Citizens of the State of Florida, etc. v. Andrew Giles Fay, etc.

Supreme Court of Florida
____________

Nos. SC2022-1733, SC2022-1735, SC2022-1745,
SC2022-1748, & SC2022-1777
____________

CITIZENS OF THE STATE OF FLORIDA, etc.,
Appellant,

vs.

ANDREW GILES FAY, etc., et al.,
Appellees.

November 14, 2024

COURIEL, J.

We have for review final orders of the Public Service

Commission approving proposals from four electric utility

companies to improve the power grid’s ability to withstand extreme

weather. These initiatives are the first of their kind, submitted by

the utility companies pursuant to section 366.96, Florida Statutes,

which became law in 2019. 1 The Office of Public Counsel (OPC)

challenged the orders below and appeals the Commission’s approval

1. We have jurisdiction. See art. V, § 3(b)(2), Fla. Const.;
§ 366.10, Fla. Stat. (2021).
of them here, arguing that the Commission erred in its

interpretation of the statute and impaired the fairness of the

proceedings below by granting the utilities’ motions to strike

portions of an expert’s testimony.

We decide that the Commission correctly reviewed and

approved the utilities’ proposals after concluding that they are in

the public interest. Also, the Commission did not abuse its

discretion in striking the expert testimony at issue.

I

Finding it in the state’s interest to strengthen electric utility

infrastructure to withstand extreme weather conditions, the

Legislature enacted—in section 366.96, Florida Statutes (the SPP

Statute)—a comprehensive program requiring public utilities to

make adequate preparations for storms, allowing the utilities to

recover some of the costs of those preparations from rate-paying

customers. See ch. 19-158, Laws of Fla. Each public utility

company must submit a Storm Protection Plan (SPP) “for the

overhead hardening and increased resilience of electric

transmission and distribution facilities, undergrounding of electric

distribution facilities, and vegetation management.” § 366.96(2)(b),

-2-
Fla. Stat. (2021). These improvements—intended to increase the

resiliency of the electric grid, reduce outages, and improve their

response times during extreme weather—are collectively called

“storm hardening.” See generally § 366.96, Fla. Stat.

The SPP Statute requires each public utility to file an SPP with

the Commission, laying out its proposals in this regard for the next

decade. “Each plan must explain the systematic approach the

utility will follow to achieve the objectives of reducing restoration

costs and outage times associated with extreme weather events and

enhancing reliability.” § 366.96(3), Fla. Stat.

SPPs are subject to approval by the Public Service

Commission. The Commission reviews each SPP every three years

during the plan’s ten-year coverage period. At each three-year

mark, the Commission must determine if it is in the public interest

to approve the SPP measures proposed for the upcoming period.

See § 366.96(5)-(6), Fla. Stat. In its review of each SPP, the

Commission considers:

(a) The extent to which the plan is expected to
reduce restoration costs and outage times
associated with extreme weather events and
enhance reliability, including whether the plan
prioritizes areas of lower reliability performance.

-3-
(b) The extent to which storm protection of
transmission and distribution infrastructure is
feasible, reasonable, or practical in certain areas of
the utility’s service territory, including, but not
limited to, flood zones and rural areas.
(c) The estimated costs and benefits to the utility
and its customers of making the improvements
proposed in the plan.
(d) The estimated annual rate impact resulting from
implementation of the plan during the first 3 years
addressed in the plan.

§ 366.96(4), Fla. Stat.

The Commission’s approval or denial of each SPP must occur

within 180 days of its submission. Once the Commission has

approved a plan, “proceeding with actions to implement the plan

shall not constitute or be evidence of imprudence” by the utility.

§ 366.96(7), Fla. Stat.

The SPP Statute does not define “prudence” or “imprudence.”

However, chapter 366 of our statutes—the one relating to public

utilities—refers to prudence or its cognates 24 times, often in

describing costs. See, e.g., § 366.95(1), Fla. Stat. (2021) (“The

commission shall issue a financing order authorizing the financing

of reasonable and prudent nuclear asset-recovery costs . . . .”);

§ 366.93(2), Fla. Stat. (2021) (“Such mechanisms must be designed

to promote utility investment in nuclear or integrated gasification

-4-
combined cycle power plants and allow for the recovery in rates of

all prudently incurred costs . . . .”); § 366.91(3), Fla. Stat. (2021)

(“Prudent and reasonable costs associated with a renewable energy

contract shall be recovered from the ratepayers . . . .”).

The SPP Statute directs the Commission to adopt rules to

guide how it is administered. So in January 2020, the Commission

adopted Florida Administrative Code Rules 25-6.030, “Storm

Protection Plan” (the SPP Rule), and 25-6.031, “Storm Protection

Plan Cost Recovery Clause” (the SPPCRC Rule). The SPP Rule

explains what an SPP must contain. The SPPCRC Rule sets out the

costs that utilities may recover from customers and describes the

procedures for recovery.

Following the requirements of the SPP Statute, the SPP Rule,

and the SPPCRC Rule, Florida investor-owned utilities filed their

first SPP proposals in April 2020. The OPC intervened on behalf of

Florida consumers in the administrative proceedings regarding

these proposals. The utilities, the OPC, and other intervenors

entered into settlements approving the plans. As part of that

process, the Commission heard oral argument from the parties in

support of each settlement agreement and considered evidence

-5-
presented by the parties. Ultimately, the Commission approved the

settlements and determined that the utilities’ SPPs were in the

public interest, pending review and approval in 2022. The 2020

settlements preserved the parties’ rights to challenge the prudence

of any projects in subsequent SPPCRC Rule proceedings.

The proceedings before us now started when, in 2022, the

utilities timely submitted renewed proposals for the 2023-2032

period. The four utilities that filed were Florida Power & Light

Company (FPL), Duke Energy Florida, LLC (DEF), Tampa Electric

Company (TECO), and Florida Public Utilities Company (FPUC).2

The OPC again intervened in each case.

The Commission ultimately issued final orders approving—to

varying extents3—each SPP Plan, and the associated SPPCRC Rule

docket. The OPC appeals the Commission’s five final orders to us.

2. FPUC filed its SPP in 2022 for the first time. It did not
make an initial filing in 2020 due to delays caused by Hurricane
Michael.

3. Where it determined that a utility’s plan did not meet the
public interest test, the Commission ordered modifications. For
example, in FPUC’s final order, the Commission determined:

FPUC’s SPP, with the following modifications, is in
the public interest and is approved: (1) removal of the

-6-
II

The OPC argues that the Commission erroneously interpreted

the SPP Statute and SPP Rule; it should have considered what the

statute calls the “prudence” of the SPPs, in addition to whether

those plans were in the public interest. What’s missing, the OPC

says, is a quantitative, dollar-to-dollar assessment of the estimated

costs and benefits of the proposed SPP programs and projects. For

example, the OPC argues that the Commission erred by not

requiring FPL and FPUC to “provide the estimated reduction in

outage times and restoration costs or a meaningful comparison of

the estimated costs to those benefits.”

Not so, respond the utilities: the SPP Statute establishes two

distinct proceedings, one for plan review and another for cost

recovery. While the SPP Statute requires the Commission to

consider “the estimated costs and benefits to the utility and its

customers of making the improvements proposed in the plan,” that

Future T&D Enhancement Program, and (2) removal of
the Transmission & Substation Resiliency Program.
FPUC shall file an amended SPP within 30 days of the
issuance of the final order for administrative approval by
Commission staff.

-7-
does not mean what the OPC thinks it does: it is not a command to

perform a “prudence review” of the SPPs when determining if they

are in the public interest, but rather, to review the prudence of the

costs undertaken in the separate cost recovery proceeding

envisioned by the SPP Statute.

This case, then, requires us to decide if the Commission acted

lawfully in approving the SPPs—that is, whether it correctly

interpreted the SPP Statute and acted within its legal authority

when it approved the plans. “Whether the [Commission] has the

authority to act is a question of law, which is subject to de novo

review.” Citizens of State v. Graham, 191 So. 3d 897, 900 (Fla.

2016). First, we analyze the SPP Statute and conclude from its

words and structure that the Commission’s interpretation of it is

correct; second, we explain why the Commission’s determination

did indeed adhere to what the statute requires.

A

The SPP Statute directs the Commission to “determine

whether it is in the public interest to approve, approve with

modification, or deny” the SPPs at issue. § 366.96(5), Fla. Stat. In

the relevant (but, as we shall see, not identical) context of rate

-8-
making cases, we have said the public interest determination “is not

a pure finding of fact that we are able to review by searching for

competent, substantial evidence in the record. Instead, as

suggested by the qualitative words with which it is described, the

Commission’s decision . . . rests on both facts in the record and

policy judgments guided by its ‘specialized knowledge and expertise

in this area.’ ” Floridians Against Increased Rates, Inc. v. Clark

(FAIR), 371 So. 3d 905, 910 (Fla. 2023) (quoting Gulf Coast Elec.

Coop., Inc. v. Johnson, 727 So. 2d 259, 262 (Fla. 1999)). Once the

Commission has done that work, ours is to decide whether its

public interest determination “is within the range of discretion given

to the Commission by the Legislature.” Id. at 911 (citing

§ 120.68(7)(e)1., Fla. Stat. (2021)). And when they come to us, the

Commission’s decisions about what is in the public interest benefit

from “the presumption that they are reasonable and just.” Id.

(quoting W. Fla. Elec. Coop. Ass’n, Inc. v. Jacobs, 887 So. 2d 1200,

1204 (Fla. 2004)).

The Commission is correct that chapter 366 is about more

than rate making, for it says this Court will do more than review

rates set by the Commission. See § 366.10, Fla. Stat. (“[T]he

-9-
Supreme Court shall review, upon petition, any action of the

commission relating to rates or service of utilities providing electric

or gas service.” (emphasis added)). What is more, from its

separation from sections 366.06 and 366.07, Florida Statutes

(2021), it is evident that the SPP Statute stands apart from the rate

making process, and in its unique language provides a separate

procedure for the Commission’s review of storm hardening

measures. See Conage v. United States, 346 So. 3d 594, 598 (Fla.

2022) (“[T]he plainness or ambiguity of statutory language is

determined by reference to the language itself, the specific context

in which that language is used, and the broader context of the

statute as a whole.” (quoting Robinson v. Shell Oil Co., 519 U.S. 337,

341 (1997))).

Sections 366.96(2) and (3) lay the groundwork for a process

specific to the storm hardening context—as distinguished from rate

making—by defining relevant terms and setting a timeline for the

SPP proceedings.

The statute continues with subsections (4)(a)-(d), which lay out

the required content of each plan. The statute directs the

Commission to consider each plan’s ability to “reduce restoration

- 10 -
costs and outage times . . . and enhance reliability”; whether the

plan is “feasible, reasonable, or practical”; the “estimated costs and

benefits”; and the “estimated annual rate impact” of the SPP in the

first three years. § 366.96(4)(a)-(d), Fla. Stat. Here the Commission

is not directed to consider actual incurred costs. That comes later.

Instead, subsection (4) lists those factors that the Commission is to

consider “[i]n its review of each transmission and distribution storm

protection plan filed pursuant to this section.” Id.

Subsection (4) does not require the Commission to determine

that the benefits of the proposed plan outweigh its costs. Certainly

it lists what the Commission must consider about each plan. And

certainly those considerations include “[t]he extent to which the

plan is expected to reduce restoration costs and outage times,”

“estimated costs and benefits to the utility and its customers of

making the improvements proposed in the plan,” and any

“estimated annual rate impact resulting from implementation of the

plan.” § 366.96(4)(a), (c)-(d), Fla. Stat. (emphasis added). But the

statute expressly recognizes the tentativeness of these datapoints,

and thus the infeasibility of a definitive computation of net cost or

benefit at the plan approval phase.

- 11 -
Subsection (5) provides the purpose of the Commission’s

review: to evaluate proposed SPPs in 180 days to “determine

whether it is in the public interest to approve, approve with

modification, or deny the plan.” We read the requirements of

subsection (4) in their physical and logical relationship to

subsection (5) and conclude that the former sets out the content of

the public interest determination required by the latter. See

Antonin Scalia & Bryan A. Garner, Reading Law: The Interpretation

of Legal Texts 167 (2012) (explaining that we must consider “the

physical and logical relation of [a text’s] many parts”); see also Lab’y

Corp. of Am. v. Davis, 339 So. 3d 318, 324 (Fla. 2022) (“Under the

whole-text canon, proper interpretation requires consideration of

‘the entire text, in view of its structure and of the physical and

logical relation of its many parts.’ ” (citing Scalia & Garner, supra,

at 167)); Allstate Ins. Co. v. Revival Chiropractic, LLC, 385 So. 3d

107, 113 (Fla. 2024) (“Provisions in the texts of statutes and

contracts cannot be viewed in isolation from the full textual context

of which they are a part.”).

From its language and location in the statute, we discern that

subsection (7) does something different. The most sensible reading

- 12 -
of this provision—which says that proceeding with actions to

implement an approved plan will not later be deemed evidence of

imprudence for a utility’s cost recovery purposes—is that if, in fact,

any costs ultimately incurred exceed the relevant component of

forecasted benefit, that deficiency will not constitute evidence of

imprudence by the utility, as long as the plan has duly considered

the expected or estimated data, and the Commission has found the

plans made in light of that consideration to have been in the public

interest.

It helps to read subsection (7) in the context of the subsection

it follows:

(6) At least every 3 years after approval of a utility’s
transmission and distribution storm protection plan, the
utility must file for commission review an updated
transmission and distribution storm protection plan that
addresses each element specified by commission rule.
The commission shall approve, modify, or deny each
updated plan pursuant to the criteria used to review the
initial plan.
(7) After a utility’s transmission and distribution storm
protection plan has been approved, proceeding with
actions to implement the plan shall not constitute or be
evidence of imprudence. The commission shall conduct
an annual proceeding to determine the utility’s prudently
incurred transmission and distribution storm protection
plan costs and allow the utility to recover such costs
through a charge separate and apart from its base rates,
to be referred to as the storm protection plan cost

- 13 -
recovery clause. If the commission determines that costs
were prudently incurred, those costs will not be subject
to disallowance or further prudence review except for
fraud, perjury, or intentional withholding of key
information by the public utility.

§ 366.96(6)-(7), Fla. Stat.

Subsection (6) separates the preceding public interest

determination process from a subsequent “cost recovery” process.

Helpfully, the first word of subsection (7) is “[a]fter”—here a

subordinating conjunction—and the clause it introduces tells us

that “proceeding with actions to implement the plan shall not

constitute or be evidence of imprudence.” It is only after the time

described in this clause that we come to the statute’s four

references to “prudence” and its cognates. They appear in the

context of the “annual review proceeding” the Commission must

undertake “to determine the utility’s prudently incurred

transmission and distribution storm protection plan costs” which

decide the utility’s right “to recover such costs through a charge

separate and apart from its base rates.” § 366.96(7), Fla. Stat.

As the Commission did, we read this text to identify a separate

phase of cost recovery proceedings, the purpose of which is to

determine the recoverability by the utilities of certain costs, and not

- 14 -
whether an SPP is in the public interest. Actions taken to

implement an approved plan shall not be deemed evidence of

imprudence for subsection (7)—that is, cost recovery—purposes. It

is still the Commission’s duty at that point to determine which

costs were prudently incurred, for it is only “those costs [that] will

not be subject to disallowance or further prudence review except for

fraud, perjury, or intentional withholding of key information by the

public utility.” § 366.96(7) Fla. Stat.

The fact that rate payers will bear some SPP-related costs, as

set forth in the SPPCRC Rule, does not convert the statute to a rate

making proceeding. We see in the inclusion of the words “separate

and apart from its base rates” a legislative choice to demarcate the

lines between the SPPCRC Rule and rate making proceedings

described elsewhere in chapter 366. Id.; see Sierra Club v. Brown,

243 So. 3d 903, 908 (Fla. 2018) (expressly differentiating between

the Commission’s rate making proceedings where utilities “recover

costs for capital investments” and its general review of settlements

for the public interest).

To determine what is in the public interest, the Commission

starts with what the relevant statute commands: here, at section

- 15 -
366.96(1) and (4). See FAIR, 371 So. 3d at 912-13. Subsection (1)

says, among other things, “[i]t is in the state’s interest to strengthen

[Florida’s] electric utility infrastructure to withstand extreme

weather conditions,” to promote “overhead hardening” of electrical

facilities and the “undergrounding” of electrical distribution lines,

and to “mitigate restoration costs and outage times.” See

§ 366.96(1)(c)-(e), Fla. Stat. Subsection (4) gives specificity to the

factors the Commission must consider in deciding whether a

particular plan is in the public interest, as that interest is described

in subsection (1).

By contrast, when the Commission determines whether a

utility’s costs have been prudently incurred, it considers “what a

reasonable utility manager would have done, in light of the

conditions and circumstances that were known, or should [have]

been known, at the time the decision was made.” Duke Energy Fla.,

LLC v. Clark, 344 So. 3d 394, 395 (Fla. 2022) (alteration in original)

(quoting S. All. for Clean Energy v. Graham, 113 So. 3d 742, 750

(Fla. 2013)). Each utility bears the burden of proving that its

investment choices are prudent. See § 366.06(1), Fla. Stat.

(requiring that costs must be “prudently invested by the public

- 16 -
utility company”). Instead of performing the analysis outlined

above, when it considers the prudence of costs undertaken by a

utility, the Commission “shall investigate and determine the actual

legitimate costs . . . actually used and useful in the public service.”

Id. In this retrospective evaluation, the Commission reviews

incurred costs to ensure investments are made “honestly” and

“prudently” and are “useful in serving the public.” Id. What is at

stake for the utility is whether it will be paid for something it

planned to do, and in fact did.

In summary, the Commission’s work when it decides what is

in the public interest is different from the work it does when it

decides whether a utility acted prudently. It makes those decisions

at different times, considering different statutorily described factors.

As a matter of colloquial speech, an imprudent investment or cost

may not be in the public interest. But while it speaks plainly, the

statute does not speak colloquially. The two determinations can be

distinguished. The Commission is correct that the SPP Statute

calls for a review of the utilities’ SPPs to determine if they are in the

public interest, and not whether the investments they propose are,

- 17 -
in the sense in which the term has been used in this carefully

drafted statute, prudent.

B

The Commission correctly determined that the SPPs at issue

are in the public interest. That is because it did as the SPP Statute

required and considered the factors provided in section 366.96(4),

as further detailed in the SPP Rule. See Fla. Admin. Code R.

25-6.030. 4 Paragraph (3) of that rule requires that utilities’ SPPs

provide:5

(d) A description of each proposed storm protection program
that includes:
1. A description of how each proposed storm
protection program is designed to enhance the
utility’s existing transmission and distribution
facilities including an estimate of the resulting
reduction in outage times and restoration costs due
to extreme weather conditions;
2. If applicable, the actual or estimated start and
completion dates of the program;

4. “Each utility as defined in Section 366.96(2)(a), F.S., must
file a petition with the Commission for approval of a[n SPP] . . . .”
Fla. Admin. Code R. 25-6.030(1). “For each Storm Protection Plan,
the following information must be provided . . . .” Id. R.
25-6.030(3).

5. While there are other content requirements, the OPC
mostly takes issue with FPL and FPUC’s fulfillment of subparagraph
(3)(d)1.-4.

- 18 -
3. A cost estimate including capital and operating
expenses;
4. A comparison of the costs identified in
subparagraph (3)(d)3. and the benefits identified in
subparagraph (3)(d)1.; and
5. A description of the criteria used to select and
prioritize proposed storm protection programs.

Id. R. 25-6.030(3)(d)1.-5.

FPL met the criteria set by the SPP Rule. 6 FPL addressed each

section of its SPP to correlate with the criteria required by the SPP

Rule. Each section of the SPP provides a description of the storm

hardening program, explains potential benefits, and lists estimated

costs. See id. R. 25-6.030(3)(d)1.-3. For each proposed program in

the SPP, FPL provided “a cost estimate” and “a comparison of the

costs and benefits for each program.” Id. R. 25-6.030(3)(d)4.-5.

FPL provided charts with quantitative estimates for 2023-2025, and

for the 2023-2031 term. See id. R. 25-6.030(3)(d)3.

FPUC also fulfilled the criteria set by the SPP Rule. FPUC

detailed the estimated overall costs and provided express

“cost/benefit comparison” sections for each program throughout

6. We address only FPL’s and FPUC’s proposed SPPs because
the OPC alleges that they are the two utilities that did not fulfill the
requirements posed by the SPP Rule.

- 19 -
the SPP. See id. R. 25-6.030(3)(d)4.-5. In each “cost/benefit

comparison” section, FPUC claims that the “[p]rojected benefits

associated with the [program] include a reduction in storm

restoration costs and increase in service reliability; associated with

a reduction in outage events during both extreme and non-extreme

weather conditions.” See id. R. 25-6.030(3)(d)1. FPUC uses

previous data from prior hurricanes to illustrate how estimated

outage times are significantly reduced through its storm hardening

programs. Id. Like FPL, FPUC provides a qualitative description

estimating reductions through its prior hurricane experience.

The Commission, on the basis of these presentations,

“explain[ed] why it reached its conclusions and how those

conclusions factored into its public interest determination.” FAIR,

371 So. 3d at 913. We have said that, in making a public interest

finding, the Commission should (1) consider all parties’ arguments,

(2) apply the public interest factors of the SPP Statute, and

(3) provide an explanation of how it reached its decision based on

the evidence. Id. at 912. Here, the Commission provided “reasoned

and articulated” final orders explaining why FPUC and FPL’s SPPs

were in the public interest. Id. at 911.

- 20 -
The FPL final order, while it is no model of detailed reasoning,

adequately supports the Commission’s public interest

determination as required by section 366.96(4). In explaining how

FPL estimated its reduction in restoration costs and outage times, it

says:

Using the historical data analysis, the Utility
estimated the reduction in outage times and restoration
costs that would result from the implementation of its
proposed SPP programs. The historical data
demonstrates that FPL’s prior storm hardening projects
reduced restoration costs and outage times associated
with extreme weather events. Based on the historical
data, FPL demonstrated that its SPP is expected to
reduce restoration costs and outage times associated
with extreme weather and enhance reliability.

This statement at least identifies as a basis for the Commission’s

approval FPL’s prior storm hardening projects and their positive

effect on restoration costs and outage times. 7 Additionally,

7. Nothing in the statute precludes the Commission from
providing a more substantive account of how projects are in the
public interest, including by discussing their expected or realized
benefits to considerations of health, safety, and economic security,
and by providing an account of how their costs or burdens fall on
different customers. See Jodi L. Short, In Search of the Public
Interest, 40 Yale J. on Regul. 759, 772-78, 824-25 (2023). In
layman’s terms, the question to be answered is, “Are these projects
worth it?” A spreadsheet netting out expenditures and savings may

- 21 -
section V of the Commission’s final order addresses the “estimated

costs and benefits of FPL’s SPP.” See § 366.96(4)(c), Fla. Stat. It

identifies evidence that the Commission used to inform its decision.

Ultimately, the Commission gave the green light to eight previously

approved SPP programs, which had been submitted as part of FPL’s

prior SPP. The Commission rejected other proposed programs that

did not meet the definition of storm hardening and therefore would

not be in the public interest. See § 366.96(2)(b), Fla. Stat. (defining

acceptable SPPs as overhead hardening or undergrounding

initiatives).

The FPUC final order also passes muster. Following the same

format and methodology of FPL’s final order, the Commission

restated the parties’ arguments, analyzed how FPUC fulfills each

statutory requirement, and described how the evidence adduced by

FPUC supported the Commission’s public interest determination.

See FAIR, 371 So. 3d at 912. The Commission explained how FPUC

used its experience from Hurricane Michael to illustrate how its

be part of its answer, but nothing prevents the Commission from
saying more.

- 22 -
proposed SPP programs would harden its systems, and

consequently reduce restoration costs and outage times. See

§ 366.96(4)(a), Fla. Stat. The Commission also accepted FPUC’s

data representing the SPP programs’ estimated rate impact. See

§ 366.96(4)(d), Fla. Stat. The Commission rejected two proposed

programs, finding they did not qualify as storm protection activities

within the public interest.

The Commission’s final orders as to TECO and DEF also

provide adequate support for a public interest determination. The

orders are shorter in length but contain similar critical information:

restatement of the parties’ arguments, evidence and testimony of

key experts, and a conclusion that the proposed plans meet the

requirements of the SPP Statute. DEF’s SPP is estimated to reduce

restoration costs by approximately $50 million per year and reduce

customer interruption to around 400 million minutes on average

per year. See § 366.96(4)(a), Fla. Stat. And for each proposed

program, TECO provided an estimate of the decrease in restoration

costs and in the delay customers would experience before having

power restored. See id. In both final orders, the Commission

disapproves programs that it explains either lacked sufficient

- 23 -
evidence to satisfy the public interest (“TECO did not provide

sufficient data supporting its position”) or were not programs in the

public interest as intended by the SPP Statute (DEF collaboration

with Walmart not in the public interest as it “does not meet the

definition as laid out in the statute”). See § 366.96(2)(b), Fla. Stat.

III

The Commission did not abuse its discretion or impair the

fairness of the proceedings by excluding expert witness Kollen’s

testimony. The Commission was within its authority to conclude

that Kollen’s testimony included improper legal opinion and was in

any event admitted into the SPPCRC Rule record, where its

relevance was not at issue.

Kollen’s testimony contained impermissible legal opinion in

that he contended that the SPP Statute and Rule incorporate a

prudence review—precisely the legal question at issue. Florida law

generally precludes expert testimony where it constitutes an

opinion on such a question of law. See § 90.702, Fla. Stat. (2021)

(permitting expert testimony in the form of an opinion if based on

facts or data and produced by reliable principles or methods, and

the principles are applied reliably to the facts); Town of Palm Beach

- 24 -
v. Palm Beach Cnty., 460 So. 2d 879, 882 (Fla. 1984) (deciding that

expert testimony cannot opine on how a case should be

determined); see also T.J.R. Holding Co., Inc. v. Alachua Cnty., 617

So. 2d 798, 800 (Fla. 1st DCA 1993) (“[T]he interpretation of a

statute is a question of law to be determined solely by the court, not

by expert witnesses.”); Bunin v. Matrixx Initiatives, Inc., 197 So. 3d

1109, 1110 (Fla. 4th DCA 2016). That’s what this was. The OPC

admits Kollen’s complete “testimony contains a variety of [his]

expert interpretations of the requirements of the SPP Statute, and

the SPP and SPPCRC Rules.” Because an expert’s interpretation of

questions of law and legal statutes is impermissible, his testimony

was properly excluded.

Also, granting the motion to strike Kollen’s testimony did not

impair the fairness of the proceedings. Under section 120.68(7)(c),

Florida Statutes (2021), “[t]he fairness of the proceedings or the

correctness of the action” may be impaired by “a material error in

procedure or a failure to follow prescribed procedure.”

§ 120.68(7)(c), Fla. Stat.; see also Citizens of Fla. v. Mayo, 333 So.

2d 1, 8-9 (Fla. 1976) (remanding where inadequate Commission

findings caused a “material error in procedure” that “affected both

- 25 -
the fairness and the correctness” of the proceedings). It was no

procedural error to exclude Kollen’s legal opinion testimony.

Indeed, where Kollen’s testimony did not constitute improper legal

opinion, or was relevant to his expertise as an economist, it was

admitted. The record contains Kollen’s testimony regarding the

SPPs’ effects on customer rates, their costs compared to the benefits

of certain programs, and his opinion on utilities’ decision criteria.

And in the SPPCRC Rule proceedings, where the parties agree that

a prudence review is appropriate, Kollen’s testimony was admitted.

The OPC was offered a fair and equal opportunity to present its

arguments despite the stricken testimony.

IV

We affirm the Commission’s final orders.

It is so ordered.

MUÑIZ, C.J., and CANADY, LABARGA, GROSSHANS, FRANCIS,
and SASSO, JJ., concur.

NOT FINAL UNTIL TIME EXPIRES TO FILE REHEARING MOTION
AND, IF FILED, DETERMINED.

An Appeal from the Florida Public Service Commission

Charles J. Rehwinkel, Deputy Public Counsel, Mary A. Wessling,
Patricia A. Christensen, Danijela Janjic, and Octavio Simoes-Ponce,

- 26 -
Associate Public Counsels, Office of Public Counsel on behalf of The
Florida Legislature, Tallahassee, Florida,

for Appellant Citizens of the State of Florida

Keith C. Hetrick, General Counsel, Samantha M. Cibula, Attorney
Supervisor, and Susan Sapoznikoff, Senior Attorney, Jonathan H.
Rubottom, Senior Attorney, Florida Public Service Commission,
Tallahassee, Florida,

for Appellee Florida Public Service Commission

Dianne M. Triplett and Matthew R. Bernier of Duke Energy Florida,
LLC, Tallahassee, Florida; Michael P. Silver and Alyssa L. Cory of
Shutts & Bowen LLP, Tampa, Florida, and Daniel E. Nordby of
Shutts & Bowen LLP, Tallahassee, Florida,

for Appellee Duke Energy Florida

C. Alan Lawson, Paul C. Huck, Jr., Jason Gonzalez, and Amber
Stoner Nunnally of Lawson Huck Gonzalez, PLLC, Tallahassee,
Florida,

for Appellee Florida Power & Light Company

Lauren V. Purdy, Beth Keating, and Jounice L. Nealy Brown of
Gunster, Yoakley & Stewart, P.A., Jacksonville, Florida,

for Appellee Florida Public Utilities Co.

J. Jeffry Wahlen, Malcolm N. Means, and Virginia Ponder of Ausley
McMullen, Tallahassee, Florida,

for Appellee Tampa Electric Company

- 27 -