Sarah Freeman has over 25 years’ experience in utility law and policy. In 2025, Sarah completed nine years of service at the Indiana Utility Regulatory Commission, where she regulated electric, gas, water and wastewater utilities. She joined RAP in 2025 as a principal and is a member of the Council of Commissioners.
As Commissioner, Sarah held leadership roles with the National Association of Regulatory Utility Commissioners, the Midcontinent Independent System Operator (MISO), and the Organization of MISO States. She expanded educational and engagement opportunities for commissioners, commission staff and external stakeholders at state, regional and federal levels. She served on various boards and advisory councils with organizations that advance education and energy thought leadership, including the Mid-America Regulatory Conference, the National Council on Electricity Policy, Electric Power Research Institute, and Financial Research Institute of the University of Missouri. She also served on the board of directors for the Universal Service Administrative Company advancing universal broadband access.
Before her appointment to the Indiana Utility Regulatory Commission, Sarah served the people of the Hoosier State in roles across all three branches of government. She started her legal career as a clerk to the Honorable Frank Sullivan of the Indiana Supreme Court and then represented the state of Indiana as a deputy attorney general in proceedings before state and federal trial and appellate courts. From 2000 to 2016, Sarah provided legal counsel to and drafted legislation for the 150 members of the Indiana General Assembly, focusing on utility and transportation law.
Sarah holds multiple degrees from Indiana University – Bloomington, where she was a member of the inaugural class of Herman B Wells Scholars. Her degrees include bachelor’s degrees in French, psychology and political science from Indiana University and a juris doctorate from the Maurer School of Law at Indiana University.
How Sarah Freeman is Energizing Change
U.S. Utility Regulation: Balancing State and Federal Power
Over the past year, the U.S. Department of Energy has exercised emergency authority to force the continued operation… Read More +
Council of Commissioners Urges Bold Action to Build a 21st Century Regulatory System
Energy is an essential service, and utility regulation exists, first and foremost, to protect customers. But utility regulators across the U.S. are experiencing a period of immense change. Read More +
