Code Governance Review

Initial Proposals

Industry Codes and LicensingOfgem

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Can the arrangements meet future challenges and deliver reform and benefits to consumers?

The Governance Review…context

Codes have worked well to deliver incremental change, but..

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Process to date

• Scope of codes governance review (June 2008)• Initial consultations

– Major policy reviews and self governance (Dec 08)– Role of code administrators and small participant, etc.

initiatives (Dec 08)– Code objectives and the environment (Nov 08)– Charging methodologies (Sept 08)

• Code Administrators Working Group (CAWG)– Report published April 2009

• Initial Proposals consultations– Major policy reviews and self governance (July 09)– Code administrators and small participants etc (July 09)– Code objectives and environment (June 09)– Charging methodologies (coming soon)

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Objectives of code governance review

• Promote inclusive, accessible and effective consultation• Governance rules and processes transparent and easily

understood• Rules administered in independent and objective fashion• Provide rigorous and high quality analysis• Cost effective• Rules and processes flexible to allow effective change

management• Deliver in a manner that places a proportionate regulatory burden

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Focus of today….

• Major Policy Reviews and Self Governance

• Role of Code Administrators

• Small participant/consumer initiatives

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Major Policy Reviews and Self Governance

Ofgem initiates review

Third party raises mod proposal

Ofgem categorises

Merits appeal to Ofgem

Ofgem runs review

process –legally binding

conclusions

Standard merits

CC appeal

Ofgem decision –accept or

reject mod

Ofgem issues

decision

Panel develop mod

to comply with

conclusions

Ofgem decision

Panel decision –accept or

reject

Consultation and Panel

recommendation

Standard CC merits

appeal

PATH 2 – “REFORMED STATUS QUO”

PATH 3 – SELF GOVERNANCE

PATH 1 – OFGEM POLICY REVIEWDECEMBER 08 PROPOSALS

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Major Policy Reviews – Respondents’ views

• Mixed views from respondents

• Some agreed that codes were not effective in delivering major strategic reform

• Others preferred existing framework – e.g. wide number of alternatives can be raised, iterative process, Ofgem engagement

• Concerns raised regarding level of consultation and accountability of Ofgem for MPR conclusions

• Concern that MPR would limit ability of panels to vote freely

• Support for self governance proposals

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Major Policy Reviews – Key observations

• MPRs form key part of Initial Proposals

• Ofgem lead, single process, coordinated and transparent

• Recognition that MPRs give Authority more control

• Therefore checks and balances are important

• Proposals are necessary and proportionate

• Not expected to do more than 1 or 2 a year

• Increased alignment with ACER

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Major Policy Reviews – Checks and balances

New powers with full accountability

• Set out plans to conduct MPRs in Corporate Strategy• Consult on scope of MPR, issues and options for reform• We expect to carry out IAs• Publication of written conclusions• Consultation on modification proposals following any Ofgem

direction• Ofgem will retain open mind throughout process• No restrictions on panel member voting• Proposals intended to promote debate through transparent,

consultative framework.• Proposals do not affect rights of appeal to CC or conduct of appeal

process

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Major Policy Reviews – Key changes

• Ofgem has listened to concerns raised by respondents• Several key changes proposed to improve MPR process

KEY CHANGES

• Time window for industry participants to raise alternative modification proposals

• Urgent modification proposal facility

• Ability for Authority to change “directions” – e.g. if new information comes to light

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Major Policy Review – Outcome of MPR

December 2008 options

• Option 1 – High Level Binding Conclusions• Option 2 – Detailed Binding Conclusions• Option 3 – Ofgem prepares modification proposal and legal text.

Initial Proposals

•No options being ruled out – case by case assessment•Preference to use Options 1 or 2, and rely on industry expertise to prepare modification•Backstop power to draft code modifications

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Filtering and self governance

Determining the modification pathway

• Filtering decisions taken by industry, subject to Ofgem veto• Modifications can therefore be redirected between self

governance and Ofgem decision paths (Paths 2 and 3)• Changes to filtering criteria – “non-trivial” impacts

Self governance

• Key elements including the decision maker, voting mechanisms – for industry to develop and submit to Ofgem for approval

• Appeal mechanism• Ofgem to act as appeal body• Grounds of appeal – unfairly prejudice party’s interests/does

not meet code objectives• Establish “forum” to help resolve disputes/reduce appeals

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Major Policy Reviews and Self Governance

Proposed new framework

Ofgem begins Major Policy

Review

Third party raises mod proposal

Industry filters mod proposal, subject to Ofgem redirection

Appeal to Ofgem

Ofgem consults on scope, issues

and options (including an IA),

publishes conclusions and

directions Standard CC

appeal

Relevant licence holder/s develops

modification to reflect MPR directions.

Alternative mods possible within time window (and urgent mods at any time)

Ofgem decision

Consultation and Panel decision

Consultation andPanel recommendation

PATH 2 – “ REFORMED

STATUS QUO ”

PATH 3 – SELF

GOVERNANCE

PATH 1 – OFGEM

POLICY REVIEW

Ofgem decision

Standard CC appeal

Potential standard

CC appeal*

Appeal to Forum

Ofgem decision

Consultation and

Panel recommend-

ation

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Code administrators + consumer/small participant consultation

KEY ISSUES IN DECEMBER DOCUMENT

– Role of code administrators

– Accountability and independence of code administrators and panels – cost and quality of service

– Quality of analysis- modification reports difficult to understand / deficiencies in analysis

– Engagement of new entrants /small participants/consumers• Opaque/complex modification reports• Difficulties engaging at workgroup level

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Changing the roles and responsibilities of administrators?

December document options

Critical friend or active secretariat?

Respondents’ views

•No issues with quality of analysis•More engagement from Ofgem•Active secretariat not independent

Initial proposals

Requirement on CAs to adopt “critical friend”

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Critical friend

What is the scope of the critical friend function?

• Primary and secondary activities• Assess whether analysis on mod proposal is robust and

comprehensive?• Are all arguments for and against a proposal discussed?• Are unsubstantiated assertions challenged? • Assess whether a proposal has particular impacts on small

participants or consumers• Assist small participants and consumers (eg on drafting mods,

clarification of code text, explaining impacts of code modifications)

• Code administrators not performing these roles currently

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Accountability and independence of administrators

December document options

• Status quo - integration• Management unbundling/operational separation• Independent company and board structure• Independent chairmen of administrators• Improvement objectives/targets/KPIs• Treatment of costs – service contracts/price controls etc

Respondents’ views•Little support for company structures•Some support for service contract approaches

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Accountability and independence of code administrators

Initial proposals• Board structures provide optimal framework for

accountability and transparency• Merit in exploring service contract structures through

industry work-streams/issues groups• BUT, at this stage NO proposals for structural reform• Ofgem remains open to considering change in this area• More scope for CAs to develop and publish KPIs

Independently appointed chairs – CUSC and UNC• Help to embed critical friend approach• Support self governance framework• Aligns CUSC and UNC with BSC

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Other potential improvements

December document options

• Power to “call in” and “send back” modifications

• Panel members provide reasons for decisions

• Code administrators raise modifications

• Code of practice for administrators

• Performance evaluation – “scorecard approach”

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Other potential improvements

Respondents’ views

• Little support for “send back” power, some support for “call in” – more engagement from Ofgem

• Limited support for CA ability to raise mod proposals• Support for publication of panels reasons for decisions• Support for voluntary code of practice• Support for performance benchmarking

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Other potential improvements

Initial Proposals

• “Call in” – enable Ofgem to issue directions on:– scope of analysis that needs to be undertaken on mod

before it is submitted to Authority– timetabling of modification

• “Send back” – address deficient analysis or where further work is required

• Require panels to provide reasons for recommendations explained by reference to code objectives.

• Performance scorecard reviews of code administrators• Voluntary Code of practice – develop through CAWG• Ability of panels to raise proposals on administration

issues

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Small participant, new entrant and consumer representation initiatives

December options• Status quo ‘plus’ – voting rights on CUSC/UNC/BSC• Advocacy panel• Increased role for Ofgem consumer challenge group• Duty on code administrators to assist small

participants/consumer representatives

Respondents views• Difficulties/barriers for small participants• Some support for obligation on CAs• But little support for advocacy panel• Support for extending consumer rights across codes

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Small participant, new entrant and consumer representation initiatives

Initial proposals• Ofgem remains concerned about small

participant/consumer engagement• Duty on CAs to assist small participants and consumer

representatives• No proposals for dedicated voting seats for small

participants• BUT Consumer Focus voting rights should be extended

to UNC

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Small participant, new entrant and consumer representation initiatives

What is captured by a duty on CAs?• Contacting small participant/consumer reps on issues that

may impact them• Assisting frame and develop proposals• Ensuring viewpoints are articulated and debated at

workgroup and panel meetings• Ensuring views are reflected in workgroup and modification

reports• Management of meetings, web forums, improved websites• A reasonable endeavours duty?• Definition of small participant

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Next Steps

• Responses due Friday 18 September

• August consultation on licence drafting

• Reconvene CAWG to develop Code of Practice

• Publish Final proposals early 2010.