Court of Appeals of Indiana | Opinion 18A-EX-140 | February 19, 2019 Page 1 of 25

ATTORNEYS FOR APPELLANT

Jennifer A. Washburn

Margo Tucker

Citizens Action Coalition of Indiana, 

Inc.

Indianapolis, Indiana

ATTORNEYS FOR APPELLEE

Robert E. Heidorn

P. Jason Stephenson

Vectren Corporation

Evansville, Indiana

Wayne C. Turner

Patrick A. Ziepolt

Hoover Hull Turner LLP

Indianapolis, Indiana

I N T H E

COURT OF APPEALS OF INDIANA

Citizens Action Coalition of 

Indiana, Inc.,

Appellant-Intervenor,

v.

Southern Indiana Gas & Electric 

Company d/b/a Vectren Energy 

Delivery of Indiana, Inc.,

Appellee-Petitioner.

February 19, 2019

Court of Appeals Case No.

18A-EX-140

Appeal from the Indiana Utility 

Regulatory Commission

The Honorable David E. Ziegner, 

Commissioner

The Honorable Loraine L. 

Seyfried, Chief Administrative 

Law Judge

IURC Cause No.

44927

Brown, Judge. 
Court of Appeals of Indiana | Opinion 18A-EX-140 | February 19, 2019 Page 2 of 25

[1] Southern Indiana Gas & Electric Company d/b/a Vectren Energy Delivery of 

Indiana, Inc. (“Vectren South” or “Petitioner”) filed a petition with the Indiana 

Utility Regulatory Commission (“Commission”) seeking approval of its energyefficiency Electric Demand Side Management1

(“DSM”) Plan for 2018-2020

(“Plan”). Citizens Action Coalition of Indiana, Inc. (“CAC”) intervened in the 

proceeding. Following an evidentiary hearing, the Commission issued its 

decision (“Order”) that approved the Plan in its entirety, including a revised lost 

revenue recovery proposal that Vectren South had presented. CAC now 

appeals from the Commission’s Order, raising the following issues which we 

restate as follows: 

I. Whether the Commission’s Order is contrary to law; 

II. Whether the Commission’s Order impermissibly deviates

from precedent;

III. Whether the Commission’s Order is supported by substantial 

evidence; and

IV. Whether the Commission’s approval of Vectren South’s 

energy efficiency goals is improper.

We affirm.

 

1 According to Vectren South, Demand Side Management programs “are designed to reduce electricity 

consumption at a certain time – typically the time when customers are collectively maximizing demand on 

the electric system.” Appellee’s Brief at 10 n.2.
Court of Appeals of Indiana | Opinion 18A-EX-140 | February 19, 2019 Page 3 of 25

Facts and Procedural History

[2] Vectren South is a public utility based in Evansville that provides electric utility 

service to approximately 140,000 customers in six counties in southwestern 

Indiana. In 2015, the General Assembly passed a statute, Indiana Code § 8-1-

8.5-10 (2015) (“Section 10”), requiring electricity suppliers2to (among other 

things) periodically present to the Commission energy efficiency (“EE”) plans,

goals, and programs3for approval by the Commission beginning no later than

2017. See Ind. Code § 8-1-8.5-10(h). The statute specifically provides as 

follows:

(h) Beginning not later than calendar year 2017, and not less than 

one (1) time every three (3) years, an electricity supplier shall 

petition the commission for approval of a plan that includes:

(1) energy efficiency goals;

 

2

“Electricity supplier” means a public utility “that furnishes retail electric service to customers in Indiana.” 

Ind. Code § 8-1-8.5-10(a). The term does not include a municipally owned utility and certain other 

corporations. Id.

3

“Energy efficiency” means “a reduction in electricity use for a comparable level of electricity service.” Ind. 

Code § 8-1-8.5-10(b). “Energy efficiency goals” means “all energy efficiency produced by cost effective plans 

that are: (1) reasonably achievable; (2) consistent with an electricity supplier’s integrated resource plan; and 

(3) designed to achieve an optimal balance of energy resources in an electricity supplier’s service territory.” 

Ind. Code § 8-1-8.5-10(c). “Energy efficiency program” or “program” means “a program that is: (1) 

sponsored by an electricity supplier; and (2) designed to implement energy efficiency improvements. The 

term does not include a program designed primarily to reduce demand for limited intervals of time, such as 

during peak electricity usage or emergency conditions.” Ind. Code § 8-1-8.5-10(d). According to Vectren 

South, energy efficiency (“EE”) programs “are sometimes called demand side management, or DSM,

programs.” Appellee’s Brief at 10 n.2. 
Court of Appeals of Indiana | Opinion 18A-EX-140 | February 19, 2019 Page 4 of 25

(2) energy efficiency programs to achieve the energy 

efficiency goals;

(3) program budgets and program costs; and

(4) evaluation, measurement, and verification 

[(“EM&V”)

4

] procedures that must include independent 

evaluation, measurement, and verification.

An electricity supplier may submit a plan required under this 

subsection to the commission for a determination of the overall 

reasonableness of the plan[5]either as part of a general basic rate 

proceeding or as an independent proceeding. . . .

Id. 

[3] As an incentive for participation, the General Assembly included provisions 

within the statute allowing electricity suppliers, such as Vectren South, to 

recover certain costs associated with their EE plans, including lost revenues.

6

 

 

4

“Evaluation, measurement, and verification (EM&V) is the collection of methods and processes used to 

assess the performance of energy efficiency activities so planned results can be achieved with greater certainty 

and future activities can be more effective.” DEPT. OF ENERGY, EVALUATION, MEASUREMENT, AND 

VERIFICATION OF ENERGY DATA, https://www.energy.gov/eere/slsc/evaluation-measurement-andverification-energy-data (last visited Jan. 15, 2019). 

5

In determining the overall reasonableness of the plan, the Commission is required to consider ten factors.

See Ind. Code § 8-1-8.5-10(j). 

6 Lost revenues can be described as: “the fixed costs previously approved by the Commission and included in 

rates that are not recovered as a result of the implementation of EE programs.” Exhibits Volume 2 at 102. 

According to Vectren South, “the purpose of recovery of lost [revenue] on verified energy savings from DSM 

programs is to return the utility to the position it would have been in absent implementation of a DSM 

measure.” Id. (internal quotations and emphasis omitted). 
Court of Appeals of Indiana | Opinion 18A-EX-140 | February 19, 2019 Page 5 of 25

See Ind. Code § 8-1-8.5-10(o) (“If the commission finds a plan submitted by an 

electricity supplier under subsection (h) to be reasonable, the commission shall 

allow the electricity supplier to recover or receive the following: . . . (2) 

Reasonable lost revenues.”). As explained by Vectren South: “When 

ratepayers use less electricity, because of energy efficiency programs, they are 

saving money. The utility is similarly losing revenue due to decreased sales of 

electricity.” Appellee’s Brief at 11. The instant case stems from the 

Commission’s approval of Vectren South’s Plan in its entirety, including 

Vectren South’s revised proposal to recover lost revenue. 

[4] On April 10, 2017, Vectren South filed a petition with the Commission seeking 

approval of its Plan, which outlined Vectren South’s EE programs and their 

budgets and costs. The Plan had an estimated cost of $28.6 million, with $9.5 

million in 2018, $9.6 million in 2019, and $9.5 million in 2020. The Plan 

included a portfolio of programs designed to achieve 111 million kilowatt hours 

(“kWh”) in energy savings and 26 thousand kilowatts (“kW”) in demand 

reduction during the three-year period. The Plan also included a request for 

approval to recover, over the life of the measure,

7

lost revenues resulting from 

 

7

“Measure” is defined in pertinent part as “[s]pecific energy efficiency activities or equipment.” DEPT. OF 

ENERGY, ENERGY EFFICIENCY & RENEWABLE ENERGY 1, https://www.energy.gov/sites/prod/files/2014/

05/f16/what_is_emv.pdf (last visited Jan. 15, 2019). 

“Measure life” is widely defined as “the average/median life over many data points, or customer 

experiences, of a particular EE program. It takes into consideration variations in the useful life of an EE 

measure among different types of customers by developing an average. [For example, a]n LED could last 5 

years in one home, 11 years in another and 30 years in another – with an average of 15 years.” Exhibits

Volume 7 at 13.
Court of Appeals of Indiana | Opinion 18A-EX-140 | February 19, 2019 Page 6 of 25

reduced demand for electricity (“Original Lost Revenue Proposal”). On April 

10, 2017, CAC filed a petition to intervene, which was granted on May 2, 2017. 

[5] At some point during the proceedings, Vectren South withdrew its Original 

Lost Revenue Proposal and submitted a revised proposal for the recovery of lost 

revenue (“Revised Lost Revenue Proposal”) that would allow recovery of lost 

revenues over twelve years. The Revised Lost Revenue Proposal was described 

as follows in the Commission’s Order through testimony provided by Rina H. 

Harris (“Ms. Harris”), Director of Energy Efficiency for Vectren Utility 

Holdings, Inc., at an evidentiary hearing held by the Commission on September 

6, 2017:

8

 

Petitioner seeks authority to implement lost revenue recovery 

based upon the WAML[, the weighted averaged measure life,] of 

all programs included in the 2018-2020 Plan, with a 10% 

reduction in annual savings. Under this method, Vectren South 

would recover the amount of lost revenues associated with the 

WAML of its EE programs or the measure life, whichever is less. 

The WAML is the average life, weighted by savings in years, of 

all the various measures installed or actions taken in a portfolio 

of programs. [Ms. Harris] said that capping recovery of lost 

revenues based upon WAML is reasonable because it limits lost 

revenue recovery based on the average equipment life and 

measure persistence of the entire Plan. In addition, only 90% of 

annual savings would be recovered, reflecting the statistical 

certainty EM&V providers can obtain for lost revenues. She said 

that . . . the EM&V process utilizes at minimum a 90% 

 

8 During this proceeding, the Commission heard evidence from Vectren South, from statutory party Indiana 

Office of Utility Consumer Counselor (“OUCC”), and from CAC. 
Court of Appeals of Indiana | Opinion 18A-EX-140 | February 19, 2019 Page 7 of 25

confidence interval (an industry accepted standard). She testified 

that all inputs in the WAML (less 10% for statistical certainty) 

are grounded on evaluation and Technical Re[source] Manuals[9]

and provide a methodical cap to lost revenue recovery.

* * * * *

Ms. Harris testified that for the Plan, the WAML approach 

would reduce lost revenue recovery by approximately $18.8 

million over the life of the programs included in the Plan as 

compared to recovery using full measure life [under the Original 

Lost Revenue Proposal]. [Under the Revised Lost Revenue 

Proposal, l]ost revenues would be reduced by 26% with a 12-year 

weighted average cap plus 10% savings reduction.

Appellant’s Appendix Volume 2 at 13. Vectren South predicted that “its lost 

revenue due to measures implemented in the 2018-2020 energy efficiency plan 

will be $73.6 million.” Appellee’s Brief at 21. However, it maintained that, 

under the Revised Lost Revenue Proposal, it was not seeking to recover its 

estimate of $73.6 million, but rather “only about $54.8 million, or $18.8 

[million] less . . . .” Id. at 22.

[6] CAC argued for Vectren South’s lost revenue collection to be capped at the 

lesser of four years or the Plan’s measure life. A witness for CAC, Karl R. 

Rábago (“Mr. Rábago”), the principal of Rábago Energy, LLC, testified that 

 

9

Per testimony provided at the evidentiary hearing, the Indiana Technical Resource Manual (“TRM”) is an 

essential document “for EM&V activities and for the calculation of lost revenues.” Exhibits Volume 8 at 

139.
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“[b]y capping the lost revenue recovery at the lesser of [four] years or the life of 

the measure, this mitigates the Pancake Effect [(the cumulative effect of lost 

revenues over time on rates)].” Exhibits Volume 8 at 128. He explained that

“the problems of ‘pancaking’ and ‘piece-meal’ or ‘single-issue’ ratemaking 

create serious problems of fairness and reasonableness if a [lost rate adjustment 

mechanism (“LRAM”)10] is used for the entire useful life of the energy 

efficiency measures.” Id. at 132. He further explained that “although 

pancaking and piece-meal rate making problems can arise over any term 

between rate cases, the amount of pancaking that will occur with a four-year 

cap is reasonable because: A term greater than four years will create 

unreasonable difficulty in tracking the pancake effect over time.” Id. at 130. 

He urged the Commission to find that four years is the maximum reasonable 

term for an LRAM “before the utility must present any remaining claimed lost 

revenues in a base rate case . . . .” Id. He maintained that beyond four years, 

the LRAM “would be subject to some volatility, as measures exited due to end 

of useful life, and as new lost revenue collections were added due to subsequent 

[p]lan approvals.” Id. at 132. He disagreed with Vectren South’s claim that a 

four-year cap would create a perverse incentive for the utility to favor programs 

 

10 “Lost Revenue Adjustment Mechanism (LRAM) is a rate adjustment mechanism that allows the utility to 

recover revenues that are ‘lost’ due to energy savings from approved efficiency programs.” Sara Hayes et al., 

Balancing Interests: A Review of Lost Revenue Adjustment Mechanisms for Utility Energy Efficiency Programs, 1 

(September 2011) American Counsel for an Energy-Efficient Economy, https://aceee.org/sites/ 

default/files/publications/researchreports/u114.pdf (last visited Jan. 15, 2019). 
Court of Appeals of Indiana | Opinion 18A-EX-140 | February 19, 2019 Page 9 of 25

with shorter-term useful lives to avoid the risk of under-recovery of lost 

revenues. 

[7] Mr. Rábago maintained that Vectren South’s WAML approach to the recovery 

of lost revenues comes with its own set of problems. He explained:

The weighted average measure life is a mathematical solution to 

the rate volatility that results from long-term pancaking of an 

[LRAM], but potentially creates greater problems in terms of rate 

fairness. That is, the method would “smooth out” year to year 

volatility in the later years of the portfolio useful life by use of an 

averaging calculation. But without much more analysis and 

modeling, there is no way to tell if the proposed method limits 

recovery of lost revenues to reasonable and fair levels.

Id. at 137.

[8] He compared the dollar amounts between Vectren South’s Original Lost 

Revenue Proposal, the Revised Lost Revenue Proposal, and CAC’s proposal to 

cap lost revenue recovery at four years or the life of the measure, whichever is 

shorter. He determined that, under Vectren South’s Original Lost Revenue 

Proposal, ratepayers would pay $73.6 million in lost revenues for a program 

that costs $28.6 million to implement, and that although the total amount of 

lost revenues under the Revised Lost Revenue Proposal would be less, $54.8

million, “[t]he pancake effect still exits, and the sheer total of lost revenues 

presented here at $54 million for just $28 million of actual program delivery is 

unreasonable.” Id. at 127. Mr. Rábago further testified that under CAC’s fouryear-cap proposal, total lost revenues would amount to $21.8 million. He 
Court of Appeals of Indiana | Opinion 18A-EX-140 | February 19, 2019 Page 10 of 25

disagreed with Vectren South’s position that the role of lost revenue recovery is 

to put a utility in the same revenue position it would have been in but for the 

implementation of EE measures. He testified that “the purpose of lost revenue 

recovery is to provide reasonable mitigation of the direct and causallyconnected revenue losses resulting from utility sponsored [EE] programs and 

measures.” Id. at 121. 

[9] CAC also argued that testimony from a Vectren South witness, Dr. M. Sami 

Khawaja (“Dr. Khawaja”), Chief Economist at The Cadmus Group (an energy 

efficiency evaluation firm), created a conflict of interest and should be 

disregarded because The Cadmus Group had been retained by Vectren South to 

perform evaluation services for the past eight years. According to CAC, 

Section 10 requires that the EM&V procedures be independent, and that Dr. 

Khawaja’s advocacy position “in this proceeding . . . casts doubt on the 

integrity of the firm’s work as an independent evaluator.” Id. at 139.

[10] On December 28, 2017, the Commission issued its twenty-eight-page Order, 

concluding in relevant part that “[b]ecause we approve Vectren South’s 2018-

2020 Plan, we find that Vectren South shall be authorized to recover its 

associated program costs, including . . . lost revenues based upon the WAML 

less 10% reduction in savings . . . .” Appellant’s Appendix Volume 2 at 35. 

The Order reads in pertinent part:

Historically, lost revenues in Indiana (and across the country) 

have been recovered based on a measure’s [effective useful life 

(“EUL”)] and the energy savings confirmed by EM&V. The 
Court of Appeals of Indiana | Opinion 18A-EX-140 | February 19, 2019 Page 11 of 25

purpose of allowing lost revenue recovery is to assist in removing 

any disincentive a utility may have in promoting DSM, as 

opposed to pursuing a supply-side resource. See, Indianapolis 

Power & Light Co., Cause No. 43911 (IURC Nov. 4, 2010); 170 

IAC 4-8-3.

Vectren South initially requested approval to recover lost revenue 

for the life of each EE measure implemented pursuant to the 

2018-2020 Plan. However, Petitioner subsequently modified its 

request and now seeks approval to recover lost revenues based 

upon the WAML of the Plan programs with a 10% reduction in 

savings to account for measure persistence. The effect of this 

change is to reduce lost revenue recovery based strictly on 

measure lives by 26% or $18.8 million. Thus, under the modified 

approach, Vectren South would recover approximately $54.8 

million of lost revenues over the 12-year WAML of the Plan.

Both the OUCC and CAC encouraged the Commission to reject 

Vectren South’s WAML proposal. CAC recommended the use 

of a four-year cap on lost revenue recovery. CAC argues this 

recovery is reasonable because a term greater than four years 

creates unreasonable difficulties in tracking the accuracy of lost 

revenues, the pancaking or cumulative effect of lost revenues 

over time on rates, and lost revenue policies were created at a 

time when the period between rate cases was shorter. . . .

Under the modified proposal, Vectren South would recover the 

amount of lost revenues associated with the WAML of the Plan 

portfolio of programs or the measure life of the EE program, 

whichever is shorter. Dr. Khawaja explained that it was 

appropriate to cap lost revenue based on the WAML because lost 

revenue will take place for the duration of the measure life. The 

WAML is based on the EUL, which is the median of a measure’s 

life. Dr. Khawaja testified that the EUL values used by 

Petitioner are conservative for an overall WAML of 12 years. 

Further, the proposed 10% reduction in annual energy savings 
Court of Appeals of Indiana | Opinion 18A-EX-140 | February 19, 2019 Page 12 of 25

reflects the use of the lower end 90% confidence level estimate of 

savings and equates to an even more conservative [10.7-year]

measure life cap.

In addition to the use of the 12-year WAML, Vectren South 

proposes to recover only 90% of the annual energy savings. CAC 

and other parties, in their post-hearing filing, argue that because 

EM&V is only conducted once for each Plan year, the initial 

determination of energy savings and lost revenue becomes 

progressively less reliable and more uncertain in successive years 

and therefore should not be relied upon. Further, they argue that 

the proposed 10% reduction in energy savings only addresses the 

degree of confidence in the threshold EM&V determination, not 

the eroding reliability of assumed savings. 

EM&V is the most established approach to reasonably estimating 

energy savings and lost revenues associated with EE programs. 

Vectren South’s approach appears reasonably designed to ensure 

it recovers only the lost revenues that EM&V can establish, with 

a high degree of confidence, will result from savings driven by 

EE measures. Recognizing that estimates are more certain in the 

immediate (as opposed to the distant) future, Vectren South’s 

evaluation process for estimating net energy savings utilizes at 

minimum a 90% confidence interval and supports a 10% 

degradation of annual savings within its lost revenue calculation, 

which results in a statistically conservative estimate. While we 

recognize that EM&V degrades over time based on accumulating 

changes, this degradation is built into the EM&V process. We 

further find that the approximate 26% reduction in recovered lost 

revenues compared to Petitioner’s initial proposal is intended to 

strike a reasonable balance in terms of offsetting the inherent 

financial harm to a utility caused by EE sales reductions, while 

also ensuring the recoveries are fully supported by conservative 

EM&V estimates that safeguard the cost and benefit analysis 

relied upon to determine that the EE Plan provides short- and 

long-term benefits to customers. 
Court of Appeals of Indiana | Opinion 18A-EX-140 | February 19, 2019 Page 13 of 25

As indicated above, CAC offered no basis on which we could 

make factual findings that a four-year cap would allow Vectren 

South to recover reasonable lost revenues. In fact, Ms. Harris 

testified that implementing a four-year cap on the Plan would 

cause approximately $52 million of financial harm to Vectren 

South in lost revenues over the life of the programs, which 

equates to approximately 70% of lost revenues. Rather than 

providing a reasoned explanation or analysis to support ending 

lost revenue recovery after four years regardless of measure life or 

evidence related to the financial effects of such a proposal on 

Petitioner, CAC instead offers a conclusory opinion that the 

magnitude of lost revenues exceeds the program costs and 

therefore this must result in it being an unreasonable proposal. 

CAC provided no factual basis to support its contention that lost 

revenues should not exceed program costs. It is inherent that 

energy savings validated by EM&V will create lost revenues. 

Consequently, cost-effective EE programs should have lower 

programs costs with larger energy savings, which does result in 

higher lost revenues relative to program costs.

* * * * *

Accordingly, we find that Vectren South’s modified lost revenue 

recovery proposal, which has a strong nexus to the EM&V 

process, will allow the recovery of reasonable lost revenues. Our 

conclusion is consistent with the Commission’s DSM rules at 170 

IAC 4-8 and Section 10’s requirement that EM&V are included 

in any EE plan. Section 10(o) similarly recognizes the 

importance of subjecting lost revenues to EM&V in its 

reconciliation requirements when using forecasted data. Vectren 

South’s proposal recognizes that the EM&V process is not an 

exact science [] and employs limitations on EM&V

quantification of savings (and thus lost revenues) that assures 

customers are billed for lost revenues based on a conservative 

determination of achieved savings to ensure the highest level of 

confidence in the energy savings that are attributed to EE 
Court of Appeals of Indiana | Opinion 18A-EX-140 | February 19, 2019 Page 14 of 25

measures. Neither CAC nor the OUCC provided us with 

sufficient evidence demonstrating that Vectren South’s proposal 

is unreasonable. Nor did they provide us with sufficient facts 

from which we could determine that either of their alternative 

proposals for caps on lost revenue recovery would allow Vectren 

South to recover reasonable lost revenues. Therefore, we find 

Vectren South’s modified proposal for lost revenue recovery is 

reasonable.

Appellant’s Appendix Volume 2 at 31-33 (footnote omitted).

[11] Regarding whether testimony from Dr. Khawaja should have been disregarded, 

the Commission determined that:

Dr. Khawaja’s testimony was largely limited to addressing the 

reasonableness of EM&V results over time and how the issues of 

uncertainty and persistence are accounted for in the EM&V 

process and methodology. While it may have been more prudent 

for Petitioner to retain an EM&V witness not associated with 

Cadmus, we lack sufficient evidence to find that EM&V 

independence has been undermined – particularly given another 

request for proposals is planned to select an EM&V vendor to 

evaluate the 2018-2020 Plan and the ongoing participation by 

members of the [Vectren Oversight Board11] in the review of the 

EM&V analysis and reports.

Id. at 28. CAC now appeals the Commission’s Order.

 

11 The Vectren Oversight Board is Vectren South’s EE program governance body. Both CAC and OUCC are 

voting members of the Board. 
Court of Appeals of Indiana | Opinion 18A-EX-140 | February 19, 2019 Page 15 of 25

Discussion

Standard of Review

[12] The General Assembly created the Commission primarily as a factfinding body 

with the technical expertise to administer the regulatory scheme devised by the 

legislature. N. Ind. Pub. Serv. Co. v. U.S. Steel Corp., 907 N.E.2d 1012, 1015 (Ind. 

2009). The Commission’s assignment is to insure that public utilities provide 

constant, reliable, and efficient service to the citizens of Indiana. Id. “The 

Commission can exercise only power conferred upon it by statute.” Id. 

“Because the complicated process of ratemaking is a legislative rather than 

judicial function, it is more properly left to the experienced and expert opinion 

present in the Commission.” Citizens Action Coal. of Ind., Inc. v. N. Ind. Pub. Serv. 

Co., 76 N.E.3d 144, 151 (Ind. Ct. App. 2017) (internal quotations omitted).

[13] Indiana Code § 8-1-3-1 (1993) authorizes judicial review of Commission orders 

by this Court. The review involves multiple tiers. U.S. Steel, 907 N.E.2d at 

1016. “On the first level, it requires a review of whether there is substantial 

evidence in light of the whole record to support the Commission’s findings of 

basic fact. Such determinations of basic fact are reviewed under a substantial 

evidence standard, meaning the order will stand unless no substantial evidence 

supports it.” Id. (citation and footnote omitted). We neither reweigh evidence 

nor assess witness credibility, and we consider only the evidence favorable to

the Commission’s findings. Id. The Commission’s order is not binding if it 

lacks substantial evidence supporting the findings of the Commission or is 

unreasonable or arbitrary. Id.
Court of Appeals of Indiana | Opinion 18A-EX-140 | February 19, 2019 Page 16 of 25

[14] “At the second level, the order must contain specific findings on all the factual 

determinations material to its ultimate conclusions.” Id. We review the 

Commission’s conclusions of ultimate facts for reasonableness, the deference of 

which is based on the amount of expertise exercised by the agency. Id. If the 

order involves a subject within the Commission’s special competence, we 

should give it greater deference; if the subject is outside the Commission’s 

expertise, we give it less deference. Id. “More specifically, on matters within its 

jurisdiction, [the Commission] enjoys wide discretion and its findings and

decision will not be lightly overridden simply because we might reach a 

different decision on the same evidence.” Citizens Action Coal. of Ind., Inc., 76 

N.E.3d at 151 (brackets and internal quotation omitted). “Essentially, so long 

as there is any substantial evidence to support the rates as fixed by the 

Commission as reasonable, the judicial branch of the government will not 

interfere with such legislative functions and has no power or authority to 

substitute its personal judgment for what it might think is fair or reasonable in 

lieu of [the Commission’s] administrative judgment.” Id. (brackets, emphasis, 

and internal quotations omitted).

[15] Findings of fact are important because they help us understand the 

Commission’s reasoning and policy judgments and allow for a reasoned and 

informed basis of review, which decreases the likelihood that we will substitute 

our judgment on complex evidentiary issues and policy determinations best left 

to an agency with technical expertise. N. Ind. Pub. Serv. Co. v. LaPorte, 791 
Court of Appeals of Indiana | Opinion 18A-EX-140 | February 19, 2019 Page 17 of 25

N.E.2d 271, 278 (Ind. Ct. App. 2003). Further, requiring findings of fact helps 

the Commission avoid arbitrary and capricious action. Id.

[16] “Additionally, an agency action is always subject to review as contrary to law, 

but this constitutionally preserved review is limited to whether the Commission 

stayed within its jurisdiction and conformed to the statutory standards and legal 

principles involved in producing its decision, ruling, or order.” U.S. Steel, 907 

N.E.2d at 1016.

I. Whether the Commission’s Order is Contrary to Law

[17] CAC’s first argument is twofold. It contends that the Commission’s Order is 

contrary to law because the approval of Vectren South’s Revised Lost Revenue 

Proposal is unreasonable, and that it is inconsistent with Section 10. We 

address each argument in turn. 

A. Whether the Approval of the Revised Lost Revenue Proposal is 

Unreasonable

[18] CAC maintains that the Commission should have reviewed Vectren South’s 

overall financial condition when it determined whether the Revised Lost 

Revenue Proposal was reasonable and just. The crux of CAC’s argument is 

that:

[b]ecause the Commission[, in approving the Revised Lost 

Revenue Proposal,] has ignored the requirement that each 

utility’s rates must be set on the utility’s overall financial 

condition including total revenue and expense, the approval of 

Vectren [South]’s lost revenue rate recovery in the Order is not 
Court of Appeals of Indiana | Opinion 18A-EX-140 | February 19, 2019 Page 18 of 25

just and reasonable, and should be declared unlawful by this 

Court. 

Appellant’s Brief at 29. According to CAC:

The lost revenue rate approved in the Order [] was set merely on 

a forecasted estimation of the amount of lost sales attributable to 

the energy efficiency programs from an evaluation vendor with 

no cogent reference to the utility’s overall financial condition. 

The approved lost revenue rate in the Order just guarantees rate 

recovery based on projected savings without any consideration 

for other ratemaking principles. It also disregards the distinction 

between a utility who comes in for regular rate cases, regularly 

zeroing out lost revenue totals when resetting rates, versus a 

utility who does not reset rates but for once every 10, 15, 20 

years, resulting in exorbitant lost revenue rate recovery and 

millions of dollars in difference in terms of what the ratepayers is

[sic] required to pay. 

Id. at 28. CAC also argues that to allow Vectren South to recover the requested 

amount dissuades Vectren South from filing general rate cases.12 

[19] CAC further argues that the Revised Lost Revenue Proposal is unreasonable 

because it allows Vectren South to recover $54.8 million in lost revenue for EE 

 

12 CAC posits that the approval of lost revenues is subject to a “just and reasonable” rates standard under 

Indiana Code § 8-1-2-4 (1984), the general rate statute, which provides in relevant part that “[t]he charge 

made by any public utility for any service rendered or to be rendered either directly or in connection 

therewith shall be reasonable and just, and every unjust or unreasonable charge for such service is prohibited 

and declared unlawful.” However, in its Surreply Brief, CAC clarifies that in referencing the statute, it was 

not raising a new argument. It acknowledges that it should have been more careful with its phrasing, but that 

“the point . . . is this: by failing to consider its precedent of capping the time a lost revenue rate adjustment 

mechanism may be used due to Indiana’s environment of infrequent rate cases, the Commission brings the 

just and reasonable rates requirement from I.C. § 8-1-2-4 and the examination of the utility’s overall financial 

condition to the forefront . . . .” Appellant’s Surreply Brief at 6.
Court of Appeals of Indiana | Opinion 18A-EX-140 | February 19, 2019 Page 19 of 25

programs projected to cost $28.6 million to administer. It states that “lost 

revenue rates at 1.9 times greater than the cost to actually run the programs is 

far in excess of what is necessary to satisfy a monopoly utility’s shareholders’ 

legitimate expectations.” Id. at 26. CAC claims that “[t]his lost revenue

guaranteed rate is outside the zone of reasonableness in light of the legal 

framework, ratemaking policy, regulatory history, objective of the required costeffectiveness in the statute, and the appropriate degree of reliability in 

forecasting estimated savings out beyond a few immediate years.” Id. CAC 

contends that “[i]t is particularly wasteful and results in artificially high prices 

to award a utility 1.9 times more in revenue than costs to run the energy 

efficiency programs with no shown correlation that this extra revenue will 

equate to more energy efficiency services or savings.” Id. at 27. 

[20] We are not persuaded by CAC’s arguments. Section 10(j)(8) provides that 

when the Commission makes a determination of the overall reasonableness of a 

plan, it must consider the lost revenues and financial incentives associated with 

the plan and sought to be recovered or received by the utility. Section 10(o) 

provides that if the Commission finds a plan submitted by a utility to be 

reasonable then the Commission must allow the utility to recover or receive 

reasonable lost revenues. Here, the Commission considered the lost revenues 

sought to be recovered and determined that CAC “provided no factual basis to 

support its contention that lost revenues should not exceed program costs.” 

Appellant’s Appendix Volume 2 at 33. Furthermore, Section 10 does not 

require the Commission to consider a utility’s overall financial condition in 
Court of Appeals of Indiana | Opinion 18A-EX-140 | February 19, 2019 Page 20 of 25

determining whether lost revenues sought to be recovered are reasonable or 

whether recovery of the requested lost revenue dissuades Vectren South from 

filing general rate cases.

13

 As such, the Commission did not act contrary to law 

in determining that Vectren South’s Plan was reasonable. 

B. Whether the Approval of the Revised Lost Revenue Proposal is Inconsistent 

with Section 10

[21] CAC also argues that the Commission’s approval of the Revised Lost Revenue 

Proposal is inconsistent with Section 10. It contends that the Commission’s 

Order “misinterprets and misconstrues” that section “establishing rates under 

Section 10 without any reference or consideration of ratemaking practices and 

the requirements of Indiana’s Public Service Commission Act (‘PSCA’).” 

Appellant’s Brief at 36. CAC specifically argues that “the most basic error is 

the Commission’s failure to reconcile its approval of [the Revised Lost Revenue 

Proposal] without any reference or application of ratemaking practices” and the 

Commission’s failure to “consider ratepayers in making a determination as to 

the reasonableness of this rate.” Id. 

[22] We observe that the requirement under Section 10 that electricity suppliers file a 

three-year EE plan was adopted by our General Assembly in 2015 as a separate 

 

13 Cf. NIPSCO Indus. Grp. v. N. Ind. Pub. Serv. Co., 100 N.E.3d 234, 238 (Ind. 2018) (“General ratemaking is a 

‘comprehensive’ process, requiring the Commission to ‘examine every aspect of the utility’s operations and 

the economic environment in which the utility functions to ensure that the data [the Commission] has 

received are representative of operating conditions that will, or should, prevail in future years.’” (emphasis 

added and citation omitted)), modified on reh’g.
Court of Appeals of Indiana | Opinion 18A-EX-140 | February 19, 2019 Page 21 of 25

requirement that is in addition to long-standing requirements regarding general 

ratemaking. CAC points to no relevant authority indicating that the 

Commission was required to consider or apply procedures adopted in 

connection with general ratemaking cases when considering a petition filed in 

accordance with Section 10. CAC has failed to establish that the Commission’s 

approval of Vectren South’s Revised Lost Revenue Proposal is inconsistent 

with Section 10. We therefore find that the Commission’s approval of the 

Revised Lost Revenue Proposal was not inconsistent with Section 10 and was 

not contrary to law. 

II. Whether the Commission’s Order Impermissibly Deviates from Precedent

[23] We next address whether the Commission impermissibly deviated from 

precedent. CAC maintains that the Commission’s Order “ignores available 

precedent related to the relationship between lost revenues and general rate 

cases that articulated principles by which to ascertain the reasonableness of lost 

revenue recovery proposals.” Id. at 29. According to CAC, “the relationship 

between rate cases and lost revenues, as articulated in the available precedent, 

was a material issue raised and put in dispute by the parties before the 

Commission in this proceeding, but it went unaddressed.” Id. 

[24] In support of its argument, CAC cites to four Commission decisions. See In re 

Ind. Power & Light Co., Cause No. 43911, 2010 WL 4499412, at *9 (November 

4, 2010) (denied lost revenue recovery “in the absence of a base rate case to 

ensure that class specific investment and investment recovery is properly 

aligned”); In re N. Ind. Pub. Serv. Co., Cause No. 43912, 2011 WL 3346770, at 
Court of Appeals of Indiana | Opinion 18A-EX-140 | February 19, 2019 Page 22 of 25

*22 (July 27, 2011) (denied request to recover lost margins but remained 

“willing to consider a request for lost margins provided NIPSCO can 

demonstrate the revenue margin rates are reasonably reflective of today’s 

operations”); In re N. Ind. Pub. Serv. Co., Cause No. 44634, 2015 WL 9605053, 

at *42, 43 (December 30, 2015) (Commission acknowledged that it had 

“previously approved lost revenues over a measure’s life or until a utility’s next 

base rate case, whichever is shorter,” but due to “concerns with pancaking and 

the increased length of time between base rate cases for utilities in Indiana,” 

ultimately found NIPSCO’s lost revenue recovery should be limited to “(1) four 

years or the life of the measure, whichever is less, or (2) until rates are 

implemented pursuant to a final order in NIPSCO’s next base rate case, 

whichever occurs earlier.”); In re Duke Energy Ind., Inc., Cause No. 43955, 2016 

WL 1118794 (March 16, 2016) (denied approval of Duke’s EE plan, finding, in 

part, that recovery of lost revenues should be limited to a four-year term). 

However, nothing in our review of these decisions leads us to the conclusion 

that reversal is required in this case. 

[25] By its own acknowledgement, the Commission has previously approved the 

recovery of lost revenues over a measure’s life or until the utility’s next base rate 

case, whichever is shorter. The Commission has also previously approved a 

four-year cap on a utility’s lost revenue recovery. An agency may change its 

course and is not forever bound by prior policy or precedent as long as it 

explains its reasons for doing so. See Ind. Bell Tel. Co. v. Ind. Util. Reg. Comm’n, 

810 N.E.2d 1179, 1186 (Ind. Ct. App. 2004), trans. denied. In its Order, the 
Court of Appeals of Indiana | Opinion 18A-EX-140 | February 19, 2019 Page 23 of 25

Commission found Vectren South’s Plan to be reasonable in its entirety, found

Vectren South’s Revised Lost Revenue Proposal to be reasonable, and 

explained its reasons for doing so. The Commission did not impermissibly 

deviate from precedent. 

III. Whether Substantial Evidence Supports the Commission’s 

Order

[26] CAC’s next argument is that the Commission’s Order “lacks a reasonably 

sound basis of evidentiary support.” Appellant’s Brief at 34. Specifically, CAC 

maintains that “[t]he most fundamental problem with the evidentiary support 

for the approved lost revenue rate is the fact that there is no credible evidence 

that the investor owned electric utility experienced its claimed level of lost 

revenues or that the rate was established based on other financial aspects of the 

utility.” Id. CAC also argues that the Commission failed to consider the 

“relationship of the lost revenue rate with the resetting of rates in general rate 

cases”; the Order failed to “mention or weigh any of the critical crossexamination that was conducted by the other consumer parties”; and in 

reaching its determination, the Commission failed to consider the complete 

record. Id. at 34, 35. In addition, CAC claims that “[t]he reliance upon EM&V 

as a basis for approving lost revenue rates is nonsensical and not cost- or ratesbased.” Id. at 34. CAC argues that the Order “mischaracterizes the role of 

[EM&V] and what EM&V has done, does and does not do for lost revenue rate

recovery.” Appellant’s Reply Brief at 13. We disagree.
Court of Appeals of Indiana | Opinion 18A-EX-140 | February 19, 2019 Page 24 of 25

[27] It is expected that Vectren South would not present actual lost revenue 

amounts, as it was seeking pre-approval of the Plan and a request to recover 

proposed lost revenues. The evidence indicated that the lost revenues detailed at 

length by Vectren South were forecasted losses that would later be reconciled 

through EM&V. The Commission’s Order accurately reflects this point and the 

required reconciliation. Furthermore, Section 10 does not require the 

Commission to consider the relationship between lost revenue rates and the 

filing of general rate cases. 

[28] We find that CAC’s other arguments are an invitation for this Court to reweigh 

the evidence. The Commission reviewed the evidence of record and found the 

evidence presented by Vectren South to be more persuasive. We will not 

reweigh the evidence or reassess witness credibility on appeal. See U.S. Steel, 

907 N.E.2d at 1016. 

IV. Whether the Commission’s Approval of Vectren South’s EE Goals is 

Improper

[29] CAC’s last argument concerns whether the Commission’s approval of Vectren 

South’s EE goals is improper because, according to CAC, the Commission 

failed to consider certain “[m]aterial [i]mpeaching [e]vidence” that was 

contained in the “Commission’s Director’s Draft Report.” Appellant’s Brief at 

38, 39. CAC specifically maintains that: 

[T]he Commission cherry-picked certain parts from its relevant 

Director’s Report but completely ignored the pertinent parts 

which impeached the very evidence upon which the Commission 
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relied to approve Vectren’s level of energy efficiency investment 

in this case. 

At a minimum, the Commission should have addressed its own 

Director’s concern as to whether Vectren’s “adjustments made to 

correct for admitted serious data limitations is sufficient to 

overcome the problems being addressed” and the Director’s 

ultimate conclusion that “[d]rawing strong policy 

recommendations in such circumstances is probably not 

warranted.” (Tr., [V]ol. 9, at 43). Instead, the Commission 

ignored these conclusions from its own Director, ignored the 

process it created to deal with most of the disputes over resource 

planning outside litigated cases (Appellant’s-Br. at 10), and gave 

the investor-owned utility carte blanche for this important 

resource decision to the detriment of ratepayers and those parties 

who invested substantial time and resources in the Commission 

created process. (Order at 15-17).

Appellant’s Reply Brief at 23. 

[30] CAC’s argument, essentially, is an invitation to reweigh the evidence, which we 

cannot do. The record contains substantial evidence supporting the 

Commission’s determination that Vectren South’s EE goals are reasonable. 

[31] For the foregoing reasons, the Commission’s Order is affirmed.

[32] Affirmed.

Najam, J., and Altice, J., concur.