FILE NO. 70-8037
SECURITIES AND EXCHANGE COMMISSION
Washington, D.C. 20549
AMENDMENT NO. 7
(POST-EFFECTIVE) TO
FORM U-1
APPLICATION
UNDER THE
PUBLIC UTILITY HOLDING COMPANY ACT OF 1935
CENTRAL AND SOUTH WEST CORPORATION
1616 Woodall Rodgers Freeway
Dallas, Texas 75202
CENTRAL POWER AND LIGHT COMPANY
P.O. Box 2121
Corpus Christi, Texas 78403
(Names of companies filing this statement and
addresses of principal executive offices)
CENTRAL AND SOUTH WEST CORPORATION
(Name of top registered holding company parent)
Wendy G. Hargus , Treasurer
Central and South West Corporation
1616 Woodall Rodgers Freeway
Dallas, Texas 75202
Wendy G. Hargus, Treasurer
Central Power and Light Company
P.O. Box 2121
Corpus Christi, Texas 78403
Ronald T. Astin, Esq.
Vinson & Elkins L.L.P.
2300 First City Tower
1001 Fannin Street
Houston, Texas 77002-6760
(Name and addresses of agents for service)
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Item 1. Description of Proposed Transaction Item No. 1 is hereby amended and
restated as follows:
Central and South West Corporation, a Delaware corporation ("CSW"), is
a registered holding company under the Public Utility Holding Company Act of
1935 (the "Act"). Central Power and Light Company, a Texas corporation ("CPL"),
is a wholly-owned electric utility subsidiary of CSW.
On May 29, 1992, CSW and CPL entered into a settlement with Houston
Industries Incorporated, a Texas corporation ("HII"), and its subsidiary,
Houston Lighting & Power Company, a Texas corporation ("HLP"), to normalize
business relations between the two systems and to settle several disputes which
had existed between the two systems for some time. One such dispute involved
allegations by CPL that HLP breached its duties and obligations in its
performance as the Project Manager of the South Texas Project Electric
Generating Station ("STP"). Other disputes did not raise jurisdictional issues
under the Act.
On July 17, 1992, CSW and CPL (as well as CSW Credit, Inc., a
wholly-owned subsidiary of CSW), filed an Application-Declaration on Form U-1
under the Act (File No. 70-8037) relating to the settlement of the litigation
described above and with regard to certain financing activities of CSW Credit,
Inc. The Application-Declaration was amended on October 9, 1992, December 3,
1992, and December 23, 1992, and was the subject of orders of the Securities and
Exchange Commission (the "Commission") dated December 8, 1992 (Release No.
35-25696)(the "Original Order") and December 29, 1992 (Release No. 35-25720),
each of which declared effective CSW's and CPL's Application-Declaration with
respect to certain of the matters covered thereby. However, in the Original
Order, the Commission reserved jurisdiction with respect to one aspect of the
settlement of the litigation, the formation of a new Texas non-profit
corporation to act as the operating company for STP, pending completion of the
record with respect thereto. The Commission's reservation of jurisdiction was
based, in part, upon the fact that at the date of the Original Order the owners
of STP had not yet agreed on the structure of the proposed operating company for
STP. Prior to the filing of this post-effective amendment, the owners of STP
have approved in substantially final form the structure of such operating
company, and CSW and CPL are filing this amended application (as amended by this
post-effective amendment, the "Application") in order to complete the record and
request authority from the Commission to enter into the final form of documents
to create such operating company.
Background
STP is jointly owned by HLP, CPL, the City of San Antonio, Texas, acting
by and through the City Public Service Board of San Antonio ("San Antonio"), and
the City of Austin, Texas ("Austin" and, collectively with HLP, CPL and San
Antonio, the "Owners"). STP consists of three principal types of assets and
properties: (1) two 1250 megawatt nuclear-fueled generating units; (2) a plant
site and common station facilities; and (3) a 400-foot-wide transmission
corridor. The two generating units and all of the common facilities incident
thereto, including the plant site, are owned by the Owners as tenants-in-common.
Each of the Owners is a party to an agreement (as heretofore amended, the
"Participation Agreement"), which provides for the joining together of the
Owners as tenants-in-common in owning and operating facilities for the
production of electric energy and for the delivery of the electric energy
produced to each Owner according to its respective ownership interest in STP.
The Participation Agreement has been previously filed with the Commission. The
electric energy so obtained by each Owner from the jointly-owned facilities is
distributed and sold by that Owner within its own system. Under the
Participation Agreement, the current ownership of STP is as follows:
HLP 30.8%
CPL 25.2%
San Antonio 28.0%
Austin 16.0%
Total 100.0%
Presently, a management committee comprised of one representative of
each Owner makes all material decisions and determinations incident to the
operation of STP. In the absence of unanimity, this committee generally acts
through the vote of two or more Owners holding at least 60 percent of the
ownership interest in STP. Currently, HLP acts as the sole project manager of
STP, except for maintenance of the transmission corridor, which is the
responsibility of CPL. As project manager, HLP initiates the preparation of
engineering and administrative plans and studies and furnishes the management
committee with all necessary information upon which determinations are made by
the management committee and carries out and coordinates the directions of the
management committee incident to the operation of the system and the generation
of power. In addition, as project manager HLP management maintains and furnishes
the Owners with all required records of costs and expenses to permit the Owners
properly to reflect and report their interests in STP in their respective
financial and income statements. Under the Participation Agreement, the
management committee has the power to remove HLP as project manager by the vote
of a majority of the ownership interest.
The Proposed Transaction
In order to give each Owner an equal voice in the operation of STP, the
Owners have agreed to relieve HLP of its rights and obligations as project
manager and to have a new entity, STP Nuclear Operating Company, a Texas
non-profit corporation without membership interests ("OPCO"), assume HLP's
obligations to manage STP. The Owners determined to use a state law non-profit
corporation to operate STP by contract to better assure a proportionate sharing
of costs, liabilities and benefits associated with the operation of STP.
OPCO, as operator of STP, will not be an owner of STP and will not be
entitled to take, or have any ownership interest in, any energy generated by
STP. OPCO will be formed by the Owners. It is proposed that the Owners will
effect the substitution of OPCO for HLP in the operation of STP by entering into
an Amended and Restated Participation Agreement (the "Amended Participation
Agreement") in substantially the form attached as Exhibit 12. The Owners also
propose to enter into the South Texas Project Operating Agreement with OPCO (the
"Operating Agreement")(attached hereto as Exhibit 13), pursuant to which OPCO
will maintain and operate STP, subject to the control and direction of an Owners
Committee consisting of one representative of each Owner (the "Owners
Committee") appointed under the terms of the Amended Participation Agreement.
OPCO will be organized as a non-stock, non-member, non-profit
corporation under the Texas Non-Profit Corporation Act. This structure was
selected by the Owners because of legal issues posed by other alternatives for
Owners other than CPL. Specifically, the Texas Constitution prohibits municipal
entities from owning stock in a private corporation or from lending their credit
to private entities.1 However, this prohibition does not, in the opinion of
counsel to San Antonio and Austin, limit participation in a non-profit
corporation, at least with respect to a corporation that has no members and no
outstanding ownership interests.2 Similarly, HII's exempt status under the Act
requires all of its "subsidiary companies" within the meaning of the Act to be
organized under the laws of Texas. Although CSW and CPL have been advised that
HII does not regard OPCO as a "subsidiary company" within the meaning of the
Act, the issue is avoided by utilizing a Texas entity. The Articles of
Incorporation (the "Articles") and Bylaws (the "Bylaws") of OPCO will be in
substantially the forms attached as Exhibits 14 and 15, respectively. Pursuant
to the Articles and Bylaws, the Operating Agreement and the Amended
Participation Agreement, the Owners will manage the affairs of OPCO. Under the
Articles and the Bylaws, each Owner appoints one director to the Board of
Directors of OPCO (an "Owner Director"). In addition, the chief executive
officer (chosen by and subject to removal by the affirmative vote of three Owner
Directors) of OPCO serves as a director. Owner Director vacancies may be filled
only by the Owner who designated the person whose absence created the vacancy.
If the vacancy is created by the absence of the chief executive officer of OPCO,
such vacancy is filled by the affirmative vote of three of the Owner Directors.3
Each Owner Director is expected to advocate and further the interests of the
Owner who appointed the Owner Director; and no Owner Director is expected to
further the interests of the other Owners.4 The officers of OPCO are elected or
appointed by the Board of Directors.
OPCO is not authorized under its Articles to conduct any business or
activity other than serving as operator of STP pursuant to the Operating
Agreement and is prohibited from engaging in any activity seeking profit or
pecuniary gain.5 A unanimous vote of the Board of Directors is necessary to
dissolve OPCO or merge it with any other entity or to amend its Articles and
Bylaws.6 Any residual assets remaining upon the dissolution of OPCO may not be
distributed to any person other than a governmental agency or charity.7
Pursuant to the Operating Agreement, OPCO will not have an ownership
interest in (i) the property or utility assets constituting STP, (ii) the power
generated by STP, (iii) the revenues received from the sale of power, or (iv)
the fuel used to generate the power.8 STP will continue to be owned by the
Owners as tenants-in-common pursuant to the terms of the Amended Participation
Agreement. As between OPCO and the Owners, all risks associated with ownership
or loss of the property comprising STP and all benefits issuing from ownership
will be vested in the Owners.9 The Operating Agreement provides that the Owners
recognize that OPCO "is a non-profit corporation, formed, controlled and
financed by the [Owners] solely for the purpose of acting on behalf of the
[Owners] in carrying out the responsibilities which are described herein."10 The
Owners indemnify OPCO from any damage resulting from its performance under the
Operating Agreement. Such indemnity is intended by the Owners to hold OPCO
harmless from any liability arising from OPCO's operation of STP11 and is
consistent with the objective of all Owners that all actual costs or expenses of
OPCO of whatever nature will be borne by the Owners severally in accordance with
their respective ownership interests in STP (as to each such Owner, its
"Participant's Share"). Such costs would be incurred by OPCO based on budgets
approved by the Owners after consultation with OPCO. OPCO will have no right or
authority to bind the Owners, without the requisite consent of the Owners
Committee under the Amended Participation Agreement, to the acquisition or
disposition of property.12
Pursuant to the Operating Agreement, OPCO would possess, use, maintain,
repair, improve, operate, decontaminate and decommission STP (excluding
operation of certain transmission corridors and switch yards, which will remain
in the control of HLP or CPL). OPCO will provide or provide for all labor,
supervision, supplies, equipment and services for the operation, maintenance,
repair, replacement, reconstruction, decontamination and decommissioning of all
aspects of STP in order to deliver to the Owners the electric power generated at
STP.
All costs of operation of OPCO, including capital improvements,
additions and betterment costs, overhead expenses, employee benefit costs, costs
of goods and services (including nuclear fuel) and all other costs of operation
of OPCO of whatsoever nature (collectively, "Costs of Operation") are to be
borne by the Owners proportionally in accordance with their respective
Participant's Shares (other than costs incurred which cannot be directly
allocated, which are charged using the allocation factors described below). All
contracts executed by OPCO (other than contracts with OPCO employees or relating
to internal OPCO affairs), including contracts with Owners, are required by the
Operating Agreement to be executed by OPCO as agent for each Owner and must
contain provisions requiring the obligations undertaken to be the several (but
not joint) obligation of the Owner limited to such Owner's Participant's Share
of the obligations under the contract. Accordingly, each Owner will bear its
Participant's Share of the Costs of Operation of OPCO in operating STP, either
directly under contracts executed by OPCO as agent for the Owners or by payment
to OPCO upon OPCO's request as provided in the Operating Agreement.13 OPCO is
required to keep books and records in respect of its Costs of Operation, which
are required to be audited annually by independent accountants and which may be
audited by regulatory authorities having jurisdiction at the request of any
Owner. Further, OPCO is required to charge each Owner with any underpayment, and
credit each Owner with any overpayment, of any Costs of Operation. OPCO is
required to assist any Owner in complying with its responsibilities with regard
to STP (including responsibilities to security holders regulatory authorities
and others) and to separately charge any such Owner the direct costs of OPCO in
rendering any such services.14
The accounting records of STP are maintained (and will be maintained by
OPCO) on the accrual basis of accounting in accordance with generally accepted
accounting principles ("GAAP"). The accounting records are also currently
maintained (and the Owners desire OPCO to maintain), and the accompanying
amounts are classified (and the Owners desire OPCO to classify) in accordance
with the Federal Energy Regulatory Commission's "Uniform System of Accounts
Prescribed for Public Utilities and Licensees" as adopted by the Public Utility
Commission of Texas (the "FERC Chart of Accounts"). Costs will be determined by
OPCO in accordance with GAAP and will be collected in accordance with the
Amended Participation Agreement and the FERC Chart of Accounts. In addition,
costs are (and will be) collected by activities performed, resources employed
and responsible departments.
However, OPCO will not have any right to any of the electric energy
produced by STP and will not be entitled to any management fee or similar
compensation and will derive no profit from its operations under the Operating
Agreement. OPCO will not be permitted to market on behalf of any Owner any
electric energy produced by STP. Any property of whatsoever kind or nature
acquired by OPCO will be acquired for the account and benefit of the Owners and
will be owned by the Owners as tenants-in-common as provided in the Amended
Participation Agreement.15
Issues Under the Act
Section 2(a)(3). The applicants believe that the activities of OPCO
undertaken in accordance with the provisions of the Amended Participation
Agreement should not cause OPCO to be regarded as an "electric utility company"
within the meaning of Section 2(a)(3) of the Act, because OPCO will not possess
the level of operating authority with regard to STP necessary to cause it to be
deemed to "operate" STP under Section 2(a)(3) pursuant to the Ebasco Services,
Inc. line of no-action letters,16 nor is such a result required by the plain
meaning of the statute or, in applicants' view, sound public policy. As
previously stated, OPCO will have no ownership interest in STP or the
electricity generated by STP. Applicants believe that OPCO will not "operate"
STP because OPCO will be subject to supervision of the Owners and, accordingly,
will not have complete operating responsibility over STP and because OPCO will
not be paid fees based on revenue or income. In effect, OPCO will serve as a
device for allocating actual operating expenses among the Owners of STP, and
OPCO will derive no other revenues from its activities beyond those necessary to
defray such expenses. Under the Amended Participation Agreement, all material
decisions and determinations incident to the operation of STP will be made by
the Owners Committee which will act through the vote of two or more Owners
holding in excess of 60 percent of the ownership interest in STP.17 Indeed,
except for the substitution of OPCO as the operator, the Amended Participation
Agreement is not materially different from the Participation Agreement and,
accordingly, applicants believe, is properly regarded as a reorganization of the
existing relationship among the Owners rather than as the admission of a new
"electric utility company" as "operator" of STP.
The arrangements regarding OPCO are very similar to the situations in
which the Commission staff has granted no-action relief regarding similarly
structured operating companies or in which exemption applications have been
approved by the Commission because the arrangements under discussion did not
involve an "operator" within the meaning of Section 2(a)(3) of the Act due to
the level of authority retained by the owners of the facilities. See Wolf Creek
Operating Corporation (publicly available December 11, 1995), Western Resources,
Inc. (publicly available June 26, 1995) and Kansas Power & Light Company,
Release No. 35-25465 (February 5, 1992).18 Accordingly, applicants believe that
the formation of OPCO and the implementation of the South Texas Project
Operating Agreement does not result in OPCO becoming the "operator" of STP
within the meaning of the Act.
Sections 9(a) and 13(b). The formation of OPCO does not involve the
acquisition of a "security" within the meaning of the Act, since the formation
of OPCO does not involve the acquisition of any instrument enumerated in the Act
as a "security" or of any instrument commonly thought of as a security. Indeed,
the Owners will not acquire anything upon the formation of OPCO, but are merely
reorganizing their existing relationship in a fashion that does not result in
the creation of a new venture or the acquisition by any of the Owners of any
right or power they do not already possess under the existing Participation
Agreement. Accordingly, applicants believe the formation of OPCO does not
involve the acquisition of "any security" or "any other interest in any
business" within the meaning of Section 9(a)(1) of the Act, since the operation
of power plants is an inherent part of the core business of electric utility
companies. The formation of OPCO is not, in applicants' view, an "other"
interest in any business, merely the reorganization of the Owners' existing
interest in their existing business, STP. See GPUNC, SEC No-Action Letter,
(publicly available September 27, 1995). However, CSW and CPL request any
necessary authority under Section 9(a)(1) of the Act to effect the transactions
described herein.
While not entirely clear under existing law, each of CSW and CPL will
treat OPCO as a "subsidiary company" within the meaning of Section 2(a)(8) of
the Act, and CSW and CPL will comply with all applicable provisions of the Act
and rules and regulations thereunder with respect to OPCO. In addition, each of
CSW and CPL will treat OPCO as a subsidiary service company subject to Section
13(b) of the Act and CSW will cause an annual report on Form U-13-60 to be filed
in respect of OPCO's activities and will cause OPCO to comply (except as set
forth below) with the accounting and record keeping requirements of Rule 93 and
the reporting requirements of Rule 94 under the Act. Prior to the formation of
OPCO, the accounting records of STP have been kept in accordance with the FERC
Chart of Accounts, which has proven satisfactory to the Owners and regulatory
authorities. CSW and CPL request approval to continue to utilize the FERC Chart
of Accounts. The method of utilizing the FERC Chart of Accounts will allow
fulfillment of the annual reporting requirements of Form U-13-60 under the Act.
Moreover, the use of such accounts will provide more detail and accurate
reporting for the Form U-13-60. OPCO will continue to utilize a work order
system to accumulate costs and charges to customers. All costs will be directly
charged wherever possible. Costs which cannot be directly charged will be
allocated fairly and equitably among the Owners utilizing the following
allocation factors: (i) in accordance with Participant's Shares; (ii) as
required by the Department of Energy for spent fuel disposal fees, in accordance
with an Owner's share of net electric power generation sold from STP for a
specified period (expressed in kilowatt hours) as a portion of total net
electric power generation sold from STP (expressed in kilowatt hours) for the
same period; and (iii) in certain situations involving less than all Owners and
where no other method is practicable, costs may be divided evenly among Owners
benefitting from the activity for which costs are incurred. Based on the
foregoing, CSW and CPL request Commission approval or exemption to permit OPCO
to continue to use (and to report on Form U-13-60 based upon) the FERC Chart of
Accounts rather than the Uniform System of Accounts For Mutual Service Companies
and Subsidiary Service Companies which would otherwise be required pursuant to
Rule 93.
The Operating Agreement requires OPCO to charge all Costs of Operation
to Owners in accordance with their respective Participant's Share and mandates
that all contractual obligations undertaken by OPCO on behalf of Owners be
several and not joint obligations of the Owner. No provision of the Operating
Agreement or the Amended Participation Agreement would permit OPCO to charge a
mark up or margin on any service rendered to Owners, and both the Operating
Agreement and OPCO's Articles of Incorporation forbid OPCO from undertaking any
activity for profit. These provisions will assure that CPL and CSW (and any
other associate company of either) will receive services from OPCO at cost as
contemplated by Rule 90 under the Act. However, CSW will cause (i) any services
rendered by OPCO to CPL and CSW (and any other associate company of either), and
(ii) any services rendered by CSW or CPL to OPCO to be rendered in compliance
with Rules 90 and 91 under the Act. Finally, the applicants request that the
Commission waive the requirement that a Form U-13-1 Application-Declaration be
filed in respect of the formation of OPCO as all information required by that
Form is contained herein or will be provided by amendment.
Compliance with Rule 54. To the extent the formation of OPCO may be
deemed to involve the issuance of a "security" within the meaning of the Act,
there will be no proceeds from the formation of OPCO that could be used by CSW
or any subsidiary thereof for the direct or indirect acquisition of an interest
in an exempt wholesale generator, as defined in Section 32 of the Act ("EWG"),
or a foreign utility company, as defined in Section 33 of the Act ("FUCO"). Rule
54 promulgated under the Act states that in determining whether to approve the
issue or sale of a security by a registered holding company for purposes other
than the acquisition of an EWG or a FUCO, or other transactions by such
registered holding company or its subsidiaries other than with respect to EWGs
or FUCOs, the Commission shall not consider the effect of the capitalization or
earnings of any subsidiary which is an EWG or a FUCO upon the registered holding
company system if Rule 53(a), (b) and (c) are satisfied. As set forth below, all
applicable conditions set forth in Rule 53(a) are, and, assuming the
consummation of the transactions proposed herein, will be, satisfied and none of
the conditions set forth in Rule 53(b) exist or will exist as a result of the
transactions proposed herein thereby satisfying such provision and making Rule
53(c) inapplicable.
CSW's "aggregate investment" (as defined under Rule 53(a) of the Act)
in EWGs and FUCOs as of August 14, 1997 was approximately $913 million, or
approximately 46% of CSW's "consolidated retained earnings" as of June 30, 1997.
CSW thus satisfies Rule 53(a)(1). CSW will maintain and make available the books
and records required by Rule 53(a)(2). No more than 2% of the employees of the
CSW and its operating subsidiaries will, at any one time, directly or
indirectly, render services to an EWG or FUCO in which CSW directly or
indirectly owns an interest, satisfying Rule 53(a)(3). And lastly, CSW will
submit a copy of Item 9 and Exhibits G and H of CSW's Form U5S to each of the
public service commissions having jurisdiction over the retail rates of CSW's
operating utility subsidiaries, satisfying Rule 53(a)(4).
The documents with respect to OPCO are in substantially final form,
although additional minor changes may be made to such documents. CSW and CPL
request that the Commission release jurisdiction and issue an appropriate order
authorizing CPL to enter into and conclude the final form of documents to create
OPCO. CSW and CPL will augment the record herein with the final documents to be
filed with a certificate of notification.
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S I G N A T U R E
Pursuant to the requirements of the Public Utility Holding
company Act of 1935, as amended, the undersigned company has duly caused this
document to be signed on its behalf by the undersigned thereunto duly
authorized.
Dated: September 9, 1997
CENTRAL AND SOUTHWEST CORPORATION
By:/s/ WENDY G. HARGUS
Wendy G. Hargus
Treasurer
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S I G N A T U R E
Pursuant to the requirements of the Public Utility Holding
company Act of 1935, as amended, the undersigned company has duly caused this
document to be signed on its behalf by the undersigned thereunto duly
authorized.
Dated: September 9, 1997
CENTRAL POWER AND LIGHT COMPANY
By:/s/WENDY G. HARGUS
Wendy G. Hargus
Treasurer
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1 Tex. Const., art. III, ss. 53 (amended 1904).
2 At least two opinions of the Texas Attorney General have authorized
municipalities to enter into such arrangements. See Op.
Tex. Att'y Gen. No. M-1023 (1971) and Op Tex. Att'y. Gen No. DM-1994
(1992).
3 Article VII of the Articles and Section 2.2 of the Bylaws of OPCO.
4 Article IV of the Articles of OPCO.
5 Article IV of the Articles of OPCO.
6 Articles VIII and IX of the Articles of Incorporation of OPCO.
7 Article VIII of the Articles of OPCO.
8 Section 2.2E of the Operating Agreement.
9 Section 4.2 of the Operating Agreement.
10 Section 6.1 of the Operating Agreement.
11 Section 6.1, 6.2 and 6.3 of the Operating Agreement.
12 Article II of the Operating Agreement.
13 Sections 5.1 - 5.4 of the Operating Agreement.
14 Section 9.3 of the Operating Agreement.
15 Sections 1.7, 2.1, 2.2E, and Article III of the Operating Agreement.
16 Ebasco Services, Inc., SEC No-Action Letter, (publicly available
September 16, 1982). Since the issuance of Ebasco Services, Inc., a
series of similar no-action letters have confirmed the conclusions
reached in Ebasco Services, Inc., even in cases in which the company in
question had a greater measure of responsibility than is contemplated
for OPCO. See, Westvaco Corp., SEC No-Action Letter, (publicly available
August 26, 1996), Tucson Elec. Power rp., SEC No-Action Letter,
(publicly available September 27, 1995), Kenetech Windpower, Inc., SEC
No-Action Letter, (publicly available April 15, 1994) Ogden Martin
Systems of Clark Limited Partnership, SEC No-Action Letter, (publicly
available December 6, 1993, Bechtel Power Corporation, SEC No-Action
Letter,(publicly available May 22, 1991); Colstrip Energy Limited
Partnership, SEC NO-Action Letter, (publicly available December 7,
1989), and Combustion Engineering, Inc., SEC No-Action Letter, (publicly
available August 24, 1987)..
17 Amended Participation Agreement, Article 9.
18 See, also, Ogden Martin Systems of Clark Limited Partnership (publicly
available December 6, 1993, Bechtel Power Corporation, (publicly
available May 22, 1991); Colstrip Energy Limited Partnership (publicly
available December 7, 1989), Combustion Engineering, Inc. (publicly
available August 24, 1987) and Ebasco Services, Inc. (publicly available
August 17, 1982).