The American Public Power Association commented that conversion to secondary status would have a severe impact on the limited budgets of small, non-profit public utility systems.
Conversion to primary status would have an impact on for-profit utilities.  
mnli hypothesis: Conversion to primary status would have an impact on for-profit utilities.   premise: The American Public Power Association commented that conversion to secondary status would have a severe impact on the limited budgets of small, non-profit public utility systems.