Total New Zealand load (sample winters day)
6. Distributors have options for structuring pricing
6.1
Distributors have options for structuring their
pricing in response to evolving technologies
6.1.1 Prices should inform consumers about the costs of the choices available so they can assess those choices. Consumers using distribution services can specify how much network capacity they use at certain times (eg, by choosing to allow the distributor to manage their hot water load). They also have the option to obtain electricity from the network or from a solar panel. 6.1.2 There is no ‘right’ pricing structure or set of pricing options because each
distributor faces different circumstances. For example, each distributor will have different customers and consumer groups, those customers and consumers may respond differently to price signals, and their costs of supply will be different. However, generally speaking, distribution pricing should be based on the costs of providing services (service-based pricing) and should achieve the following two objectives:
(a) signal to users the cost of new capacity in a way that encourages efficient network and consumer investment
(b) recover the common costs of the distribution service.
6.1.3 There are likely to be trade-offs between competing objectives. Prices which signal the cost of new capacity are likely to be insufficient to recover all of the common network costs. So prices that recover all of the cost must be marked up above incremental cost.
6.1.4 These markups could result in changes (distortions) to consumers’ decisions about how they use the network or make investments. For
example, consumers will generally respond to a price increase by reducing consumption. However, a markup on the price of one service could cause a greater consumption response (distortion) than the same markup on the price of a different service.
6.1.5 Also, a markup on the price of one service could cause a consumer to respond by making a (possibly inefficient) investment, whereas a markup on the price of a different service might not have that effect. Markups should be set in a way that minimises these distortions.
6.1.6 Pricing needs to change because the prevailing two-part pricing structure does not do these two things:
(a) there is no price signal to network users of the marginal cost of new capacity
(b) the reliance on consumption charges to recover a significant
proportion of distributors’ common costs is altering how consumers use the network, particularly by creating a strong incentive to inefficiently invest in solar panels.
6.1.7 There is not a one-size-fits-all approach. Signalling the cost of new capacity involves pricing approaches that reflect the cost of supplying more capacity at times a network is congested (at which time demand on the network will be at its peak).
6.1.8 Recovering common costs requires approaches that minimise distortion of consumption and investment decisions. Recovering most common costs through flat consumption charges risks encouraging inefficient over- investment in solar panels and inefficiencies in relation to other
technologies such as batteries. Other approaches may affect consumers’ consumption or investment decisions in other ways.
6.1.9 Finally, distributors should consider consumer preferences. Assuming consumers would prefer to have control over the size of their power bill, this might indicate that they need charges which vary in response to consumer choices about use of the network.
6.1.10 Charging approaches which may meet these objectives include variable capacity charges, peak demand charges and consumption charges which vary by time-of-use. The Authority will assess distributors’ progress
towards meeting these objectives with reference to its Economic and Decision Making Framework for distribution pricing.118
6.2
Distributors need to talk to consumers about
pricing structure options
6.2.1 Distributors need to talk to consumers about pricing structure options to try to identify what pricing structure works for both the distributor and the consumers connected to its network.
6.2.2 Consumer engagement is a critical part of the development of future pricing structures. Distributors should not surprise consumers with
118 The Economic and Decision Making Framework for distribution pricing is available on the Authority’s website: https://www.ea.govt.nz/development/work-programme/transmission- distribution/distribution-pricing-review/development/decision-making-and-economic-
changes to pricing structures. This means that distributors should
communicate early and clearly the reasons for changing pricing structures. 6.2.3 Deciding on a pricing structure requires trade-offs, taking into account:
consumer expectations of price and service; the likely consumer impacts of different pricing options; and the revenue required.
6.2.4 Perhaps as importantly, consumers should have information and tools to respond to new pricing signals. This means that pricing options that involve a demand component should not be introduced unless the
appropriate technology is available. For example, if the distributor intends using a peak demand pricing option then the metering technology used by the distributor should be capable of measuring and displaying the amount of power (measured in kW) being used at any given time.
6.3
There can be a gradual transition
6.3.1 The likely implications of evolving technologies are starting to become evident, but there can be a gradual transition to future pricing structures, provided the ultimate end-point is clear. Distributors should signal clearly in advance the direction of the transition and should identify the pricing structures they intend to apply once the transition is complete.
6.3.2 Distributors could start by offering service-based pricing to consumers that are newly connected to their network or those that change their connection status by installing small scale distributed generation (eg, solar panels). In the medium to long term, all consumers can be moved to pricing that signals the marginal cost of new capacity and allocates common costs in a way that minimises distortion to how consumers use the network and make investments.
Q8. What is your view of distributors’ options for structuring their pricing?