Investing in Renewable Energy by mThink, May 23, 2005 For the first 50 years following the passage of the Depression-era Public Utilities Holding Company Act, governmental regulation of the electric utility industry largely restricted investments in electric generating facilities to highly regulated utilities.[1] But beginning with the enactment of the Public Utilities Regulatory Policies Act of 1978 (PURPA), various measures designed to encourage investments in electric energy generating facilities by non-utility investors have become law.[2] Intended to bring an element of competition to the geographic monopolies granted to utilities as part of the regulatory bargain, PURPA enabled non-utilities to build, own and operate certain types of electric generating facilities (called qualifying facilities) and sell the output of those facilities to investor-owned utilities at a price (the avoided cost) designed to reflect the cost the utility would have incurred had it built, owned and operated the resource itself. While definitely a move in the direction of greater competition, the provisions of PURPA that forced the incumbent utility to purchase the output of qualifying facilities at the applicable avoided cost embodied a regulatory mandate that cut against the competitive grain. Nevertheless, PURPA did provide significant opportunities for non-utilities to participate in the generation side of the electric industry. The move to greater competition in the electric industry advanced further in 1992 with the enactment of Title VII of the Energy Policy Act of 1992, which allowed non-utilities to gain the status of an exempt wholesale generator (EWG), enabling them to sell electric at wholesale at marketbased prices that is, at price negotiated at arms length between the EWG and the purchaser. [3] (Sales of electricity by an EWG are limited to wholesale transactions that is, sales where the purchaser will resell the output to third parties. Hence, an EWG can sell to a utility that buys the power for the purpose of reselling it to the utilitys retail customers. But an EWG cannot sell the power to an ultimate end user such as a manufacturing plant.) To further facilitate the entry of nonutilities in the electric generation business, the Federal Energy Regulatory Commission subsequently adopted orders requiring regulated transmission providers to allow third party generators access to the transmission system and to interconnect their facilities to the transmission system under standardized agreements.[4] These actions, along with various initiatives by state public utility commissions to increase competition in the industry, combined to make non-utility generators important players in the quest to meet the nations demands for energy. The Role of Renewable Technologies While opening up the electric industry to competition was perhaps the prime motivating factor behind these developments, in many respects they were also motivated by, or were at least complementary to, efforts to reduce the nations reliance on imported oil. A key focus in this regard has been the development and implementation of alternate energy technologies such as wind, biomass, solar and geothermal renewable energy sources that are not dependent on petrochemicals as the fuel to generate electricity in commercial quantities. The revamped regulatory environment opened the door to developers of renewable energy facilities to demonstrate and prove their technologies as viable elements of a diversified electric generation system. But even with the great strides that have been made in recent decades in improving the efficiency, cost and reliability of renewable energy technologies, many such as wind and solar still cannot compete effectively on a price basis with fossil fuel technologies. While the gap is closing as oil prices rise, a significant opportunity to diversify the generation base and gain hands-on experience with the integration of commercial-size renewable energy facilities into our electric supply system would have been lost in the absence of special measures designed to overcome this economic barrier. The federal and state governments have responded with a variety of such measures, ranging from renewable portfolio standards to various federal and state subsidies such as grants and tax incentives.[5] The most significant subsidy in the renewables area is the federal production tax credit (PTC). By effective utilization of PTCs and other tax benefits (such as depreciation), the price of energy produced by a qualifying renewable energy facility can be brought down to a level where it is an economically competitive alternative to fossil fuel generation. Creation of Investment Opportunities Commercial-size renewable energy facilities require significant capital investment and generate correspondingly significant tax benefits such as depreciation and PTCs. Some of the non-utility developers of renewable energy resources are entities that have or that are parts of larger consolidated groups that have substantial taxable income and can therefore efficiently utilize these tax benefits. However, many renewables developers are economically smaller enterprises that lack the taxable income to take full advantage of the associated tax benefits. And even for some larger enterprises that might otherwise be in a position to effectively utilize these tax benefits, their business strategies may involve the monetization of those tax benefits by effectively transferring them to a third party in exchange for an immediate cash return. As a result, the entrance of non-utilities in the electric generation business coupled with the tax benefits associated with renewable generation facilities have created further opportunities for non-utilities who lack the development and operation expertise to become significant investors in renewable generation assets. Over the last few years, a growing number of investors (primarily financial institutions) have turned their attention to renewable generation facilities as an investment vehicle. This has been driven not only by growing maturity of the renewables industry that has witnessed an increasing number of renewable generation facilities being constructed each year, but also by other developments such as decreasing returns on alternative investment vehicles. For example, many of these financial institutions have long invested in low income housing projects, transactions driven by the availability of the low income housing tax credits.[6] But in recent years the returns on low income housing tax credit investments have significantly decreased, making the returns available in the renewable generation area that much more attractive. Furthermore, the structure of PTC/tax benefit-motivated investments in the renewable area is the same in many basic respects as the structure used in the low income housing transactions, thus presenting these investors with a new application of a familiar investment vehicle. Equally important, these renewable energy investments do not just serve as a vehicle for ensuring efficient use of the associated tax benefits. By monetizing the PTCs and other tax benefits, investors and developers have been able to significantly improve the economics of qualifying renewable power projects, using a number of structuring alternatives to tailor the transaction to the particular project and objectives of the participants. The term monetizing is somewhat of a misnomer, since these transactions do not involve sales of the PTCs and other tax benefits, as was done, for example, with investment tax credits under the old safe harbor lease transactions in the late 1980s. Rather, these transactions constitute real investments in wind power projects by investors with sufficient income from other sources to fully utilize the PTC and other potentially significant tax benefits generated by those projects, with the potential of significantly higher returns. Choosing the right structure will depend on the particular needs of the investor and the developer, including the investors return requirements. With the right structure, these transactions can have a tremendously positive impact on the power market by matching investors that can use tax benefits with developers looking for favorable financing alternatives. The Production Tax Credit The PTC is a nonrefundable credit against federal income tax liability that is available for electricity produced at a facility owned by the taxpayer from certain qualified renewable resources, including wind, biomass, solar and geothermal, and sold to unrelated parties.[7] The amount of the PTC for 2005 is 1.9 cents per kilowatt-hour ($19 per MWh) of electricity produced and sold during the taxable year, an increase over the 1.8 cents per kilowatt-hour rate for 2004.[8] This amount is adjusted annually using an inflation adjustment factor published by the Internal Revenue Service each spring.[9] The PTC amount is reduced by a half for open-loop biomass, small irrigation power, municipal solid waste and refined coal facilities.[10] For wind and solar projects, the PTC is available for each taxable year in the 10-year period that begins on the date a project is placed in service.[11] For other qualifying renewable energy projects such as biomass and geothermal, this period is reduced to five years.[12] Because the PTC is a relatively stable amount that is not directly affected by market conditions or the financial performance of the project, it can help to ensure a somewhat consistent return on investment regardless of the price of power, project expenses or other variable factors. To qualify for the PTC, a facility must be placed in service on or before Dec. 31, 2005.[13] A facility generally is considered to be placed in service for this purpose when it is placed in a condition or state of readiness and availability for a specifically assigned function.[14] This is considered to have occurred when each of the following requirements is satisfied: (i) the necessary permits and licenses to operate the facility have been approved, (ii) the critical tests for the various components of the project have been completed, (iii) the project is placed in control of the operator by the contractor, (iv) the project is synchronized into the grid for the purpose of generating electrical energy for production of income, and (v) daily operation of the project has begun.[15] In the case of a wind project, each wind turbine that can be operated and metered separately is treated as a separate facility for purposes of these rules.[16] Monetization, Motivation and Structure As noted, many developers do not have sufficient federal income tax liability to fully utilize the PTC and other tax benefits generated by a renewable power project. By bringing in an investor with sufficient federal income tax liability from other sources to use those benefits, a developer can fund the project while providing the realistic possibility of a high and relatively stable rate of return on the investors equity investment. Because of the relative certainty of the availability of PTCs, some equity investors are willing to provide certain limited credit support for project debt financing, which may increase the leverage available for a project (reducing the amount of equity needed to fund the project) and improve the investors overall returns. There are a variety of ways to structure an investment in a renewable power project to take advantage of the PTC and other tax benefits. The specific structure of an investment must be highly customized to meet the investors, developers and project lenders particular circumstances and requirements. To qualify for the PTC, electricity generally must be produced at a facility that is owned by the taxpayer seeking to claim the PTC.[17] This requirement has a significant impact on how PTC monetization transactions may be structured. Whatever the structure, the parties must be comfortable that the investor will be treated as the owner of the facility (or the entity that owns the facility) for federal income tax purposes. One potentially useful structure involves an equity investment in a partnership (or a limited liability company taxed as a partnership) that owns the renewable power project (the owner). The basic project economics are premised on the sale of the electricity generated by the project and any associated green tags to utilities or other wholesale power marketers pursuant to one or more long-term power purchase agreements, generating a relatively stable stream of revenues. The equity interests in the owner can be structured so that the investor initially receives a large percentage of all-cash distributions and tax benefits from the project, including the PTC. Once the investor has received an agreed-upon after-tax return or some other objective standard has been met, the sharing ratios may flip so that the investor receives a smaller portion of cash distributions and tax benefits and the developer receives a larger portion. The developer also may retain an option to purchase the investors equity interest upon the occurrence of an agreed-upon event. The alternatives available for structuring the relationship between the investor and the developer are quite varied and these transactions frequently are quite complex. Thus, these transactions require careful structuring and drafting to meet each developers and investors unique requirements. Debt Financing, Credit Support and Project Financing Renewable electricity projects often are partly financed with project debt, which can increase the returns offered to an investor. As discussed above, because of the availability of the PTCs combined with an investors desire to increase the return on investment, an investor may be willing to provide credit support to cover certain circumstances that may occur, such as lack of wind in a wind power project, that could prevent a project from generating sufficient revenue to cover debt service. This credit support may take a variety of forms, such as an agreement by the investor to make additional capital contributions in the event of a cash shortfall, to be made up in later years from distributions when project production is at or above anticipated levels. In addition, products such as insurance and liquidity facilities may be available from third-party financial institutions to cover some of these risks. If the investor is willing to provide credit support, or if insurance or liquidity support is available at a favorable price, the amount of debt may be increased or the overall cost of debt financing may be significantly reduced, or some combination of the two, which may improve the investors overall return. The developer typically manages the wind power project and is responsible for operation and maintenance, subject to customary rights of the investor to remove the developer from management and operation functions due to nonperformance. Conclusion Private investments in renewable projects should be carefully structured to enable the investor to take full advantage of the PTC and other tax benefits available. Because of the complexity in this area, structuring a private investment in a renewable energy project should involve careful analysis and planning. Endnotes 15 U.S.C.A 79a et seq. Public Law 95-617 (92 Stat. 3117); portions were codified at 16 U.S.C.A. 2601 et seq.; various provisions appear elsewhere in the U.S. Code. This Act effected various amendments to the Public Utilities Holding Company Act of 1935, supra, PURPA, supra, and the Federal Power Act, 16 U.S.C.A 791a et seq. See FERC Order No. 888, Promoting Wholesale Competition Through Open Access Non-Discriminatory Transmission Services by Public Utilities, 61 Fed. Reg. 21,540 (May 10, 1996), FERC Stats & Regs. ¶ 31,036 (1996), order on rehg, Order No. 888-A, 62 Fed. Reg. 12,274 (March 14, 1997), FERC Stats & Regs. ¶ 31, 048 (1997); order on rehg, Order No. 888-B, 81 FERC ¶ 61,248 (1997), order on rehg, Order No. 888-C, 82 FERC ¶ 61,046 (1998), affd in relevant part sub nom. Transmission Access Policy Study Group v. FERC, 225 F.3d 667 (D.C. Cir. 2000), affd sub nom. New York v. FERC, 535 U.S. 1 (2002); and FERC Order No. 2003, Standardization of Generator Interconnection Agreements and Procedures, 68 Fed. Reg. 49,845 (August 19, 2003), FERC Stats & Regs. ¶ 31,146 (2003), order on rehg, Order 2003-A, 69 Fed. Reg. 15932 (March 26, 2004), FERC Stats & Regs ¶ 31,160 (2004). Programs implemented by some states requiring regulated utilities in those states to have a certain percentage of their loads met by renewable energy sources. Available for qualifying low income housing projects under IRC § 42. See IRC § 45(a), (c)(1)(A). The PTC is allowed as part of the general business credit pursuant to IRC § 38. Although the PTC is not refundable, any unused credit for a particular tax year can be carried back one year and forward 20 years. See IRC § 39. The PTC generally does not apply to electricity sold to a utility pursuant to an avoided cost contract entered into before January 1, 1987. See IRC § 45(e)(7). The PTC is 1.5 cents per kWh, adjusted for inflation. See IRC § 45(a)(1). See Notice 2005-___, 70 Fed. Reg 18071-01 (Apr. 8, 2005) (announcing that the inflation adjustment factor for 2005 is 1.2528). See IRC § 45(b)(4)(A). See IRC § 45(a)(2)(A)(ii). See IRC § 45(b)(4)(B). See IRC § 45(d)(1). This sunset date has been extended a number of times over the years and has been extended each time it expired. See Treas Reg § 1.46-3(d)(1)(ii) (applying a similar standard for purposes of the investment tax credit); see also Rev Rul 76-256, 1976-2 CB 46; Oglethorpe Power Corp. v. Commissioner, TC Memo 1990-505. See generally Rev Rul 76-256, supra. See Rev Rul 94-31, 1994-1 CB 16. See IRC § 45(d)(1). An exception is made for open-loop biomass facilities. Under this exception, if the owner of a facility is not the producer of the electricity, the lessee or operator of the facility who actually produces the electricity can claim the PTC. See IRC § 45(d)(3)(B). Filed under: White Papers Tagged under: Utilities