Massachusetts has taken another significant step toward its goal of a fossil-fuel-free future.
Last week, state regulators issued an order changing who pays when a new customer wants to connect to the gas system, shifting the burden from gas utility consumers as a whole to the household or organization that requests the hookup. Utilities have 30 days from the date of the order to file plans that reflect the new payment guidelines.
It may seem like a small change, but it’s actually a pretty big deal, advocates said.
“It means the expansion of the gas system will be much slower than it otherwise would’ve been,” said Mark Dyen, a climate activist working with advocacy groups Gas Transition Allies and 350 Mass. “It says, ‘If you want to add to that for your own benefit, you can pay for it.’”
Massachusetts has for years been at the forefront of efforts to transition away from natural gas. In December 2023, state utility regulators issued a sweeping order — the first of its kind in the country — that made clear the state’s goal is to move away from fossil-fuel use as it aims to reach net-zero carbon emissions by 2050. The 2023 order laid out a framework for how gas utilities will be expected to participate in this evolution.
Last week’s decision on who should pay for gas-line extensions is the latest effort to turn those principles into practice.
Under the old rules, a new customer that wants to hook up their building to gas generally does not have to pay out of pocket: The cost is spread out among all the utility’s customers over the course of several years on the assumption that the newcomer’s future fuel use will create enough revenue to cover the initial price, a practice known as “line-extension allowances.” In 2023, the average cost of such an installation was $9,000, for an annual total of more than $160 million statewide, according to an analysis filed in the case by research firm Groundwork Data.
“Existing customers are subsidizing these new customers,” said Kristin George Bagdanov, senior policy research manager for the nonprofit Building Decarbonization Coalition. “It’s a misalignment of who’s shouldering the costs.”
In their ruling last week, Massachusetts’ regulators agreed with this stance and also declared that the existing approach runs counter to the state’s climate goals by encouraging greater adoption of natural gas. Plus, they said, the current system increases the chance that customers will be left paying for unneeded infrastructure, as more homes and businesses leave the gas system for electricity.
Typically, utilities calculate a 10-year payback period for commercial connections and 20 years for residential. However, as more customers adopt energy-efficiency measures, switch to electric appliances, and even electrify completely, their gas usage — and therefore the revenue they generate for utilities — will drop, extending the payback period, argued Massachusetts Attorney General Andrea Campbell in an October filing to state utility regulators.
Currently, more than half of Massachusetts homes are heated with natural gas. However, between 2021 and 2024, about 90,000 households installed heat pumps using incentives from energy-efficiency program Mass Save; the true total, including installations that didn’t go through the incentive program, is likely higher. The state is aiming to get 500,000 households to adopt heat pumps between 2020 and 2030.
“It really doesn’t make sense for existing ratepayers to pay for people to join when we are actively transitioning people off the system,” said Sarah Krame, a senior attorney for the Sierra Club’s Environmental Law Program. “The economics of that don’t make sense anymore. We’re no longer in that world.”
Massachusetts joins a handful of other states addressing the issue of line-extension allowances. Over the past three years, these subsidies have been reduced or eliminated in six states, and another six and Washington, D.C., are now considering reforms, according to the Building Decarbonization Coalition. In 2022, California became the first to do away with the practice. In June of this year, Maryland utility regulators ended the allowances, and New York state legislators passed a bill that will do the same if it becomes law.
“This is definitely a trend we’re tracking,” George Bagdanov said. “It’s part of the larger movement to reevaluate business-as-usual gas system operations.”
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