BPA establishes rates to be charged for power and transmission services in a rate proceeding, a formal evidentiary hearing process. Prior to the development of BPA's rates in a rate proceeding, BPA determines its spending levels through a public process, the Integrated Program Review (IPR). BPA’s initial rate proposal is then prepared based on the outcome of the IPR. BPA's rates must be set so that BPA will be able to recover its total costs, including obligations to repay its debt to the Federal Treasury. BPA's initial rate proposal is then evaluated in a rate proceeding during which BPA staff presents its rate proposal for review by parties. At the conclusion of the rate proceeding, the Administrator issues a Final Record of Decision, which includes BPA's final rates. BPA then files its final rates with the Federal Energy Regulatory Commission for confirmation and approval .