2016 

 

 

Assessment of 

 

 

Demand Response and Advanced Metering 

 

 

 

 

Staff Report 

 

 

 

 

Federal Energy Regulatory Commission 

 December 2016 

 

 

 

 

 

 

 

 

 

 The opinions and views expressed in this staff report do not necessarily represent those of the Federal 

Energy Regulatory Commission, its Chairman, or individual Commissioners, and are not binding on the 

Commission. 

 
ACKNOWLEDGEMENTS

Federal Energy Regulatory Commission Staff Team

Michael P. Lee, Team Lead

Ben Foster

David Kathan

Meghan O’Brien

April Park

Samin Peirovi

 
Federal Energy Regulatory Commission Page i

TABLE OF CONTENTS

Chapter 1 : Introduction.............................................................................................................. 1

Chapter 2 : Saturation and penetration rate of advanced meters ................................................ 3

Developments and issues in advanced metering..................................................................... 5

Collaborative industry-government efforts......................................................................... 5

State legislative and regulatory activity.............................................................................. 5

Chapter 3 : Annual resource contribution of demand resources............................................... 14

Chapter 4 : Potential for demand response as a quantifiable, reliable resource for regional 

planning purposes..................................................................................................................... 18

Chapter 5 : Existing demand response programs and time-based rate programs and steps taken 

to ensure that, in regional transmission planning and operations, demand resources are 

provided equitable treatment as a quantifiable, reliable resource relative to the resource 

obligations of any load-serving entity, transmission provider, or transmitting party............... 19

FERC demand response orders and activities....................................................................... 21

Other federal demand response activities............................................................................. 23

White House Council of Economic Advisers................................................................... 23

Energy Efficiency Improvement Act of 2015................................................................... 23

U.S. Environmental Protection Agency: RICE Rule........................................................ 24

U.S. Department of Defense ............................................................................................. 24

U.S. General Services Administration.............................................................................. 25

U.S. Department of Veteran’s Affairs .............................................................................. 26

State legislative and regulatory activities related to demand response................................. 26

Chapter 6 : Regulatory barriers to improved customer participation in demand response, peak 

reduction, and critical period pricing programs........................................................................ 33
Page ii Federal Energy Regulatory Commission

LIST OF TABLES & FIGURES

Table 2-1: Estimates of Advanced Meter Penetration Rates.......................................................... 3

Table 2-2: Estimated Advanced Meter Penetration by Region and Customer Class (2014).......... 4

Table 3-1: Potential Peak Reduction from Retail Demand Response Programs by NERC Region 

(2013 & 2014)............................................................................................................................... 14

Table 3-2: Potential Peak Reduction (MW) from Retail Demand Response Programs by Region 

and Customer Class (2014)........................................................................................................... 15

Table 3-3: Potential Peak Reduction from U.S. ISO and RTO Demand Response Programs..... 17

Table 5-1: Customer Enrollment in Incentive-based Demand Response Programs, by NERC 

Region (2013 & 2014) .................................................................................................................. 20

Table 5-2: Customer Enrollment in Time-based Demand Response Programs, by NERC Region 

(2013 & 2014)............................................................................................................................... 21
Assessment of Demand Response and Advanced Metering December 2016

Federal Energy Regulatory Commission Page 1

FERC Staff Report 

ASSESSMENT OF DEMAND RESPONSE AND ADVANCED METERING 

Pursuant to Energy Policy Act of 2005 section 1252(e)(3) 

 

December 2016 

Chapter 1: Introduction

This report is the Federal Energy Regulatory Commission staff’s (FERC or Commission staff’s)

eleventh annual report on demand response and advanced metering required by section 

1252(e)(3) of Energy Policy Act of 2005 (EPAct 2005). It is based on publicly-available 

information and discussions with market participants and industry experts. Based on the 

information reviewed, it appears that:

• Deployment of advanced meters continues to increase throughout the country,

1 and 

advanced meters are the predominant metering technology installed and operational 

throughout the United States. According to the Energy Information Administration 

(EIA),

2 58.5 million advanced meters were operational nationwide out of a total of 144.3 

million meters, indicating a 40.6 percent penetration rate;

• In the organized wholesale markets, the contribution of potential peak reduction3 to 

meeting peak demand increased to 6.6 percent in 2015 from 6.2 percent in 2014;

• The North American Electric Reliability Corporation (NERC) has developed and 

approved four new metrics for assessing demand response, and intends to continue its 

efforts to improve demand response data collection to provide information on how 

demand response contributes to reliability;

• The North American Energy Standards Board (NAESB) developed and ratified voluntary 

business standards that facilitate the ability of advanced meters and other utility and 

 1 As defined by the U.S. Energy Information Administration (EIA), Advanced Metering Infrastructure 

(AMI) Meters are 

“Meters that measure and record usage data at a minimum, in hourly intervals and provide usage data at 

least daily to energy companies and may also provide data to consumers. Data are used for billing and other 

purposes. Advanced meters include basic hourly interval meters and extend to real-time meters with built-in twoway communication capable of recording and transmitting instantaneous data.” 

See EIA, Form EIA-861: Annual Electric Power Industry Report Instructions, available at

http://www.eia.gov/survey/form/eia_861/instructions.pdf. 2 EIA, Form EIA-861 Advanced_Meters_2014 data file (re-released January 13, 2016).

3 Potential peak reduction (or potential peak demand savings) refers to “the total demand savings that could 

occur at the time of the system peak hour assuming all demand response is called.” EIA, Form EIA-861 

Instructions, Schedule 6, Part B.
December 2016 Assessment of Demand Response and Advanced Metering

Page 2 Federal Energy Regulatory Commission

third-party grid devices to communicate directly with each other and exchange 

information; and 

• On January 25, 2016, the U.S. Supreme Court issued its decision in FERC v. Electric 

Power Supply Association, upholding the Commission’s authority under the Federal 

Power Act to adopt Order No. 745.4

 

The report addresses the six requirements included in section 1252(e)(3) of EPAct 2005, which 

directs the Commission to identify and review: 

(A) saturation and penetration rate of advanced meters and communications technologies, 

devices and systems (Chapter 2);

(B) existing demand response programs and time-based rate programs (Chapter 5);

(C) the annual resource contribution of demand resources (Chapter 3);

(D) the potential for demand response as a quantifiable, reliable resource for regional 

planning purposes (Chapter 4);

(E) steps taken to ensure that, in regional transmission planning and operations, demand 

resources are provided equitable treatment as a quantifiable, reliable resource relative to 

the resource obligations of any load-serving entity, transmission provider, or 

transmitting party (Chapter 5); and

(F) regulatory barriers to improved customer participation in demand response, peak 

reduction and critical period pricing programs (Chapter 6).

 4 136 S. Ct. 760 (2016) (“EPSA”)
Assessment of Demand Response and Advanced Metering December 2016

Federal Energy Regulatory Commission Page 3

Chapter 2: Saturation and penetration rate of advanced meters

This chapter reports on penetration rates for advanced meters, and developments related to

advanced metering. As summarized in Table 2-1, recent data indicate that advanced meter 

penetration rates and the number of advanced meters in operation continue to increase in the 

United States. This trend is robust across several data sets.

Table 2-1: Estimates of Advanced Meter Penetration Rates

Data Source

Data As 

Of

Number of 

Advanced 

Meters

(millions)

Total 

Number of 

Meters

(millions)

Advanced Meter

Penetration Rates

(advanced meters as a 

% of total meters)

2008 FERC Survey Dec 2007 6.7 1 144.4 1 4.7%

2010 FERC Survey Dec 2009 12.8 2 147.8 2 8.7%

2012 FERC Survey Dec 2011 38.1 3 166.5 3 22.9%

2011 Form EIA-861 (re-released) Dec 2011 37.3 4 144.5 4 25.8%

Institute for Electric Efficiency May 2012 35.7 5 144.5 4 24.7%

2012 Form EIA-861 Dec 2012 43.2 6 145.3 6 29.7%

Institute for Electric Innovation July 2013 45.8 7 145.3 6 31.5%

2013 Form EIA-861 (re-released) Dec 2013 51.9 8 138.1 8 37.6%

Institute for Electric Innovation July 2014 50.1 9 138.1 8 36.3%

2014 Form EIA-861 Dec 2014 58.5 10 144.3 10 40.6%

Sources:

1 FERC, Assessment of Demand Response and Advanced Metering staff report (December 2008).

2 FERC, Assessment of Demand Response and Advanced Metering staff report (February 2011).

3 FERC, Assessment of Demand Response and Advanced Metering staff report (December 2012). 4 EIA, Form EIA-861 file_2_2011 and file_8_2011 (re-released May 20, 2014). The number of ultimate customers served by 

full-service and energy-only providers is used as a proxy for the total number of meters. Advanced meters are defined as 

advanced metering infrastructure (AMI) meters.

5 The Edison Foundation Institute for Electric Efficiency, Utility-Scale Smart Meter Deployments, Plans & Proposals (May 

2012).

6 EIA, Form EIA-861 and Form EIA-861S: retail_sales_2012 and advanced_meters_2012 data files (October 29, 2013). The 

number of ultimate customers served by full-service and energy-only providers is used as a proxy for the total number of 

meters. Advanced meters are defined as AMI meters. 7 The Edison Foundation Institute for Electric Innovation, Utility-Scale Smart Meter Deployments: A Foundation for 

Expanded Grid Benefits (August 2013).

8 EIA, Form EIA-861: Advanced_Meters_2013 data file (re-released June 8, 2015). The number of total meters—including 

AMI, AMR and standard electromechanical meters—was reported for the first time in 2013. Therefore, we no longer use the 

number of customers as a proxy. See note 4 above and Form EIA-861Annual Electric Power Industry Report Instructions, 

Schedule 6, Part D, available at http://www.eia.gov/survey/form/eia_861/proposed/2013/instructions.pdf. 9 The Edison Foundation Institute for Electric Innovation, Utility-Scale Smart Meter Deployments: Building Block Of The 

Evolving Power Grid (September 2014). 10 EIA, Form EIA-861: Advanced_Meters_2014 data file (re-released January 13, 2016). 

Note: Commission staff has not independently verified the accuracy of EIA or Edison Foundation data. Values from source 

data are rounded for publication. 

According to 2014 EIA data,5 58.5 million advanced meters were operational nationwide out of a 

total of 144.3 million meters, indicating a 40.6 percent penetration rate. This penetration of 

advanced meters represents significant growth over the previous year, when EIA reported that

 5 EIA, Form EIA-861 Advanced_Meters_2014 data file (re-released January 13, 2016).
December 2016 Assessment of Demand Response and Advanced Metering

Page 4 Federal Energy Regulatory Commission

51.9 million advanced meters were operational out of a total of 138.1 million meters, 

representing a 37.6 percent penetration rate.

6

 

Table 2-2 below provides estimated advanced metering penetration rates by NERC region7 and 

retail customer class. Advanced meters represent more than half of the meters in three regions: 

79.7 percent of meters in Texas Reliability Entity (TRE), 60.4 percent in Western Electricity 

Coordinating Council (WECC), and 56.9 percent in Florida Reliability Coordinating Council 

(FRCC). The largest growth in advanced meter penetration from 2013 to 2014 took place in 

ReliabilityFirst Corporation (RFC) and SERC Reliability Corporation (SERC), which saw 

increases of approximately 7 and 9 percentage points, respectively. 

Table 2-2: Estimated Advanced Meter Penetration by Region and Customer Class (2014)

Region

Customer Class

Residential Commercial Industrial All Classes

AK 9.6% 3.6% 0.0% 8.8%

FRCC 56.3% 61.7% 74.5% 56.9%

HI 6.0% 7.0% 19.9% 6.1%

MRO 18.8% 16.1% 22.4% 18.5%

NPCC 9.6% 9.4% 15.7% 9.6%

RFC 31.7% 23.4% 16.6% 30.8%

SERC 36.0% 33.2% 32.5% 35.6%

SPP 40.4% 39.5% 33.6% 40.2%

TRE 79.5% 82.7% 43.7% 79.7%

WECC 60.6% 59.0% 54.0% 60.4%

Unspecified 21.9% 21.4% 70.4% 22.8%

All Regions 40.9% 38.6% 36.5% 40.6%

Sources: EIA, 2014 Form EIA-861 Advanced_Meters_2014 data file. 

Note: Although some entities may operate in more than one NERC Region, EIA data have only 

one NERC region designation per entity. The "unspecified" category represents respondents to the 

EIA-861 short form, which were not required to report a NERC region. Commission staff has not 

independently verified the accuracy of EIA data. 

Overall, Table 2-2 above indicates a slightly higher percentage of residential customers have an 

advanced meter (40.9 percent) than do customers in the commercial (38.6 percent) or industrial 

(36.5 percent) customer classes.

 6 Id. EIA data also reveals that advanced meters are now the predominant metering technology installed 

and operational throughout the United States. 7 NERC comprises eight regional entities in the lower 48 states: the Florida Reliability Coordinating 

Council (FRCC), Midwest Reliability Organization (MRO), Northeast Power Coordinating Council (NPCC), 

ReliabilityFirst Corporation (RFC), SERC Reliability Corporation (SERC), Southwest Power Pool RE (SPP), Texas 

Reliability Entity (TRE), and Western Electricity Coordinating Council (WECC). The states of Alaska (AK) and 

Hawaii (HI) are not subject to NERC oversight.
Assessment of Demand Response and Advanced Metering December 2016

Federal Energy Regulatory Commission Page 5

Developments and issues in advanced metering 

Collaborative industry-government efforts 

On March 7, 2016, NAESB developed and ratified8 voluntary business standards9 that facilitate 

the ability of advanced meters and other utility and third-party grid devices (e.g., relays, 

inverters, reclosers) to communicate directly with each other and exchange information.10 With 

the proliferation of intelligent devices with a variety of communication protocols newly deployed 

within substations and transmission and distribution lines, these standards, NAESB’s Open Field 

Message Bus (OpenFMB) Model Business Practices, facilitate the resolution of data delay

issues, improve situational awareness and interoperability requirements,

11 and provide for

“distributed intelligence opportunities to manage local grids in the most efficient way based on 

local resources and conditions.”12 Participants in the standards development process included 

the National Association of Regulatory Utility Commissioners and the National Institute of 

Standards and Technology.13 

State legislative and regulatory activity

Electric utilities continue to deploy advanced meters and are developing new energy services and 

technologies, including mobile applications that enable customers to view their energy 

consumption, interact with utilities, and manage their electricity bills. Some utilities are 

experimenting with different pilot programs to encourage customer engagement and facilitate the 

incorporation of demand response technologies through advanced metering infrastructure.

• Alabama. In February 2016, Baldwin County Electric Membership Corporation

(Baldwin EMC), the largest cooperative electric utility in Alabama,14 initiated 

 8 The NAESB process is open to any interested party, and parties can participate and contribute to the 

standards development regardless of NAESB membership status. 9 Press Release, NAESB Announcement Concerning the Open Field Message Bus Model Business 

Practices, NAESB, March 15, 2016, available at https://www.naesb.org//pdf4/031516press_release.pdf. 10 Duke Energy, Leading Advancements in Interoperability: Open Field Message Bus (OpenFMBTM) 

Interoperability Framework with a Microgrid Implementation, Jan. 2016, p. 3, available at https://www.dukeenergy.com/pdfs/interoperability-brochure.pdf. 11 NAESB, 2015 Retail Annual Plan Item 9.a/R14008: Develop model business practices to support 

OpenFMB architecture for interoperable data exchange between distributed power systems devices on the electric 

grid’s field area networks, Ratified March 7, 2016, pp. 5=6, available at https://www.naesb.org/pdf/ordrform.pdf. 12 Duke Energy, Leading Advancements in Interoperability: Open Field Message Bus (OpenFMBTM) 

Interoperability Framework with a Microgrid Implementation, Jan. 2016, p. 3. 13 Press Release, NAESB Announcement Concerning the Open Field Message Bus Model Business 

Practices, NAESB, March 15, 2016, available at https://www.naesb.org//pdf4/031516press_release.pdf. 14 “Baldwin EMC Recognized by CS Week for Advanced Metering, Load Management Projects,” Baldwin 

EMC, (May 10, 2016), available at http://www.baldwinemc.com/baldwin-emc-recognized-by-cs-week-foradvanced-metering-load-management-projects/.
December 2016 Assessment of Demand Response and Advanced Metering

Page 6 Federal Energy Regulatory Commission

deployment of 20,000 advanced meters.

15 Baldwin EMC serves over 73,000 

customers.16

• Arizona. The Arizona Public Service Company (APS) filed a rate case application on 

June 1, 2016, that included a proposed advanced meter opt-out fee ($70 for set up and 

$15 per month meter reading fee).17 APS included the advanced meter opt-out fee in 

response to the Arizona Corporation Commission’s (ACC) decision to include

consideration of advanced meter opt-out fees as a component of the ACC’s 

comprehensive review of the APS general rate case.18

• Colorado. On August 3, 2016, Xcel Energy filed a request with the Colorado Public 

Utilities Commission (PUC) to approve a $500 million project proposal that would 

replace all retail meters with advanced meters.19 The proposed project is scheduled to 

roll out the advanced meters from 2017 to 2021, pending Colorado PUC approval.20 

Xcel serves approximately 1.4 million electricity customers throughout Colorado.21

• Connecticut. The Connecticut Municipal Electric Energy Cooperative (CMEEC) 

deployed over 38,000 advanced meters as of June 2015.22 The deployment is part of a 

smart grid project (ConnSMART Program) that includes four municipal utilities.23 The 

CMEEC intends to provide all customers with access to advanced meters, with the goal 

of realizing operational efficiencies, improving service reliability, and enhancing

customer service.24

 15 “Baldwin EMC Begins Deploying Landis+Gyr Load Management System,” Landis+Gyr, (February 15, 

2016), available at http://www.landisgyr.com/baldwin-emc-begins-deploying-landisgyr-load-management-system/. 16 Baldwin EMC, 2014 Annual Report, October 2015, available at http://www.baldwinemc.com/wpcontent/uploads/52624-BEMC-AnnReport-proof4.pdf. 17 In the Matter of the Application of Arizona Public Service Company for a Hearing to Determine the Fair 

Value of the Utility Property of the Company for Ratemaking Purposes, to Fix a Just and Reasonable Rate of Return 

Thereon, to Approve Rate Scheduled Designed to Develop such Return, Arizona Public Service Company Rate 

Application, Docket No. E-01345A-16-0036 (ACC June 1, 2016), available at

http://images.edocket.azcc.gov/docketpdf/0000170846.pdf. 18 In the Matter of the Application of Arizona Public Service Company for Approval of Automated Meter 

Opt-Out Service Schedule 17, Decision No. 75047, Docket No. E-01345A-13-0069, (ACC Apr. 30, 2015), pp. 16-

17, available at http://images.edocket.azcc.gov/docketpdf/0000160782.pdf.

19 Xcel proposes massive, $500 million upgrade of Colorado electric meters, (Denver Business Journal 

August 3, 2016), available at http://www.bizjournals.com/denver/blog/earth_to_power/2016/08/xcel-energyproposes-massive-500m-upgradeof.html?ana=RSS%26s%3Darticle_search&utm_source=feedburner&utm_medium=feed&utm_campaign=Feed%3

A+bizj_denver+%28Denver+Business+Journal%29. 20 Xcel proposes massive, $500 million upgrade of Colorado electric meters, (Denver Business Journal 

August 3, 2016). 21 Who We Are, (Xcel Energy 2016), available at

https://www.xcelenergy.com/company/corporate_responsibility_report/who_we_are. 22 Smart Grid Investment Grant Final Project Description, Connecticut Municipal Electric Energy 

Cooperative Smart Grid Project at 1, (U.S. DOE, Office of Electricity Delivery and Energy Reliability June 2015). 23 Id. 24 Id.
Assessment of Demand Response and Advanced Metering December 2016

Federal Energy Regulatory Commission Page 7

• Florida. Florida Power & Light (FPL) restored power to more than 110,000 

customers affected by Hurricane Hermine within 24 hours.25 FPL credits investments in 

system hardening, infrastructure upgrades, and technological investments, including 

advanced meters, in reducing the number of customer outages and faster service 

restoration.

• Hawaii. The Hawaiian Electric Company, Inc., Hawaii Electric Light Company Inc., 

and Maui Electric Company, Ltd., filed an application with the Hawaii Public Utilities 

Commission (PUC) for the approval to commit funds for the Smart Grid Foundation 

Project, to defer certain costs, and to recover capital and deferred costs through a

Renewable Energy Infrastructure Surcharge.26 The companies estimate a cost of $340 

million to implement the project, with roughly $180 million of that dedicated to advanced 

meter infrastructure in the first phase of the project. The proposal includes deployment 

of advanced meters across all five of the companies’ service territory islands (Oahu, 

Hawai‘i Island, Maui, Moloka‘i and Lana‘i). The companies target advanced meter 

installations for more than 97 percent of their customers (equal to approximately 467,000 

installations).27

• Illinois. In March 2016, the Illinois Commerce Commission (ICC) ordered Ameren 

Illinois and Commonwealth Edison Company (ComEd) to provide customers with 

electronic access to their own electricity usage data gathered through advanced meters.28

The ICC order establishes a process by which consumers can obtain and control access to 

their electricity data, prescribing a standardized authorization form and the Green Button 

Connect My Data program29 as the method of electronic delivery.30

• Indiana. In December 2015, after reaching a settlement with various parties, Duke 

Energy filed a seven-year transmission, distribution, and storage system improvement 

 25 News Release, Florida Power & Light, Florida Power & Light Company completes service restoration to 

customers affected by Hurricane Hermine in line with pre-storm commitment, Sept. 3, 2016, available at

http://newsroom.fpl.com/2016-09-03-Florida-Power-Light-Company-completes-service-restoration-to-customersaffected-by-Hurricane-Hermine-in-line-with-pre-storm-commitment. 26 In the Matter of the Application of the Hawaiian Electric Companies for Approval to Commit Funds in 

Excess of $2,500,00 for the Smart Grid Foundation Project and Related Requests. Docket No. 2016-0087, (Hawaii 

PUC March 31, 2016), available at

https://www.hawaiianelectric.com/Documents/clean_energy_hawaii/smart_grid/dkt_2016-

0087_20160331_SGF_project_book_1.pdf. 27 In the Matter of the Application of the Hawaiian Electric Companies for Approval to Commit Funds in 

Excess of $2,500,00 for the Smart Grid Foundation Project and Related Requests. Docket No. 2016-0087 at 25, 

(Hawaii PUC March 31, 2016). 28 Investigation into the Customer Authorization Required for Access by Third Parties Other Than Retail 

Electric Suppliers to Advanced Metering Infrastructure Interval Meter Data, Order No.15-0073, (ICC March 23, 

2016), available at https://www.icc.illinois.gov/downloads/public/edocket/424241.pdf.

29 The Green Button Connect My Data program allows customers to automatically send their energy usage 

data to third-party providers, giving customers additional options on how to view and use their energy usage data. 30 ICC, Infrastructure Investment Plans, available at

https://www.icc.illinois.gov/electricity/utilityreporting/InfrastructureInvestmentPlans.aspx.
December 2016 Assessment of Demand Response and Advanced Metering

Page 8 Federal Energy Regulatory Commission

plan with the Indiana Utility Regulatory Commission (URC).31 As part of the proposal, 

Duke Energy agrees to reduce the level of capital investment recovered through 

customers’ monthly bills, including $192 million for advanced meters.32 Duke Energy 

retains the ability to pursue advanced meters and defer the associated costs for Indiana 

URC consideration in a future rate case rather than through a monthly bill tracker, and 

also agrees to explore energy efficiency pilot programs if it pursues advanced meters in 

the future.33 In a June 29, 2016 order, the Indiana URC approved the plan.34

• Kansas. On September 24, 2015, the Kansas Corporation Commission (KCC) approved 

Westar Energy’s Stipulation & Agreement, 35 which will replace all analog meters with 

advanced meters over a period of five years.36 As of December 31, 2015, Westar had

installed 250,000 advanced meters, which benefitted customers by providing timely 

service without sending out trucks on 91,000 automated service calls.37 The company 

has a customer base of approximately 700,000 customers.38

• Kentucky. On April 25, 2016, Duke Energy filed an application with the Kentucky 

Public Service Commission (PSC) to replace its existing meters with advanced meters.39 

 31 Verified Petition of Duke Energy Indiana, Inc. for Approval of Petitioner’s 7-Year Plan for Eligible 

Transmission, Distribution, and Storage System Improvements, Verified Petition, Cause No. 44720, (Indiana URC 

Dec. 7, 2015), available at 

https://myweb.in.gov/IURC/eds/Modules/IURC/CategorySearch/viewfile.aspx?contentid=0900b631801cf9ce. 32 Verified Petition of Duke Energy Indiana, Inc. for Approval of Petitioner’s 7-Year Plan for Eligible 

Transmission, Distribution, and Storage System Improvements, Cause No. 44720, Appendix A at 1, (Indiana URC 

Dec. 7, 2015). 33 Press Release, Duke Energy, Duke Energy Indiana reaches settlement to modernize its statewide electric 

grid (March 7, 2016), available at http://news.duke-energy.com/releases/duke-energy-indiana-reaches-settlement-tomodernize-its-statewide-electric-grid. 34 Verified Petition of Duke Energy Indiana, Inc. for Approval of Petitioner’s 7-Year Plan for Eligible 

Transmission, Distribution, and Storage System Improvements, Order of the Commission, Cause No. 44720, 

(Indiana URC June 29, 2016), available at

https://myweb.in.gov/IURC/eds/Modules/Ecms/Cases/Docketed_Cases/ViewDocument.aspx?DocID=0900b631801

da2fe. 35 In the Matter of the Publication of Westar Energy, Inc. and Kansas Gas and Electric Company to Make 

Certain Changes in Their Charges for Electric Service, Docket No. 15-WSEE-115-RTS, Order Approving 

Stipulation and Agreement (KCC Sept. 24, 2015), available at

http://estar.kcc.ks.gov/estar/ViewFile.aspx?Id=29b7b55e-b40c-4f66-9335-153bfe44a81e. 36 In the Matter of the Publication of Westar Energy, Inc. and Kansas Gas and Electric Company to Make 

Certain Changes in Their Charges for Electric Service, Docket No. 15-WSEE-115-RTS at 2, Direct Testimony of 

Hal Jensen (KCC Mar. 2, 2015), available at http://estar.kcc.ks.gov/estar/ViewFile.aspx?Id=91a694e6-ee25-4156-

b6c1-c2159533e338. 37 Westar Energy, Digital Meter Upgrade Program, available at

https://www.westarenergy.com/Portals/0/Resources/Documents/PDFs/AMI_Summary.pdf. 38 Westar Energy, Westar at a Glance, available at https://www.westarenergy.com/westar-at-a-glance.

39 The Application of Duke Energy Kentucky, Inc., for (1) a Certificate of Public Convenience and 

Necessity Authorizing the Construction of an Advanced Metering Infrastructure; (2) Request for Accounting 

Treatment; and (3) All Other Necessary Waivers, Approvals, and Relief, Case No. 2016-00152, Application, 

(Kentucky PSC Apr. 25, 2016), available at http://psc.ky.gov/pscecf/2016-00152/debbie.gates%40dukeenergy.com/04252016034135/Case_No._2015-00152_Application.pdf.
Assessment of Demand Response and Advanced Metering December 2016

Federal Energy Regulatory Commission Page 9

Duke Energy proposes to install approximately 143,000 advanced meters over two years, 

at an estimated cost of $38 million.40

• Maine. In January 2016, Maine’s Supreme Judicial Court affirmed a Maine Public 

Utilities Commission (MPUC) finding that Central Maine Power Company’s (CMP) 

advanced metering infrastructure system poses no credible threat to the health and safety 

of CMP’s customers.

• Maryland. On September 26, 2016, the Maryland Public Service Commission (PSC) 

initiated notice of a public conference reviewing key distribution systems aspects, 

including maximizing the advanced metering and associated infrastructure benefits to 

ratepayers; rate design, including time-varying rates; benefits and costs associated with 

the deployment of solar, and potentially other distributed energy resources (DER); 

appropriate classification and valuation of energy storage; DER interconnection, and 

distribution system planning.41

• Massachusetts. On August 19, 2015, National Grid submitted its grid modernization 

plan to the Massachusetts Department of Public Utilities (DPU).

42 The company’s grid 

modernization plan considered four different scenarios, all varying in levels of impact to 

customers in terms of benefits and costs.43 While the implementation of any of the four 

scenarios will achieve the elements of “advanced metering functionality” as required by 

the DPU,44 the scenarios differ significantly in deployment of advanced meters. Two of 

the scenarios call for a full deployment of advanced meters to replace 1.3 million retail 

meters, while the others call for most customers to opt-in for advanced meter 

deployment.45

 40 Id. at 9-10.

41 In the Matter of Transforming Maryland’s Electric Distribution Systems to Ensure that Electric Service 

is Customer-Centered, Affordable, Reliable and Environmentally Sustainable in Maryland, Notice of Public 

Conference, Public Conference 44, (Maryland PSC Sept. 26, 2016) available at http://www.psc.state.md.us/wpcontent/uploads/PC-44-Notice-Transforming-Marylands-Electric-Distribution-System.pdf. 42 Petition of Massachusetts Electric Company and Nantucket Electric Company d/b/a National Grid for 

Approval of its Grid Modernization Plan, Grid Modernization Plan, Grid Modernization Plan, DPU 15-120

(Massachusetts DPU Aug. 19, 2015), available at

http://web1.env.state.ma.us/DPU/FileRoomAPI/api/Attachments/Get/?path=15-

120%2fGrid_Mod_PlanFinalRedacted_Boo.pdf. 43 Id. at 11. 44 Id. at 36. As defined by the Massachusetts DPU, advanced metering functionality includes: (1) the 

collection of customers’ interval usage data, in near real time, usable for settlement in the ISO-NE energy and 

ancillary services markets; (2) automated outage restoration and notification; (3) two-way communication between 

customers and the electric distribution company; and (4) communication with and control of a customer’s appliances 

(with permission). See Investigation by the Department of Public Utilities on its own Motion into Modernization of 

the Electric Grid, D.P.U. 12-76-B, (Massachusetts DPU June 12, 2014), p. 11, available at

http://www.mass.gov/eea/docs/dpu/electric/12-76-a-order.pdf. 45 Id. 
December 2016 Assessment of Demand Response and Advanced Metering

Page 10 Federal Energy Regulatory Commission

• Michigan. Consumers Energy expects to complete deployment of advanced meters46 to 

all 1.8 million electricity customers by September 2017.47 The company has been 

deploying advanced meters since August 2012.48

• Minnesota. On June 13, 2015, Governor Dayton signed a new law directing utilities to 

identify investments to modernize the transmission and distribution system by facilitating 

communication between the utility and its customers through the use of two-way meters, 

among other things.49 As stated in a grid modernization report submitted by a Minnesota 

subsidiary of Xcel Energy, the utility is in the early stages of testing and field deployment 

of advanced meters in preparation for the expiration of their advanced meter reading 

(AMR)50 meters.51 The Minnesota Public Utilities Commission (PUC) is also engaged in 

a three-phased grid modernization initiative that started in November 2015.52 As part of 

this initiative, the Minnesota PUC staff issued a report on grid modernization in March 

2016,53 and held a workshop on Integrated Distribution Planning Modernization in 

October 2016.54 

 46 Consumers Energy, Upgraded Consumers Energy Meters Provide Michigan Homes, Businesses with 

Online Access to Energy Use Information, July 1, 2016, available at

https://www.consumersenergy.com/News.aspx?id=8521&year=2016. 47 In the Matter of the Application of Consumer Energy Company for Authority to Increase its Rates for the 

Generation and Distribution of Electricity and for Other Relief, Qualifications and Direct Testimony of Lauren 

Fromm, at 5, Case No. U-17990 (Michigan PSC July 22, 2016), available at

https://efile.mpsc.state.mi.us/efile/docs/17990/0173.pdf. 48 In the Matter, on the Commission’s Own Motion, to Require Consumers Energy Company to Investigate 

and to Submit a Report to the Commission Regarding the Utility’s Estimated Billing Practices, Estimated Billing 

Practices Staff Report, at 23, Case No. U-18002 (Michigan PSC May 18, 2016), available at

https://efile.mpsc.state.mi.us/efile/docs/18002/0004.pdf.

49 Minnesota State Legislature, House File 3 of the 2015 Special Session at ll. 76.24-76.31, approved on 

June 13, 2015, modifying Minn. Stat. §216B.2425, available at

https://www.revisor.mn.gov/bills/text.php?number=HF0003&version=latest&session=89&session_number=1&sessi

on_year=2015. 50 AMR meters “collect data for billing purposes only and transmit this data one way, usually from the 

customer to the distribution utility. Aggregated monthly kWh data captured on these meters may be retrieved by a 

variety of methods including drive-by vans with short-distance remote reading capabilities and communication over 

a fixed network such as a cellular network.” EIA, Form EIA-861 Annual Electric Power Industry Report 

Instructions, Approval: OMB No. 1905-0129, Approval Expires: 05/31/2017, p. 17, available 

at https://www.eia.gov/survey/form/eia_861/instructions.pdf. 51 In the Matter of the 2015 Minnesota Biennial Transmission Projects Report, 2015 Minnesota Biennial 

Transmission & Distribution Grid Modernization Report, at 11, Docket No. E999/M-15-439 (Minnesota PUC Oct. 

30, 2015), available at https://www.xcelenergy.com/staticfiles/xe/PDF/Regulatory/MN-Filings-BiennialTransmission-Grid-Modernization-Report.pdf. 52 In the Matter of the Commission Investigation into Grid Modernization, Notice of Grid Modernization 

Stakeholder Meeting and Final Notice, Docket CI-15-556 (Minnesota PUC Nov. 18, 2015). 53 In the Matter of the Commission Investigation into Grid Modernization, Staff Report on Grid 

Modernization, Docket CI-15-556 (Minnesota PUC March 2016), available at

https://www.edockets.state.mn.us/EFiling/edockets/searchDocuments.do?method=eDocketsResult&docketYear=15

&docketNumber=556#{E04F7495-01E6-49EA-965E-21E8F0DD2D2A}. 54 In the Matter of the Commission Investigation into Grid Modernization, Notice of Grid Modernization 

Stakeholder Meeting and Final Notice, Notice of Integrated Distribution Planning Report and Stakeholder 

Workshop,( Minnesota PUC Sept. 13, 2016), available at

https://www.edockets.state.mn.us/EFiling/edockets/searchDocuments.do?method=showPoup&documentId=%7BBC
Assessment of Demand Response and Advanced Metering December 2016

Federal Energy Regulatory Commission Page 11

• Missouri. In 2015, Ameren Missouri completed installation of over 160,000 advanced 

meters in its service territory.55 The company plans on investing a total of $360 million 

in smart grid infrastructure, including additional advanced metering from 2012-2021.56

• New Hampshire. On July 30, 2015, the New Hampshire Public Utilities Commission 

(PUC) initiated an investigation into grid modernization, including consideration of 

advanced meters.57 On April 1, 2016, the New Hampshire PUC established a formal 

working group to, in part, “investigate the opportunities for different types of advanced 

meters and advanced metering options to provide the functionality needed to support grid 

modernization.”58

• North Carolina. In response to a Duke Energy Carolinas’ proposal to have customers 

who prefer to maintain or have reinstalled analog meters charged a one-time set-up fee of 

$150 and a monthly fee of $11.75 to cover the costs of manual meter reading,59 the North 

Carolina Utilities Commission (NCUC) suspended the proposed charges on July 29, 

2016, required the utility to answer specific NCUC questions on advanced meters, and set 

a timeline for interested party comments.

60 After Duke Energy Carolina responded to the 

NCUC’s advanced metering questions, the North Carolina Attorney General’s Office

requested an extension of time for comments, which the NCUC granted.61

• New York. On March 17, 2016, the New York Public Service Commission (PSC) 

approved a plan by Consolidated Edison (ConEd), to distribute advanced meters to more 

than 3.2 million customers over a six-year period that starts in 2017.62 As approved, 

 

E52F21-2497-4F2D-A70D-02614957A012%7D&documentTitle=20169-124836-01. Attached to this notice is a 

report prepared by ICF International on Integrated Distribution Planning. 55 Ameren, 2015 Annual Report, Feb. 26, 2016, p. 2, available at https://www.ameren.com/-

/media/corporate-site/Files/Reference/AmerenProxyMaterial/Ameren10K.pdf. 56 Id. at 13. 57 Investigation into Grid Modernization, Order of Notice: Electric Distribution Utilities, Docket No. IR 15-

296 (New Hampshire PUC July 30, 2015), available at https://www.puc.nh.gov/Regulatory/Docketbk/2015/15-

296/INITIAL%20FILING%20-%20PETITION/15-296%202015-07-30%20ORDER%20OF%20NOTICE.PDF. 58 Investigation into Grid Modernization, Order on Scope and Process, Docket No. IR 15-296, Order No. 

25,877 at 6, (New Hampshire PUC Apr. 1, 2016), available at

https://www.puc.nh.gov/Regulatory/Docketbk/2015/15-296/ORDERS/15-296_2016-04-01_ORDER_25877.PDF.

59 In the Matter of Application of Duke Energy Carolinas, LLC, for Approval of Advanced Metering 

Infrastructure Opt-Out Tariff, Duke Energy Carolinas, LLC's AMI Opt-Out Rider, Docket No. E-7, Sub 1115 

(NCUC July 29, 2016), available at http://starw1.ncuc.net/NCUC/ViewFile.aspx?Id=992dc118-bf01-42e2-b0b6-

964b14f1dfc1. 60 Id., Order Requesting Comments and Additional Information Regarding Proposed Smart Meter Opt-Out 

Charges, Docket No. E-7, Sub 1115 (NCUC Aug. 11, 2016), available at

http://starw1.ncuc.net/NCUC/ViewFile.aspx?Id=43f8ec35-519e-4dd4-9c26-798ae4a9bbe4.

61 Id., Order Granting Extension of Time to File Reply Comments, Docket No. E-7, Sub 1115 (NCUC 

Nov. 16, 2016), available at http://starw1.ncuc.net/NCUC/ViewFile.aspx?Id=f9a1d816-bee1-488c-be33-

305131b567d4. 62 Proceeding on Motion of the Commission as to the Rates, Charges, Rules and Regulations of 

Consolidated Edison Company of New York, Inc. for Electric Service, Order Approving Advanced Metering 

Infrastructure Business Plan Subject to Conditions, CASE 15-E-0050, (New York PSC Mar. 17, 2016), available at
December 2016 Assessment of Demand Response and Advanced Metering

Page 12 Federal Energy Regulatory Commission

ConEd’s Advanced Meter Infrastructure Business Plan includes 15-minute meter reads 

for residential customers, and five-minute reads for non-residential customers.

63 The New 

York PSC directed ConEd to develop a customer engagement plan, including data access 

and privacy policies, implementation of Green Button Connect My Data, one or more 

pilot projects, and opt-out tariffs.64

• Oklahoma. In mid-2016, Public Service Company of Oklahoma (PSO) completed the 

deployment of advanced meters across its service territory.65 The Oklahoma Corporation 

Commission approved PSO’s collection of revenues for the installation of the meters in 

April 2015.66

• Pennsylvania. In January 2016, Metropolitan Edison Company, Pennsylvania Electric 

Company, Pennsylvania Power Company, and West Penn Power Company initiated fullscale deployment of advanced meters, and forecast installation of approximately 98.5

percent of all meters by mid-2019, and the remainder no later than 2022.67 

• Tennessee. On December 1, 2015, the Memphis City Council approved Memphis Light, 

Gas and Water’s (MLGW) full roll-out of advanced meters, projected for completion by 

2020.68 The deployment is the second phase of MLGW’s two-phase plan to implement 

advanced meters, and is expected to cost $240 million.

• Washington. On January 6, 2016, the Washington Utilities and Transportation 

Commission declined to rule on the prudency of Avista Utilities’ proposal for advanced 

meters.69 The Commission stated that the issue was not ripe for Commission 

determination at the time, but that the company may file a separate accounting petition if 

Avista decides to go forward with its proposal.70 Avista Utilities originally proposed a 

 

http://documents.dps.ny.gov/public/MatterManagement/CaseMaster.aspx?MatterCaseNo=15-E0050&submit=Search. 63 Id., ConEdison Advanced Metering Infrastructure Business Plan at 66 (New York PSC Oct. 15, 2015), 

available at http://documents.dps.ny.gov/public/Common/ViewDoc.aspx?DocRefId={6E51BC25-7CCB-446FB6E0-F84A72880DAC}. 64 See supra note 67. 65 Jim Roth, Roth: PSO, AMI, and ROI, Journal Record, July 22, 2016, available at

http://journalrecord.com/2016/07/22/roth-pso-ami-and-roi-opinion/. 66 Application of Public Service Company of Oklahoma to be in Compliance with Order No. 591185, 

Issued in Cause No. PUD 201100106, Order No. 591186, Cause No. PUD 201300217, (OCC Apr. 14, 2015), 

available at http://imaging.occeweb.com/AP/CaseFiles/occ5114618.pdf. 67 Joint Petition of Metropolitan Edison Company, Pennsylvania Electric Company, Pennsylvania Power 

Company and West Penn Power Company for Approval of their Smart Meter Deployment Plans, 2015 Annual 

Progress Report Smart Meter Technology Procurement and Installation Plan, Docket Nos. 23411990, 2341994, 

2341993, 2341991, (Pennsylvania PUC Aug. 3, 2015, available at http://www.puc.pa.gov/pcdocs/1375241.pdf. 68 MLGW, Smart Grid, available at http://www.mlgw.com/smart-grid. 69 Washington Utilities and Transportation Commission v. Avista Corp, Final Order Rejecting Tariff Filing, 

Accepting Partial Settlement Stipulation, Authorizing Tariff Filings, Dockets UE-150204 and UG-150205, 

(Washington UTC Jan. 6, 2016), available at

http://www.utc.wa.gov/_layouts/CasesPublicWebsite/GetDocument.ashx?docID=1862&year=2015&docketNumber

=150204.70 Id. at 68-71.
Assessment of Demand Response and Advanced Metering December 2016

Federal Energy Regulatory Commission Page 13

six-year project to replace all retail meters with approximately 253,000 advanced 

meters.71 

On July 25, 2016, Seattle City Light obtained approval from the Seattle City Council for 

an updated strategic plan for the years 2017-2022.72 The company plans to invest $94 

million73 to replace approximately 430,000 retail meters with advanced meters, to be 

completed by the year 2019.74

 71 Washington Utilities and Transportation Commission v. Avista Corp, Direct Testimony of Don F. 

Kopczynski, Dockets UE-150204 and UG-150205, (Washington UTC Feb. 2015), available at

http://www.utc.wa.gov/_layouts/CasesPublicWebsite/GetDocument.ashx?docID=114&year=2015&docketNumber=

150204. 72 Resolution 31678: A Resolution relating to the City Light Department; adopting a 2017-2022 Strategic 

Plan for the City Light Department and endorsing a six-year rate path required to support the Strategic Plan, Seattle 

City Council, July 25, 2016, available at

http://seattle.legistar.com/LegislationDetail.aspx?ID=2769630&GUID=D312F4F5-868A-4989-8550-

BCC7AA5E8343&FullText=1. 73 Seattle City Light Strategic Plan Update 2017-2022, A Progress Report on the Future of Your Electric 

Service at 3, (2015), available at http://www.seattle.gov/light/stratplan/docs/strategic_plan_web.pdf. 74 Seattle City Light Strategic Plan Update 2017-2022, Strategic Initiatives Summary at 7, (May 20, 2016), 

available at http://www.seattle.gov/light/stratplan/docs/2017-2022%20Strategic%20Initiatives%20Summary.pdf.
December 2016 Assessment of Demand Response and Advanced Metering

Page 14 Federal Energy Regulatory Commission

Chapter 3: Annual resource contribution of demand resources 

Using the latest publicly available data, this chapter summarizes the annual resource contribution

from retail and wholesale demand response programs on a national and regional basis from 2013 

to 2014, and 2014 to 2015, respectively.

75 Table 3-1 presents data collected by EIA on 2013 and 

2014 potential peak reduction from retail demand response programs within each of the eight

regional electricity councils, as well as Alaska and Hawaii. Nationwide, total potential peak 

reduction76 from retail demand response programs increased by 4,096 megawatts (MW), or 15.1 

percent, between 2013 and 2014. 

Table 3-1: Potential Peak Reduction (MW) from Retail Demand Response Programs by Region 

(2013 & 2014)

Region

Annual Potential Peak 

Reduction (MW)

Year-on-Year Change

2013 2014 MW %

AK 27 27 0 0.0%

FRCC 1,924 3,389 1,466 76.2%

HI 35 41 6 16.5%

MRO 4,264 4,366 102 2.4%

NPCC 467 654 188 40.2%

RFC 5,362 5,006 -355 -6.6%

SERC 8,254 8,343 89 1.1%

SPP 1,594 1,324 -270 -16.9%

TRE 459 613 154 33.5%

WECC 4,681 7,427 2,745 58.6%

Unspecified 28 -- -28 -100.0%

Total 27,095 31,191 4,096 15.1%

Sources: EIA, EIA-861 Demand_Response_2013, Demand_Response_2014, Utility_Data_2013, 

and Utility_Data_2014 data files. 

Note: Figures from source data are rounded to the nearest megawatt for publication. The 

percentage change is calculated based on the unrounded figures. Although some entities may 

operate in more than one NERC Region, EIA data have only one NERC region designation per 

entity. Commission staff has not independently verified the accuracy of EIA data. 

Regionally, however, there were large differences in the change in potential peak reduction from 

2013 to 2014. For example, Table 3-1 above indicates potential peak reduction increased in the 

WECC region by more than 2,700 MW compared to the previous year; this can be attributed

primarily to a large increase in reported savings from commercial and industrial programs 

operated by Southern California Edison. Increased demand response potential in the FRCC 

region was largely due to greater reported savings from FPL’s demand response programs, which 

 75 The latest publicly available retail and wholesale data sets are used to determine the annual resource 

contributions from retail and wholesale demand response programs; these include EIA retail data for 2012 and 2013, 

as well as ISO/RTO wholesale data for 2014. 76 See Supra note 3.
Assessment of Demand Response and Advanced Metering December 2016

Federal Energy Regulatory Commission Page 15

returned to a level last reported in 2012. These gains in demand response potential were offset 

by small drops in potential in other regions, such as RFC and Southwest Power Pool (SPP).

As Table 3-2 illustrates, in 2014, industrial customer demand response represented 16,505 MW, 

or 53 percent, of total potential peak reduction in retail programs, a decrease of two percentage 

points since 2013. Residential customer demand response accounted for 8,118 MW, or 26 

percent, of total potential peak reduction from retail programs in 2014, the same percentage as

the previous year. Demand response programs in the commercial sector accounted for 6,215 

MW, or 20 percent, of total potential peak reduction, up approximately one percent from the 

previous year. The relative contribution by customer class varies by region. For example, 

residential demand response programs account for the largest portion of potential peak reduction 

in FRCC (approximately 49 percent) and MRO (approximately 44 percent). In contrast,

commercial programs account for the majority of potential peak reduction in Alaska, Hawaii, 

NPCC and TRE; and industrial programs account for the majority in RFC, SERC, SPP, and 

WECC. 

Table 3-2: Potential Peak Reduction (MW) from Retail Demand Response Programs by Region and 

Customer Class (2014)

Region

Customer Class

Residential Commercial Industrial Transportation All Classes

AK 5 13 9 0 27

FRCC 1,651 1,318 421 0 3,389

HI 15 26 0 0 41

MRO 1,930 818 1,618 0 4,366

NPCC 58 313 269 14 654

RFC 1,298 678 3,030 0 5,006

SERC 1,706 789 5,848 0 8,343

SPP 129 223 973 0 1,324

TRE 166 345 102 0 613

WECC 1,160 1,692 4,236 339 7,427

All Regions 8,118 6,215 16,505 353 31,191

Source: EIA, EIA-861 Demand_Response_2014 and Utility_Data_2014 data files.

Note: Figures from source data are rounded to the nearest megawatt for publication. Although some entities may 

operate in more than one NERC Region, EIA data have only one NERC region designation per entity. Commission 

staff has not independently verified the accuracy of EIA data. 
December 2016 Assessment of Demand Response and Advanced Metering

Page 16 Federal Energy Regulatory Commission

Table 3-3 below presents potential peak reduction from wholesale demand response programs in 

2014 and 2015. Across all ISO/RTO regions, potential peak reduction rose substantially in 2015 

to 31,754 MW, a 10 percent increase from the previous year, outpacing peak demand growth of 

4 percent. Therefore, the contribution of potential peak reduction to meeting peak demand 

increased to 6.6 percent in 2015, up from 6.2 percent in 2014. 

Regionally, demand response participation increased in three of the seven ISOs/RTOs in 2015: 

PJM, NYISO and ISO-NE. Of these, the largest absolute and percentage increase in megawatts 

occurred in PJM, where demand response potential rose by 24 percent, or almost 2,500 MW. 

Most of this increase was due to significant new enrollment in PJM’s load management products 

compared to 2014, particularly in the ComEd, ATSI, and AEP zones.77 Potential peak reduction 

also increased in NYISO by 9 percent, or 114 MW, due to increased enrollment in the Special 

Case Resources program, a reliability demand response product. Similarly, potential peak 

reduction rose in ISO-NE by 8 percent, or 209 MW, due to increased enrollment in the 

Western/Central Massachusetts, Connecticut, and Northeastern Massachusetts zones. These 

increases in enrollments were offset by a fall in enrollment in the Maine zone, particularly in 

real-time demand response resources.78

In contrast, wholesale demand response potential fell in CAISO, by more than 150 MW, due to 

decreased enrollment in Southern California Edison’s and Pacific Gas and Electric Company’s 

price-responsive demand programs.79 In addition, according to SPP, there has been no loadreducing demand response activity in its Integrated Marketplace since March 14, 2014. Potential 

peak reduction fell to zero in the region in 2015, a decrease from 48 MW in 2014. 

 77 Based on comparison of data from PJM 2014 Demand Response Operations Markets Activity Report

(Apr. 2015), pp. 6-8 and PJM 2015 Demand Response Operations Markets Activity Report (Jan. 2016), pp. 5-6. 78 Based on comparison of data from “ISO-NE Demand Response Asset Enrollment,” presented at Demand 

Resources Working Group Meeting (Jan. 7, 2015) (data as of Jan. 1, 2015), p. 2; and “ISO-NE Demand Resource 

Statistics,” presented at Demand Resources Working Group Meeting (Jan. 20, 2016) (data as of Jan. 1, 2016), p. 2. 79 CAISO, 2015 Annual Report on Market Issues and Performance, Table 1.4, p. 33 (May 2016).
Assessment of Demand Response and Advanced Metering December 2016

Federal Energy Regulatory Commission Page 17

Table 3-3: Potential Peak Reduction from U.S. ISO and RTO Demand Response Programs

RTO/ISO

2014 2015

Potential

Peak 

Reduction

(MW)

Percent 

of Peak 

Demand 8

Potential

Peak 

Reduction

(MW)

Percent of 

Peak 

Demand 8

California ISO (CAISO) 2,316 1 5.1% 2,160 9 4.4%

Electric Reliability Council of Texas (ERCOT) 2,100 2 3.2% 2,100 10 3.0%

ISO New England, Inc. (ISO-NE) 2,487 3 10.2% 2,696 11 11.0%

Midcontinent Independent System Operator (MISO) 10,356 4 9.0% 10,563 12 8.8 %

New York Independent System Operator (NYISO) 1,211 5 4.1% 1,325 13 4.3%

PJM Interconnection, LLC (PJM) 10,416 6 7.4% 12,910 14 9.0%

Southwest Power Pool, Inc. (SPP) 48 7 0.1% 0 15 0%

Total ISO/RTO 28,934 6.2% 31,754 6.6%

Sources:

1 CAISO 2014 Annual Report on Market Issues & Performance, Table 1.3, p. 32 (June 2015)

2 ERCOT Quick Facts (Dec. 2014)

3 ISO-NE Demand Response Asset Enrollment, presented at Demand Resources Working Group Meeting (Jan. 7, 2015) (data 

as of Jan. 1, 2015), p. 2. 4 2014 State of the Market Report for the MISO Electricity Market (June 2015)

5 2014 Annual Report on Demand Side Management Programs of the New York Independent System Operator, Inc., ER01-

3001 (Jan. 15, 2015), Table 1, p. 7

6 PJM 2014 Demand Response Operations Markets Activity Report (Apr. 2015), pp. 3-5. Figure represents “unique MW.” 7 SPP Fast Facts (as of Dec. 31, 2014). 8 Sources for peak demand data include: California ISO 2014 & 2015 Annual Reports on Market Issues and Performance; 

ERCOT 2014 & 2015 Demand and Energy Reports; ISO-NE Net Energy and Peak Load Report (Apr. 2015 & May 2016); 

2014 & 2015 State of the Market Reports for the MISO Electricity Markets; 2014 & 2015 State of the Market Reports for the 

New York ISO Markets; 2014 & 2015 PJM State of the Markets Reports, Vol. 2; SPP Fast Facts (Feb. 2016). 9 CAISO, 2015 Annual Report on Market Issues and Performance, Table 1.4, p. 33 (May 2016)

10 ERCOT Quick Facts (Dec. 2015) 11 ISO-NE Demand Resource Statistics, presented at Demand Resources Working Group Meeting (Jan. 20, 2016) (data as of 

Jan. 1, 2016), p. 2.

12 2015 State of the Market Report for the MISO Electricity Market (June 2015), Table 5, p. 76. 13 2015 Annual Report on Demand Side Management Programs of the New York Independent System Operator, Inc., ER01-

3001 (Jan. 12, 2016), Attachment I, Table 1, p. 7

14 PJM 2015 Demand Response Operations Markets Activity Report (Jan. 2016), pp. 3-4. Figure represents “unique MW.” 15 “[S]ince March 14, 2014, no load-reduction demand response activity has occurred in the Integrated Marketplace." See SPP 

Compliance Filing, Docket No. ER12-1179-024, p. 4 (May 24, 2016). 

Note: Commission staff has not independently verified the accuracy of the RTO, ISO and Independent Market Monitor reports. 

Values from source data are rounded for publication. 
December 2016 Assessment of Demand Response and Advanced Metering

Page 18 Federal Energy Regulatory Commission

Chapter 4: Potential for demand response as a quantifiable, reliable 

resource for regional planning purposes

The North American bulk power system is integrating an increasing level of demand response 

resources, variable energy resources, and distributed energy resources. As a result, NERC is 

considering how these resources can be reliably integrated into the operation and planning of the 

bulk power system,80 and how these resources affect generation and load resources.81 NERC 

asserts that demand response and price-responsive loads provide system operators with 

additional system-balancing tools.

82 To better understand and measure the performance of 

demand response resources, NERC developed and approved four new demand response metrics 

in 2015.83 These new demand response metrics measure enrollment and event information to 

determine actual performance, including the resource’s contribution to improved reliability. 

NERC states that future efforts intend to focus on improving data collection, maintaining data 

quality, and providing observations of possible demand response contributions to reliability.84

 80 NERC, State of Reliability Report, May 2016, p. 5, available at

http://www.nerc.com/pa/RAPA/PA/Performance%20Analysis%20DL/2016_SOR_Report_Final_v1.pdf. 81 NERC, Essential Reliability Services Task Force Measures Framework Report 

Nov. 2015, p. iv, available at

http://www.nerc.com/comm/Other/essntlrlbltysrvcstskfrcDL/ERSTF%20Framework%20Report%20-%20Final.pdf. 82 Id. at 63. 83 NERC, State of Reliability Report, May 2016, pp. 70, 128.

84 Id. at 123.
Assessment of Demand Response and Advanced Metering December 2016

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Chapter 5: Existing demand response programs and time-based rate 

programs and steps taken to ensure that, in regional transmission 

planning and operations, demand resources are provided equitable 

treatment as a quantifiable, reliable resource relative to the resource 

obligations of any load-serving entity, transmission provider, or 

transmitting party

This chapter provides information on demand response programs and time-based rate programs 

in 2013 and 2014, and summarizes recent federal, regional, state, and industry demand response

actions. Tables 5-1 and 5-2 present customer enrollments in incentive-based85 and time-based86

demand response programs for 2013 and 2014, respectively. As shown in Table 5-1, from 2013 

to 2014, the number of customers enrolled in incentive-based programs nationwide increased 

slightly to reach almost 9.3 million customers, after increasing by almost 70 percent in 2013 due 

to grants received under the American Recovery and Reinvestment Act of 2009’s Smart Grid 

Investment Grants for the deployment of advanced meters and associated infrastructure.

87 

On a regional basis, customer enrollment increased by nearly 120 percent in TRE from 2013 to 

2014, to reach more than three hundred thousand customers. EIA data indicates this is due to 

large increases in reported enrollments for programs run by Austin Energy, the City of San 

Antonio, TriEagle Energy, and CenterPoint Energy. Additionally, enrollment in incentive-based 

programs increased by 20 percent in SERC, due to increased enrollment in programs run by

Snapping Shoals Electric Coop, Dominion, Duke, and Louisville Gas & Electric, and by 9 

percent in RFC. Program enrollment fell in other regions, including WECC and NPCC, due to 

lower reported participation by Southern California Edison, PacificCorp, and ConEd, among 

others. 

 85 Incentive-based demand response programs include direct load control, interruptible, demand 

bidding/buyback, emergency demand response, capacity market, and ancillary service market programs. See EIA, 

Form EIA-861 Instructions, Schedule 6-Part C. 86 Time-based rate programs include real-time pricing, critical peak pricing, variable peak pricing, and 

time-of-use rates administered through a tariff. See EIA, Form EIA-861 Instructions, Schedule 6-Part C. 87 U.S. DOE, “Recovery Act Selections For Smart Grid Investment Grant Awards – By State,” updated 

November 2011, available at http://www.energy.gov/oe/downloads/recovery-act-selections-smart-grid-investmentgrant-awards-state-updated-november-2011.
December 2016 Assessment of Demand Response and Advanced Metering

Page 20 Federal Energy Regulatory Commission

Table 5-1: Customer Enrollment in Incentive-based Demand Response Programs, by Region 

(2013 & 2014)

Region

Enrollment in 

Incentive-based Programs Year-on-Year Change

2013 2014 Customers %

AK 2,468 2,428 -40 -2%

FRCC 1,554,830 1,490,073 -64,757 -4%

HI 36,332 36,102 -230 -1%

MRO 1,248,723 1,227,445 -21,278 -2%

NPCC 62,631 51,227 -11,404 -18%

RFC 1,852,985 2,012,846 159,861 9%

SERC 1,084,449 1,303,339 218,890 20%

SPP 193,507 175,146 -18,361 -9%

TRE 138,613 302,913 164,300 119%

WECC 3,002,607 2,651,163 -351,444 -12%

Unspecified 10,205 12,947 2,742 27%

Total 9,187,350 9,265,629 78,279 1%

Sources: EIA, EIA-861 Demand_Response_2013, Utility_Data_2013, Demand_Response_2014, 

and Utility_Data_2014 data files. 

Note: Although some entities may operate in more than one NERC Region, EIA data have only 

one NERC region designation per entity. Commission staff has not independently verified the 

accuracy of EIA data. 

As Table 5-2 indicates, nationwide enrollment in time-based programs increased approximately 

15 percent from 2013 to 2014. The bulk of this increase occurred in the RFC region with more 

than 575,000 new customer enrollments, and the WECC region, with over 270,000 new 

customer enrollments. The pace of new enrollments in 2014 fell well below the 60 percent 

increase experienced in 2013. EIA data indicates the increase in time-based program 

enrollments for the RFC region is largely due to a tripling of enrollment in an existing Baltimore 

Gas & Electric program. The increase in enrollment for the WECC region is primarily due to 

significant enrollment increases in commercial and industrial programs run by Southern 

California Edison. In TRE, enrollment increased significantly, from less than 1,000 to almost 

50,000 customers, primarily as a result of TriEagle Energy residential program participation. 

Data within the table’s “Unspecified” region also shows growth in time-based customer 

participation, reflecting an increase in residential time-based program enrollments for TXU 

Energy Retail and other retail power marketers.88 Decreased enrollment in MRO and SERC 

reflect lower reported participation in programs run by Riverland Energy and Albertville 

Municipal Utilities Board, respectively.

 88 Power marketers are not required to specify a NERC region when responding to the EIA-861 survey. 

See EIA, Form EIA-861, Schedule 2, Part A, available at http://www.eia.gov/electricity/data/eia861/.
Assessment of Demand Response and Advanced Metering December 2016

Federal Energy Regulatory Commission Page 21

Table 5-2: Customer Enrollment in Time-based Demand Response Programs, by Region 

(2013 & 2014)

Region

Enrollment in 

Time-based Programs Year-on-Year Change

2013 2014 Customers %

AK 43 53 10 23%

FRCC 16,203 20,069 3,866 24%

HI 365 466 101 28%

MRO 108,527 94,176 -14,351 -13%

NPCC 258,426 252,323 -6,103 -2%

RFC 1,977,536 2,553,434 575,898 29%

SERC 236,662 203,954 -32,708 -14%

SPP 1,143,774 1,188,004 44,230 4%

TRE 968 49,481 48,513 5012%

WECC 2,146,548 2,416,960 270,412 13%

Unspecified 88,229 115,906 27,677 31%

Total 5,977,281 6,894,826 917,545 15%

Sources: EIA, EIA-861 Dynamic_Pricing_2013 and Dynamic_Pricing_2014 data files. 

Note: Although some entities may operate in more than one NERC Region, EIA data have only 

one NERC region designation per entity. Commission staff has not independently verified the 

accuracy of EIA data. 

FERC demand response orders and activities

On January 25, 2016, the U.S. Supreme Court issued its decision in FERC v. EPSA.

89 The EPSA

decision reversed a May 2014 D.C. Circuit opinion holding that FERC’s demand response 

regulation (Order No. 745) is ultra vires under the Federal Power Act (FPA) because it regulates 

retail sales, and that the demand response compensation directed in Order No. 745 was “arbitrary 

and capricious.”90 Instead, the U.S. Supreme Court found that the Commission had authority to 

adopt Order No. 745 under the FPA. The Court found that “the Rule governs a practice directly 

affecting wholesale electricity rates.”91 In addition, the Court upheld the Order No. 745 

compensation approach. The Court found that the Commission “engaged in reasoned decision 

making”, and that it “selected a compensation formula with adequate support in the record, and 

intelligibly explained the reasons for making that choice.”92

In the last year, the Commission issued orders related to the participation of demand response in 

organized wholesale electric markets. The Commission had delayed action on several orders 

pending the Court’s EPSA decision.

93

 89 136 S. Ct. 760 (2016) (“EPSA”). 90 See EPSA v. FERC, 753 F.3d 216 (D.C. Cir. 2014).

91 EPSA at 33-34. 92 Id. at 33. 93 For example, on April 21, 2016, the Commission issued five orders: Independent Market Monitor for 

PJM v. PJM Interconnection, L.L.C, 155 FERC ¶ 61,059 (2016), Viridity Energy, Inc. v. PJM Interconnection, 
December 2016 Assessment of Demand Response and Advanced Metering

Page 22 Federal Energy Regulatory Commission

In addition to these orders, on June 3, 2016,94 the Commission approved NYISO’s proposed 

revisions to the measurement and verification of demand response facilitated by behind-themeter resources that participate in NYISO’s day-ahead economic demand response program. 

The proposed revisions included changes to the relevant definitions, new measurement and 

verification rules and baseline calculations, metering requirements, and data reporting 

requirements.

The Commission also issued two orders associated with proposals by CAISO that are designed to 

incorporate distributed energy resources (which include demand response) and facilitate energy 

storage. On June 2, 2016,95 the Commission approved CAISO’s distributed energy resource 

provider (DERP) proposal, subject to conditions. The DERP program establishes an initial 

framework to enable resources, such as demand response and storage, connected to distribution 

systems within CAISO’s balancing authority area to form aggregations of 0.5 MW or more and 

participate in CAISO’s energy and ancillary services markets. On August 16, 2016,96 the 

Commission issued an order accepting two tariff revisions associated with CAISO’s Energy 

Storage and Distributed Energy Resources initiative. The first revision allows non-generator 

resources, which may include energy storage resources, to submit their state-of-charge as a bid 

parameter in the day-ahead market and self-manage their state-of-charge and energy limits. Prior 

to this revision, CAISO set the state-of-charge level. The second revision establishes 

performance measurement methodologies that allow CAISO to determine the performance of 

behind-the-meter generator output. This revision will allow the behind-the-meter generator 

output, which may include energy storage resources, to be directly compensated for in the 

markets, and separates actions taken by these resources from facility demand response actions. 

 L.L.C., 155 FERC ¶ 61,060 (2016) , PJM Interconnection, L.L.C., 155 FERC ¶ 61,061 (2016), PJM Interconnection, 

L.L.C., 155 FERC ¶ 61,062 (2016) , and PJM Interconnection, L.L.C. 155 FERC ¶ 61,063 (2016).

94 New York Independent System Operator, Inc., 155 FERC ¶ 61,243 (2016).

95 California Independent System Operator Corporation, 155 FERC ¶ 61,229 (2016). 96 California Independent System Operator Corporation, 156 FERC ¶ 61,110 (2016).
Assessment of Demand Response and Advanced Metering December 2016

Federal Energy Regulatory Commission Page 23

Other federal demand response activities

White House Council of Economic Advisers

In June 2016, the White House Council of Economic Advisers released a report entitled 

Incorporating Renewables into the Electric Grid: Expanding Opportunities for Smart Markets 

and Energy Storage97 in conjunction with a White House event on the topic of scaling renewable 

energy and storage with advanced meters. The report discusses the ever-increasing value of grid 

management services – like demand response – in light of the growing penetration of renewable 

variable energy resources (VERs).98 According to the report, the distinctive characteristics of 

renewable VERs highlight the importance of facilitating programs and technologies like demand 

response and energy storage to help manage steep generation ramping needs to meet net 

electricity load, known in California as the “duck curve”.

99 The report examines in further detail 

four key value streams of demand response programs: (1) reduction of peak generation, thus 

lowering wholesale price spikes; (2) avoided transmission and distribution upgrades; (3) resource 

adequacy requirements; and (4) smoothing steep ramps in net load.100 The report also highlights

specific technologies and approaches for the expansion of demand response. Technologies such 

as smart meters can be used to increase the elasticity of electricity, smart appliances can 

automatically respond to price spikes, and vehicle-to-grid technology can work as another way to 

forego peak generation.101 Additionally, models based on infrastructure as a service as opposed 

to the classic utility model and reforms to interconnection rules can enable demand response to 

participate more broadly.102

Energy Efficiency Improvement Act of 2015

On April 30, 2015, the Energy Efficiency Improvement Act of 2015 became law, enabling 

certain grid-enabled water heaters to participate in demand response programs.103 According to 

the law, an electric resistance water heater previously deemed too inefficient to meet national 

appliance and equipment efficiency standards and commercially offered for sale alongside other 

water heating units,104 is granted an exemption as long it has an energy factor of at least 1.061, is 

larger than 75 gallons, is grid-enabled, and is intended for participation in a demand response 

program.105 Thirty-five states have utilities with water heater load control programs.106

 97 The White House, Incorporating Renewables into the Electric Grid: Expanding Opportunities for Smart 

Markets and Energy Storage, White House Council of Economic Advisers, June 2016, available at

https://www.whitehouse.gov/sites/default/files/page/files/20160616_cea_renewables_electricgrid.pdf.

98 Id. 99 Id. 100 Id. at 28. 101 Id. at 29. 102 Id. at 30.

103 Energy Efficiency Improvement Act of 2015, Pub. L. No. 114-11, 129 Stat. 182 (2015).

104 10 C.F.R. pt. 430.32(d) (2010).

105 Energy Efficiency Improvement Act of 2015, Pub. L. No. 114-11, 129 Stat. 182 at 187 (2015).

106 Katherine Tweed, Congress Passes Bill for Grid-Enabled Water Heaters, Greentech Media, April 22, 

2015, available at http://www.greentechmedia.com/articles/read/congress-comes-together-on-bill-for-grid-enabledwater-heaters.
December 2016 Assessment of Demand Response and Advanced Metering

Page 24 Federal Energy Regulatory Commission

U.S. Environmental Protection Agency: RICE Rule

In 2013, the U.S. Environmental Protection Agency (EPA) issued a final rule that modified the 

national emissions standards and the performance standards to allow backup reciprocating 

internal combustion engines (RICE), i.e., diesel generators, to operate without emissions controls 

for up to 100 hours per year as part of an emergency demand-response program.107 On May 1, 

2015, the United States Court of Appeals for the District of Columbia Circuit (D.C. Circuit) 

reversed the RICE Rule.108 In anticipation of an issuance of a mandate from the D.C. Circuit, on 

April 15, 2016, the EPA issued a guidance memorandum to explain how the EPA intends to 

implement the RICE Rule after issuance of the mandate.109 The EPA’s guidance stated that “it 

was EPA’s view that this change will mean that an engine may not operate in circumstances 

described in the vacated provisions for any number of hours per year unless it is in compliance 

with the emission standards and other applicable requirements of a non-emergency engine.” The 

EPA also stated that a prior 2010 regulation that allowed emergency engines is revoked. On 

May 4, 2016, the D.C. Circuit issued its mandate reversing and remanding the 2013 RICE 

Rule.110

As a result of the reversal of the RICE Rule, affected emergency generators can no longer 

operate when system operators, such as ISOs and RTOs, implement emergency procedures when 

there are inadequate operating reserves (i.e., NERC Emergency Action Alert 2), or participate in 

emergency demand response programs operated by system operators. These affected generators 

can only operate when their host facilities lose off-site power. Therefore, as of May 4, 2016, 

emergency generators can no longer operate unless they are retrofitted to comply with the EPA’s 

national emissions standards.

U.S. Department of Defense

The U.S. Department of Defense (DOD) accounts for the most energy consumed by any agency 

of the federal government.

111 The DOD’s Defense Logistics Agency Energy (DLA Energy) 

provides logistics, acquisition, and technical service assistance to DOD and other government 

agencies on a wide range of energy needs including participation in demand-response 

programs.112 For fiscal year 2015, DOD’s DLA Energy reports that 80 separate demand 

response programs were undertaken by DOD and DOD-supported federal civilian agencies, 

which are located across 15 states and the District of Columbia, totaling more than 236.6 MW, 

 107 See National Emission Standards for Hazardous Air Pollutants for Reciprocating Internal Combustion 

Engines; New Source Performance Standards for Stationary Internal Combustion Engines, 78 Fed. Reg. 6,674 (Jan. 

20, 2013) (“RICE Rule”). 108 See Del. Dep’t of Nat. Res. and Envtl. Control v. EPA, No. 13-1093 (D.C. Cir. May 1, 2015)).

109 U.S. EPA, Office of Air Quality and Standards, Guidance on Vacatur of RICE NESHAP and NSPS 

Provisions for Emergency Engines, April 15, 2016, available at

https://www3.epa.gov/ttn/atw/icengines/docs/RICEVacaturGuidance041516.pdf. 110 Mandate Effectuating the Vacatur in Delaware v. EPA, 785 F. 3d 1 (D.C. Cir. 2015), issued on May 4, 

2016. 111 U.S. DOE, “Defense Department energy use falls to lowest level since at least 1975,” February 4, 2015, 

available at http://www.eia.gov/todayinenergy/detail.cfm?id=19871. 112 U.S. DOD, Defense Logistics Agency Energy, Fiscal Year 2015 Fact Book, pp. 2, 12, available at

http://www.dla.mil/Portals/104/Documents/Energy/Publications/E_Fiscal2015FactBookLowResolution_160707.pdf

?ver=2016-07-08-124636-630.
Assessment of Demand Response and Advanced Metering December 2016

Federal Energy Regulatory Commission Page 25

and netting $3.2 million in savings for the year.113 DLA Energy advises that additional savings 

will continue to be realized on military installations and federal civilian agencies during fiscal 

year 2016 through demand response programs. Additional participation in demand response 

programs may occur due to updated DOD installation energy management procedures issued on 

March 16, 2016. These new procedures will ensure that DOD entities comport with the 

requirements of Executive Order 13693,114 and will facilitate DOD's review of peak shaving and 

demand response opportunities when taking steps to ensure energy resilience.

115

Additionally, DOD’s environmental research programs note that DOD facilities primarily 

participate in demand response programs that require a manual response to email or phone 

notifications instead of employing an automated response, which limit demand response program 

participation to next day or four-hour-notice programs.116 Consequently, one of the 

demonstration projects being funded documents and validates improved performance and cost 

savings by participating in automated, fast response demand response programs.117

U.S. General Services Administration

The U.S. General Services Administration (GSA) manages 376.9 million square feet of building 

space across over 9,600 buildings,118 and relies on demand response programs to help meet 

energy needs.

119 In June 2016, GSA reported that its demand response participation in NYISO 

and PJM programs resulted in $1.6 million in rebates, which were in turn used to fund additional 

energy and water saving projects.120 GSA continues efforts to employ advanced meters and data 

analytics, including an examination of commercial off-the-shelf products to support “smart 

building solutions” that include smaller building systems, improved user interfaces, reduced 

response times, green technologies, and demand response.121 Additionally, in October 2016,

GSA issued a Request for Information to further examine building-level energy storage to 

 113 Id. at 52.

114 On March 19, 2015 President Obama signed Executive Order 13693: Planning for Federal 

Sustainability in the Next Decade, which directs federal agencies to increase efficiency and improve environmental 

performance. Executive Order 13693 3 C.F.R, pp 15871-15884 (2015), available at

http://www.gpo.gov/fdsys/pkg/FR- 2015-03-25/pdf/2015-07016.pdf. 115 U.S. DOD, Department of Defense Instructions, Number 4170.11, December 11, 209, Change 1, 

Effective March 16, 2016, Subject: Installation Energy Management, [Procedure 3.b.(1)(c)], pp. 17-18, available at

http://www.dtic.mil/whs/directives/corres/pdf/417011p.pdf. 116 U.S. DOD, Strategic Environmental Research and Development Program (SERDP) Environmental 

Security Technology Certification Program (ESTCP), Demonstrating Secure Demand Response in DOD, available 

at https://www.serdp-estcp.org/News-and-Events/Blog/Demonstrating-Secure-Demand-Response-in-DoD.

117 DOD SERDP and ESTCP, Market Aware High Performance Buildings Participating in Fast Load 

Response Utility Programs with a Single Open Standard Methodology (EW-201401), available at

https://www.serdp-estcp.org/Program-Areas/Energy-and-Water/Energy/Conservation-and-Efficiency/EW-201401. 118 U.S. GSA, Public Buildings Service, available at http://www.gsa.gov/portal/content/104444.

119 U.S. GSA, 2015 Strategic Sustainability Performance Plan, July 9, 2015, available at

http://www.gsa.gov/portal/mediaId/119682/fileName/GSA_FY_2015_SSPP_Final.action. 120 U.S. GSA, “GSA’s Northeast and Caribbean Region Reaches $1.6 Million Mark in Demand Response 

Rebate,” The GSA Bog, June 15, 2016, available at

https://gsablogs.gsa.gov/gsablog/2016/06/15/region-2-reaches-1-6-million-mark-in-demand-response-rebate/ 121 Mark Ewing (Energy Division Director, GSA National Office), Strategic Vision for GSA Energy, 

August 2015, p. 16, available at

http://energy.gov/sites/prod/files/2015/08/f25/T1S1_Ewing.pptx.
December 2016 Assessment of Demand Response and Advanced Metering

Page 26 Federal Energy Regulatory Commission

facilitate demand response, enhance resiliency, and explore potential replacement of emergency 

back-up generation units.122

U.S. Department of Veteran’s Affairs

The U.S. Department of Veteran’s Affairs (VA) is the federal government’s largest civilian 

agency with 1,897 facilities123 totaling 151.5 million gross square feet.124 The VA’s Sustainable 

Design Manual incorporated demand response programs as a site option,125 and, in addressing 

the Executive Order 13693 requirements, continues to evaluate the appropriateness of demand 

response in different types of existing buildings.126

State legislative and regulatory activities related to demand response

This section highlights developments in retail demand response and time-based pricing activities. 

States continue to use demand response as an important resource, including the use of demand 

response to meet state policy goals related to modernization of the grid and the electric industry, 

and are increasingly looking towards new technologies to facilitate demand response.

• California. In April 2016, Lawrence Berkeley National Laboratory (LBNL) released 

Phase I of a study for the California Public Utilities Commission (PUC) on the topic of 

leveraging smart meter data to estimate the potential for demand response and advanced 

behind-the-meter storage to provide cost-effective resources as part of California’s future 

electricity system.127 The LBNL Phase 2 report will explore the potential for demand 

response and distributed energy resources to meet capacity, ancillary services, ramping, 

and flexibility needs in California.128

On June 9, 2016, the California PUC approved proposals from the state’s three investorowned utilities (IOUs) for 2017 demand response programs and activities. The 

California PUC approved $59.9 million for Pacific Gas and Electric Company, $23.8 

million for San Diego Gas & Electric (SDG&E), and $56.28 million for Southern 

 122 GSA, Request for Information (RFI) to obtain information on energy storage systems in order to assist 

GSA in evaluating the feasibility of energy storage systems in various locations, October 31, 2016, Solicitation 

Number: GS-00P-17-BSD-1232, available at 

https://www.fbo.gov/index?s=opportunity&mode=form&id=910181950d158c022391072c502461c0&tab=core&_c

view=1 123 U.S. Department of Veteran’s Affairs (DVA), Locations, available at

http://www.va.gov/directory/guide/home.asp. 124 U.S. DVA, 2015 Strategic Sustainability Performance Plan, p. 2, available at

http://www.green.va.gov/docs/2015VAsspp.pdf. 125 U.S. DVA, Office of Construction & Facilities Management, Sustainable Design Manual, available at

http://www.cfm.va.gov/til/sustain/dmSustain.pdf. 126 U.S. DVA, 2015 Strategic Sustainability Performance Plan, p. 40. 127 LBNL, 2015 California Demand Response Potential Study: Charting California’s Demand Response 

Future, Interim Report on Phase 1 Results, April 1, 2016, available at

http://www.cpuc.ca.gov/WorkArea/DownloadAsset.aspx?id=10632. 128 Id. at 3.
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Federal Energy Regulatory Commission Page 27

California Edison.129 The California PUC also adopted a separate $11.8 million proposal 

by Southern California Edison to continue its Demand Bidding Program to help alleviate 

the effects of the natural gas leak at Southern California Gas Company’s Aliso Canyon 

Storage Facility.130

As part of an effort to bifurcate utility demand response programs into demand- and 

supply-side resources and then integrate demand response resources into the California 

Independent System Operator’s (CAISO) markets by 2018, the California PUC 

established a Demand Response Auction Mechanism (DRAM) pilot for third parties to 

provide demand response outside of utility programs. During the pilot, the IOUs and 

third parties offer portions of their own demand response portfolios into the CAISO 

market. The first deliverables of this program started on June 1, 2016, and the IOUs are 

currently in the process of selecting bids.131 The California PUC has also authorized 

Automated Demand Response Programs that provide incentives to customers who invest 

in technologies (such as energy management systems) that automate load reduction in 

response to a signal from a utility or third-party demand response provider. As a 

condition of receiving these incentives, the customer is required to remain in the demand 

response program for at least three years. Participants receive 60 percent of the total 

program incentive after installation of the equipment and the remaining 40 percent upon 

verification of performance during a full demand response season.132

Also, with the permanent retirement of the San Onofre Nuclear generation station, 

SDG&E is seeking offers for up to 140 MW of new "preferred energy resources",

including demand response, distributed generation, energy efficiency, energy storage, and 

renewable energy to meet local capacity requirements.133 After receiving and evaluating 

offers, SDG&E expects to submit its selected agreements to the California PUC for 

approval in early- to mid-2017.134

• Colorado. In 2015, Public Service Company of Colorado (PSCo) offered three types of 

demand response products (direct load control, interruptible demand response, and nondispatchable demand response) and realized 10.5 MW largely through PSCo’s residential 

air conditioning program.

135 PSCo is also offering a building optimization software 

 129 Order Instituting Rulemaking to Enhance the Role of Demand Response in Meeting the State's Resource 

Planning Needs and Operational Requirements, Rulemaking 13-09-011, Decision 16-06-029 (California PUC June 

9, 2016), available at http://docs.cpuc.ca.gov/PublishedDocs/Published/G000/M163/K467/163467479.PDF. 130 Id. 131 California PUC, California Smart Grid: Annual Report to the Governor and Legislature, January 1, 

2016, p. 12, available at 

http://www.cpuc.ca.gov/uploadedFiles/CPUC_Website/Content/Utilities_and_Industries/Energy/Reports_and_Whit

e_Papers/2015SmartGridAnnualReport.pdf. 132 Id. at 13. 133 SDG&E, SDG&E 2016 Preferred Resources Local Capacity Requirement Request for Offers, available 

at http://www.sdge.com/procurement/2016PrefResourcesLCRRFO. 134 Id. 135 Xcel Energy, Demand-Side Management Annual Status Report Electric and Natural Gas Public Service 

Company of Colorado March 30, 2016, Proceeding No. 14A-1057EG, p. 85, available at
December 2016 Assessment of Demand Response and Advanced Metering

Page 28 Federal Energy Regulatory Commission

evaluation pilot, and separately noted the impacts of new EPA back-up generator 

emission rules upon customer participation.

136

On September 18, 2015, Black Hills/Colorado Electric Utility Company (Black Hills) 

and settling parties submitted a settlement agreement regarding Black Hills’ electric 

demand side management plan for 2016-2018.137 On December 8, 2015, the settlement 

agreement, which includes a proposal to develop a residential and/or small commercial 

pilot focused on studying demand response potential as well as energy savings from 

adoption of smart thermostats,138 was recommended for approval by the assigned 

administrative law judge.139

• Hawaii. On December 30, 2015, the Hawaiian Electric Company (HECO) and its 

subsidiaries, submitted an interim Demand Response Portfolio proposal to the Hawaii 

PUC.140 Developed in accordance with HECO’s Integrated Demand Response Portfolio 

Plan (IDRPP),141 the proposal provides for a portfolio of demand response program 

tariffs as well as a reporting schedule and associated cost recovery. On April 1, 2016, 

HECO also submitted its Power Supply Improvement Plan Update to the Hawaii PUC,142

which includes a proposal to implement a demand response management system to 

provide customers with more options and to increase integration of rooftop solar. HECO 

also intends to implement demand response management system software by mid-2017 

that will serve as the platform for the consolidated demand response programs and 

leverage distributed energy resources.143 

 

https://www.xcelenergy.com/staticfiles/xe-responsive/Admin/Managed%20Documents%20&%20PDFs/2015-CODSM-Annual-Status-Report.pdf. 136 Id. at 85-86. 137 In the Matter of the Application of Black Hills/Colorado Electric Utility Company, LP for Approval of 

Its Electric Demand Side Management (DSM) Plan for Program Years 2016-2018 and for Approval of Revisions to 

Its Electric DSM Cost Adjustment Tariff, Proceeding No. 15A-042E, Decision No. R15-1292, (Colorado PUC, Dec. 

8, 2015), available at 

https://www.dora.state.co.us/pls/efi/efi_p2_v2_demo.show_document?p_dms_document_id=603724&p_session_id

=. 138 Id. at 28.

139 In the Matter of the Application of Black Hills/Colorado Electric Utility Company, LP for Approval of 

Its Electric Demand Side Management (DSM) Plan for Program Years 2016-2018 and for Approval of Revisions to 

Its Electric DSM Cost Adjustment Tariff, Settlement Agreement, Proceeding No. 15A-042E (Colorado PUC, Sept. 

18, 2015).140 For Approval of Demand Response Program Portfolio Tariff Structure, Reporting Schedule, and Cost 

Recovery of Program Costs through the Demand-Side Management Surcharge, Docket No. 2015-0412, (Hawaii 

PUC Dec. 30, 2015). 141 In November of 2015, HECO filed its revised IDRPP, along with a consolidated demand response 

program application. See Integrated Demand Response Portfolio Plan, Supplement: System Response Requirements 

(Revised), Docket No. 2007-0341, (Hawaii PUC Nov. 20, 2015). 142Instituting a Proceeding to Review the Power Supply Improvement Plans for Hawaiian Electric 

Company, Inc., Hawaiian Electric Light Company, Inc., and Maui Electric Company, Limited, Docket No. 2014-

0183, (Hawaii PUC Apr. 1, 2016). 

143Application for Approval to Defer Certain Computer Software Development Costs or a Demand 

response Management System, to Accumulate an Allowance for Funds Used During Construction, Etc., Docket No. 

2015-0411, (Hawaii PUC Dec. 30, 2015). 
Assessment of Demand Response and Advanced Metering December 2016

Federal Energy Regulatory Commission Page 29

• Idaho. In March 2016, Idaho Power reported successful operation of all three of its 

demand response programs for 2015.144 The company realized a total demand reduction 

of 367 MW from 385 MW of enrolled capacity.145 

• Illinois. In October 2015, Chicago and Cook County initiated participation in the 

Combined Capacity Asset Performance Project (CCAP) pilot in collaboration with the 

Environmental Defense Fund and PJM Interconnection.146 Phase I of the pilot project 

combines variable renewable energy resources, distributed energy resources and the 

demand response potential of 60 buildings into combined capacity performance assets 

that are then bid into the PJM capacity market.147 Phase II will evaluate the inclusion of 

residential buildings using controllable thermostats to create a year-round resource.148 

In December 2015, ComEd partnered with MeterGenius to launch a six-month pilot 

program in which a selection of customers are given access to mobile software that 

allows them to budget and track their energy use by the hour, day, week, or month, and 

also receive monthly communications with customized energy-saving tips. Customers 

enrolled in the pilot program participate in energy reduction competitions and earn points 

redeemable for gift cards or other energy efficient products.149 The pilot is one of several 

efforts undertaken through ComEd’s “SmartGridExchange” initiative, which is designed 

to bring new energy management options to customers and has been developed through

third-party and university partnerships.150

• Massachusetts. On January 28, 2016, Massachusetts Department of Public Utilities 

(DPU) approved state utilities’ 2016-2018 Three Year Energy Efficiency Plans, which 

included early efforts to develop new demand response strategies.151 Two utilities, Cape 

Light Compact and National Grid, proposed specific demand response demonstration 

projects, and both utilities will explore electric vehicle charging during off-peak times as 

a demand response strategy. The Massachusetts Energy Efficiency Advisory Council, 

 144 Idaho Power, Annual Demand Side Management 2015 Report, available at

https://www.idahopower.com/EnergyEfficiency/reports.cfm. Note The Idaho Power service area includes portions 

of eastern Oregon, and the annual report aggregates data for the two states. Idaho Power’s Oregon-based demand 

response programs are approved by the Public Utility Commission of Oregon and funded via the Oregon Rider. 145 Id. at 8. 146 Environmental Defense Fund, Groups Launch Pilot to Demonstrate New Approaches for Demand 

Response in Chicago, October 6, 2015, available at https://www.edf.org/media/groups-launch-pilot-demonstratenew-approaches-demand-response-chicago. 147 Andrew Barbeau, Accelerate Group, Combined Capacity Asset Performance Project, PJM Seasonal 

Capacity Resources Senior Task Force presentation, June 6, 2016, p. 4, available at

http://www.pjm.com/~/media/committees-groups/task-forces/scrstf/20160606/20160606-item-02-combinedcapacity-asset-performance.ashx. 148 Id. 149 News Release, Commonwealth Edison Company (ComEd), ComEd and Technology Start-Up 

MeterGenius Join Forces to Help Customers Save Energy and Money (Dec.17, 2015), available at

https://www.comed.com/News/Documents/newsroomreleases_12172015.pdf. 150 Id. 151 Three-Year Plans 2016-2018, D.P.U. Docket Nos 15-160 through D.P.U. 15-169, 2016-2018 ThreeYear Energy Efficiency Plans Order, p. 134, (Massachusetts DPU Jan. 28, 2016), available at

http://www.mass.gov/eea/docs/dpu/energy-efficiency-three-year-plans-order-1-28-16.pdf
December 2016 Assessment of Demand Response and Advanced Metering

Page 30 Federal Energy Regulatory Commission

which is charged with reviewing required statewide electric and gas energy efficiency 

plans prepared by the state’s utilities, has identified demand response as a priority for 

2016 through 2018,152 and Massachusetts utilities are participating in a demand savings 

group to evaluate potential demand response strategies.153

• Michigan. In November 2015, Consumers Energy Company filed an application with 

the Michigan Public Service Commission (PSC) seeking authority to adjust its rate design 

and other tariff related issues. Under Consumers Energy’s current pilot direct load 

management tariff, the company is permitted to cycle participants’ air conditioning off 

only during certain peak times of the day.154 Consumers Energy proposed to remove the 

time limits and allow cycling at any time. In November 2015, the Michigan PSC found 

that the pilot direct load management tariff should be adjusted to authorize curtailment 

during off-peak hours, but only if directed by the regional grid operator in an 

emergency.155

Consumers Energy also requested that the limit on callable peak event days under its 

dynamic peak pricing (DPP) tariff be removed. The current tariff allows for a maximum 

of eight peak event days annually. Consumers Energy argued that limiting the peak days 

could result in the disqualification of the DPP program as a load managing resource 

(LMR) under MISO’s program. The Michigan PSC denied this request recognizing that 

“there may need to be some changes to existing retail tariffs to align with wholesale rules, 

but that there may also be opportunities to shape wholesale rules to accommodate 

different demand response products at the retail level.”156 The Michigan PSC held that a 

change in the number of event days in the year is not necessary at this time, and directed 

Consumers Energy to provide more complete evidence of MISO’s LMR requirements if 

it wishes to make changes in the future. 

• New York. In August 2016, ConEd held its first demand response auction as part of the 

Brooklyn Queens Neighborhood Program resulting in 10 offers being accepted for 22 

MW of demand response by 2018.157 ConEd undertook the effort to defer the 

construction of a $1.2 billion substation, and agreed to pay the demand response 

providers amounts ranging from $215 to $988 per kilowatt per year.

As part of Reforming the Energy Vision initiative, National Grid’s July 1, 2016 Initial 

Filing to the New York PSC for the Demand Reduction Demonstration Project in the 

town of Clifton Park proposes to install advanced meters, which will provide customers 

access to near real-time data about their electric consumption, allow valuation of demand 

 152 Id. at 134. 153 Id. at 26. 154 In the Matter of the Application of Consumers Energy Company for Authority to Increase its Rates for 

the Generation and Distribution of Electricity and for Other Relief, Case No. U-17735, (Michigan PSC Nov. 19, 

2015), available at http://www.dleg.state.mi.us/mpsc/orders/electric/2015/u-17735_11-19-2015.pdf. 155 Id. at 101. 156 Id. at 100. 157 New Release, Con Edison Takes New Approach To Rewarding Customers for Smart Usage, August 5, 

2016, available at https://www.coned.com/newsroom/news/pr20160805.asp.
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response and capacity payments to residential customers, as well enable price signal 

services such as peak time rewards and time-of-use and demand rates.158 

• Oregon. On March 8, 2016, Oregon enrolled comprehensive electric legislation 

requiring, in part, that, electric companies, as directed by the Oregon PUC, plan for and 

pursue acquisition of cost-effective demand response resources.159 Oregon PUC staff 

held an April 21, 2016 workshop with stakeholders and presented a preliminary 

implementation timeline, with demand response programs potentially being considered in 

the third quarter of 2017.160 

On April 28, 2016, Portland General Electric (PGE) reported favorable results on the 

company’s latest Automated Demand Response (ADR) pilot program to the Oregon 

PUC, stating that it learned a tremendous amount about the marketing of demand 

response to large customers and the ability of an ADR program to help cost-effectively 

meet capacity needs on peak days.161 PGE requested a one-year extension of the ADR 

pilot program, and if results are again favorable, to treat the ADR program in a manner 

similar to other power cost and capacity resources.162

• Rhode Island. In its 2016 System Reliability Procurement Report, National Grid 

proposes to continue its ongoing load curtailment pilot program and is seeking enough 

customers to provide 1 MW of load reduction by the end of 2017. If the program is 

successful in demonstrating sustained load relief over the six-year pilot period from 

2012-2017, the pilot program will defer construction of a new substation feeder estimated 

to cost $2.93 million. To increase participation in the remaining two years of the project, 

National Grid proposes to continue all incentives offered in 2015, and to begin offering a 

limited number of wi-fi thermostats to customers directly and with a reduced customer 

co-pay, rather than through the previous mail-in rebate program.163 National Grid intends 

to install 51 kW of planned demand response capacity in 2016.164 National Grid also 

 158 Proceeding on Motion of the Commission in Regard to Reforming the Energy Vision, Case No. 14-M0101, National Grid Proposed REV Demonstration Project Filing (New York PSC July 1, 2016), pp. 7-12, available 

at http://documents.dps.ny.gov/public/Common/ViewDoc.aspx?DocRefId=%7BDE450E2B-D82F-4046-8B79-

BEAD03927CAB%7D. 159 Oregon State Legislature, 2016 Legislative Session Information, Senate Bill 1547 Enrolled Elimination 

of Coal from Electric Supply, available at

https://olis.leg.state.or.us/liz/2016R1/Downloads/MeasureDocument/SB1547/Enrolled 160 Derek Green, Oregon PUC outlines ambitious schedule for implementation of Clean Electricity 

programs, Davis Wright Tremaine LLP Energy & Environmental Law Blog, April 25, 2016, available at

http://www.energyenvironmentallaw.com/2016/04/25/oregon-puc-outlines-ambitious-schedule-for-implementationof-clean-electricity-programs/ 161 In the Matter of Portland General Electric Company’s Automated Demand Response Interim Report, 

Docket No. RE 126, UM 1514 PGE/Second Automated Demand Response Interim Report RE 126 (5), (Oregon 

PUC Apr. 28, 2016), available at http://edocs.puc.state.or.us/efdocs/HAQ/re126haq111649.pdf 162 Id. 163 The Narragansett Electric Company, d/b/a National Grid 2016 System Reliability Procurement Report, 

Docket No. 458, National Grid 2016 System Reliability Procurement Report, (Rhode Island PUC Oct. 15, 2015), 

available at http://www.ripuc.org/eventsactions/docket/4581-NGrid-2016-SRP(10-14-15).pdf. 164 Id., National Grid Presentation to the Rhode Island Public Utilities Commission, Dec. 2, 2015, available 

at http://www.ripuc.ri.gov/eventsactions/docket/4581-NGrid-Presentation(12-2-15).pdf.
December 2016 Assessment of Demand Response and Advanced Metering

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reports that 85 percent of the planned demand response assumption was met during 

demand response events in 2015.

The State of Rhode Island is also seeking assistance in identifying state-owned and other 

facilities eligible to provide demand response capabilities that can be enrolled in the ISO 

New England forward capacity market.165

 165 State of Rhode Island Department of Administration Division of Purchases, Request for Proposal (RFP) 

# 7550564 TITLE: Demand Response Services, April 21, 2015, available at

http://www.purchasing.ri.gov/RIVIP/StateAgencyBids/7550564.pdf.
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Chapter 6: Regulatory barriers to improved customer participation in 

demand response, peak reduction, and critical period pricing 

programs

The 2009 National Assessment of Demand Response Potential166 and previous annual reports 

describe the barriers to customer participation in demand response. The federal government and 

state and local governments continue to address outstanding barriers to demand response. 

Recent actions are presented below.

• Implementing Time-based Pricing. As previously reported, several state commissions 

(e.g., California PUC and the Massachusetts DPU) have begun to take action to introduce 

time-based rate structures for their customers. In the past year, an additional driver for 

the deployment of time-based rates gained momentum – state net energy metering 

policies. Time-based pricing for customers with rooftop solar panels is being offered as a 

compromise to resolve conflicts over state net energy metering policies. For example, in 

January 2016, the California PUC issued its decision on net energy metering.167 

According to the new policy, net-metered California solar customers will be required to 

move to time-of-use (TOU) rates that charge different prices during different times of the 

day. More recently, Xcel Energy and Colorado solar interests filed a compromise in 

August 2016 in the utility's general rate case that would avoid new grid fees, prevent cuts 

in payments to solar owners, and institute TOU rates, among other changes.168

• Lack of Additional Market Opportunities. As previous FERC staff assessments have 

found, the vast majority of demand response programs were implemented by electric 

utilities and balancing authorities, such as ISOs and RTOs, to act as emergency resources 

or to provide opportunities for demand response to directly participate in retail and 

wholesale markets. Other opportunities for monetizing demand response were in the 

minority and generally lacking. This dynamic is starting to change and additional market 

opportunities are beginning to be created for demand response to provide additional 

value. The use of demand response to provide distribution-level benefits and deferral of 

infrastructure continues in New York. ConEd held its first auction for demand response 

capacity under its Brooklyn-Queens Neighborhood Project, which seeks to cut customer 

usage to defer a substation investment. In August 2016, ConEd accepted offers for 22 

MW of demand reductions from 10 providers.169 Utilities, such as HECO, are utilizing 

 166 FERC, A National Assessment of Demand Response Potential, June 2009, available at

http://www.ferc.gov/legal/staff-reports/06-09-demand-response.pdf. 167 Decision Adopting Successor to Net Energy Metering Tariff, Decision 16-01-044, January 28, 2016 

Rulemaking 14-07-002, (California PUC Jan 28, 2016), available at

http://docs.cpuc.ca.gov/PublishedDocs/Published/G000/M158/K181/158181678.pdf. 168 In the Matter of the Application of Public Service Company of Colorado for Approval of Its Solar 

Connect Program, Proceeding No. 16A-0055E, Joint Motion to Consolidate Proceedings, Approve Non-Unanimous 

Comprehensive Settlement Agreement, Adopt Procedures, and Unopposed Request for Shortened Response Time at 

12, available at https://www.dora.state.co.us/pls/efi/EFI.Show_Filing?p_fil=G_678021&p_session_id=.

169 See supra note 169.
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demand response programs as a means to support the integration of distributed energy 

resources. New smart devices, such as the Nest smart thermostat, are being increasingly 

integrated into utility demand response programs. Nest recently announced a deal with 

Southern California Edison to sign up 50,000 of the utility’s customers to a Rush Hour 

Rewards program designed to adjust thermostat setting to reduce 50 MW of demand. 

Southern California Edison’s customers can receive a bill credit of as much as $125 for 

participating.170 

• Coordination of Federal and State Policies. A lack of coordination among policies at 

the federal and state levels could slow the development of demand response resources. 

While additional coordination is warranted, progress continues to occur. For example, as 

discussed above, the California PUC established the DRAM pilot to include demand 

response in the CAISO market. The California PUC’s goal is to integrate all supply-side 

demand into CAISO wholesale markets by 2018.171 

 170 Nest, Get paid up to $125 without lifting a finger, available at https://nest.com/energypartners/southern-california-edison/. 171 See Supra note 141.