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King & Spalding LLP 1700 Pennsylvania Avenue, N.W. Washington, D.C. 20006-4706 www.kslaw.com
Main Telephone: (202) 737-0500 Main Fax: (202) 626-3737
October 25, 2013
VIA EFILING
Kimberly D. Bose Secretary Federal Energy Regulatory Commission 888 First Street, N.E. Washington, DC 20426
Re: NRG Energy Holdings Inc. and Edison Mission Energy and its Public Utility Subsidiaries, Joint Application for Approval under Section 203 of the Federal Power Act, Docket No. EC14- -000
Dear Secretary Bose:
Enclosed for filing please find the joint application (the “Application”) pursuant to Section 203 of the Federal Power Act (the “FPA”)1 and Part 33 of the regulations of the Federal Energy Regulatory Commission (the “Commission”)2 of NRG Energy Holdings Inc. (“Holdings”) and Edison Mission Energy (“EME”) and its public utility subsidiaries (collectively, “Applicants”) for all FPA Section 203 approvals deemed to be required in connection with a transaction whereby Holdings will acquire substantially all of the assets of EME, including EME’s direct and indirect interests in its public utility subsidiaries, in exchange for cash and stock (the “Transaction”).
Applicants respectfully request that the Commission issue an order approving the Transaction on or before January 31, 2014.
Two CD-ROMs containing workpapers underlying the analysis performed by John R. Morris, Ph.D. of Economists Incorporated are being separately delivered to the Commission. Applicants will be requesting confidential treatment of one of these CD-ROMs, which contains the electronic files with a proprietary model and generation data inputs used to perform the analysis, in accordance with Section 388.112 of the Commission’s regulations.3 The model was developed on a proprietary basis, and the generation data inputs include
1 16 U.S.C. § 824b (2006). 2 18 C.F.R. Pt. 33 (2013). 3 18 C.F.R. § 388.112 (2013).
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Kimberly D. Bose October 25, 2013 Page 2
commercially sensitive information about Applicants’ facilities. This information is not generally available to the public, and is exempt from the mandatory public disclosure requirements of the Freedom of Information Act.4 In accordance with Section 388.112(b)(2)(ii) of the Commission’s regulations,5 Applicants have provided, in Attachment 3 to the Application, a proposed Protective Order pursuant to which other parties will have access to the non-public materials. The proposed Protective Order is a modified version of the Commission’s Model Protective Order, which creates a new class of protected materials, “Highly Sensitive Protected Materials,” and is substantively identical to Protective Orders used in other Commission proceedings.6 Notwithstanding the proposed Protective Order, the non-public materials should be treated as privileged materials reviewable by Commission Staff. The non-public materials are marked “CONTAINS PRIVILEGED MATERIAL” and “DO NOT RELEASE.”
Thank you for your consideration of this matter. Please do not hesitate to contact counsel listed below with any questions.
Very truly yours,
/s/ David G. Tewksbury Grace Su
Counsel for NRG Energy Holdings Inc.
Enclosures
cc: Steve P. Rodgers (FERC Staff) Andrew P. Mosier, Jr. (FERC Staff)
4 5 U.S.C. § 552 (2006). 5 18 C.F.R. § 388.112(b)(2)(ii) (2013). 6 See, e.g., Astoria Generating Co., L.P. v. New York Indep. Sys. Operator, Inc., 136 FERC ¶ 61,155 (2011) (“Astoria Generating”). The proposed protective order differs from that adopted in Astoria Generating in one non-material respect: it includes a separate form of non-disclosure agreement for “Competitive Duty Personnel,” who would not have access to Highly Sensitive Protected Materials, in order to minimize the risk of confusion about which individuals are entitled to see which materials. Applicants have also added a new defined term “Non-Disclosure Certificate for Competitive Duty Personnel” in paragraph 8(b) of the Protective Order and incorporated this new defined term into paragraph (17) of the Protective Order.
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UNITED STATES OF AMERICA BEFORE THE FEDERAL ENERGY REGULATORY COMMISSION
NRG Energy Holdings Inc. ) Edison Mission Energy and its Public ) Docket No. EC14-___-000 Utility Subsidiaries )
JOINT APPLICATION FOR AUTHORIZATION UNDER SECTION 203 OF THE FEDERAL POWER ACT
Pursuant to Section 203 of the Federal Power Act (“FPA”)1 and Part 33 of the regulations
of the Federal Energy Regulatory Commission (“FERC” or the “Commission”),2 NRG Energy
Holdings Inc. (“Holdings”) and Edison Mission Energy (“EME”) and its subsidiaries that are
“public utilities” under Section 201 of the FPA3 (the “EME Public Utilities”)4 (collectively,
“Applicants”) hereby submit this application (this “Application”) requesting such FPA
Section 203 approvals as may be deemed to be required in connection with a transaction
whereby Holdings will acquire substantially all of EME’s assets, including EME’s direct and
indirect interests in the EME Public Utilities and other generation-owning entities, in exchange
for cash and stock (the “Transaction”).5 As demonstrated herein, the Transaction satisfies the
1 16 U.S.C. § 824b (2006). 2 18 C.F.R. Pt. 33 (2013). 3 16 U.S.C. § 824 (2006). 4 The term “EME Public Utilities” does not include subsidiaries of EME that are qualifying facilities (“QFs”), as defined in Section 292.101(b)(1) of the Commission’s regulations, 18 C.F.R. § 292.101(b)(1) (2013), and that are exempt from FPA Section 203. See 18 C.F.R. § 292.601(c) (2013). 5 Specifically, Applicants seek Commission approval under FPA Sections 203(a)(1)(A) and 203(a)(1)(B), 16 U.S.C. §§ 824b(a)(1)(A), 824b(a)(1)(B) (2006), for the changes in control over the EME Public Utilities and their FERC-jurisdictional assets that will occur as a result of the Transaction. The Transaction should not require approval under Section 203(a)(2) of the FPA, 16 U.S.C. § 824b(a)(2) (2006), because Holdings is not currently a holding company. See The Goldman Sachs Group, Inc., 114 FERC ¶ 61,118 at PP 13-15, on reh’g, 115 FERC ¶ 61,303 (2006). Moreover, even if FPA Section 203(a)(2) applied to indirect acquisitions, any approval required would be provided by the blanket
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requirements of Section 203 of the FPA and the Commission’s Part 33 regulations because the
Transaction is consistent with the public interest and will not result in cross-subsidization of a
non-utility associate company or the pledge or encumbrance of utility assets for the benefit of an
associate company.
I. REQUEST FOR APPROVAL BY JANUARY 31, 2014 AND FOR A SHORTENED COMMENT PERIOD
Applicants respectfully request the issuance of an order approving this Application on or
before January 31, 2014 and a shortened comment period of 30 days in order to allow for
approval by that date. Approval of this Application will facilitate the timely reorganization of
EME and certain of its subsidiaries (collectively, the “EME Debtors”) under Chapter 11 of the
United States Bankruptcy Code (the “Bankruptcy Code”)6 and certain payments to their creditors
under a proposed plan of reorganization (the “Plan”) expected to be filed with the United States
Bankruptcy Court for the Northern District of Illinois (the “Bankruptcy Court”) by mid-
November 2013.
The Transaction is the linchpin of the Plan, which would resolve issues in the Chapter 11
proceedings that commenced on December 17, 2012.7 Timely implementation of the Plan will
allow the EME to make payments to creditors and to exit from bankruptcy during the first part of
authorization in Section 33.1(c)(8) of the Commission’s regulations, 18 C.F.R. § 33.1(c)(8) (2013), because Holdings’s parent, NRG Energy, Inc. (“NRG”), is a holding company solely with respect to exempt wholesale generators (“EWGs”), QFs and foreign utility companies (“FUCOs”) and, through the Transaction, will only be acquiring additional interests in EWGs, QFs and FUCOs through the Transaction. 6 11 U.S.C. §§ 101, et seq. (2006). 7 The EME Debtors’ voluntary petitions for relief under Chapter 11 of the Bankruptcy Code and other information on the EME Debtors’ bankruptcy proceedings is available at: http:// edisonmissionrestructuring.com/index.php.
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2014.8 The Plan is supported by major stakeholders in the bankruptcy proceedings, including the
Official Committee of Unsecured Creditors of EME (the “Committee”)9 and an ad hoc group of
holders of the EME Debtors’ debt securities.10
Implementation of the Plan, including the Transaction, would also moot issues pending
before the Commission since May 2013 in Docket No. EC13-103-000. In that docket, one of the
EME Debtors, Midwest Generation, LLC (“Midwest Gen”), filed an application11 for FPA
Section 203 authorization to relinquish control over FERC-jurisdictional facilities in connection
with Midwest Gen’s possible rejection of certain leases pursuant to Section 365 of the
Bankruptcy Code.12 Under the leases, Midwest Gen controls the Powerton Station, an
approximately 1,538 MW (summer rating) coal-fired generating facility in Tazewell County,
Illinois, and Units 7 and 8 at the Joliet Station (the “Joliet 7&8 Units”), coal-fired generating
units in Will County, Illinois with combined generating capacity of approximately 1,036 MW
(summer rating).13 As part of the Plan, Midwest Gen would assume, and thus remain obligated
8 Although the Plan has not yet been filed with the Bankruptcy Court, a term sheet describing the Plan was filed with the Bankruptcy Court on October 18, 2013. A copy of this term sheet is provided in Attachment 2 to this Application. 9 The Committee is the statutory fiduciary representative for the holders of unsecured claims against the EME Debtors. 10 The EME Debtors, NRG, the Committee and certain other stakeholders in the bankruptcy proceedings are parties to a Plan Sponsor Agreement, dated as of October 18, 2013 (the “PSA”). See Notice of Debtors’ Motion to Approve (I) Entry into Plan Sponsor Agreement, (II) Sponsor Protections, and (III) Related Relief, Case No. 12-49219 (JPC) (filed Oct. 18, 2013), available at http:// www.edisonmissionrestructuring.com/pdflib/1375_49219.pdf. Although acceptance of the Plan has not yet occurred for purposes of Section 1126 of the Bankruptcy Code, 11 U.S.C. § 1126 (2006), the PSA represents an agreement among the primary constituencies in the bankruptcy proceedings to support the Plan and the Transaction, and to seek the Bankruptcy Court’s approval thereof. 11 Application for Authorization for a Change in Control over Jurisdictional Facilities under Section 203 of the Federal Power Act, Docket No. EC13-103-000 (filed May 6, 2013) (the “EC13-103 Application”). 12 11 U.S.C. § 365 (2006). 13 Several parties filed protests to, or substantive comments on, the EC13-103 Application. See
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under, these leases. As a result, if the Plan, including the Transaction, is implemented, Midwest
Gen will be in a position to withdraw the EC13-103 Application. For this reason, Midwest Gen
is concurrently filing a motion in Docket No. EC13-103-000 requesting that the Commission
hold consideration of the EC13-103 Application in abeyance pending action on this Application
and the implementation of the Plan.
In order to allow for approval of this Application by January 31, 2014 and thereby
facilitate timely implementation of the Plan, Applicants respectfully request a shortened
comment period of 30 days. While the Commission’s general policy is to establish a comment
period of 60 days where, as here, an application includes an analysis under Appendix A of the
Merger Policy Statement,14 it has expressly declined to codify this policy in recognition of the
need to be “flexible to deal with varying circumstances.”15 Consistent with this recognition, the
Commission has regularly allowed for shortened comment periods in cases involving FPA
Section 203 applications that included Appendix A analyses.16 A shortened comment period is
Motion to Intervene and Protest of the Bank of New York Mellon, as the Indenture Trustee, Docket No. EC13-103-000 (filed June 14, 2013); Motion to Intervene, Protest and Request for Rejection or Deferral of Nesbitt Asset Recovery Series P-1, Powerton Trust II, Nesbitt Asset Recovery Series J-1 and Joliet Trust II, Docket No. EC13-103-000 (filed June 14, 2013); Exelon Corporation’s Motion for Leave to File Comments Out of Time and Comments on Application, Docket No. EC13-103-000 (filed Aug. 2, 2013). This Transaction should resolve or moot all of the substantive issues raised in these comments and protests. 14 Inquiry Concerning the Commission’s Merger Policy Under the Federal Power Act: Policy Statement, Order No. 592, FERC Stats. & Regs. ¶ 31,044 (1996) (the “Merger Policy Statement”), reconsideration denied, Order No. 592-A, 79 FERC ¶ 61,321 (1997). 15 Transactions Subject to Federal Power Act Section 203, Order No. 669, FERC Stats. & Regs. ¶ 31,200 at P 194 (2005) (“Order 669”), on reh’g, Order No. 669-A, FERC Stats. & Regs. ¶ 31,214, on reh’g, Order No. 669-B, FERC Stats. & Regs. ¶ 31,225 (2006). 16 See, e.g., Combined Notice of Filings #1, Docket Nos. EC13-152-000, et al. (Sept. 20, 2013) (unreported) (establishing a 21-day comment period for an FPA Section 203 application filed in Docket No. EC13-152-000); Combined Notice of Filings #1, Docket Nos. EC12-27-000, et al. (Nov. 9, 2011) (unreported) (establishing a 21-day comment period for an FPA Section 203 application filed in Docket No. EC12-27-000); Combined Notice of Filings #1, Docket Nos. EC11-118-000, et al. (Sept. 12, 2011) (unreported) (establishing a 21-day comment period for an FPA Section 203 application filed in Docket
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entirely appropriate with respect to this Application, because the Appendix A analysis only
serves to confirm that the Transaction does not present any competitive concerns. Indeed, as
discussed below and in greater detail in the report of John R. Morris, Ph.D., a Principal of
Economists Incorporated, provided in Attachment 1 hereto (the “Morris Report”), there are no
failures of the Appendix A screens.
II. BACKGROUND
A. Description of Applicants and Other Relevant Entities
1. Holdings and Relevant Affiliates
Holdings is a Delaware corporation formed for purposes of effecting the Transaction.
Holdings is a wholly owned subsidiary of NRG Acquisition Holdings Inc. (“Acquisition
Holdings”). Acquisition Holdings is a Delaware corporation also formed for purposes of
effecting the Transaction and is a wholly owned subsidiary of NRG.
NRG is a publicly held Delaware corporation and an integrated wholesale power
generation and retail electricity company. Through various subsidiaries, NRG engages in three
related electric businesses: (1) wholesale power generation and electricity and fuel trading,
(2) retail electric supply and demand response, and (3) deployment and commercialization of
alternative energy technologies, such as electric vehicles, distributed solar and smart meter
technology. In connection with the first of these business segments, NRG, through various
subsidiaries, owns or controls over 46,000 MW of electric generating capacity throughout the
United States. A number of these subsidiaries are owned through NRG Yield, Inc. (“NRG
Yield”), 65.5 percent of the voting interests in which are owned by NRG, which was formed to
No. EC11-118-000); Combined Notice of Filings #1, Docket Nos. EC10-15-000, et al. (Nov. 10, 2009) (unreported) (establishing a 28-day comment period for an FPA Section 203 application filed in Docket No. EC10-15-000).
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own a diversified portfolio of contracted renewable and conventional generation and thermal
infrastructure assets in the United States. The outstanding shares of NRG and the outstanding
shares of NRG Yield not held by NRG are publicly traded.17
NRG and NRG Yield have the following subsidiaries18 that own or control generation in
the California Independent System Operator Corporation (“CAISO”), PJM Interconnection,
L.L.C. (“PJM”)19 and Midcontinent Independent System Operator, Inc. (“MISO”)20 markets,21
17 T. Rowe Price Group, Inc. (“T. Rowe Price”), a publicly held company, has reported that it owns in excess of 10 percent of the outstanding shares of NRG. See Letter from Ryan Nolan to Kimberly Bose, Docket No. EC10-51-000 (filed Feb. 20, 2013) (submitting Schedule 13G filings with the Securities and Exchange Commission relating to holdings of common shares of NRG and other companies). To Holdings’s knowledge, no other investor, individually or together with its affiliates, owns directly and/or indirectly 10 percent or more of the voting securities of either NRG or NRG Yield. The Commission has granted blanket FPA Section 203 authorization to T. Rowe Price and certain of its subsidiaries and affiliates to acquire up to 20 percent of the voting securities of public utilities subject to certain conditions designed to prevent them from exercising control over such public utilities. See T. Rowe Price Group, Inc., 143 FERC ¶ 62,003 (2013); T. Rowe Price Group, Inc., 131 FERC ¶ 62,040 (2010); T. Rowe Price Group, Inc., 119 FERC ¶ 62,048 (2007). In light of these conditions, other entities in which T. Rowe Price and its affiliates may own voting interests of 10 percent or more should not be regarded as affiliates of NRG or its subsidiaries. 18 Except as otherwise noted, these entities are wholly owned indirectly by NRG and/or NRG Yield. 19 A subsidiary of NRG provides operations and maintenance (“O&M”) services at the Homer City Electric Generating Station, an approximately 1,884 MW (summer rating) coal-fired generation facility near Indiana, Pennsylvania. This entity provides such O&M services at the direction of the station’s owner, Homer City Generation, L.P. (“HCGen”), and HCGen retains ultimate decision-making authority with respect to the operation of, and wholesale sales from, the station. Consequently, control of the Homer City Electric Generating Station cannot properly be attributed to NRG or any of its subsidiaries. See Bechtel Power Corp., 60 FERC ¶ 61,156 at 61,571-73 (1992). Nonetheless, Dr. Morris performed sensitivity analyses (provided in his workpapers) demonstrating that, even if control over Homer City Electric Generating Station were attributed to NRG, the Transaction would still not have an adverse impact on competition in the relevant market. See Morris Report at 23. 20 This list includes affiliates of Holdings that own or control generation facilities in the Entergy Services Inc. (“Entergy”) balancing authority area (“BAA”) in light of the planned integration of the Entergy and Cleco Power LLC (“Cleco”) BAAs into MISO, which is scheduled to occur on December 19, 2013. See MISO, MISO Southern Region Integration Workshop (Sept. 12, 2013), available at https:// www.misoenergy.org/Library/Repository/Meeting%20Material/Stakeholder/Workshop%20Materials/Sou thern%20Region%20Integration%20Workshop/20130912/20130912%20Southern%20Region%20Integra tion%20Workshop%20Presentation.pdf. None of NRG’s or NRG Yield’s subsidiaries owns or controls generation in the Cleco BAA. 21 NRG indirectly owns various small distributed solar projects not listed below in the CAISO, Arizona and PJM. NRG’s distributed solar projects in the CAISO market and Arizona are reflected in
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which are the markets where EME and its subsidiaries (including the EME Public Utilities) also
own or control generation:22