GOVERNMENT AND POLICY NEWS, NEW DEVELOPMENT, NORTH … · This map, from the Environmental...

11/5/2019 Hydro Review: The Revitalization of Hydropower - Hydro Review

https://www.hydroreview.com/2019/10/16/hydro-review-the-revitalization-of-hydropower/ 1/31

G O V E R N M E N T A N D P O L I C Y N E W S , N E W D E V E L O P M E N T , N O R T H A M E R I C A

https://www.hydroreview.com/category/government-and-policy-news/

https://www.hydroreview.com/category/new-development/

https://www.hydroreview.com/category/north-america/

https://adclick.g.doubleclick.net/pcs/click?xai=AKAOjsvm6Q1v1kHJU2xMcXAxFkY1whptqtQvY-k864AnVtJrx5CAtXV0NWyNfCiLIFsSnCrKdxIkl8S9Yq31Qbkbbc1CGXL5ijdXycto6djmTCj033r3VsZdDSTHvMStFKP6LuO3sXMtPZOcT9tyIE7IOw8iN5jI_CzlybMG6YqcLJgWvzZWzL2g1fCGoQkLPik5-XXnEJfB_hO0FeAJiIWDtX6TIfdchMs3gKk4TlZNnaOjIcMZOFEPMahcMhHlzUd6lIyarQS1dHx6hQ&sig=Cg0ArKJSzP5l30YWzcIeEAE&urlfix=1&adurl=http://www.reel-coh.com/

https://adclick.g.doubleclick.net/pcs/click?xai=AKAOjsuM1547CaWQP2VXmP7id2Gwk_G9HgwipCe_tb-NeN5KlTvcYTxw2N4mjIbNsOAHDBtc88q_w9BnHk1iq1Ld_rzlF_VdGHJCQQovVMVm5wxeos3s7WxrThaqe9etEl3EFraDiCV0piYkIze8MFJw2tKrvC5UOjidwQg6IwXr4uLvAlRJOVpwsE0oK5miNTxZkSRHu1RpAp5olIRinAYfLJHN3bIqAU_iD4wgSqSdMLprdRi1ExWipceUqy-WXIndWl1PEotIed3dZg&sig=Cg0ArKJSzC6DQ1y_ec7LEAE&urlfix=1&adurl=http://www.ahydro.com

https://www.hydroreview.com/



This article provides a comprehensive review of the laws and federal actions that encouraged

hydropower development, beginning in the 1920s. Recent legislation and executive actions

beginning in 2013 make it evident there is a similar, if not more aggressive, movement to once

again revitalize the hydropower industry. Where the goal of government to diversify and

increase energy sources at a national level remains the same, public interest has shifted from

the initial hydropower era’s potential for economic improvement to this hydropower era’s

transitioning of the nation’s energy to clean, renewable sources.

By Anne E. Sibree

It has been a century since the Federal Water Power Act (now the Federal Power Act or FPA)

was enacted, and the U.S. is entering a second era of renewed interest in hydropower

development. This revitalization of hydropower development will be accomplished

through three ideals popular with the current administration, the industry and

communities alike: reduction of greenhouse gases; addition of reliable energy sources to

the grid; and less regulatory burden and cost to the industry. Increased hydropower

generation could alter the percentages of reliance on nonrenewable energy sources and

improve air quality. For example, based on the Environmental Protection Agency’s (EPA)

2018 e-GRID data, the Colorado region (all of Colorado, most of Wyoming, and western

portions of Nebraska and South Dakota), relies on 51.3% coal, 20.2% gas, 15.1% wind,

12.1% hydro, 0.8% solar, and 0.3% biomass.1 This region’s emissions exceed the

national average.1

Hydro Review: The Revitalizationof Hydropower10.16.19

https://www.facebook.com/sharer.php?u=https://www.hydroreview.com/2019/10/16/hydro-review-the-revitalization-of-hydropower/

https://twitter.com/intent/tweet?url=https://www.hydroreview.com/2019/10/16/hydro-review-the-revitalization-of-hydropower/&text=Check%20out%20this%20great%20article&via=hydrovisionintl



The hydropower industry may soon see the regulatory reform and �nancial incentives it

has been seeking for many years. Within the past six years, there has been noticeable

recognition by the federal government of the importance and value of hydropower, as

demonstrated through legislative and executive actions to promote simpli�ed and more

e�cient authorizations for new or increased generation at hydropower projects.

The �rst section of this article describes the �rst hydropower era (1920 to 2010),

discussing federal actions that encouraged the development of hydropower from the

time the government began regulating its construction, operation and maintenance and

the changes made to the Federal Power Act over almost a century. The second section

describes the second hydropower era (2013 to today), discussing the recent revitalization

of hydropower development through legislation promoting e�cient authorizations of

hydropower projects that have, over time, become costly and time-consuming.

The underlying motivation of the federal government to develop national energy

resources remains the same, but the equally important element of public support has

shifted. In the �rst hydropower era, particularly during the time of the New Deal,

citizens were in favor of economic drivers and employment. Today, citizens are in favor

of reducing GHG emissions and altering the nation’s reliance on non-renewable energy

sources to clean, renewable energy sources.



This map, from the Environmental Protection Agency’s website, shows the percentage of

renewable generation in each region of the U.S.

Federal government actions encouraging hydropower development in the �rst

hydropower era (1920-2010)

1. The 1920 Federal Water Power Act/1935 FPA

In 1920, the federal government began regulating nonfederal hydropower projects

through the Federal Water Power Act, amended in 1935 as the FPA.2 The Federal Power

Commission was given sole authority to issue licenses for the construction, operation

and maintenance of hydropower projects and to regulate interstate transmission and

sale of electricity.3 In 1950, this commission was terminated and its powers were

transferred to the Federal Energy Regulatory Commission (FERC).4

1930-1940 New Deal Era

To revive the U.S. economy after the Great Depression, President Franklin Roosevelt’s

New Deal era passed numerous acts and created new agencies — such as the Tennessee

Valley Authority, Public Works Administration, and Civil Work Administration —

leading to funding, employment and the construction of infrastructure and hydropower

facilities, including Bonneville and Grand Coulee dams.5

1978 Public Utilities Regulatory Policies Act

Signi�cant changes to hydropower regulation came almost 40 years later, with the

Public Utilities Regulatory Policies Act (PURPA), following on the heels of a wave of new

environmental laws (inter alia the National Environmental Policy Act or NEPA in 1969

and the 1972 amendments to the Federal Water Pollution Control Act, the Clean Water

Act or CWA). The FPA authorized FERC to grant licenses for all projects subject to the

FPA and to grant exemptions only for small conduit hydroelectric projects.6 PURPA

expanded FERC’s ability to grant exemptions to other projects. PURPA also de�ned

“small hydroelectric power projects” – projects 15 MW or less that use the water

potential of an existing dam or a natural water feature (e.g. natural lake, waterfall,



gradient of a stream) – and required FERC to develop a program for “simple and

expeditious licensing procedures” for these projects.7 In addition, it authorized FERC to

grant exemptions for a subset of small hydroelectric projects, at its discretion.

Exemption in this context does not mean that small hydropower projects determined

eligible will be exempt from federal jurisdiction or environmental review pursuant to

NEPA. Rather, these exemptions are, in fact, an order from FERC authorizing the

hydropower project, but they allow the project to operate without expiration and without

being subject to many FPA licensing requirements.

In addition to establishing small hydroelectric power project exemptions, PURPA

encouraged small power production by establishing how electric utilities are to interact

with small energy producers. It required electric utilities to purchase energy from small

hydropower producers at a rate equal to the cost of purchasing an equal amount of

energy from another source (de�ned as “avoided costs”) and to provide the project an

interconnect to the grid.8

Note: In April 2019, the Ninth Circuit added an important consideration when

calculating “avoided cost:” if the purchasing utility is meeting state renewable portfolio

standards from a renewable energy source, “avoided cost” should be the cost of an equal

amount of energy from “another renewable source,” as opposed to the cost of energy

from “another source.”9 This decision helps align rates paid to the hydroelectric power

developer with other renewable sources. On Sept. 19, 2019, FERC issued its proposed

revisions to PURPA that would change how and when rates for qualifying hydropower

producers would be established and would add circumstances when utilities are not

obligated to purchase such power.

1980 Energy Security Act

Two years later, Section 408 of the Energy Security Act of 1980 amended PURPA by

expanding the size of a “small hydroelectric project” from 15 MW to 30 MW, meaning

PURPA’s mandate for “simple and expeditious licensing procedures” will apply to

projects up to 30 MW. However, FERC has yet to promulgate “simple and expeditious



licensing procedures” speci�c to small hydroelectric projects. Additionally, the Energy

Security Act incorporated FERC’s discretionary small hydroelectric power project

exemption for projects 5 MW or less.10 Under this act, Congress also urged the secretary

of the Department of Energy (DOE) to study the development and commercialization of

“small scale” hydropower.

1986 Electric Consumers Protection Act

The Electric Consumers Protection Act of 1986 amended the FPA by increasing the role of

state and federal �sh and wildlife agencies in the licensing process.11 FERC would be

required to give “equal consideration” to energy conservation and protection in addition

to mitigation of damages, enhancement of �sh and wildlife, protection of recreation and

preservation of environmental quality.11 These new considerations, though important,

would result in a more time-consuming and costly licensing process that often results in

a license that imposes numerous measures on the licensee. At the same time, however,

Congress asked for more studies on “small power production,” reminding us that under

PURPA, small hydropower projects should receive simple and expeditious licensing

procedures.

1992 MOU between FERC and the Bureau of Reclamation

In 1992, the Bureau of Reclamation and FERC signed a memorandum of understanding

(MOU) “for the expeditious non-Federal development of hydroelectric energy,”

whereby the agencies would identify the proper agency for authorizing hydropower

projects at Reclamation facilities.12 When a Reclamation facility is an “asset authorized

for federal hydropower development,” Reclamation will authorize hydropower

development in the form of a Lease of Power Privilege (LOPP).

Note: Reclamation’s authority over hydropower projects that use Reclamation facilities

would be expanded by Congress in 2013 through the Bureau of Reclamation Small Conduit

Hydropower Development and Rural Jobs Act (see section on 2013 Bureau of Reclamation

Small Conduit Hydropower Development and Rural Jobs below).



1992 and 2005 energy policy acts

The Energy Policy Act of 1992 set a goal to increase clean energy and reduce reliance on

imported energy, and it incentivized renewable energy projects through tax credits.13

Thirteen years later, attention was turned again to renewable energy incentives in the

Energy Policy Act of 2005 (EPAct 2005). However, the incentives for hydropower were

minimal.14 It was not until 2014 that Congress �nally appropriated funds under Section

242 of EPAct 2005, providing direct cash incentives for new small hydropower

generation using existing infrastructure. Unfortunately, the program expired only one

year later. Annual funding has continued to be available for projects that met the

quali�cations in 2014.

Nevertheless, Section 241 of EPAct 2005 amended Sections 4 and 18 of the FPA, sections

notorious in certain hydropower authorizations because of the sometimes costly and

unpredictable mandatory conditions imposed by resource agencies (e.g. the U.S. Forest

Service and U.S. Fish and Wildlife Service).15 EPAct 2005 introduced a procedure for the

hydropower applicant to propose alternative conditions or request trial-type hearings

when there are factual disputes regarding those mandatory conditions. Additionally, it

eliminated the requirement under PURPA for a utility to purchase energy from a

qualifying facility if the hydropower producer has nondiscriminatory access to the

market, allowing the developer access to competitive rates.16

Shortly after EPAct 2005 was enacted, interim rules went into place implementing

procedures for the trial-type hearings. In 2016, the departments of Agriculture, Interior

and Commerce jointly issued �nal rules for these procedures.17 Although each agency’s

rules are substantially similar, each has its own.17 EPAct 2005 gave licensees the ability

to challenge or propose alternatives to mandatory hydropower conditions, over which

FERC has limited ability to challenge itself. These agency rules gave a licensee a set

procedure to follow, as well as a process that results in documentation of the resource

agency’s considerations regarding mandatory hydropower conditions.

Secure Water Act of 2009



In 2009, the Secure Water Act was passed, requiring more collaboration among the

federal water agencies.18 It also asked DOE to report the impacts of global climate

change on hydropower generation to Congress every �ve years.18 The �rst report was

issued in 2013, with a second report following in 2017 (see 2013 Department of Energy’s

Climate Report below).

1. 2010 multi-agency MOU

In 2010, the departments of Energy, Interior and Army signed a “Memorandum of

Understanding for Hydropower.”19 Through partnership and collaboration, the agencies

agreed to “harmonize the production of clean, renewable power generation with

avoidance or reduction of environmental impacts and maintenance or enhancement of

the viability of ecosystems.”19 In 2015, the MOU was extended �ve years, implementing

a Phase II Action Plan, and committing to continue to improve regulatory processes for

hydropower development.20 The extension provided that “the U.S. Army Corps of

Engineers and the Department of Energy intend to work collaboratively with the Federal

Energy Regulatory Commission to improve regulatory e�ciency for private and

municipal development and operation of power facilities at the U.S Army Corps of

Engineers non-powered dams.”20

Federal government e�orts to revitalize hydropower in the second hydropower era

(2013-today)

In 2013, we see the beginning of a new hydropower era with renewed momentum at a

federal level to revitalize hydropower development. Every year since has brought

exciting changes to regulations regarding authorizations and the procedures to acquire

authorization for new or increased hydropower production.



Executive summary of Hydropower Vision: A New Chapter for America�s 1st Renewable Electricity Source, an

analysis of the sustainable expansion of hydropower.

This map from the U.S. Department of Energy shows the status of hydropower ownership in

the U.S.

1. 2013 Hydropower Regulatory E�ciency Act

One of the most signi�cant laws to change the regulatory landscape since PURPA was the

Hydropower Regulatory E�ciency Act (HREA) in 2013. With its goal to reduce costs and

regulatory burdens during licensing, this law provided a boost to hydropower

development in numerous ways. First, it increased the maximum installed capacity for

small hydroelectric power project exemptions from 5 MW to 10 MW.21 Second, it

amended Section 30 of the FPA’s de�nition of small conduit hydroelectric facility

exemptions, now allowing these projects on both federal and non-federal lands, and

increased this exemption’s maximum installed capacity from 15 MW to 40 MW (an

amount that had previously only been available to municipal conduits).22

Third, and perhaps most signi�cant, it codi�ed FERC’s regulatory determination in 2010

that a subset of small conduit exemptions called “qualifying conduit hydropower

facilities” are truly exempt from regulation under the FPA. A qualifying conduit



hydropower facility is a conduit hydropower project 5 MW or less located on an existing,

non-federal conduit that is used for municipal, agricultural or industrial purposes.23

FERC evaluates these projects solely on the basis of their eligibility as a “qualifying

facility.” The hydropower developer merely submits a notice of intent (NOI) to FERC for

con�rmation that the project quali�es to move forward without additional evaluation or

authorization.

Last, Congress tasked FERC with investigating the feasibility of authorizing new

hydropower development at non-powered dams and closed-loop pump storage projects

within a two-year timeframe.

Note: Subsequently, FERC explored this endeavor through a pilot project for each type of

hydropower development.24 In 2017, FERC’s report to Congress concluded that without

necessitating change to its regulations (i.e. the licensing processes), authorizations

could be accomplished in two-year’s time as demonstrated through the pilot projects.25

Two years later, in April 2019, FERC issued regulations for a two-year licensing process

for non-powered, existing dam projects and closed-loop pump storage projects (see

2019 expedited licensing for existing non-powered dam and closed loop pump storage

projects below).

2013 Bureau of Reclamation Small Conduit Hydropower Development and Rural Jobs

Act

In the same year as the HREA, another signi�cant game-changer for hydropower

development came by way of the Bureau of Reclamation Small Conduit Hydropower

Development and Rural Jobs Act. 26 Recall that in 1992 Reclamation and FERC signed an

MOU distinguishing the agencies’ regulatory authorities for certain hydropower projects

on Reclamation facilities. The MOU provided that assets authorized for federal

hydropower developments were within Reclamation’s jurisdiction, but Reclamation

assets that had not been authorized for federal hydropower development would be under

FERC’s jurisdiction. In 2013, Congress made this determination simpler, giving

jurisdiction over all hydropower development using existing Reclamation conduits (i.e.



even if it was not authorized for federal hydropower development) to Reclamation

through issuance of a LOPP.26 It also provided that hydropower development using

Reclamation dams can proceed through a LOPP or a FERC license, per the 1992 MOU, but

shall only require one authorization unless there are multiple federal assets involved.

This act amended the Federal Reclamation Law and was described as giving local

irrigation districts and water agencies a “permanent process … [to] develop this very

valuable, renewable carbon-free energy at our reclamation facilities.”27 In recognizing

“the beauty of this hydropower legislation … used on much smaller scaled, reliable

projects in which we already have the infrastructure in place,” this would help

streamline those hydropower projects through Reclamation’s regulations.27

2013 Department of Energy’s Climate Report

Pursuant to the Secure Water Act of 2009, DOE reported in 2013 that signi�cant changes in

temperature had occurred in all regions of the country.28 The report also drew a direct

correlation between the variability of runo� and the variability of hydropower

generation.28 Except for the Rio Grande and Apalachicola rivers, “the annual generation

in assessment areas was highly correlated with observed runo� values (observed data

from USGS).”28 Additionally, the report described the bene�t of large water storage

reservoirs in the West, helping to spread out the variability of runo�/hydropower

generation. “In four of the areas in Western’s region, generation was more related to

multi-year runo� than single-year runo�.”28 The report also concluded that the e�ects

of climate change on annual hydropower generation were not signi�cant. In the 2017

report, DOE reported that some regions of the country showed “signi�cant to negligible

changes, which can be further explained by watershed storage. Watershed storage may

provide a bu�er to help absorb part of the runo� variability, resulting in a stable future

annual hydropower projection that supports the result in the �rst study, which used

di�erent modeling methods.”29 The 2017 report concluded that “with the relatively

large storage capacity at many U.S. federal hydropower reservoirs, the �eet is likely to be

able to absorb part of the runo� variability and hence may continue to provide stable

annual hydropower generation in the projected near-term and midterm future periods,”



and that “change in federal hydropower production is mainly controlled by precipitation

and runo� and indirectly by temperature.”29

2014 Water Resources Reform and Development Act

In Section 1008 of the Water Resources Reform and Development Act in 2014, Congress

declared that “it is the policy of the United States that— (1) the development of non-

Federal hydroelectric power at Corps of Engineers civil works projects, including locks

and dams, shall be given priority; (2) Corps of Engineers approval of non-Federal

hydroelectric power at Corps of Engineers civil works projects, including permitting

required under section 14 of the Act of March 3, 1899 (The Rivers and Harbors Act, 33

U.S.C. §408), shall be completed by the Corps of Engineers in a timely and consistent

manner.”30 Still, however, neither Congress nor FERC has granted or delegated

authority to the Corps to issue hydropower authorizations using Corps facilities

equivalent to Reclamation’s authority. Therefore, although two agency authorizations

will be required for projects developed at Corps facilities, this act and the 2016 MOU (see

2015 FAST 41 below) requires e�cient and coordinated review by the agencies.

2015 Carl Levin and Howard P. “Buck” McKeon National Defense Authorization Act

In 2015, Congress again extended Reclamation’s authority under the Bureau of

Reclamation Small Conduit Hydropower Development and Rural Jobs Act to issue a LOPP for

conduit hydropower projects using Reclamation facilities (see 1992 and 2005 energy

policy acts above) to more broadly apply to all water resource assets of Reclamation that

were constructed under the 1939 Water Conservation and Utilization Act (WCUA).31 Thus,

now all non-federal hydropower projects that use a WCUA Reclamation asset can acquire

hydropower authorization through a Reclamation LOPP procedure rather than a FERC

license.

Note: Reclamation posts a list of facilities available for development, with the most

recent list issued in August 2018.32 As an example, using assessment data from 2011 and

2012, Reclamation identi�es 48 facility-sites in Colorado that are available for



development.33 “Twenty of those sites have a high cost-bene�t ratio, and in total, those

twenty sites could produce 46,647 kW.”33

2015 FAST 41

Also enacted in 2015 was Fixing America’s Surface Transportation Act.34 Title 41, referred

to as “the FAST-41,” established that agency coordination and consultation for

permitting and environmental review must be made more e�cient through project-

speci�c timelines for eligible FAST-41 projects. To be eligible, a proposal must meet the

de�nition of a “covered project” under the statute. A FAST-41 hydropower project is one

that: 1) involves the construction of a non-federal hydropower facility that is subject to

NEPA; and 2) is likely to require a total investment of more than $200,000,000.34

2016 MOU between FERC and the Corps

In 2016, the Corps and FERC entered into a Memorandum of Understanding on Non-

Federal Hydropower Projects to coordinate their respective regulatory processes under

NEPA.35 This MOU establishes FERC as the lead agency and sets forth how the agencies

are to coordinate during the preparation of NEPA documents. It also commits the parties

to complete the NEPA documents according to FERC’s process schedule with “speci�c

and expeditious timeframes for licensing.”35

2017 DOE report on hydropower development in canals

DOE’s e�orts to promote and in�uence hydropower initiatives are key to the industry’s

progress. Through its Water Power Technologies O�ce, DOE is dedicated to researching,

funding and cost-sharing projects to advance clean energy e�orts, including

hydropower.36 In 2017, DOE released a report describing how to evaluate facilities and

performance when considering hydropower development on canals and open

channels.37 Considerations include the structure of canals best-suited for hydropower

units and potential e�ects on existing canals when hydropower is added to unlined

channels (e.g., increased water levels, changes in �ow, changes in channel morphology

and turbidity).



DOE releases an annual hydropower market update, with the most recent (2018) data

released in May 2019, providing interesting statistics about annual hydropower

increases and types of authorizations issued over the years.38 And, in April 2019 DOE

committed more than $20 million towards new hydropower, hydrokinetic and marine

power technologies.39

1. 2017 Executive Order on promoting energy independence and economic growth

In March 2017, Executive Order No. 13783 was issued, promoting energy independence

by holding other regulatory agencies accountable to the lead agency’s review and

approval timelines to authorize energy infrastructure. “To enable the timely

construction of the infrastructure needed to move our energy resources through

domestic and international commerce, the Federal Government must promote e�cient

permitting processes and reduce regulatory uncertainties that make energy

infrastructure projects expensive and discourage new investment.”40 This Executive

Order asked agencies to review their regulations, orders, guidance and policies to

determine which ones potentially burden the development of domestic energy sources.

2017 FERC’s policy on license terms and its �nal report responding to Executive

Order 13783

In October 2017, FERC issued a policy statement regarding license terms. The FPA limits

licenses to a maximum of 50 years.41 FERC’s policy sets a 40-year term for licenses as

the default. A few weeks later, FERC issued its “voluntary” report (because it is an

independent regulatory agency not subject to Executive Order 13783), listing nine FERC

actions that “potentially materially burden the development or use of domestic energy

resources.” 42Seven of the nine items pertain to hydropower authorizations. Thus, the

hydropower industry can anticipate the following regulatory or policy changes.

First, FERC identi�ed a burden associated with assigning the Integrated Licensing

Process (ILP) as the default process, which results in additional time and cost in the

process for a project proponent who wants to use a di�erent licensing process because

the proponent must request FERC’s approval. It recognized that the ILP could be



optional, with no authorization from FERC required to use any of the three licensing

processes.43 A second regulatory “�x” is to eliminate the requirement for, and make

optional, sharing a copy of the draft license or exemption application with stakeholders

for review and comment before �ling the application with FERC.43 Third, review and

comment periods during the ILP could be made shorter to reduce the overall 3 to 3 ½

year total licensing process.43 Fourth, license terms, which are discretionary so long as

they do not exceed the FPA’s maximum term of 50 years, could be extended from the

frequently used 30- and 40-year terms (by the time this report was issued, FERC had

already acted on this �x). Fifth, hydropower application �ling requirements could be

simpli�ed for projects under 10 MW.

The sixth identi�ed “burden” to �x could have signi�cant bene�t to many small

hydropower licensees whose licenses are nearing expiration. FERC recognized that the

regulatory requirement to add generating capacity to qualify for a small hydroelectric

power project exemption of 10 MW or less could be eliminated. This would allow small

hydropower projects to continue operating in perpetuity under the terms of an

exemption order. Nevertheless, until this regulatory change is made, existing licensees

should contemplate the option of converting a license to an exemption by adding

generating capacity if it is economically viable. At least one municipal licensee has

converted a license to an exemption by adding capacity.44

Seventh, FERC’s regulations require an applicant whose exemption application is denied

to subsequently submit a license application rather than FERC sta� simply requesting

any additional information necessary to consider the submittal as a license application.

This regulatory change has also not happened, but other ways to �le an application have

been used, including �ling a dual application in which FERC is asked to �rst consider the

application for exemption and, if for whatever reason it is denied, to consider the

simultaneously �led, and likely very similar, application for a license.45 In fact, the

current regulations describe this approach.46 Last, FERC acknowledged that its

prohibition on re�ling an application after the �rst application is denied during re-



relicensing could be eliminated, which would allow the licensee to correct de�ciencies

and resubmit its application if it wishes to proceed with its project.

2017 Executive Order on One Federal Decision

On August 15, 2017, President Trump issued Executive Order No. 13807, “Establishing

Discipline and Accountability in the Environmental Review and Permitting for

Infrastructure Projects.”47 Major infrastructure projects involving multiple agencies

will be issued a single Environmental Impact Statement (EIS) and a single Record of

Decision (ROD) signed by all agencies with authorization, environmental review or

consultation responsibilities, with authorizations from each agency following 90 days

later.47 All of this is to be done within two years from publication of the NOI to prepare

an EIS.48 Federal agencies signed a Memorandum of Understanding Implementing One

Federal Decision. FERC, as well as other agencies, committed to complete the necessary

environmental reviews and authorizations for “major infrastructure projects” (projects

requiring multiple federal authorizations) within two years.49

2017 Secretarial Order 3355 – Streamlining NEPA

On August 31, 2017, Interior Secretary David Bernhardt signed Secretarial Order 3355,

implementing One Federal Decision (Executive Order 13807) to improve NEPA review

processes, with page and time limits for an EIS. Under this guidance, when Reclamation

is the lead agency for hydropower authorization it will strive to complete an EIS within

one year from the date of issuance of the NOI to prepare an EIS.

2018 America’s Water Infrastructure Act

Signed into law in 2018, America’s Water Infrastructure Act tasked FERC with multiple

improvements under the current regulatory regime.50 It required FERC to: 1) establish a

two-year decision process for qualifying facilities at existing non-powered dams; 2)

develop a list of non-powered Federal dams with the greatest potential for hydropower

development; 3) create a two-year decision process for licensing of closed-loop pumped

storage projects; and 4) explore development opportunities for closed-loop pump



storage projects at abandoned mine sites. Twenty-one days later, FERC issued a notice

setting a schedule to accomplish these tasks.51

Note: During the time that FERC was developing regulatory e�ciencies pursuant to the

AWIA, the courts resolved an important issue about delays that occur during licensing

that are beyond FERC’s control. In N.Y. State Dep’t of Environmental Conservation v.

FERC, FERC took the position that the state’s water quality department waived its CWA

Section 401 water quality certi�cation authority when it failed to act on a CWA Section

401 application within one year.52 The Second Circuit court of appeals agreed with FERC,

holding that Section 401 of the CWA outlines a “bright line” mandate that a state has one

year to review a request for water quality certi�cation under Section 401, and if action is

not taken within that timeframe, the state has waived its certi�cation requirements.53

The court noted that an applicant could withdraw and resubmit its application to the

state department, which would start the one-year clock anew.

However, in a similar case before the D.C. Circuit in 2019, the court rejected the Second

Circuit’s suggested approach to restart the clock by resubmitting an application, saying

that withdrawal and resubmission of a CWA Section 401 application does not trigger a

new statutory period of review when the application that is being withdrawn and

resubmitted is essentially the same.54 Describing the approach as an “attempt to

circumvent FERC’s regulatory authority” of whether and when to issue a federal license,

the court put its foot down on regulatory delays a�ecting FERC’s licensing authority and

took a step further than the Second Circuit in enforcing the one-year CWA Section 401

certi�cation review period. This issue was being heard by the court during the time FERC

was �nalizing its expedited licensing process rule, and the issue is clearly carried over in

that rule. The ELP rule requires a hydropower applicant to submit to FERC a copy of its

request for a CWA Section 401 certi�cation, including proof of the date it was received by

the state, or a copy of the certi�cation or waiver at the same time it submits its

hydropower application to FERC.55

Also under the AWIA is a provision to encourage hydropower owners to make

improvements to their existing projects rather than wait until re-licensing. This AWIA



provision gives “credit” for investments made to a currently licensed project by

extending, upon request to FERC, the term of the existing license. For example, a

licensee could replace a runner with a new, more e�cient runner, increasing production

of kilowatt-hours (though not increasing the overall generating capacity) and seek from

FERC a 10-year extension on the term of its 40-year license. FERC’s policy statement on

extending the term of an existing license provides, “The Commission will consider, on a

case-by-case basis, measures and actions that enhance non-developmental project

purposes (i.e., environmental, project recreation, water supply), and those that enhance

power and developmental purposes, together with the cost of those measures and

actions to determine whether they are signi�cant and warrant the granting of a longer

license term. Maintenance measures and measures taken to support the licensing

process will not be considered.”56

2019 Executive Order on Promoting Energy Infrastructure and Economic Growth

Next came an April 2019 Executive Order, “Promoting Energy Infrastructure and

Economic Growth,” issued to “enable the timely construction of the infrastructure

needed to move our energy resources through domestic and international commerce” by

promoting “e�cient permitting processes and reduc[ing] regulatory uncertainties.” In

furtherance of promoting private investment in energy infrastructure, the EPA was

charged with reviewing CWA Section 401 Certi�cation rules, policies and procedures and

developing new guidance and proposed rules within 13 months after this Executive

Order.56 Additionally, for energy infrastructure requiring rights-of-way from federal

land managers, there shall be developed a “master agreement for energy infrastructure

that will enable timely and e�cient renewals when those permits expire.”56

Note: EPA issued its proposed rules revising CWA Section 401 certi�cations on August 8,

2019, published in the Federal Register on August 22, 2019.57

2019 expedited licensing for existing non-powered dam and closed loop pump

storage projects



Also in April 2019, FERC issued its rule for expedited decisions. FERC states that its new

regulations setting forth expedited licensing decisions for “qualifying facilities” and

closed-loop pumped storage projects “ful�lls the spirit of the One Federal Decision

MOU.”58 This does not add a fourth licensing process but rather asks that FERC expedite

its decision after the applicant has selected its preferred licensing process (from one of

three existing licensing procedures, each requiring pre-�ling consultation with agencies

and stakeholders). Expedited licensing begins after an applicant has submitted a license

application, and it may be used for two types of hydropower projects: qualifying

facilities at existing, non-powered dams and closed-loop pump storage projects.

Expedited licensing ensures a decision from FERC within two years from the date of

application.59 It is available only for an original license (i.e. it does not apply for project

re-licensing or exemption), and an applicant must request FERC to use the expedited

process. In the preamble to this rule, FERC noted that this expedited process could also

be used for projects qualifying as “major infrastructure projects” subject to the One

Federal Decision MOU.58

Conclusion

At the federal level, all three branches have taken recent steps to promote streamlined

hydropower authorizations and encourage development of hydroelectric energy. Soon

we should see a public list of non-powered federal dams with the greatest potential for

hydropower development from FERC (which was anticipated in August 2019), FERC’s

guidance on closed-loop pumped storage projects at abandoned mine sites (anticipated

in September 2019) and EPA’s �nal CWA Section 401 regulations.

The appeal of hydropower energy is not going away. After the Intergovernmental Panel

on Climate Change report in 2018, we are likely to see various bills in the coming years

with titles including “clean,” “green,” and “renewable” to promote the country’s

conversion from non-renewable to renewable energy sources. For instance, in February

2019 Representative Ocasio-Cortez introduced the New Green Deal, and in May 2019

Senator Wyden introduced the Clean Energy for America Act. Hydropower development

will certainly be key to achieving these goals.



The recent mandates for streamlined authorizations and environmental reviews

combined with the ever-growing desire to reducing GHG emissions make certain an

increased demand for renewable energy sources. Hydropower is key to near-term

achievements towards ambitious local and statewide goals to become 100% reliant on

renewable energy sources.

Anne E. Sibree is Of Counsel with law �rm Trout Raley Montano Freeman Sinor

Thompson. She advises clients through the various phases of project planning,

permitting, construction and permit compliance with regard to environmental and

natural resources laws, including the National Environmental Policy Act, Clean Water Act,

Endangered Species Act and Federal Power Act.

Notes

1 Power Pro�ler, Environmental Protection Agency, Washington,

D.C.,https://www.epa.gov/energy/power-pro�ler (accessed August 6, 2019)

2 16 U.S.C. § 791 et. seq.

3 16 U.S.C. §§ 791-828

4 Historical note to 16 U.S.C. §797

5 The Living New Deal, https://livingnewdeal.org/what-was-the-new-deal/timeline/

(accessed July 3, 2019), and National Archives at Seattle: The Great Depression and the

New Deal, https://www.archives.gov/seattle/exhibit/picturing-the-century/great-

depression.html (accessed July 3, 2019)

6 FPA §30, 16 U.S.C §823a

7 Public Utilities Regulatory Policy Act of 1978, 16 U.S.C. § 2705 (2012)

8 16 U.S.C. 796(17)(C)

9 Californians for Renewable Energy v California Pub. Util. Comm’n, 922 F.3d 929, 937 (9

Cir. 2019)

th

https://livingnewdeal.org/what-was-the-new-deal/timeline/

https://www.archives.gov/seattle/exhibit/picturing-the-century/great-depression.html



10 Energy Security Act of 1980, Pub. L. No. 96-294 (1980)

11 Electric Consumers Protection Act of 1986, Pub. L. No. 99-495 (1986)

12 Memorandum of Understanding Between the Federal Energy Regulatory Commission

and the Bureau of Reclamation Department of the Interior for the Early Resolution of

Issues Related to the Timely Development of Non-Federal Hydroelectric Power at

Bureau of Reclamation Facilities, November 6, 1992.

13 Energy Policy Act of 1992, Pub. L. No. 202-486 (1992)

14 Energy Policy Act (EPAct) of 2005, Pub. L. No. 109-58 (2005) and Energy Policy Act of

2005 Fact Sheet, Federal Energy Regulatory Commission (August 8, 2006)

15 See e.g. 16 U.S.C. § 797(e) (authorizing the federal land management agency to impose

mandatory conditions on a license when the project involves federal facilities or lands).

16 16 U.S.C. § 824a-3(m)

17 81 Fed. Reg. 84389 (November 23, 2016)

18 Secure Water Act of 2009, Pub. L. No. 111-11 (2009)

19 Memorandum of Understanding for Hydropower, March 24, 2015

20 Memorandum of Understanding for Hydropower Sustainable Hydropower Action

Plan (Phase II), Executive Summary at 3 (March 2015)

21 16 U.S.C. §2707, as amended by the Hydropower Regulatory E�ciency Act of 2013,

Pub. L. No. 113-23,3

22 16 U.S.C. § 823(a) (2012), as amended by Pub. L. No 113-23, §4.

23 Pub. L. No. 113-23, §3

24 Pub. L. No. 113-23, §6



25 Report on The Pilot Two-Year Hydroelectric Licensing Process for Non-Powered

Dams and Closed-Loop Pumped Storage Projects and Recommendations Pursuant to

Section 6 of the Hydropower Regulatory E�ciency Act of 2013, Federal Energy

Regulatory Commission (May 2017).

26 Bureau of Reclamation Small Conduit Hydropower Development and Rural Jobs Act of

2013, Pub. L. No. 113-24 (2013)

27 H.R. 678, �oor speech by Representative Jim Costa, April 10, 2013.

28 E�ects of Climate Change on Federal Hydropower, Department of Energy, 8 (August

2013)

29 E�ects of Climate Change on Federal Hydropower, Second Report to Congress,

Department of Energy, 6 (January 2017)

30 Water Resources Reform and Development Act of 2014, Pub. L. No. 113-121 (2014), Sec.

1008

31 Levin, Carl, and Howard P. Buck” McKeon National Defense Authorization Act of 2015,

Pub L. No. 113-291 (2015)

32 Bureau of Reclamation Resource Assessment Sites Available for Development,

https://www.usbr.gov/power/ResourceAssessment/2018_Available_Sites_8-17-18.pdf

(last visited August 6, 2019)

33 Bureau of Reclamation. Hydropower Program,

https://www.usbr.gov/power/AssessmentReport/ (last visited August 6, 2019)

34 Fixing America’s Surface Transportation Act of 2015, Pub. L. No. 114-94 (2015)

35 Memorandum of Understanding between the United States Army Corps of Engineers

and the Federal Energy Regulatory Commission on Non-Federal Hydropower Projects

(July 20, 2016).

https://www.usbr.gov/power/ResourceAssessment/2018_Available_Sites_8-17-18.pdf

https://www.usbr.gov/power/AssessmentReport/



36 Department of Energy, About the Water Power Technologies O�ce (WPTO),

https://www.energy.gov/eere/water/about-water-power-program (last visited August

7, 2019)

37 Assessing and Testing Hydrokinetic Turbine Performance and E�ects on Open Channel

Hydrodynamics: An Irrigation Canal Case Study, Department of Energy. March 2017

38 Department of Energy, Hydropower Market Report,

https://www.energy.gov/eere/water/hydropower-market-report (last visited August 7,

2019)

39 Department of Energy, DOE Announces Up to 261 Million to Advance Hydropower and

Marine Energy, https://www.energy.gov/articles/doe-announces-261-million-advance-

hydropower-and-marine-energy

40 Exec. Order No. 13783, 82 Fed. Reg. 16093 (2017)

41 161 FERC ¶ 61,078 (October 19, 2017)

42 82 Fed. Reg. 50517 (November 1, 2017)

43 82 Fed. Reg. 50519 (November 1, 2017)

44 116 FERC ¶ 62, 244 (September 29, 2006)

45 116 FERC ¶ 62, 244 (September 29, 2006) This was the approach used for the

Williams Fork project, which was the �rst project to convert a license to exemption by

adding generating capacity to qualify.

46 18 CFR §4.33(d) (providing that if there an unexpired permit or license in e�ect for

the project, FERC will accept an application from the licensee for exemption of that

project)

47 82 Fed Reg. 40,463 (August 24, 2017)

https://www.energy.gov/eere/water/about-water-power-program

https://www.energy.gov/eere/water/hydropower-market-report

https://www.energy.gov/articles/doe-announces-261-million-advance-hydropower-and-marine-energy



48 Exec. Order No. 13807, 82 Fed. Reg. 40463 (2017). Agencies may exceed these

timelines by following certain protocols or choose not to do a single EIS/ROD under

circumstances that are identi�ed in E.O. 13807.

49 Federal Energy Regulatory Commission,

https://www.ferc.gov/legal/mou/2018/MOU-One-Federal-Decision.pdf (last visited

August 7, 2019)

50 America’s Water Infrastructure Act of 2018, Pub. L. No. 115-270 (2018)

51 83 Fed. Reg. 58243 (2018).

52 New York State Department of Environmental Conservation v. Federal Energy

Regulatory Commission, 884 F.3d 450 (2d Cir. 2018)

53 33 U.S.C. § 1341(a)(1)

54 Hoopa Valley Tribe v. Federal Energy Regulatory Commission, 913 F.3d 1099 (D.C. Cir.

2019)

55 167 FERC ¶ 61,050 at 51-53.

56 161 FERC ¶ 61,078 (October 19, 2017)

57 84 Fed. Reg. 44080 (2019)

58 FERC Final Rule 18 CFR Pt. 7, Hydroelectric Licensing Regulations Under the America’s

Water Infrastructure Act of 2018, Order No. 858, 167 FERC ¶ 61,050 (2018) at P 115 (p 55)

59 FERC Final Rule 18 CFR Pt. 7, Hydroelectric Licensing Regulations Under the America’s

Water Infrastructure Act of 2018, Order No. 858, 167 FERC ¶ 61,050 (2018)

http://googleads.g.doubleclick.net/pcs/click?xai=AKAOjssO5fURqad40op7rLbB3ER3CM-1Ruei-wg69aB3CludlLx7_MsSr-HU6GBLJT_JguC7Rf4yX06cyOzULJKgpq35fKAOisbpefs1Iyav2eIzGoVOO6_s6_zjX-BX3HmG8CVf5NpQzkl40-AIoe9rDuoaqNuYsQZEoomi0k_h5XUmfif_vzxAxcSzlEZpQbdiNMQZ0TKeH7Twp9DZMj-wLqX7VeYVbdlntTbFOEv5HmDJqPXbgdANB_aCC4vYDwbJ2CWgo8o5dDYnNA&sig=Cg0ArKJSzCGp4r-i0Mro&adurl=http://www.mavel.cz/&nx=CLICK_X&ny=CLICK_Y

GOVERNMENT AND POLICY NEWS, NEW DEVELOPMENT, NORTH … · This map, from the Environmental...

Documents

Transcript of GOVERNMENT AND POLICY NEWS, NEW DEVELOPMENT, NORTH … · This map, from the Environmental...