water to residents near Cal Water's Chico District. This bill will not affect the ability to handle emergency transactions. FISCAL EFFECT: Appropriation: No Fiscal Com.:YesLocal: No According to the Assembly Appropriations Committee, the CPUC indicates minor cost savings associated with not having to void future accidental asset sales. This will reduce CPUC attorney workload associated with locating the last legal owner of record SB 1112 Page 7 and sorting out property rights. SUPPORT: (Verified8/18/16) California Public Utilities Commission (source) California Water Association OPPOSITION: (Verified8/18/16) None received ARGUMENTS IN SUPPORT: According to the CPUC, currently, there are a number of small water and sewer companies who lack the regulatory expertise to comply with Section 851, or even to know that it exists. This bill gives the CPUC the flexibility and discretion to void such transactions or to approve them retroactively, imposing such conditions as the CPUC deems appropriate to protect ratepayers. This bill also allows the CPUC to delegate the authority to make that determination to the director of the Division of Water Agencies. ASSEMBLY FLOOR: 78-0, 8/18/16 AYES: Achadjian, Alejo, Travis Allen, Arambula, Atkins, Baker, Bigelow, Bloom, Bonilla, Bonta, Brough, Brown, Burke, Calderon, Campos, Chang, Chau, Chávez, Chiu, Chu, Cooley, Cooper, Dababneh, Dahle, Daly, Dodd, Eggman, Frazier, Beth Gaines, Gallagher, Cristina Garcia, Eduardo Garcia, Gatto, Gipson, Gomez, Gonzalez, Gordon, Gray, Grove, Hadley, Harper, Holden, Irwin, Jones, Jones-Sawyer, Lackey, Levine, Linder, Lopez, Low, Maienschein, Mathis, Mayes, McCarty, Medina, Melendez, Mullin, Nazarian, Obernolte, O'Donnell, Olsen, Patterson, Quirk, Ridley-Thomas, Rodriguez, Salas, Santiago, Steinorth, Mark Stone, Thurmond, Ting, Wagner, Waldron, Weber, Wilk, Williams, Wood, Rendon NO VOTE RECORDED: Roger Hernández, Kim Prepared by:Nidia Bautista / E., U., & C. / (916) 651-4107 SB 1112 Page 8 8/19/16 19:37:28 **** END ****