Notice of Appeal: National Grid

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Notice of Appeal: National Grid NON-SENSITIVE VERSION BEFORE THE COMPETITION AND MARKETS AUTHORITY IN THE MATTER OF AN APPEAL UNDER SECTION 23B OF THE GAS ACT 1986 B E T W E E N : NATIONAL GRID GAS PLC Appellant and GAS AND ELECTRICITY MARKETS AUTHORITY Respondent NOTICE OF APPEAL ENERGY LICENCE MODIFICATION RIIO-2 Norton Rose Fulbright LLP 3 More London Riverside London SE1 2AQ Tel +44 20 7283 6000 Fax +20 7283 6500 NON-SENSITIVE VERSION Contents SECTION 1: INTRODUCTION............................................................................................................. 3 A. Overview 3 B. Request for permission to appeal 3 C. Legal framework 3 D. Scope of the appeal 4 E. Key documents 4 F. Request for appeals to be heard together 7 G. Contact details 7 SECTION 2: LEGAL FRAMEWORK................................................................................................... 9 A. Overview 9 B. Statutory grounds of appeal 9 C. GEMA's principal objective and statutory duties 10 D. Standard of review to be applied by the CMA 11 E. The CMA's powers when allowing an appeal 12 SECTION 3: GROUND 1 – COST OF EQUITY................................................................................. 13 A. Overview 13 B. CAPM Selectivity error 14 C. Cross-checks error 44 D. Aiming up error 56 E. Insufficient COE Error 70 F. Legal consequences 74 G. Relief sought 74 SECTION 4: GROUND 2 – OUTPERFORMANCE WEDGE............................................................. 76 A. Overview 76 B. GEMA’s decision 77 C. GEMA’s errors 81 D. Legal consequences 95 E. Relief sought 96 SECTION 5: CHRONOLOGY ............................................................................................................ 97 SECTION 6: GLOSSARY .................................................................................................................. 98 SECTION 7: STATEMENT OF TRUTH ........................................................................................... 105 ANNEX 1: Statutory grounds engaged by Ground 1 – Cost of equity ..................................... 106 ANNEX 2: Statutory grounds engaged by Ground 2 - Outperformance wedge...................... 122 ANNEX 3: Hyperlinks to Exhibits in NOA1.................................................................................. 135 2 NON-SENSITIVE VERSION SECTION 1: INTRODUCTION A. Overview National Grid Gas plc (NGG or the Appellant) is a subsidiary of National Grid plc and the licensed gas transmission owner (TO) and system operator (SO) which plans, constructs, owns and operates the high pressure National Transmission System (NTS) in Great Britain. The Appellant holds a gas transporter licence (the Licence) treated as granted under section 7 of the Gas Act 1986 (GA86) authorising its gas transportation activities in respect of the NTS. The Appellant is therefore often referred to as National Grid Gas Transmission (NGGT) to denote that its activities are connected with the gas transmission system as opposed to the gas distribution network (GDN). NGG and NGGT are the same entity and the Appellant uses both these terms interchangeably in this Notice of Appeal (NOA) and supporting documents. This appeal concerns the decision made by the Gas and Electricity Markets Authority (GEMA or the Authority)1 on 3 February 2021 under section 23(1)(a) GA86 to modify the conditions of the Licence to give effect to the RIIO-T2 Final Determinations (FD)2, which will operate from 1 April 2021 to 31 March 2026 (RIIO-T2 Decision). The RIIO-T2 price control applies to electricity and gas transmission owners and replaces the existing RIIO-T1 price control which runs from 1 April 2013 to 31 March 2021. It is part of a broader suite of price controls – known collectively as the RIIO-2 price controls – which from 1 April 2021 also apply to the GDNs (RIIO-GD2) and the electricity system operator (RIIO-ESO2). References to RIIO-2 in this appeal can be read as applying to RIIO-T2. GEMA’s stated aim for RIIO-2 is to drive better services for consumers at the most efficient cost, at the same time as preparing network companies for the energy system of the future. In particular, its objective is to ensure that the price control provides sufficient funding to enable a wide range of Net Zero trajectories throughout the next decade. GEMA has acknowledged that its RIIO-2 price control is challenging for companies.3 B. Request for permission to appeal The Appellant seeks permission under sections 23B(1) and (3) GA86 to bring an appeal (and, if permission is granted, to appeal) against the RIIO-T2 Decision in its capacity as a relevant licence holder. Section 23B(2)(a) GA86 provides that a relevant licence holder (within the meaning of section 23 GA86) may bring an appeal. The Appellant is a ‘relevant licence holder’ as defined in section 23(10)(b) GA86 as it is the holder of a particular licence, the conditions of which are to be modified by the RIIO-T2 Decision. Accordingly, the Appellant has standing to bring this appeal. C. Legal framework The Appellant recognises that the CMA has applied the relevant legal framework in previous appeals, and has therefore sought to summarise it as succinctly as possible in section 2. 1 GEMA is supported by the Office of Gas and Electricity Markets (Ofgem). The Appellant refers interchangeably to GEMA, the Authority and Ofgem in this document, depending on the context. 2 In setting the RIIO-T2 price control for transmission companies, Ofgem has also made sector-specific decisions for each of electricity transmission (ET) (RIIO-ET2) and gas transmission (GT) (RIIO-GT2) where appropriate. However, the aspects of the RIIO-T2 decision that are the subject of this appeal are common to both ET and GT. 3 FD, Core Document, Chapter 1 [NOA1/11]. 3 NON-SENSITIVE VERSION D. Scope of the appeal In bringing this appeal, the Appellant has carefully considered the RIIO-T2 Decision and the objective of the Competition and Markets Authority (CMA) to dispose of appeals fairly and efficiently within the time periods prescribed by the GA86.4 Accordingly, the Appellant has confined its appeal to two discrete issues where the RIIO-T2 Decision is wrong. Ground 1 concerns GEMA’s errors in setting the Cost of Equity (COE), which are explained in section 3. Ground 2 concerns GEMA’s erroneous introduction of a deduction from NGG’s allowed returns known as the “outperformance wedge”, which is addressed in section 4. These decisions are wrong within the meaning of section 23D(4) GA86 for the reasons explained in sections 3 and 4 respectively, and as more particularly described in Annex 1 and Annex 2. These errors are material because of their harmful impact on consumers, their financial impact on the Appellant over the period covered by RIIO-T2, the potential impact on future price controls and for reasons of regulatory and economic principle. E. Key documents The grounds of this appeal, reasons and supporting evidence are contained in this NOA, in Exhibit NOA1, and in the Witness Statements and Exhibits to those Witness Statements.5 The Appellant has provided written evidence for this appeal in the form of: a) Witness Statement of Nicola Shaw, Executive Director, National Grid plc, dated 2 March 2021 (NS1) b) Witness Statement of Chris Bennett, Director, UK Regulation, National Grid plc, dated 1 March 2021 (CB1) c) Witness Statement of Darren Pettifer, Head of Regulatory Finance, National Grid plc, dated 2 March 2021 (DP1) d) Expert Witness Statement of Mike Huggins, Director, Frontier Economics, dated 1 March 2021 (MH1) and exhibits: (i) Cost of Equity for RIIO-2: An expert report prepared for National Grid dated 1 March 2021, (the ‘Cost of Equity Report’) in support of Ground 1; and (ii) The Deduction to RIIO-2 Allowed Equity Return in Anticipation of Future Outperformance: An expert report prepared for National Grid dated 1 March 2021 (the ‘Wedge Report’) in support of Ground 2. The Appellant has also included the following key documents in NOA1:6 No. Document Date Exhibit Reference Ofgem key price control documents 1. Open letter on the RIIO-2 Framework 12 July 2017 NOA1/1 2. RIIO-2 Framework Consultation (Framework 7 March 2018 NOA1/2 Consultation) 3. RIIO-2 Framework Decision (Framework 30 July 2018 NOA1/3 Decision) 4 CMA Rules, rules 4.1 and 4.2 [NOA1/36]. 5 The Appellant has separately provided a master index of all documents. 6 The Appellant has provided hyperlinks to any documents which are in the public domain in Annex 3. 4 NON-SENSITIVE VERSION No. Document Date Exhibit Reference 4. RIIO-2 Sector Specific Methodology 18 December 2018 NOA1/4 Consultation 5. RIIO-2 Sector Specific Methodology 18 December 2018 NOA1/5 Consultation: Finance Annex 6. RIIO-2 Sector Specific Methodology Decision 24 May 2019 NOA1/6 7. RIIO-2 Sector Specific Methodology Decision: 24 May 2019 NOA1/7 Finance Annex 8. RIIO-2 Draft Determinations: Core Document 9 July 2020 NOA1/8 9. RIIO-2 Draft Determinations: Finance Annex 9 July 2020 NOA1/9 10. RIIO-2 Final Determinations: Overview 8 December 2020 NOA1/10 11. RIIO-2 Final Determinations: Core Document – Originally published NOA1/11 Revised on 8 December 2020 with revised version published on 3 February 2021 12. RIIO-2 Final Determinations: Finance Annex – Originally published NOA1/12 Revised on 8 December 2020 with revised version published on 3 February 2021 13. RIIO-2 Final Determinations: Impact 8 December 2020 NOA1/13 Assessment Annex 14. RIIO-2 Statutory Licence Modification – Notice 3 February 2021 NOA1/14 15. RIIO-2 Statutory Licence Modification – 3 February 2021 NOA1/15 Reasons and effects Other relevant documents 16. ‘Estimating the cost of capital for implementation 6 March 2018 NOA1/16 of price controls by UK Regulators: An update on Mason, Miles and Wright (2003)’ authored by Burns, Mason, Pickford and Wright (UKRN Report) 17. CMA Provisional Findings, PR19 29 September 2020 NOA1/17 Redetermination (PR19 PFs) 18. CMA Working Paper: Choosing a point estimate 8 January 2021 NOA1/18 for the Cost of Capital, PR19 Redetermination (Aiming Up Working Paper) 19. NATS Provisional Findings (NATS PFs) and 24 March 2020 / NOA1/19 NATS Final Report (NATS Final Report), 23 July 2020 together referred to as NATS (En Route) Plc/CAA Regulatory Appeal (NATS Appeal) 20.
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