BPA 2018–2023 Strategic Plan

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BONNEVILLEPOWERADMINISTRATIONDelivering on our public responsibilities through a commercially successful businessBPA 2018–2023Strategic Plan

To our regional partners:We are grateful to the many people throughout the region — customers, tribes, federal andstate agencies, public interest organizations and other key partners — who contributed to thisstrategic plan and share a common interest in our long-term success. BPA will needthe collaboration and support of a broad range of interests to sustain its role in the Northwest.2

The Bonneville Power Administration is anengine of the Pacific Northwest’s economicprosperity and environmental sustainability.That’s our vision for BPA. It means we provide high reliability,low rates, responsible environmental stewardship and regionalaccountability.Even as the industry in which BPA operates continues to evolve, this vision endures — as does the statutorymission that drives us to deliver the best value for our customers and the region. But going forward, we mustaddress industry dynamics and risks that are working against BPA’s cost competitiveness and commercialperformance.This strategic plan describes the actions BPA will take over the next several years to become more competitiveand responsive to customer needs, to leverage and enable industry change through modernized assets andsystem operations, and to deliver on our public responsibilities through a commercially successful business.3

B PA S t r at e g i c P l a n 2 0 18 – 2 0 2 34 5The Way Forward9Strategic GoalsJanuary 201811Strategic Goal 1:23Strategic Goal 2:33Strategic Goal 3:45Strategic Goal 4:51Measuring Success55Strategy and Culture61ConclusionStrengthen financial healthModernize assets and system operationsProvide competitive Power products and servicesMeet Transmission customer needs efficiently and responsively

B PA S t r at e g i c P l a n 2 0 18 – 2 0 2 3 January 2018The Way ForwardThe Bonneville Power Administration plays a uniquely valuable role in the Pacific Northwest,serving citizens through a multifaceted public-service mission. As a wholesale powermarketer and transmission provider, BPA sells its products and services at the costof production, giving its customers access to 22,000 megawatts of clean, reliablehydropower across 15,000 miles of high-voltage transmission lines. BPA also marketsthe output of the region’s only nuclear plant, the 1,107 MW Columbia GeneratingStation. By operating a commercially successful business, we are able to fulfill our publicresponsibilities, driving the region’s economic prosperity and environmental sustainability.Achieving the full scope of BPA’s mission requires a careful balance between sometimescompeting objectives. For example, as we seek to modernize our system operationsand assets, we must also control costs and provide competitive rates. The challenge ofmaintaining the appropriate balance is often compounded by changing industry dynamics,changing regional interests or other risks that threaten to tilt the scale in favor of oneobjective over another. Many times over the decades, BPA has had to adjust its focus inlight of changing conditions to sustain its vital role in the region. Now is the time to makeanother of those adjustments.5

B PA S t r at e g i c P l a n 2 0 18 – 2 0 2 3 January 2018We developed this strategy in response tothe needs and interests of our power andtransmission customers, with the overallgoal of strengthening our commercialperformance in both areas. We have alsoworked hard to reflect the input of ourother valued partners throughout the regionwho have strong interests in our sustainedsuccess.Our power customers have expressedsignificant concerns that BPA’s recentpattern of rising costs and rates isAs the stewardof vital regionalassets, BPAprovides manyvaluable benefitsto the people ofthe Northwest.Columbia River Basin support the region’s economyin a number of ways, from job creation and newbusiness development to recreation opportunitiesand increased agricultural production. And over itsvast high-voltage transmission grid, BPA providesthe foundation for economic development incommunities large and small. This transmissionnetwork also enables the development of newrenewable power resources, helping the regiondiversify its clean energy portfolio.BPA is also in a unique position to balance theeconomic and environmental benefits of theunsustainable. They have noted thatthe resurgence of competition in powerhydropower system. Through a comprehensive program, BPA mitigates for the effects ofmarkets will provide them with alternativesconstructing and operating the Federal Columbia River Power System and works to protect andwhen their long-term wholesale powerenhance fish and wildlife.contracts with BPA expire in 2028. ForBPA delivers on these and other responsibilities while providing power and transmission servicesthese reasons, one of BPA’s principalat the cost of production and repaying taxpayers for the federal investment in the system.strategic goals is to provide competitivepower products and services.6The clean, reliable hydropower resources in the

B PA S t r at e g i c P l a n 2 0 18 – 2 0 2 3 January 2018Our Transmission customers, on the other hand, have expressed a different concern whenit comes to BPA’s commercial performance — the complexity of accessing transmissionservice. BPA is responding with a strategic goal to meet their needs more efficiently andresponsively. We will provide more clarity on how to access additional transmission serviceby standardizing and streamlining our products, services and processes. We will also usea more scalable, flexible, economical and operationally efficient approach to meet futuretransmission service requests.We will improve our commercial performance in other ways as well, including strengtheningour finances and modernizing our assets and system operations. Investments in gridmodernization will support a more reliable, flexible and efficient system, helping to reducefuture costs and create new market opportunities for BPA and others. As California andother Western states increase the amount of variable energy resources on the grid, wewill proactively seek more opportunities to market the valuable flexibility and capacityservices that clean hydropower resources can provide. And in a more carbon-constrainedworld, power markets may place more explicit value on clean capacity, creating newrevenue opportunities for BPA. Industry-leading asset management and continued wiseinvestments in energy efficiency and demand response will stretch existing assets as faras possible, reducing the need for new generation and transmission resources.7

B PA S t r at e g i c P l a n 2 0 18 – 2 0 2 3 January 2018Bonneville is committed to executingon this strategic plan by fostering asafe, positive, inclusive culture wherepeople are valued and enabled todeliver results.While embarking on this five-yearstrategic plan in a focused andpurposeful manner, we will alsocontinue to engage our customersand the region on the longer-While no one canpredict the future,we can do ourbest to preparefor the most likelyoutcomes.For generations, electric utilities have faced thechallenge of predicting and adapting to future marketconditions. From the earliest days of Grand CouleeDam, when critics said the Northwest would neverneed so much power, to the exuberant 1960s whenpower producers mistakenly thought they couldnever overbuild, power markets and the demandfor electricity have proven very unpredictable. Asrecently as 2008, when BPA and its customersnegotiated new long-term wholesale powercontracts, the prevailing wisdom in the Northwestterm issues facing BPA, includingwas that power prices and loads would increase indefinitely, which created a strong impetus tolegal, environmental, economiclock down low-cost federal hydropower under long-term agreements.and power supply risks. BPA willToday, the industry looks very different and most observers expect current trends to prevail for aneed the collaboration and supportlong time. But the laws of supply and demand and the trend toward decarbonization in Westernof a broad range of interests tosustain its role as an engine of theNorthwest’s economic prosperity andenvironmental sustainability.electricity markets could create very different conditions in the future. Other unforeseen eventscould turn market fundamentals upside down once again.BPA’s strategy assumes a future of relatively low wholesale energy prices and declining costsof alternative sources of supply. If we are commercially successful in such a world, we will haveadditional upside if power prices recover and the demand for clean capacity increases. As a morefinancially resilient and responsive organization, we will also be better prepared to respond tofuture industry changes.8

B PA S t r at e g i c P l a n 2 0 18 – 2 0 2 3 January 20182018–2023 Strategic Goals1. Strengthen financial health2. Modernize assets andsystem operations3. Provide competitive powerproducts and services4. Meet transmission customerneeds efficiently andresponsivelyActing on these goals will put BPA on a path to become morecompetitive and responsive to customer needs, modernize our assetsand operations to leverage and enable industry change, and deliver onour public responsibilities through a commercially successful business.This set of strategic goals is the central reference point for everythingwe will be doing at BPA over the next five years. Our business unitsand asset managers will develop operating plans and asset strategiesto execute on these goals. Individual performance contracts andperformance incentives will align with these goals as well.Meeting these strategic goals will require the commitment of the entireBPA management team to foster a safe, positive and inclusive workenvironment where people are valued and enabled to deliver results.9

B PA S t r at e g i c P l a n 2 0 18 – 2 0 2 3“ January 2018The actions we take today willshape BPA’s future. We haveto be even more vigilant aboutmanaging costs and prudentlyspending every dollar weinvest back into the Northwest.I’m proud to be a part of thiscrucially important task thatwill involve every single personin the BPA workforce.”Jinah Nakaji Supervisory Financial Analyst10

B PA S t r at e g i c P l a n 2 0 18 – 2 0 2 3 January 2018Strategic Goal 1:Strengthen financial healthEverything BPA does — from maintaining the region’s extraordinarilyvaluable hydropower and transmission assets to investing in fish andwildlife mitigation — hinges on its financial health and providing low,competitive rates. Poor financial health would put BPA’s mission at risk,limiting its ability to provide low rates, high reliability and responsibleenvironmental stewardship. Conversely, good financial health will allowBPA to continue to deliver on its multi-purpose mission, providingtremendous value to the Pacific Northwest and its citizens.11

B PA S t r at e g i c P l a n 2 0 18 – 2 0 2 3 January 2018Therefore, the financial health objectives in this strategic plan, which are derived fromBPA’s 2018 Financial Plan, serve as the foundation for BPA’s other strategic goals. Forthis reason, more detail is provided in this section than in others.As of January 2018, BPA has sufficient liquidity and high credit ratings. But absent anychanges, the continuation of some financial policies and practices — particularly thosearound cost management, debt management and reserves — would put BPA’s long-termfinancial health at risk. BPA’s strategic plan addresses each of these areas.Objective 1a:Improve cost-management disciplineProgram costs: Hold the sum of program costs, by business line, at or below therate of inflation through 2028.BPA is taking aggressive steps to manage the rising costs of operating the federal powerand transmission systems, starting by establishing a cost-management goal to keep thesum of program costs, by business line, at or below the rate of inflation through 2028.To meet this goal, and in response to customer input, BPA is initiating a new approach forsetting spending levels during the Integrated Program Review (IPR) public process. TheIPR is the public review process for the costs that will be recovered through rates duringthe following two-year rate period.12

B PA S t r at e g i c P l a n 2 0 18 – 2 0 2 3 January 2018Program costs:U.S. Army Corpsof EngineersBureau ofReclamationTransmissionacquisition andancilliary servicesFish enewables3%Transmissionmaintenance(including ationoperations5%The charts above capture the program costs included in BPA’s most recent rate case, BP-18. BPA will hold the sumof these costs, by business line, at or below the rate of inflation through 2028.13

B PA S T R AT E G I C P L A N 2 0 18 – 2 0 2 3 JANUARY 2018Instead of BPA’s past practice of determining program costs through a bottom-upBPA has established aprogram to solicit regular inputfrom staff on opportunitiesfor business processimprovements and costsavings. We will leveragethe expertise of our entireworkforce to help us meet ourcost-management objectives.approach, BPA will set firm cost constraints at the start of the process in alignment withthis cost-management objective. BPA’s decisions regarding program funding levels will beguided by the other objectives outlined in this strategic plan.One area of particular focus to help meet this objective will be reducing corporate coststhrough functional consolidation, outsourcing and process improvements. For example,we are actively exploring the potential for substantial cost reductions in the areas of supplychain and information technology. BPA has also established long-term workforce reductiontargets, which will be met gradually through attrition. These reductions should help to keeptotal program costs at or below the rate of inflation, or offset other costs that must grow ata rate greater than inflation.In addition, BPA has established a program to solicit regular input from staff on opportunitiesfor business process improvements and cost savings. We will leverage the expertise of ourentire workforce to help us meet our cost-management objectives.Given the considerable uncertainty in future market prices and loads, which will impactBPA’s total revenues and rates, we will closely monitor market conditions to determine if14

B PA S T R AT E G I C P L A N 2 0 18 – 2 0 2 3 JANUARY 2018more aggressive cost-management stepsare necessary in the future.Capital investments: Managethe lifecycle cost and value ofassets based on industry-leadingstandards.BPA is applying best-practice industrystandards to manage the lifecycle costs offederal assets. This is central to maintainingthe long-term value and reliability of thepower and transmission systems and isdiscussed further in Strategic Goal 2:Modernize assets and system operations.The asset plans BPA produces are keyinputs to the IPR process. This is whencapital investment levels are determinedfor the following two-year rate period,and a forecast is developed for the eightyears after — totaling 10 years of planned15

B PA S t r at e g i c P l a n 2 0 18 – 2 0 2 3 January 2018capital investments. These investment levels set the direction for maintaining, replacingand adding capabilities for each asset category (power, transmission, facilities, informationtechnology, and fish and wildlife). These influence the financing amounts that BPA will needto acquire, either from power or transmission rates (in the form of revenue financing) orfrom debt.Objective 1b:Build financial resiliencyFinancial resiliency is the ability of an organization to withstand disruptive events thatimpact revenues or expenses while continuing to deliver on its mission. BPA seeks tobuild financial resiliency through objectives for debt utilization, debt capacity and liquidity.Debt utilization: Achieve a debt-to-asset ratio of 75 to 85 percent within10 years and 60 to 70 percent in the long term.The term “debt utilization” describes how BPA uses debt to fund capital investments andhow BPA repays that debt. A common industry measure of debt utilization is the debtto-asset ratio, a comparison of total outstanding debt to the value of revenue-generatingassets — the assets that are used to ultimately repay all debt. This is also known as leverage.16

B PA S t r at e g i c P l a n 2 0 18 – 2 0 2 3 January 2018Bonneville has historically used debt to finance nearly 100 percent of all capital investmentsand repaid that debt according to statutory requirements, which is generally 50 years orless. These practices have led to a high debt-to-asset ratio of about 90 percent, relative tothe utility industry average of 54 percent. By business line, the current debt-to-asset ratiobreaks down to 99 percent for Power Services and 80 percent for Transmission Services.Over the next 10 years, Power Services’ debt-to-asset ratio is expected to decline dueto current policies and practices, whereas Transmission Services’ debt-to-asset ratio isexpected to increase.As a federal agency with unique statutory obligations and authorities, BPA is unableto raise equity capital. One result is that BPA has traditionally placed less emphasis onleverage as a measure of financial health. We are now giving this issue more considerationbecause a high debt-to-asset ratio can contribute to financial risks if left unchecked.For example, as the ratio increases, so does the amount of debt service that BPA mustTo continue investing in andmaintaining the tremendouslyvaluable federal power andtransmission assets, BPAwill need to look beyond itstraditional financing sourceand consider an “all of theabove” capital financingstrategy.recover in rates. Currently, as a result of BPA’s prevailing debt utilization practices, about42 percent of all costs charged in transmission rates and 33 percent of all costs chargedin power rates are for capital-related costs, including debt service.The debt-to-asset ratio also reflects the agency’s overall financial flexibility and directlyimpacts how much U.S. Treasury borrowing authority, BPA’s primary source of debtfinancing, remains available. This metric is also considered by credit ratings agencies intheir evaluation of BPA’s credit-worthiness.17

B PA S t r at e g i c P l a n 2 0 18 – 2 0 2 3 January 2018To mitigate the risks of being too highly leveraged, BPA intends to target a debt-to-assetratio of 75 to 85 percent for each business line and the agency over the next 10 years and60 to 70 percent over the longer term. BPA will hold a public process on its leverage policyin 2018 to discuss its debt-to-asset ratio targets and the means of achieving its debt-toasset ratio goals.Debt capacity: Maintain sufficient debt capacity to fund BPA’s capitalprogram on a rolling 10-year basis, and preserve 1.5 billion of availablefinancing from the U.S. Treasury.Bonneville’s primary source of debt financing is its U.S. Treasury borrowing authority, whichworks like a revolving line of credit and is capped at 7.7 billion. At the end of 2017, BPAhad consumed 5 billion of its borrowing authority, leaving 2.7 billion remaining. Based onprojections from BPA’s most recent rate filing, this source of financing will be depleted by2023, putting BPA’s future capital program at risk.This objective ensures planned capital needs are met on a rolling 10-year basis. It alsopreserves 1.5 billion of available borrowing authority for operational and capital liquidityto mitigate unexpected changes without having to swiftly and materially increase rates.To continue investing in and maintaining the tremendously valuable federal powerand transmission assets, BPA will need to look beyond its traditional financing source and18

B PA S t r at e g i c P l a n 2 0 18 – 2 0 2 3 January 2018consider an “all of the above” capital financing strategy. Other possible financing sourcesinclude revenues, financial reserves, third-party leases, additional Treasury borrowingauthority, authority to issue debt directly to capital markets, and funds that are freed upby working with Energy Northwest to refinance Regional Cooperation Debt.To ensure it has sufficient debt capacity to meet this objective, BPA will host a debtmanagement workshop before each rate case. Each possible source of additional capitalhas its limitations, and BPA will evaluate them within the context of their cost, certaintyand impacts on other stated financial health goals.Liquidity: Maintain a minimum of 60 days cash on hand for each businessline, and maintain a 97.5 percent annual Treasury payment probability.BPA’s primary source of liquidity is financial reserves, which the agency uses to meetits financial obligations in the face of cash-flow uncertainty. BPA faces both short-termuncertainty, such as when bills are paid before revenues are received, and long-termuncertainty, such as financial losses that could result from poor market or hydropowerconditions.BPA measures the sufficiency of its financial reserves by the industry-standard metric ofdays cash on hand, which is how long BPA can continue to pay its operating expensesgiven the amount of cash it has available. BPA’s Financial Reserves Policy providesguidance to ensure both business lines have a minimum of 60 days cash on hand for19

B PA S t r at e g i c P l a n 2 0 18 – 2 0 2 3 January 2018basic liquidity needs and to support its credit ratings. The policy also includes a maximumof 120 days cash on hand so that reserves do not grow too high and become inefficientfrom an investment and rates standpoint.Currently, Power Services’ cash on hand is far below the desired minimum threshold,while Transmission’s financial reserves exceed the minimum. BPA’s last rate filing included 20 million per year to increase Power’s financial reserves until they reach the minimumof 60 days cash on hand; but at that pace it could take 15 years to reach the goal. BPAwill hold a series of financial reserves workshops in 2018 to explore how to build Power’sreserves more quickly and discuss other issues, including the cost recovery adjustmentclause that would trigger when reserves fall below a certain threshold. Other topics mayinclude exploring opportunities to use reserves for greater rate stabilization.In addition to financial reserves, the Treasury payment probability standard providesan added layer of short-term liquidity protection and ensures BPA has enough shortterm liquidity to make the planned U.S. Treasury payments each year of the rate period.The Treasury payment is significant because, by law, it is BPA’s lowest priority paymentobligation. BPA makes the majority of the payment at the end of a fiscal year after meetingall other obligations in the year, including nonfederal debt service. BPA sets its rates to20

B PA S t r at e g i c P l a n 2 0 18 – 2 0 2 3 January 2018maintain an annual 97.5 percent probability of making this payment. As a result, BPA hasmade its Treasury payment on time and in full for the last 34 years.Objective 1c:Independent financial health assessmentMaintain high investment grade credit ratings from all three ratings agencies.A credit rating is an independent assessment of financial health that aids investors intheir investment decisions. Since most utilities, including BPA, have financial obligationsthat extend over 20 years, a credit rating is a long-term measure of financial health andultimately reflects the likelihood that a borrower will be able to meet all of its financialobligations over time. Credit ratings have real cost implications in that they help determinethe interest rate levels at which investors will purchase debt. BPA’s credit ratings as ofJanuary 2018 are Aa1 (stable outlook) Moody’s, AA (negative outlook) Fitch, and AA(stable outlook) Standard and Poor’s.By pursuing the other financial health objectives outlined above, BPA seeks to maintain ahigh investment-grade credit rating of its nonfederal debt from all three ratings agencies.21

B PA S t r at e g i c P l a n 2 0 18 – 2 0 2 3“22 January 2018When it comes to investingin the region’s assets, we arelooking holistically acrossall of BPA’s responsibilities— not only for what ismost crucial for safety andreliability, but what createsthe greatest value as wemodernize and positionBPA to leverage market andtechnology developments.”Bill Leady Asset Manager

B PA S t r at e g i c P l a n 2 0 18 – 2 0 2 3 January 2018Strategic Goal 2:Modernize assets and system operationsThe Federal Columbia River Power System is the nation’s largest carbonfree, renewable energy resource. This iconic federal hydropower system,coupled with BPA’s expansive high-voltage transmission grid and theoutput of the region’s only commercial nuclear plant, provides powervalued at more than 3 billion annually. These power and transmissionassets have played a central role in the region’s way of life, and managingthem in a cost-effective and economically efficient manner is critical toBPA’s commercial success.23

B PA S t r at e g i c P l a n 2 0 18 – 2 0 2 3 January 2018The Northwest’sfederal powerand transmissionsystemBPA also manages facilities, such asThe power BPA sells to its Northwest powersubstation control houses, warehousescustomers comes from 31 federally owned dams thatand office buildings; IT equipment andare operated by the U.S. Army Corps of Engineers andsystems; and fish and wildlife assets, suchBureau of Reclamation. BPA also sells the output ofas hatcheries and real property intereststhe Columbia Generating Station, a 1,107 megawattfor fish and wildlife mitigation. Combined,nuclear plant, which is owned and operated by Energythese assets are worth billions of dollars.Northwest. BPA recovers the cost of these generatingfacilities through its power revenues.It is BPA’s responsibility to plan for andfund their operations and maintenance,This power is transmitted over BPA’s more than 15,000 circuit miles of transmission lines,while also preserving and enhancing260 substations and an extensive network of related transmission facilities, telecommunicationsphysical and cyber security.and IT infrastructure across six states. This energy highway not only provides low-cost, reliablepower to the entire region, but also allows for the sale of surplus power across the West. Thesesurplus sales help to offset BPA’s costs and keep rates affordable for Northwest consumers.BPA is adopting a more rigorous approachto asset management that leads to themost efficient use of resources, recognizingthat our assets do not all deliver the samevalue. This approach will produce thehighest economic benefit and derivemaximum value from the system, whilemeeting nonpower purposes andenvironmental requirements.24

B PA S t r at e g i c P l a n 2 0 18 – 2 0 2 3 January 2018BPA must also be prepared to operatethese assets in evolving markets topreserve reliability and take advantage ofnew opportunities for maximizing salesof surplus power. Drivers include largeincreases in variable energy resources suchas wind and solar and the recent expansionof the Western Energy Imbalance Market(EIM), which have changed the pattern ofpower flows across the Western grid andtransformed the way utilities interface withmarkets. A faster, more volatile resourcebase has created a need for increasedsituational awareness and coordinationwithin and among balancing authorities.There are also opportunities to leveragenew technologies — such as batterystorage, flow control devices, data analysisand demand management tools — insupport of more reliable, economical andefficient system operations.25

B PA S t r at e g i c P l a n 2 0 18 – 2 0 2 3 January 2018Objective 2a:Administer an industry-leading asset management programBPA has adopted industry-leading asset management planning standards and begunapplying them to make better investment decisions across all of the agency’s assetcategories: power, transmission, facilities, information technology, and fish and wildlife. Wewill optimize the life-cycle cost of acquiring, operating, maintaining and disposing of assetsto preserve their reliability and value, and prioritize limited resources.BPA is developing strategic asset management plans for each asset category. These plansinform capital investment level requirements by: Understanding our assets’ criticality, health and risks. Establishing risk-based asset performance objectives (such as lost generation andreliability). Using leading analytical methods to prioritize maintenance activities and capitalinvestments for safe, reliable asset performance.Achieving these goals for power will require collaborative, long-term planning with ourfederal partners, the U.S. Army Corps of Engineers and Bureau of Reclamation, becausetheir cost structures have major implications on BPA’s rates. Through the Asset InvestmentExcellence Initiative, the three agencies have established prioritized goals to drive alignedinvestment decisions and improve contracting and project-management practices.26

B PA S t r at e g i c P l a n 2 0 18 – 2 0 2 3 January 2018Working with these partners, BPA will strategically evaluate the federal hydropowerassets and identify and communicate priorities and goals, including optimization ofcapital investments to align system capabilities with evolving markets, technologies andregulations. BPA will also work with Energy Northwest to develop a joint long-term assetstrategy for the Columbia Generating Station nuclear plant, focusing on its cost andperformance.To take a true value-based approach, our asset management strategy will take intoaccount the relative value and performance of each asset, including the Willamette RiverBasin hydroelectric resources. And through the Columbia River Sys

Therefore, the financial health objectives in this strategic plan, which are derived from BPA’s 2018 Financial Plan, serve as the foundation for BPA’s other strategic goals. For this reason, more detail is provided in this section than in others. As of January 2018, BPA has suf

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