Massachusetts scrutinizes pipeline-safety program as gas bills spike
In Massachusetts, many natural gas customers are receiving what they say are the highest utility bills they’ve ever faced.
The reasons for these spiking costs are complex, ranging from volatile gas supply prices to this winter’s unusually frigid weather. Less discussed, however, is the effect of utilities’ Gas System Enhancement Plans, or GSEPs. The state requires these annual plans in an effort to make the gas pipeline system safer, but many lawmakers and climate advocates argue that utilities are taking advantage of the GSEPs to boost profits and build out fossil-fuel infrastructure Massachusetts doesn’t really need as it transitions to clean energy. Most residents likely don’t even know GSEPs exist, but the costs have escalated in the 12 years they have been in effect, and now make up roughly a tenth of gas customers’ monthly bills.
The program was created in 2014 to address growing safety concerns about the dangers posed by leaks in Massachusetts’ natural gas pipes, which are among the oldest in the country: One out of every four miles of pipeline in the state was installed before 1940.
As gas pipes get older, they become more prone to catastrophic breaks that can cause explosions, like the one in San Bruno, California, in 2010. Natural gas leaks also release planet-warming methane and other hazardous compounds, like benzene and xylene, said Jonathan Buonocore, an assistant professor of environmental health at Boston University.
“Many of these are health-damaging pollutants, and some are carcinogenic,” he said.
Massachusetts decided to address the problem by, in short, allowing utilities to make more money, more quickly when they repair or replace leak-prone pipes.
In general, gas utilities’ profits come from the delivery portion of their rates. They invest in pipes, compressor stations, and other infrastructure, then recoup that money — plus a set rate of return — from customers over a span of 20 years or more. They can’t start recovering those costs, however, until they go through a rate case, in which state regulators spend nearly a year scrutinizing utilities’ calculations and determining whether their requested rates are justified. Massachusetts requires a new rate case for gas utilities only every 10 years, though the companies can file a request for rate changes more often.
By contrast, the state lets utilities get that money back faster for GSEP projects. Regulators must approve the plans within six months, and then utilities can start passing costs through to customers soon afterward. The law set an initial annual cap on GSEP spending of 1.5% of a company’s revenue, but utility regulators can — and have — increased that number. In 2019, the state raised the cap to 3%.
The costs of the program have climbed from $291 million in GSEP spending in 2015 to a proposed $880 million in 2025. The costs now account for 8% to 11% of customers’ bills.