Operating Committee Organizational Structure White Paper



Proposed Operating Committee StructureOrganizational Structure Review Task ForceMay17, 2016155 North 400 West, Suite 200Salt Lake City, Utah 84103-1114Table of Contents TOC \o "2-3" \h \z \t "Heading 1,1" Introduction PAGEREF _Toc450732475 \h 1ORSTF Review Approach PAGEREF _Toc450732476 \h 1Timeline and Goals PAGEREF _Toc450732477 \h 2Preliminary Findings PAGEREF _Toc450732478 \h 3Ground-Up Approach PAGEREF _Toc450732479 \h 3How do existing groups fit into in to the identified functions/activities? PAGEREF _Toc450732480 \h 4External Forums PAGEREF _Toc450732481 \h 5User Group Concept (type of External Forum) PAGEREF _Toc450732482 \h 6Operating Committee (Reliability Improvement) PAGEREF _Toc450732483 \h 6Event and Performance Analysis Subcommittee (EPAS) PAGEREF _Toc450732484 \h 6Situational Awareness and Security Monitoring Subcommittee (SASMS) PAGEREF _Toc450732485 \h 6Proposed Operating Committee Structure PAGEREF _Toc450732486 \h 7Event and Performance Analysis Subcommittee (EPAS) PAGEREF _Toc450732487 \h 7Situational Awareness and Security Monitoring Subcommittee (SASMS) PAGEREF _Toc450732488 \h 9Physical Security Work Group (PSWG) PAGEREF _Toc450732489 \h 10Add Cyber Security Work Group (CSWG) PAGEREF _Toc450732490 \h 11External Forum Groups PAGEREF _Toc450732491 \h 11Interchange Scheduling and Accounting Subcommittee (ISAS) PAGEREF _Toc450732492 \h 12Next Day Study Work Group (NSDWG) PAGEREF _Toc450732493 \h 12Path Operations Implementation Task Force (POITF) PAGEREF _Toc450732494 \h 12Remedial Action Subcommittee Reliability Subcommittee (RASRS) PAGEREF _Toc450732495 \h 13Technical Operations Subcommittee (TOS) PAGEREF _Toc450732496 \h 13Unscheduled Flow Administrative Subcommittee (UFAS) PAGEREF _Toc450732497 \h 13Essential Reliability Services Work Group (ERSWG) in WECC PAGEREF _Toc450732498 \h 14IntroductionThe WECC Operating Committee formed the Organizational Structure Review Task Force (ORSTF) at the October 2015 Operating Committee meeting. The OSRTF Charter states:The purpose of the OSRTF is to review the overall OC structure including all subcommittees, task forces and work groups (“OC Committees”). The OSRTF will perform a comprehensive review of the OC Committees to align the work of the OC Committees with WECC’s mission. The OC Committees review should also focus on examining OC Committees’ reporting relationships and merging OC Committees or eliminating them if they no longer support WECC’s mission or provide value to WECC Members.The OSRTF shall:Identify instances where WECC interfacing with OC Committees is needed to support WECC’s reliability mission.Identify duplication of work being performed by the OC Committees that can be consolidated.Identify OC Committees that should be eliminated or transferred to other groups/organizations.Provide a report of recommendations to the Operating Committee for approval.ORSTF Review ApproachThe OSRTF began by examining the NERC-WECC Delegation Agreement and the WECC Bylaws to determine tasks that WECC is obligated to perform. The NERC-WECC Delegation Agreement, Section 7, describes activities performed by WECC. Section 7 activities are:Certification of Bulk-Power System EntitiesRegistration of owners, operators, and users of the Bulk-Power System as responsible for compliance with requirements of Reliability StandardsReliability Assessment and Performance AnalysisEvent Analysis and Reliability ImprovementTraining and EducationSituation Awareness and Infrastructure SecurityThe WECC Bylaws describe the processes governing WECC, of which Section 2 (Furtherance of WECC’s Mission) was relevant to the OSRTF review.The ORSTF applied three criteria to its review of OC activities:OC activities should support WECC’s reliability mission, including activities under the NERC/WECC Delegation Agreement Sections 7c, 7d, 7e and 7f OC activities should provide value to WECC membershipOC activities should complement but not unnecessarily duplicate NERC effortsTimeline and GoalsThe OSRTF plans to complete its work by year-end 2016.April 19, 2016 – Send Initial proposal to OC and solicit feedbackApril 28, 2016 – Comments on Recommendations for the white paper due back to OSRTFApril 29, 2016 – OSRTF review and address comments from OC May 13- June 1, 2016, second posting for stakeholder commentJune 10, 2016, post for 30-day OC ApprovalJuly 12-13, 2016 – Recommendations presented to OC for approvalSeptember 2016 – Recommendations presented to WECC Board of Directors for approvalDecember 2016 – Organize a Transition Team that will develop Transition Timeline to implement the proposed organizationPreliminary FindingsGround-Up ApproachThe OSRTF used a ground-up approach. Starting with analyzing Section 7 of the Amended and Restated Delegation Agreement between NERC and WECC, the group looked for those delegated functions that are closely addressed through activities conducted in the Operating Committee. The OSRTF went step-by-step through the Delegation Agreement to determine where each of the roles resided at WECC:Section 7a - Certification of Bulk-Power System EntitiesThis function is done as a collaborative process by NERC and WECC Staff with some participation by qualified members from Peak Reliability (Peak), WECC Balancing Authorities and Transmission Operators and as per the NERC Rules of Procedure Section 500.Section 7b – Registration of owners, operators, and users of the Bulk-Power system as responsible for compliance with requirements of Reliability StandardsThis function was identified as a being addressed through work done by WECC Staff.Section 7c – Reliability Assessment and Performance AnalysisWECC Staff, with help from members through committees like Performance Work Group (PWG) and Unscheduled Flow Administrative Subcommittee (UFAS), track and manage system performance as well as develop reports and metrics on interconnection-wide system reliability. The OSRTF discussed that the OC membership should be more informed on these issues and they should be communicated to the OC.Section 7d – Event Analysis and Reliability ImprovementThis function is addressed through WECC Staff and Operating Practices and Event Analysis Subcommittee (OPEAS). Subject matter experts in other OC subcommittees and work groups, such as Operating Issues Work Group (OIWG), Critical Infrastructure and Information Management Subcommittee (CIIMS), Energy Management System Work Group (EMSWG), Human Performance Work Group (HPWG), and Relay Work Group (RWG), lend expertise when reviewing event analysis reports.Section 7e – Training and EducationWECC Staff currently uses stakeholder expertise through the Operations Training Subcommittee (OTS) to provide direction and assistance to develop and implement its training program. As a result of the recent training program assessment survey, WECC management is proposing a remodeling of the WECC Training Program. The training assessment survey indicates a clear decline in the attendance to the WECC System Operator Training Sessions. Subsequently, WECC Staff is proposing the elimination of the Continuing Education (CE) Operator Training Program and proposes placing emphasis on an Education and Stakeholder Outreach training program that specializes on key training needs of the stakeholders.Section 7f – Situational Awareness and Infrastructure SecurityWECC staff gathers and assesses situational awareness information provided by registered entities pursuant to the NERC Rules of Procedure and applicable governmental regulations. WECC staff provides other data, information and assistance to NERC in support of NERC’s activities in monitoring present conditions and responding to events on the Bulk-Power System). WECC staff collaborates with NERC in its efforts to coordinate electric industry activities to promote critical infrastructure protection of the Bulk-Power System in North America.The OSRTF concluded that the functions—outlined in 7c, 7d, 7f and, loosely, 7e—have a relation to the OC. The group also went through the WECC Bylaws to identify the activities WECC has outlined as necessary to carry out WECC’s mission (specifically Section 2 of the WECC Bylaws) and what activities are currently addressed through the OC. The activities outlined in the WECC Bylaws that have direct ties to the OC include:2.1.3 – Regional Coordination2.1.6 – Reliability Assessment2.1.9 – Coordinated OperationsThese activities are critical to the reliable operation of the Bulk-Power System within the Western Interconnection.How do existing groups fit into in to the identified functions/activities?The OSRTF took the underlying themes of the Delegation Agreement and WECC Bylaws and formed “buckets” where the current OC Committees could be placed (e.g. “Performance Analysis / Event Analysis,” “Situational Awareness & Security Monitoring,” “Reliability Improvement”). There was also a bucket for committees that the group needed to research more (titled “Unknown”). The OSRTF, through the process of placing current OC Committees into the separate buckets, made five major discoveries:The OC’s main objective is focused on reliability improvement.The two main functions of the OC are supporting WECC’s delegated function and mission in (1) event and performance analysis and (2) situational awareness and security monitoring. Therefore the OSRTF proposes two new subcommittees under the OC that focus on these functions.There are some functions under the OC that align more closely with the functions of the Reliability Coordinator (RC), including some that are soon to be required functions of the RC.There are items addressed in the OC that are very specialized, but do not need the oversight of the OC). For this type of situation, the OSRTF introduced the concept of an External Forum.There are some OC Committees that are a duplication of their parent committees, so the OSRTF proposes to roll them into their parent committees to avoid the duplication of effort. There were other OC Committees where there was limited or no work product being produced, or the OSRTF did not see them as providing value to WECC members; so the OSRTF proposes disbanding or sun setting those groups.External ForumsSeveral subcommittees and work groups have been identified as providing value but do not necessarily belong at WECC (i.e. WECC may not be the best fit). In these instances, the OSRTF recommends transitioning the groups to some other forum outside of WECC. In any case in which a disruption in the subcommittee/work group cadence may negatively impact members, it is recommended that WECC continue to support the group until the transition is successfully completed.Some possible options for these external forums include new or existing groups under the North American Transmission Forum (NATF) or Peak Reliability. Another option is a User Group; the management and organization of the User Groups should be independent of WECC, but meetings may be conducted at WECC facilities when conference rooms are available.User Group Concept (type of External Forum)Several subcommittees and work groups did not fit easily into a reorganized OC, but the OSRTF recognized that they brought value to the industry. The OSRTF suggests the concept of a “User Group” be developed to address some very specific tasks that fall outside of the OC’s proposed structure.User GroupsFocused on miscellaneous issues, processes, or toolsThe management and organization of the user groups will be independent but WECC may participate Operating Committee (Reliability Improvement)During the OSRTF’s review of the current OC Committee structure, the group identified that the OC’s main objective is to improve reliability through collaboration between entities in the Western Interconnection. The OC should remain a forum for members to use their collective resources to disseminate to the Western Interconnection lessons learned and guidelines on operational best practices. The entities in the Western Interconnection should strive to have the highest reliable collective system and an open and collaborative process should continue to be enabled by WECC.The OSRTF proposes the establishment of two new subcommittees under the OC to better define and align the work of the OC and its reliability improvement mission.Event and Performance Analysis Subcommittee (EPAS)The EPAS will focus on analyzing event and Interconnection-wide performance and developing lessons learned to be shared with the WECC members. The role of this subcommittee is to review events and apply Lessons Learned to prevent the recurrence of similar types of events; and, more importantly, minimize the exposure to larger-scale events.Situational Awareness and Security Monitoring Subcommittee (SASMS)The Situational Awareness and Security Monitoring Subcommittee (SASMS) will work collaboratively with the EPAS to ensure the tools and resources are in place to prepare for unknown system conditions or events that may threaten grid reliability. This group will work to ensure the industry is prepared for threats or conditions that may occur in the near-term operating horizon.Proposed Operating Committee StructureFigure SEQ Figure \* ARABIC 1 Proposed Operating Committee StructureEvent and Performance Analysis Subcommittee (EPAS)During OSRTF’s review of the delegated tasks described in the NERC/WECC Delegation Agreement; Reliability Assessment and Performance Analysis, and Event Analysis and Reliability Improvement were recognized as key functions to ensure reliable operations of the Western Interconnection. In the current OC Organizational Structure, the analysis, trending, and reliability assessment of Bulk-Power System (BPS) events are supported by:Operating Practices and Event Analysis Subcommittee (OPEAS);Operating Issues Work Group (OIWG);Performance Work Group (PWG);Relay Work Group (RWG);Human Performance Work Group (HPWG);Energy Management System Work Group (EMSWG); andData Exchange Work Group (DEWG). After considerable discussion, the OSRTF felt that the work of the OPEAS and the OIWG could be consolidated into the proposed EPAS, and both of the existing groups could be eliminated. EPAS will focus on Event Analysis and leveraging the data provided by the NERC Event Analysis Process into useful lessons learned, reliability guidelines, and analysis of trends. The proposed workgroup structure of EPAS is designed to ensure subject matter experts are available to both WECC Staff engaged in the Event Analysis Process and to EPAS in evaluating Event Analysis data. With findings from the Event Analysis Process showing an increase in events where the root cause and/or contributing factors point to human performance, along with the need to consider a possible Near Miss Process within WECC, the OSRTF agreed that HPWG should remain and report to the proposed EPAS. Presently, HPWG reports to OTS. The current charter of the OTS states they are responsible for reviewing and providing input on the direction of the WECC Continuing Education Hours (CEH) training program. An internal WECC review in coordination with the OTS and OSRTF determined that WECC no longer needed to be providing training to System Operations personnel for CEH when so many other options are available. Human performance is the ultimate goal of the OTS, and training is a tool used to improve human performance. OSRTF determined that OTS and HPWG should be combined into the HPWG, with the general training collaboration occurring in OTS becoming part of the HPWG.The OSRTF reviewed the tasks performed by the Relay Work Group (RWG). The RWG reviews System Event Brief Reports where protection systems were a root cause or contributing factor. They develop reports and recommendations from the review of these events for stakeholders. Additionally, the RWG supports the Reliability Assessment and Performance Analysis delegated responsibility through the review of the Quarterly Misoperation Reports and subsequently develops reports, recommendations and guidelines where applicable. It was the decision of the OSRTF to keep the RWG within the Operating Committee Organizational Structure and report to the proposed EPAS. Recently there have been discussions at the Operating Committee regarding the perceived lack of representation of the Generator Operators (GOP) in various WECC forums. In addition, there is an increase in focus on issues that involve the GOPs, such as frequency response that requires the GOP’s participation and to coordinate more with their host BAs. During the discussions with OSRTF, there was the consideration that the GOPs could be represented and help in this coordination by their participation at the Operating Committee level. The OSRTF is still evaluating this issue and considering the addition of a Generator Operator Work Group (GOWG), but OSRTF would like to get input from the Operating Committee on this issue.An additional area of concern is the changing resource issue and the continued movement to retire traditional fossil-fueled generators that provide essential services such as frequency response and voltage/reactive support. There are currently activities at NERC associated with the Essential Reliability Services Work Group that are dealing with these issues. The question of the OSRTF is whether WECC should put its focus on the NERC efforts or develop a similar group within WECC. One consideration would be to re-charter the PWG to include its current responsibilities, which closely correlate with the NERC ERSWG, and add issues associated with changing resources and essential reliability services.Situational Awareness and Security Monitoring Subcommittee (SASMS)Combine Data Exchange Work Group (DEWG) and Energy Management Systems Work Group (EMSWG)The purpose of the EMSWG is to coordinate the development of network and data modeling policies in support of the EMS throughout the Western Interconnection. The purpose of the DEWG is to facilitate the exchange of all information needed to support the reliable operation of the Western Interconnection by providing policies for sharing the real-time data. Although each work group has a different responsibility and scope, the goal of both is the data necessary to support the reliable operation of the Bulk Power System (BPS). The Operational and Information Technology Systems and data policies that the work groups provide are both aligned to that goal. Historically, the DEWG has been more focused on the infrastructure of the WECC Operations Network (WON) used for data exchange. However, over the years the physical “backbone” of the WON has been replaced by a hub-and-spoke configuration that is managed more at the entity level. Currently, the DEWG deals more with issues specific to data policy and less with the infrastructure. As the focus of the DEWG shifted, its discussions and efforts aligned more closely with that of the EMSWG. For that reason, in recent years, the two work groups have been meeting jointly but have preferred to remain separate for one key reason, participation.While the work groups deal with overlapping subjects, members typically have different skillsets. For some companies, particularly small ones, one individual might be knowledgeable in both areas but many companies cover the data-exchange and EMS responsibilities separately. For the latter case, representation of both aspects is critical to the success of the work group. In the past, members have expressed concern that entities might begin to send only one representative if the work groups were combined. The OSRTF discussed the relevance of the work and skillset of the Telecommunications Work Group (TELWG) and believe there is a strong correlation of their activities with those of the Data Exchange Work Group and Energy Management System Work Group. With the current effort to streamline the committee structure the OSRTF recommends combining these three groups, addressing the membership and skillset issues in the combined groups new charter and recommend they report to the Situational Awareness and Security Monitoring Subcommittee. Physical Security Work Group (PSWG) The members of the PSWG help one another tremendously through information sharing, collaboration and benchmarking. Members actively participate and they consider their efforts to be extremely productive and valuable. The aspect of the meetings that members find most informative is facility visits, which give participants an opportunity to observe operational issues and solutions first-hand. OSRTF recognizes the collaboration and value within the PSWG; efforts should be made to distribute and share their conclusions, lessons learned, best practices and recommendations with WECC Membership.Given that Physical Security concerns within WECC are consistent with those throughout the country, the OSRTF believes this collaboration would be even more valuable with a broader group and recommends that the WECC PSWG engages with the NERC Physical Security Subcommittee and applicable Work Groups. Add Cyber Security Work Group (CSWG)With the increase in attempted and successful cyber-attacks aimed at the utility industry, cyber security has emerged as a key focus for the industry. NERC has addressed these concerns with the creation of the NERC Critical Infrastructure Protection (NERC-CIP) Regulatory Standards. Additionally, training is now being offered in the areas of secure programming, network security and other related areas. There is often a gap between those with an expertise in cyber security, regulatory compliance, and the management of EMS. As cyber security reliability standards and industry best practices evolve to address the security concerns, there is a need to bridge the gap between compliance and technical staff. In addition, with the proposal to establish the combined EMS/DEWG, a Cyber Security Work Group (CSWG) to support the newly combined work groups will provide much needed focus on this area. The proposed CSWG will act as a liaison forum between technical experts and the compliance/security professionals.Joint Synchronized Information SubcommitteeIt was also noted that for detailed analysis of system performance during BPS events, data collected by the Joint Synchronized Information Subcommittee (JSIS) from Phasor Measurement Units (PMU) provides high quality data to better analyze the dynamics and stability of the system during events. The OSRTF had several discussions regarding where the JSIS should reside. The PMU data is at Peak, and there were some who thought it would fit better if JSIS be with Peak. There is also a similar group being formed by NERC. There are two work groups reporting to the JSIS; the Oscillations Analysis Work Group (OAWG) and the Disturbance Data Work Group (DDWG). The OAWG meets bi-weekly to review System Events and the DDWG is responsible for collecting and analyzing PMU data to facilitate analysis of system performance of identified events. The OSRTF recommends no change to the JSIS and that it continues to report to the OC and the PCC.External Forum GroupsSeveral subcommittees, work groups, and task forces were not recommended to continue under the proposed OC structure. This was not a reflection of their work or value added, but related more to whether WECC is the best fit for these groups and their relationship to the EPAS or SASM. The ORSTF recommends the transition plans for these groups below.Interchange Scheduling and Accounting Subcommittee (ISAS)ISAS works to improve scheduling and tagging processes, and ensures they complement North American Energy Standards Board (NAESB) and NERC Standards. This is very specialized and software-tool intensive.The OSRTF believes that ISAS does not support the EPAS or SASM. Peak is forming a WECC Interchange Tool (WIT) Users Group that will perform many of the activities historically performed by ISAS and applicable Work Groups. ISAS will be retired at WECC upon the earlier of the formation of the WIT User Group at Peak or six months after Board approval of this Paper. Next Day Study Work Group (NSDWG)The coordination of Next-day Studies is critical to the reliability of the Western Interconnection and needs to be performed at WECC or some other external forum. There was discussion as to whether this was more properly an interconnection issue or a group that mostly interfaces with Peak. The conclusion was that all BA/TOP interaction on next-day studies was with Peak.The OSRTF recommendation is transferring this to Peak. The NDSWG will be retired from WECC upon formation of a similar group by Peak.Path Operations Implementation Task Force (POITF)The POITF will sunset as it completes its work.Remedial Action Subcommittee Reliability Subcommittee (RASRS)If and when PRC-012-2 is approved by FERC, the implementation timeline of PRC-012 is 36 months after regulatory approval. Given that timeline, and not knowing how long FERC will take to approve the standard, the OSRTF is recommending that RASRS remain within the OC structure and that WECC staff, Peak, and the OSRTF work together to determine where this function should reside once the standard is implemented. If it is decided the group should become a Peak Forum, then a transition plan will need to be developed.The OSRTF recommendation is no change to this group at this time.Technical Operations Subcommittee (TOS)The Technical Operations Subcommittee (TOS) has two work groups, the Control Work Group (CWG) and Substation Work Group (SWG). The CWG has been inactive for the last several years and the SSWG only has one annual spring meeting. Neither of these groups is currently producing significant work products. The OSRTF decided these groups are not needed to support the EPAS or SASM. The CWG and SSWG should determine if they would be more effective as an External Forum.The OSRTF recommendation is to disband TOS, CWG, and SSWG. These groups will be retired from WECC upon approval by the Board of this Paper.Unscheduled Flow Administrative Subcommittee (UFAS)The OSRTF believes that WECC may not be the best fit for UFAS. With developments in FERC rate schedule filing processes, WECC may no longer file the Unscheduled Flow Mitigation Plan (UFMP) with FERC. In addition, Peak Reliability is developing the Enhanced Curtailment Calculator (ECC) which will impact the UFMP. Given these developments, the UFMP was recently revised to allow someone other than WECC to administer the UFMP. From the Western Interconnection Unscheduled Flow Mitigation Plan:Qualified Controllable Device owners and Transmission Operators of Qualified Paths shall meet at least once every two years as an oversight committee to review and/or select a new organization, multiple organizations, or individuals as the Administrator(s) of the Western Interconnection Unscheduled Flow Mitigation Plan (WIUFMP). If a new Administrator is selected, the new Administrator must be ratified by two-thirds of the Qualified Controllable Device owners and Transmission Operators of Qualified Paths.As of September 1, 2015 the WIUFMP Administrator is the Western Electricity Coordinating Council (WECC). As part of WECC’s administrative organization the Unscheduled Flow Administrative Subcommittee (UFAS) has the primary responsibility for oversight, review, and implementation of WIUFMP policy while WECC staff tracks compliance and performs all cost and allocation calculations. WECC staff also issues invoices, collects, and disburses funds related to the WIUFMP. The software tools utilized in the implementation of the WIUFMP are currently managed by the Reliability Coordinator, Peak.The OSRTF believes the functionally provided by UFAS needs to continue, but OSRTF recommends it be at an External Forum. UFAS will be retired from WECC one year after Board approval of this Paper.Essential Reliability Services Work Group (ERSWG) in WECCNERC has an ERSWG. WECC is transitioning to a different resource mix with a higher non-traditional generation mix. WECC should support the NERC effort, but be mindful of duplication of efforts.The OSRTF recommendation is that issues associated with the changing resource mix and maintaining essential reliability services in the Western Interconnection be assigned to the PWG and they modify their charter to reflect these new responsibilities. ................
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