Regulators approved an interim IRP last year that allows Georgia Power to build 1.4 GW of fossil-fueled power plants and 500 MW of batteries, and to contract for nearly 1 GW more from other utilities’ coal- and gas-fired power plants, to relieve some of its nearer-term pressures.
But the all-source RFP launched back in 2022 has remained Georgia Power’s main mechanism to get what it needs by 2031, Whitfield said. That’s despite the fact that it was initially meant to cover just 500 MW, a figure nearly 20 times smaller than the 9.5 GW it is now planning to fill via the all-source RFP process.
This has created something of a regulatory shell game in which Georgia Power can contract for the vast majority of its future energy and capacity needs outside the purview of the standard IRP process, said Simon Mahan, executive director of the Southern Renewable Energy Association trade group.
“Many organizations and companies focus exclusively on the IRP, while the ultimate decisions may occur in a totally separate docket, where fewer intervening parties are engaged,” he said.
The battle over Georgia Power’s missing gigawatts comes as the utility has failed to bring as much renewable energy into its resource mix as it previously pledged to.
The utility has about 3 GW of solar, helping to push Georgia into the top 10 states for solar growth. But it’s also been slow to contract with third-party owners of solar and battery projects to meet its power needs. Georgia Power’s 2025 IRP calls for an additional 3.5 GW of renewable energy by the end of 2030, but that plan partially just makes up for the utility’s cancellation of previous clean-power procurements, Mahan noted.
Solar alone can’t meet Georgia Power’s capacity needs, which are driven by demand for electricity for heating in wintertime.
But batteries that can store solar or general grid power could play a more significant role. Regulators approved Georgia Power to add 500 MW of battery storage in last year’s interim IRP, and its 2025 IRP calls for further expanding its energy storage capacity. Mahan noted that much of the solar power being proposed in the state will likely be paired with batteries to enhance its value to Georgia Power’s grid.
Without more information on the contents of the all-source RFP, it’s nearly impossible for environmental groups, consumer advocates, and other stakeholders to know whether Georgia Power is properly weighing renewable alternatives to gas-fired power plants that the utility will build and own itself.
The big picture on carbon and cost
Georgia Power’s commitment to fossil gas and coal — which together made up nearly 60% of its capacity last year — is certainly a problem for the climate. The Sierra Club calculates that the generation mix laid out in Georgia Power’s proposed 2025 IRP would make the utility “one of the top greenhouse gas emitters in the U.S.”
It could be a problem for utility customers, too, who have already seen rates rise significantly in recent years due to Georgia Power’s more than $30 billion expansion of its Vogtle nuclear power plant.
Like most regulated utilities, Georgia Power earns a set rate of profit on investments in power plants, power grids, and other capital assets. It’s also required to allow third-party developers to compete with it to build solar and battery projects — a process that can yield lower costs for its customers but also lower rates of return for the utility.
Regulators have a responsibility to closely monitor the utility’s process for choosing which resources end up winning to ensure those decisions aren’t maximizing Georgia Power’s profits at the expense of its customers, said Patty Durand, a consumer advocate and former Public Service Commission candidate. But she fears regulators will fail to challenge Georgia Power’s assertions on which resources will most cost-effectively meet its grid needs.
“We need to keep stock of how many gigawatts of fossil fuel Georgia Power is building or keeping on the grid because of data centers,” she said. “That is a climate change disaster.”
Durand has also challenged Georgia Power’s load-growth forecasts, noting that the utility has consistently overestimated future electricity demand across the past decade, helping it justify increased spending on profit-earning assets.
“Are utility bills a kitchen-table issue? If they are, these guys are in trouble,” she said. “Data centers are about to make the bills we pay now into a joke.”
Some of the tech giants playing a role in the data center expansion driving Georgia Power’s demand forecasts have similar concerns. Last year, Microsoft challenged the utility on how it models the value of clean energy resources as well as how it forecasts load growth.
Georgia Power also faced pushback from the Clean Energy Buyers Association (CEBA), which represents companies like Amazon, Google, Meta, and Microsoft that are simultaneously planning major data center expansions and striving to decarbonize their energy supplies. In testimony before the Public Service Commission last year, CEBA warned that “some of the new load Georgia Power is forecasting may not materialize if Georgia Power increases the carbon intensity of its resource mix.”
CEBA ended up supporting last year’s interim IRP on the condition that Georgia Power follow through with a promise to offer large industrial and commercial customers new options to bring more carbon-free resources onto the utility’s grid.
Georgia Power’s 2025 IRP lays out a “customer-identified resource” proposal to meet its end of the bargain, said Katie Southworth, CEBA’s deputy director of market and policy innovation for the South and Southeast. In simple terms, the utility would allow big customers to work with third-party developers to build solar, batteries, and other carbon-free resources that they could use to power their data centers and other large facilities. That’s a fairly common practice in parts of the country operating under competitive energy markets — but not in Georgia and most of the U.S. Southeast, where utilities remain vertically integrated.
However, the utility’s plan lacks transparency and certainty about how customer-proposed projects will be assessed and approved, and it limits the scale and scope of resources that big customers can bring to the table. Georgia Power also plans to delay implementation of that program, frustrating CEBA members eager to start searching for potential projects.
Hawkins, the Georgia Power spokesperson, told Canary Media that the utility continues to “incorporate CEBA’s feedback into our program designs, while still ensuring that all Georgia Power customers are protected. Our proposed IRP portfolio of renewable procurements and programs represents a continuation of our steady and measured renewable growth that delivers benefits to all customers.”
In the meantime, Southworth said, CEBA is encouraging Georgia Power customers looking for cleaner energy options to “get involved in the design of the all-source process. That gives us a chance to include other resources that could play a role.”
That may be an option for qualified energy developers active in that competitive procurement. But it remains unclear if or how the Public Service Commission will push Georgia Power to open the hood on that process for consumer advocates and environmental groups that have been denied information thus far.
“This is an exceptionally unusual time in the Georgia energy world for a million reasons, of which this is one. I think this is a hugely important issue,” Whitfield said. The investments being planned today are “going to transform our energy system,” and Georgia Power is conducting that work “without providing critical information about what that new system might look like.”
But time is running short to order more transparency. Georgia Power plans to announce the winning bids for its all-source RFP in July, Whitfield said — the same month that state regulators expect to take their final vote on the IRP.
