non-federal hydropower development at u.s. army corps … · u.s. army corps of engineers...
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Non-Federal Hydropower Development at U.S. Army Corps of Engineers Facilities:
Improving Coordination through
Implementation of the FERC/Corps MOU
Matt Cutlip
FERC Division of Hydropower Licensing
February 23, 2012
Workshop Agenda
• 1:15 – 2:30 Matt Cutlip, FERC Hydro Licensing
• 2:30 – 2:45 Break
• 2:45 – 3:15 Erich Gaedeke, FERC Hydro Compliance
• 3:15 – 3:45 Ed Perez, FERC Dam Safety
• 3:45 – 4:15 Marci Johnson, Corps Planning, Programs, and Project Management
• 4:15 – 5:00 Q&A – Open Discussion
Licensing Discussion Items
• Educate the Corps staff on FERC process
• Overview of FERC’s Office of Energy Projects, regulatory
responsibilities, Division of Hydropower Licensing, and licensing
processes.
• Improving coordination of non-Federal hydropower development at
Corps’ facilities.
• Opportunities for integrating the Corps permit information needs into
the FERC prefiling licensing process.
• Describe how the Corps facility and operational requirements are
addressed in FERC licenses.
FERC Jurisdiction
Commission authorization is required for non-federal hydropower projects that:
• are located on navigable waters;
• are located on non-navigable waters over which Congress has Commerce Clause jurisdiction, were constructed after 1935, and affect the interests of interstate or foreign commerce (e.g., are connected to the interstate grid);
• are located on public lands of the United States; or
• use surplus water from a federal dam.
• Preliminary permit – gives priority of
application while studying project (3 yrs)
• Conduit exemption and 5 MW exemption
– exemptions from licensing (issued in
perpetuity)
• License – to construct and operate a
project (up to 50 yrs)
FERC Authorizations
Preliminary Permit
• A preliminary permit maintains priority over a site while a developer studies the feasibility of the site and prepares a development application
• Issued for three years
• Six month progress reports are required
• Entities may file competing preliminary permit or development applications
• Preliminary Permits DO NOT authorize construction.
7
Exemptions from Licensing
• An exemption is not a form of deregulation, it is a statutory provision that allows an applicant to be exempt from some or all of Part I of the Federal Power Act
• Two types of exemptions: Conduit and <5MW
• For more information on exemptions go to www.ferc.gov. There is a small/low-impact hydropower program page with a comparison of chart describing the characteristics of a conduit exemption, <5MW exemption, and a license.
Conduit Exemption
•Utilize hydroelectric potential of a conduit
•Located entirely on non-Federal land
•Maximum Installed Capacity
15 MW for private entities
40 MW for municipal entities
•Not an integral part of a dam
•Project must discharge water:
• Into a conduit,
• Directly to a point of consumption, or
• Into a natural body of water if an equal or greater quantity
of water is withdrawn downstream into a conduit that is part
of the same water supply system.
5MW Exemption
Utilize and Existing Dam, or Natural Water Feature
FERC Licenses
• Non-federal hydropower projects; authorize project construction and operation for a period of 30 to 50 years.
• Include mandatory conditions for federal reservations under section 4(e) of the FPA, and fishway prescriptions under section 18 of the FPA
• License applications are developed according to one of the following processes:
18 C.F.R. § 5 (Integrated Licensing Process) 18 C.F.R. §§ 4.30-4.61(Traditional Licensing Process) 18 C.F.R. § 4.34(i) (Alternative Licensing Process)
Important Statutes
• National Environmental Policy Act
• Coastal Zone Management Act
• Clean Water Act
• Endangered Species Act
• Rivers and Harbors Act
• National Historic Preservation Act
• Energy Policy Act of 2005
Licensing Processes
• Integrated Licensing Process (ILP)-default
– Traditional Licensing Process (TLP)
– Alternative Licensing Process (ALP)
•
• Consult with interested
parties on issues and
studies
• Gather information
• Conduct studies
• Prepare license
application
•
• Seek comments from
interested parties
• Prepare EA or EIS
and seek comments
• Weigh all information in
record before
Commission decision
Prefiling Postfiling
Integrated Licensing Process
1 year 2-3 years
1.5 years
Pre
fili
ng
Post
fili
ng
Notice of
Intent & Pre-
Application
Document
Scoping
Meetings &
Public
Comment
Study Plan
Development
Conduct
Studies &
Prepare
Application
Application:
Proposal,
Effects &
Mitigation
Measures
FERC Review
& Public
Comment
FERC NEPA
Document &
Public
Comment
FERC
Authorization
(License Order)
Integrated Licensing Process
1 year 2-3 years
Pre
fili
ng
Notice of
Intent & Pre-
Application
Document
Scoping
Meetings &
Public
Comment
Study Plan
Development
Conduct
Studies &
Prepare
Application
Initial Steps
• Brings together all existing, relevant, and
reasonably available information
• Provides basis for identifying issues, data gaps,
and study needs
• Forms the foundation of future documents
• Sets the schedule for the ILP
Purpose of the PAD
• Project description
• River basin description
• Description of existing environment and resource
impacts to the extent they are known
• List of issues and information or studies proposed
to fill identified information gaps
• List of relevant comprehensive plans
• Process plan
• Summary of contacts
Contents of the PAD
1 year 2-3 years
Pre
fili
ng
Initial
Proposal &
Information
Document
Scoping
Meetings &
Public
Comment
Study Plan
Development
Conduct
Studies &
Prepare
Application
Scoping and Study Requests
18 CFR section 5.9(b) - Study Request Criteria
• (1) Describe goals and objectives of study proposal
• (2) Explain relevant resource management goals
• (3) Explain relevant public interest considerations
• (4) Describe existing information and need for more info
• (5) Explain nexus to project operations and effects and how
study results would inform license requirements
• (6) Describe methodology and how it’s consistent with
accepted practice
• (7) Describe consideration of level of effort and cost of study
and why alternative study is needed
Why are the study criteria
important?
• Increased understanding of
stakeholder information needs
• More focused studies
• Better study plans and more
efficient use of time
Study Plan Development
1 year 2-3 years
Pre
fili
ng
Initial
Proposal &
Information
Document
Scoping
Meetings &
Public
Comment
Study Plan
Development
Conduct
Studies &
Prepare
Application
Study Plan Development Study Requests Due
Proposed Study Plan Filed
Applicant Conducts Study Plan Meeting
Participant Comments due on Proposed Study Plan
Applicant Files Revised Study Plan
Final Participant Comments Due
OEP Director’s Study Plan Determination
45 days
30 days
60 days
30 days
15 days
15 days
Study Dispute Resolution
• Mandatory conditioning agency may dispute the
OEP Director’s determination for studies directly
relating to the exercise of their conditioning
authorities
– A three-member panel of technical experts is
convened and makes recommendations
– OEP Director considers the panel findings and
makes decision with respect to study criteria and
any applicable law or FERC policy
Conduct Studies & Prepare
Application
1 year 2-3 years
Pre
fili
ng
Initial
Proposal &
Information
Document
Scoping
Meetings &
Public
Comment
Study Plan
Development
Conduct
Studies &
Prepare
Application
Study Plan Implementation (1 to 2 years)
• Initial Study Report (within 1 year)
– Summarizes the results of the first year of study
– Documents any studies that were not conducted
according to approved study plan
– Documents anomalous environmental
conditions
• Updated study report (within 2 years)
– Same process as for initial study report
Preliminary Licensing Proposal
• Contents
– Describes existing and proposed facilities, operation,
and proposed environmental measures
– Includes draft environmental analysis [Exhibit E]
– Does not include other application exhibits
• Draft license application optional (if requested)
• Draft BA, EFH Assessment, and Historic
Properties Management Plan
• Comments/additional studies due within 90 days
Application Filed
1.5 years
Post
fili
ng
Application:
Proposal,
Effects &
Mitigation
Measures
FERC Review
& Public
Comment
FERC
Environmental
Document &
Public
Comment
FERC
Authorization
(License Order)
Ready for Environmental
Analysis (REA)
1.5 years
Post
fili
ng
Application:
Proposal,
Effects &
Mitigation
Measures
FERC Review
& Public
Comment
FERC
Environmental
Document &
Public
Comment
FERC
Authorization
(License Order)
Environmental Document
1.5 years
Post
fili
ng
Application:
proposal,
effects, &
protection
measures
FERC Review
& Public
Comment
FERC NEPA
Document &
Public
Comment
FERC
Authorization
(License Order)
NEPA Process
• Staff prepares analysis
– Single Environmental Assessment (EA)
– Draft EA
– Draft Environmental Impact Statement (EIS)
• Staff makes licensing recommendation
• Comments on draft/non-draft environmental document
– Request ESA/NHPA consultation
– 10(j) process (within 90 days)
• Modified terms and conditions
• Final EA/EIS
Licensing Decision
1.5 years
Post
fili
ng
Application:
Proposal,
Effects &
Mitigation
Measures
FERC Review
& Public
Comment
FERC
Environmental
Document &
Public
Comment
FERC
Authorization
(License Order)
Licensing Process Comparison
TLP
ALP
ILP
NOI/PAD
NOI/PAD
NOI/PAD
ORDER
ORDER
ORDER
Application Filed
Application Filed
Application Filed
PROCESS PLAN/
SCOPING EA/EIS
EA/EIS
EA/EIS
CONSULT/STUDIES PDEA SCOPING
SCOPING
CONSULT/STUDIES
ADD. STUDIES CONSULTATION/ STUDIES
TLP ALP ILP
Consultation Paper Collaborative Integrated
FERC Involvement
Post-filing Pre-filing:
Requested
Pre-filing:
Sustained
Deadlines
Pre-filing Some
Post-filing Defined by
FERC
Pre-filing
Collaboratively defined
Post-filing Same as TLP
All participants throughout
process, including FERC
Licensing Process Comparison
TLP ALP ILP
Application Exhibit E APEA or
3rd party EIS
PLP or Exhibit E follows
EA format
Additional
Information
Requests
Post-filing
Pre-filing
Post-filing
limited
Pre-filing
No Post-filing study requests
Timing of
Resource Agency
Terms and
Conditions
60 days after
REA
Schedule
for final
60 days after
REA
Schedule
for final
60 days after REA
Modified 60 days after due
date for comments on draft
NEPA document
Licensing Process Comparison
Hydrokinetic Pilot Project
• Small, short term, removable projects
• Test technology and/or evaluate sites
• Protect the environment – Short license term and small footprint
– Post-license monitoring
– Project shutdown or removal if harm
• Process license applications in as few as 6
months
Pilot Project Licensing Procedures
3 – 4 months
Pre
fili
ng
P
ostf
ilin
g
Draft License
Application
and Waiver
Request
Comments on
Process/DLA/
Monitoring
Plans
Public
Meeting
(if needed)
Application
Filed REA Notice EA
FERC
Authorization
(License Order)
4.5 months 1.5 – 3 months
FERC
Determination
on Waiver
Request
FERC/Corps MOU
Purpose:
• Coordinate Regulatory Review Processes
• Establish framework for early Corps participation in Commission licensing processes, and incorporation of Corps section 408 and section 404 permit information needs into prefiling, if desired by the Corps
• Ensure timely review and action on non-federal hydropower development
Improving Prefiling Coordination
MOU provides for early notification:
(1) Projects at Corps facilities – notification to the appropriate Corps
division would occur at the preliminary permit acceptance notice stage:
– Southwestern Division
– Gulf Region Division
– Mississippi Valley Division
– North Atlantic Division
– Northwestern Division
– Pacific Ocean Division
– South Atlantic Division
– South Pacific Division
– Great Lakes and Ohio River Division
(2) Notice of Intent/Pre-Application Document
Improving Prefiling Coordination
• Initial Consultation Database • Mailing Lists (project lists; state lists) • Stakeholders and agencies should monitor for accuracy • FERC staff can assist with updates • Help also available at www.ferc.gov, email:
• FERC’s eLibrary and eSubscription services
Improving Prefiling Coordination
The MOU states that, following early notification, the Corps will need to
determine early on if it has an interest in the proposed project: (1) Located at or would alter a Corps facility? [section 408
authorization]
(2) Affects navigation? [may require Corps section 10 authorization]
(3) Removal/fill of Corps’ jurisdictional waters? [requires Clean Water Act section 404 authorization]
(4) Other interests?
Cooperating Agency Status
• If the Corps is interested in a proposed project, then the Corps will determine if it wishes to be a cooperating agency for NEPA document preparation
• FERC and the Corps will develop a Letter of Understanding (LOU) to establish the Corps cooperating agency status as well as the protocols Commission staff and the Corps will adhere to for NEPA scoping, the prefiling study planning process, and preparation of NEPA document(s).
• LOUs are case-specific, unique to each project, and would be based on the Corps desired level of involvement
• If the Corps is a cooperating agency for a given project, it would not be able to intervene in the proceeding.
Information Needs
• The MOU acknowledges that both the Corps and FERC will cooperate in requests for study needs and additional information needs.
• It is our expectation that the Corps will request the information that it needs to complete its required analysis for issuing its authorizations.
• The MOU acknowledges that the Corps may need some engineering, environmental, or other information that FERC would not otherwise require under the regulatory procedures of the Commission. The MOU specifies that any such information would be the requirement of the Corps to obtain.
Integrating the Corps Permit Needs
into Prefiling
Clean Water Act Section 404 Removal/fill Authorization
• Identification of removal/fill of Corps jurisdictional waters and wetlands as issues during NEPA scoping
• Request removal/fill volumes and wetland delineations during ILP study planning process;
• Others information needs?
Section 408
• Potential information needs?
FERC License Orders
• Document compliance with applicable statutory requirements
• Include license articles and mandatory conditions
• Approve/modify resource protection plans
• Approve design drawings
• A FERC license for a project at a Corps facility would typically include
seven standard license articles that are set forth in the 2011 MOU
• Additional license conditions can be filed by the Corps pursuant to section 4(e) of the FPA
Interventions
• Official party to proceeding
– Participate in hearings
– File briefs
– File for rehearing on Commission decision
– Legal standing to be heard by Court of Appeals
• Can not be a cooperating agency
• Must serve any filing on applicant and all other intervenors
• Status terminates when Commission has issued order on rehearing and time for judicial review has expired
• Must be party to proceeding (intervenor)
• Must include statement of issues
• 30-day filing deadline
Rehearing
License Transition
• FERC’s Division of Hydropower Administration and Compliance (DHAC) takes over administration of the license after rehearing is complete.
www.ferc.gov
Questions?