GUIDELINES 

 FOR 

 PUBLIC SAFETY 

 AT 

 HYDROPOWER PROJECTS

 DIVISION OF DAM SAFETY AND INSPECTIONS 

 FEDERAL ENERGY REGULATORY COMMISSION 

 MARCH 1992 

(Appendix 6 Updated November 29, 2011)
-iGUIDELINES FOR

PUBLIC SAFETY

AT HYDROPOWER PROJECTS

TABLE OF CONTENTS

Page

Introduction 1

Hazardous Features at Projects 4

Spillways 4

Powerhouse Intakes 4

Powerhouse Tailrace Areas 4

Spillway Tailraces 5

Canals 5

Intake Areas 5

Boat Ramps 5

Natural Channel 5

Substations and Powerlines 5

Bridges 6

Project Structures 6

Natural and Other Hazards 6

Recreation Areas 6

Winter Conditions 6

Operations and Other Factors Affecting Public Safety 7

Safety Devices and Measures 9

Education and Information 9

Warning Devices 9

Danger Warning Signs 9

Power and Communication Lines 10

Audible Devices 10

Lights 10

Beacons 11

Buoys 11

Verbal Announcements 11

Restraining Devices 11

Boat Barriers 11

Fences 13

Trashracks 13

Guards 13
-iiTABLE OF CONTENTS (Con't)

Escape Devices 13

Life Preservers 13

Escape Ladders 13

Safety Nets 14

Canoe/Kayak Portages 14

Boat Ramps 14

Project Operating Procedures 14

Vandalism, Enforcement, and Other Problems 15

Basic Public Safety Measures 16

References (Attachment I) 18

Appendices Appendix

Figure 1 (Appendix 1) - Typical Public Safety Facilities 1

Figure 2 (Appendix 2) - Criteria for Signs 2

Letter to Owners on Maintenance and Removal

 of Safety Devices 3

Letter to Owners Requsting Public Safety Plans 4

Map Showing States for each Regional Office 5

Address and Telephone Numbers for each Regional Office 6
Guidelines for

Public Safety

at

Hydropower Projects

This document is primarily for the use of Federal Energy Regulatory Commission staff to

provide background information on public safety at hydropower projects. This document may be

revised as the need arises to address public safety needs at licensed and exempted projects.
GUIDELINES FOR 

PUBLIC SAFETY 

AT 

HYDROPOWER PROJECTS 

INTRODUCTION

Conditions may exist at or near hydropower facilities that could be dangerous or conducive to 

accidents that could cause injury or loss of life. The potential for drownings, accidental deaths 

and injuries near project facilities and on other project lands and waters has been of concern to 

the Federal Energy Regulatory Commission (FERC) and project owners for a considerable time. 

The FERC is primarily concerned with the hazards created by project structures and operations. 

Hazards created by natural conditions in project waters and at recreational areas that are operated 

or leased by licensees and exemptees of hydropower projects are equally important. However, as 

a practical matter and given the limitations of staff resources, the implementation of safety 

measures to minimize accidents that are not associated with project structures or operations is 

usually the responsibility of local entities and law enforcement agencies. 

The purpose of this document is to describe the types of hazards that can exist at hydropower 

facilities and the safety devices or other measures that can be employed to enhance the protection 

of the public that utilize project lands and waters. Project owners are responsible for providing 

any appropriate safety devices and other safety measures at their projects, even if not specifically 

required by the Regional Engineers. However, the staff of the Division of Dam Safety and 

Inspections (D2SI), in cooperation with project owners, are expected to assess the overall need 

for safety devices or other safety measures at all projects in order to develop the most effective 

solution to identified safety problems. Other safety measures may include preventing 

recreational activities in hazardous areas. Project owners are expected to expeditiously install 

and properly maintain any safety measures they determine are needed or are required by the 

Regional Engineer. This document provides general guidelines and criteria on safety devices 

because each project is unique and will necessarily require judgements and solutions that should 

be made in the field. 

Section 10(c) of the Federal Power Act authorizes the Federal Energy Regulatory Commission to 

establish regulations requiring owners of hydro projects under its jurisdiction to operate and 

properly maintain such projects under its jurisdiction to operate and properly maintain such 

projects for the protection of life, health, and property. The primary responsibility within the 

Commission for ensuring that project owners install and maintain appropriate safety devices rests 

with the Division of Dam Safety and Inspections (D2SI). Implementation of this responsibility 

is carried out by the Commission’s five Regional Offices (New York, Atlanta, Chicago, Portland 

(OR), and San Francisco). Part 12 of the Regulations issued January 21, 1981 (Order No. 122), 

delegates to the Regional Engineer the authority to require safety devices, where necessary. 

-2- 
Section 12.42 of the Regulations states that, “To the satisfaction of, and within a time specified 

by the Regional Engineer, an applicant or licensee must install, operate, and maintain any signs, 

lights, sirens, barriers, or other safety devices that may reasonably be necessary or desirable to 

warn the public of fluctuations in flow from the project or otherwise to protect the public in the 

use of the project lands and waters”. The Director, Division of Dam Safety and Inspections, the 

Regional Engineers, and other Commission authorized representatives also have broad general 

authority under Section 12.4 of the regulations to require modifications or changes in project 

works or operation, including installation of safety devices. At many projects, licensees or 

owners have taken the initiative to install safety devices or implement safety measures. The 

approval of existing safety devices, and the maintenance or removal of any safety devices, were 

dealt with in a letter to all owners (Appendix 3). 

The requirements for specific safety devices at each hydro project should be determined on a 

case-by-case basis. The D2SI Staff should work closely with the project owners to encourage the 

development and implementation of the most effective plan for public safety. The case-specific 

approach to public safety is especially important. For instance, projects with limited public use 

may not require the same level of public safety measures as projects with extensive use and 

recreational development. However, the real determinant at any project is the level of danger to 

the public. Where joint efforts with the project owner do not result in expeditious agreement on 

any approach to public safety, the Regional Engineer has the authority and is expected to require 

that such safety devices or other measures deemed necessary are installed as soon as practicable. 

Following is a description of various types of project features or conditions that can present a 

hazard to the public and the types of safety devices or measures that can be utilized or 

implemented to reduce hazards. These descriptions are not all-inclusive. Therefore, it is 

important that FERC Staff inspections focus on the particular project features that may dictate 

special public safety requirements. References (Attachment I) are also provided for obtaining 

more specific information on particular safety questions. 

 
-4-

HAZARDOUS FEATURES AT PROJECTS

SPILLWAYS - Ungated overflow spillways are particularly dangerous because they may be

difficult to recognize from the reservoir and boats can be easily drawn over them.

Gated spillways may be hazardous depending on their operation. For instance, when tainter gates

are raised so that the bottom of the gates are above the water surface, the spillway is essentially

an overflow spillway and is very dangerous. These type of spillways are also very dangerous

when the gates are raised to a point where the bottoms of the gates are below but near the water

surface. With the gates in this position, it is not apparent that they are raised and the water

surface is often fairly calm. However, the subsurface currents are very swift and dangerous. In

some gate positions, dangerous whirlpools develop upstream of gates. However, when gates are

raised only a few inches, they may pass water with little upstream hazard created.

Flashboard (or rubber dam) equipped spillways are operated in various ways; therefore, the

degree of hazard varies. Some flashboard spillways raise the reservoir level and are not normally

used to spill water. Others often spill water in the same manner as overflow spillways, and can

be equally hazardous. At some projects, sections of flashboards are manually removed to pass

water and others are designed to automatically collapse during high water periods creating a

sudden increase in flow. Each of these operations could create a hazard during periods when

water is being spilled, especially when flows are rapidly increasing. In general, flashboard (or

rubber dam) spillways should be regarded with the same caution as overflow spillways.

Deep, submerged spillways and outlet works are generally considered to be relatively safe

because the hazardous currents are well below the surface. However, since these spillways

cannot be seen from the surface, they are particularly dangerous to swimmers and scuba divers.

Needle beam spillways often create a considerable hazard when several beams are removed to

spill water. Even relatively narrow openings are often of considerable depth and can pass a large

volume of water creating swift currents.

POWERHOUSE INTAKES - At some projects the entire river flow passes through the

powerhouse during periods of low to moderate flows. During heavy flow periods, powerhouses

are usually used to capacity with the excess water being spilled. The currents in the powerhouse

intake areas are moderately swift, especially during periods of maximum generation. Intake

areas are usually equipped with trashracks that should prevent anyone from being drawn into a

turbine. However, at most projects it would be hazardous to be swimming or boating near intake

areas, because a person could be pinned against the trashracks making escape improbable.

POWERHOUSE TAILRACE AREAS - Powerhouse tailrace areas are usually more hazardous

than the intake areas. Sudden increases in tailrace flows caused when the generators go on line

are often very hazardous to persons that are near the shorelines, or wading or boating in the

tailwater areas. The degree of the hazard varies depending on such factors as the volume of flow,
-5-

the rate of change in flow, the turbulence created, and the size of the tailrace area. At some

projects with large tailrace areas, eddy currents can be quite dangerous to drifting boaters or

swimmers because they can draw an object or unwary victim into turbulent water below spillway

or powerhouse discharge areas.

SPILLWAY TAILRACES - Turbulent and dangerous white water areas are often created

below operating spillways. When spillway gates are raised or flashboards suddenly trip, the

sudden discharges can be very hazardous to persons in the tailwater or along the shoreline in the

immediate downstream area.

CANALS - Canals are a part of many hydro projects. Concrete or other hard surface linings

(whether vertical or sloped) are common and create hazardous conditions. It is very difficult for

persons caught in the water of a lined canal to get out without help because the water, algae,

mud, etc. make the linings very slick. Other structures associated with canals may also be

dangerous.

INTAKE AREAS - The inlets to conduits, tunnels, inverted siphons, or sagpipes are extremely

dangerous. From the surface, such areas may offer little visible evidence of the dangerous

undercurrents. Headgate structures near entrances to canals often create hazards as water flows

under or through the gate openings or trashracks.

BOAT RAMPS - Boat ramps can present a number of hazardous situations. Accidents at

heavily used boat ramps are well-documented. Statistics also show that alcohol and substance

abuse by boaters contribute to increasing the number of accidents. These problems will increase

as the recreating population increases. The proximity of boat access points to project facilities is

an important factor that should be considered in developing any plan for safety devices. 

Consideration should also be given to limiting boating activities in obviously hazardous areas. 

Boat ramps located in close proximity to spillways, powerhouses, intakes or canals where swift

or dangerous water currents can exist are areas that require special attention. Boat ramps in areas

of high boat traffic may need signs, etc. to control the number of boats and the direction and

speed of boat movement.

NATURAL CHANNELS - Hydro projects are constructed to take advantage of unique natural

topography. This inherently results in projects being located in steep terrain, canyons, or near

channels that are used primarily for power production. These areas are naturally hazardous even

without the hydro facility. However, since a project could make access easier, this factor should

be considered in any overall plan for preventing public access or providing safety devices. Often

the spillway, powerhouse, and other project facilities can be obscured from view by the natural

topography. Therefore, individuals could unknowingly enter dangerous areas if access is allowed

or adequate safety devices are not provided.
-6-

SUBSTATIONS AND POWERLINES - Substations are located near many project dams. The

electrical shock hazards associated with these substations are obvious and such facilities are

usually well protected with fences and signs. High voltage power lines associated with the

powerhouses and substations may be located in areas where boaters or fishermen could

accidentally make contact with them. Fluctuating reservoir levels affect the amount of vertical

clearance, as do hot weather and ice storms which often cause powerlines to sag. These factors

should be considered when determining the safe height for the powerlines.

BRIDGES - Bridges over project reservoirs may create hazards for sailboaters attempting to pass

under them. Low bridges and bridges with cross members, understructures, and cables

constructed close to the water surface can be hazardous to boaters.

PROJECT STRUCTURES - Project structures accessible to the public can present many safety

problems. There is danger of falling from dams, wingwalls, or headgate structures into reservoirs

or tailrace areas. Large boulders and other rip-rap material on dams and along dikes can be

hazardous to the public. Powerhouses and other project buildings have many inherent hazards. 

Therefore, public access to these areas should be restricted. Catwalk structures and slippery

spillway surfaces are also hazardous areas that should be avoided. Public access to intake and

debris deflector booms located near hazardous waters should be restricted.

NATURAL AND OTHER HAZARDS - Natural and other hazards, such as submerged stumps,

protruding rock formations, and inundated concrete structures, while relatively safe at some

reservoir levels, may present serious hazards to boaters and swimmers at other reservoir levels. 

Whether man-made or not, consideration should be given to marking hazards with buoys or

signs.

RECREATION AREAS - There are hazardous conditions at many public recreations areas, and

scenic overlooks that my require special consideration. Hazardous areas at project recreation

facilities provided by licensees are of particular concern. Designated swimming areas should be

isolated from boating areas, and located in safe waters away from sudden dropoffs, swift

currents, or other dangers. Playgrounds should be located away or isolated from hazardous

waters and heavily traveled roads. Adequate fencing should be used in high use areas. Public

safety at recreation areas is under the jurisdiction of State and local agencies but can be enhanced

by the support and cooperation of the licensee. Staff should therefore identify potential safety

problems to the project owner and request that they be called in writing to the attention of the

appropriate authorities. Staff should also determine if these conditions exist and if they were

properly considered, including adequate safety measures, in the Recreation Plan (Exhibit R or

Exhibit E) approved by the Commission.

WINTER CONDITIONS - Thin ice can be hazardous to snowmobilers and other wintertime

recreationists. Of particular concern are thin ice conditions created by project operations. Swift

currents, as well as devices to prevent gates from icing up such as heaters and air bubblers can

create thin ice areas.
-7-

OPERATIONS AND OTHER FACTORS

AFFECTING PUBLIC SAFETY

Many hazardous aspects of projects are not present at all times and they may not be readily

observed during a brief inspection of the project. Therefore, it is important to consider the full

range of spillway and plant operations that could cause hazardous conditions.

Peaking operations are more hazardous than run-of-river operations, since tailwaters are normally

calm and low flows occur between periods of generation. When generation begins, the tailwaters

could rise rapidly and become swift and hazardous in a very short time.

It is particularly important to determine that a project described as run-of-river is actually

operated continuously and that it does not have frequent generation cycles. Some plants with

small reservoirs that are located downstream of larger peaking plants cannot store water and are

considered "run-of-river" plants. However, they actually operate in tandem with the upstream

peaking plant and have frequent generation cycles with flow fluctuations.

Tailrace areas are particularly dangerous when spillway gates are opened quickly and without

warning, discharging flows into dry or calm areas below spillways.

Remote operation or automation of hydro projects may increase the chances of accidents at the

projects by eliminating the observations, judgements, and warnings of an operator. Therefore,

un-manned, remotely-controlled facilities may require more safety devices to adequately warn

and protect the public.

Weather factors, such as rain, snow, ice, and fog, can make project surfaces slick and obscure

visibility, resulting in signs being less effective. Relatively safe areas in the daytime may become

dangerous at night when neither signs nor the hazardous areas can be observed. Heavy to

moderate wind gusts can make rowboats,canoes, sailboats, small motorboats, and even large

motorboats that have lost power difficult to control. Thus, during windy or high flow conditions,

boaters may not be able to adequately react to warning signs or lights if they are forced into

hazardous areas. The potential for these situations should be taken into account when

considering site-specific public access restrictions and safety requirements.

At some projects recreational use is very heavy during special seasons, such as the opening days

of fishing seasons or during upstream anadromous fish migrations. Such concentrations of

recreationists (fishermen) can create special safety problems as they compete for the use of areas

that provide the better recreational opportunities and likely tend to cause recreationists to take

more risks.

The proximity of boat launching areas, canoe/kayaking portages, and other recreation areas to

dams and powerhouses should be scrutinized. If they are too close to these facilities, special
-8-

safety considerations may be necessary. For instance, during periods of high flows, boat ramps

and portages should be physically closed to the public (e.g. locked gates), but provisions should

be considered for rescue purposes. There have been serious accidents caused by locating these

facilities too close to dams. If a boater loses control of a boat or canoe, the velocity of the flood

flows could draw a boat over or through a spillway. If a boat ramp is not operated by the project

owner, then the project owner should advise the boat ramp operator of the dangers and suggest

closure of the ramp until high flows subside.

Public respect for high dams and spillways is generally greater than it is for low structures. Low

head and small diversion dams can be especially hazardous due to the indifference with which

the public views them. Very dangerous reverse or "keeper" flows are often created on the

downstream side of small overflow dams, and even those with as little as two feet of head can be

very dangerous. Therefore, most dams should have some sort of safety protection regardless of

the size of the dam and reservoir.

It is possible that, at times, several of these factors could simultaneously occur at a project,

making otherwise safe areas dangerous. Therefore, it is necessary that consideration be given to

these and other factors when analyzing the hazardous aspects and determining the safety needs of

a project.
-9-

SAFETY DEVICES AND MEASURES

As a general rule, all projects will require some type of safety devices, warning systems or other

measures. The amount of protection necessary increases as public exposure to the hazards

increases. For example, one canal may require only a warning sign, while another may require

safety nets, escape ladders, several warning signs, and the need to be enclosed with a chain link

fence.

Safety devices and measures can be divided into five basic categories: (1) Educating and

informing the public, (2) Visual and audible warnings of hazardous areas, (3) Physical restraining

devices, (4) Escape devices, and (5) Procedures for safer project operations. Examples of

possible safety devices and facilities have been depicted on Figure 1 (Appendix 1) to assist staff

in its overall review of public safety.

(1) EDUCATION AND INFORMATION - Owners are usually well aware of the hazards that

can exist near hydropower projects. Therefore, the owner has a unique opportunity to take the

initiative to educate and inform the public of the specific hazards near its hydro projects and of

the general rules that should be followed to be safety conscious. Where appropriate, information

could be disseminated in recreational brochures, company literature, video tapes, television or

radio announcements and in newspaper articles and advertisements. If feasible, as part of its

public relations program, an owner should make every effort to meet with the public at schools,

civic organizations, etc., communicate with the public through the media, and distribute literature

on public boating and water safety practices. The Coast Guard, state natural resource agencies,

schools, private boating and swimming clubs, and water safety organizations such as the National

Water Safety Congress, may have existing safety programs and information. Therefore, owners

should be familiar with such programs and information so that they can assist the public by

referring them to the appropriate agencies and organizations.

(2) WARNING DEVICES - Warning devices include such items as danger and warning signs,

canoe portage signs, audible warning devices, lights and illumination, beacons and strobe lights,

buoys, and verbal warnings. These devices are required where necessary to warn of hazardous

spillways, powerhouse intake areas, tailraces, and other hazardous areas and conditions.

Danger and Warning Signs - Each dam should have adequate danger and warning signs. 

Properly located and spaced signs can be an effective method of preventing persons from

entering hazardous areas. It is important to locate signs so that persons entering an area from any

direction can see one or more of the signs. Figure 1 (Appendix 1) shows possible locations of

signs. Where it is not feasible to install boat restraining barriers due to the length of the dam or

spillway, or other constraints, a system of warning buoys and signs should be installed at least

300 feet from the structures or at a greater distance, depending on where the hazardous current

begin. If the project reservoir is small, as a practical matter it may be necessary to place the

buoys and signs closer to the dam.
-10-

The size of lettering and the signs themselves should be of sufficient size that persons (even

those with less than perfect eyesight) would not have to enter the danger zone to read the signs. 

As a general rule, when a boater is 300 feet from any dam signs warning of a dam should be

legible and easily noticed. Proper wording of signs is important and can improve effectiveness. 

Signs should convey a message that clearly advises the reader of the real danger. In addition to

"No Trespassing" or "Keep Out" signs, it would be informative to have signs that state: "Danger

- Dam Ahead", "Danger of Drowning", or "Stay Alive by Staying Out". Signs should be kept in

good repair and fading signs should be repainted. Plants, grasses, and trees that obstruct

shoreline warning signs should be removed. Contrasting colors should be used for sign lettering

and background. A regular sign inspection program should be developed and documented to

ensure that all signs are maintained in good condition. It is particularly important to inspect signs

after severe weather or flood conditions. Figure 2 (Appendix 2) is provided for use in

determining the size of lettering based on distance from signs.

Power and Communication Lines - Power and communication lines require special signing to

warn recreationists of clearance heights. Minimum recommended vertical clearances for power

and communication lines over reservoirs are found in the current revision of the National

Electrical Safety Code (NESC) and in other regulations. These clearances, which are primarily

established for the protection of sailboaters, increase as the size of the reservoir and power line

voltage increases. High voltage power lines near powerhouses and substations may be located

where fisherman could accidentally make contact with them. Such lines should either be raised

or access should be restricted near them. Powerlines that cross project reservoirs should be

constructed at heights sufficient to provide safe passage for the maximum height of masts on the

sailboats that are likely to use the reservoir. If the project owner is not also the owner of the

power or communication line, the project owner should be advised in writing to contact the

owner of any line that does not meet safety codes and suggest that the line be raised to a safe

height. A copy of the letter should be furnished to the Regional Office.

Audible Devices - Audible devices, such as sirens, horns, or buzzers, are generally used to warn

of sudden changes in the rate of flow, usually in tailwater areas of spillways or powerhouses. It

is also important to provide warnings of sudden changes in operation, such as a gate opening to

pass flows that have been cut-off due to a plant shutdown. Sirens should not be used in

congested areas where they could be mistaken for emergency vehicles. At projects with heavy

fishing and boating use in tailraces, or where difficult terrain prevents a quick exit from the river,

advance warning of 10 to 15 minutes may be necessary. It may also be prudent to have a

warning sounded shortly before the releases are made. Signs advising of the meaning of the

audible devices should be posted along all access points near hazardous tailwater and other areas.

Lights - Lights can be used to illuminate signs, the dam itself, and other hazardous areas. It is

desirable that at least some of the warning signs around dams be illuminated at night. Lighting

should be considered at dams, tailrace areas, substations, and even boat barriers for night

visibility, particularly if boating at night is a regular activity. Specially designed signs, safety

devices, including lighting may often be necessary so that safety devices, including lighting may
-11-

often be necessary so that safety devices are effective under adverse weather conditions. Some

projects may not have a power source, therefore, lighting may or may not be feasible. A regular

lighting inspection program should be developed to ensure that lights are functional.

Beacons - Beacons and strobe lights can be utilized near spillway gates and overflow spillways

and, if appropriate, they should be activated to provide visual warning when water is being

discharged. Flashing strobe lights can also effectively compliment audible warning devices.

Buoys - Individually anchored buoys basically serve as floating signs. They can be used to mark

navigation channels, to identify danger zones and hazardous submerged objects, to regulate boat

speed, and to provide other types of information to boaters and swimmers. A line of individually

anchored buoys can serve to mark off and identify hazardous areas and also provide a means of

warning boaters. The number, location, and need for buoys must be a function of the level of use

of the particular areas in question. In general, buoys should be installed in accordance with

accepted rules and regulations in the state where the project is located. Buoys may not be

appropriate in low-use areas in many cases or in areas where the pristine nature of the area should

be preserved. However, buoys should not be substituted for restraining barriers where a positive

restraining barrier is feasible.

Verbal Announcements - Recorded or direct verbal warnings can be used at many smaller

projects to warn fishermen and boaters in tailrace areas that gates are going to be opened if the

project is always manned. However, this can only be effective if dam tenders and other

personnel working near dams are adequately trained to advise visitors of a project's hazardous

areas.

(3) RESTRAINING DEVICES - Restraining devices include boat restraining barriers, fences,

guardrails, natural barriers, trashracks, debris deflector booms, and other similar devices.

Boat Barriers - Boat restraining barriers as well as warning devices should be provided at those

projects where boaters and canoeists are exposed to hazardous spillways, tailrace areas or intake

areas. Free-flow spillways are the most hazardous. These include uncontrolled spillways

(including those with flashboards) and gated structures where the spill is over the gates (bascule

or similar gates). It is recognized that hazards may only exist near gated or other mechanically

controlled spillways when water is being spilled. However, protection must be provided in such

areas if there is recreational activity near the dam so that boaters and swimmers are safe during

periods when water is being spilled. In no case should a spillway be operated without restraining

barriers, where deemed necessary. Special attention should be given to channels that lead to

spillways or other potentially dangerous areas. Restraining barriers should be placed at the

upstream end of such channels, preferably at least 300 feet from the channel entrance. In some

instances, it may be necessary to install boat restraining barriers downstream of dams to prevent

boaters form entering unsafe areas. Where buoys are used in lieu of positive restraining barriers,

they should be placed at about 100 feet apart (or greater distances for long reaches), be made of
-12-

non-corrosive or corrosive protected materials, extend above the water surface so they are readily

visible, painted with bright colors, and include signs and/or standard U. S. coast Guard Inland

Waterway markings that warn boaters of the danger beyond the buoys.

Boat restraining barriers are not required at those projects where bridges or other structures

constitute an adequate physical barrier, or if it can be assured that hazardous flows and

conditions do not occur at the projects during time of the year when boaters or canoeists use the

reservoirs. Such determinations should be based on historic project operating records and written

data and information provided by the owner, not on assumptions. In addition, if barriers are

removed seasonally, the schedule for removal and re-installation should be reviewed to ensure

that the schedule is reasonable and there is adequate notice and protection for boaters. 

Consideration should be given to closing nearby boat ramps when boat barriers are removed. A

copy of the schedule should be retained in the Commission's files for the project.

The primary purpose of boat barriers is to physically restrain boaters from entering the hazardous

waters near dams. The buoys and floats supporting boat barriers may be marked with signs and

symbols that provide a warning to boaters approaching dams. The barriers also serve to mark off

and identify the hazardous areas in much the same way that rope and float barriers mark off and

prohibit boaters from entering designated swimming areas.

In addition to the boat barriers, warning signs are required on the dams to identify and warn of

the hazards. These signs help boaters to understand why they are being restricted by the boat

barriers. During winter periods, boat barriers may not be visible or may need to be removed to

prevent ice damage. Therefore, signs provide the only means to warn boaters, skiers, or

snowmobilers of the hazardous areas and conditions.

Any type of barrier, such as trash booms, debris deflector booms, log booms, and specially

designed barriers that have been placed upstream of dams may be considered as satisfactory boat

restraining barriers. The effectiveness of each installation should be evaluated on a case-by-case

basis. Where necessary to avoid excessively long barriers, anchors can be placed in the

reservoirs to facilitate installation. It is important to determine the proper location of barriers at

each dam. They should be located an adequate distance upstream to be free from the heavy

currents upstream of open gates and intake areas. Cables or barriers located on pier noses and

over spillway crests are often of little value because the currents are usually too strong in these

areas. The placement of boat barriers should be studied and tested by the owner to ensure that

they will be effective when gates are opened and under high flow conditions. FERC inspectors

should pay particular attention to the effectiveness of barriers if high flows occur during an

inspection. The determination of the need for and placement of a boat barrier still vary and

requires a case specific assessment at each dam.

The effectiveness of many existing barriers can be improved by making the barriers more visible,

spacing the floats closer together, tightening the cables, and/or placing the barriers at the

optimum distance form the dam. Specially designed floats can help to minimize debris

accumulation. In some cases, dam owners have provided spotlights that illuminate the barriers at

night. The color of the floats on boat barriers is very important for visibility. For instance, floats

and buoys colored international orange or alternating international orange and white are
-13-

preferable because they can be seen more readily and from greater distances. If any owner has

questions regarding the feasible design of restraining barriers, they should be advised to contact

the FERC Regional Office or seek assistance from a FERC inspector. The FERC Regional

Offices may have an example of a design used by another owner or could provide a contact with

another owner regarding a design that may be useful in a special situation.

Fences - Fences and guardrails are required at most projects to prevent public access to

hazardous areas such as dams, powerhouses, substations, intake areas, wing walls, etc. Fences,

together with signs and locked gates, are probably the most effective means of prohibiting land

based access to hazardous project features. At some projects, buildings, high cliffs and other

natural barriers can serve, along with fences, to limit public access.

Trashracks - Trashracks are located upstream of most powerhouse intake structures and

occasionally in other areas. They are primarily installed for the purpose of catching debris. It is

not desirable for the public to have access to trashrack areas because they are dangerous,

particularly where there is high velocity flow. Trashracks do prevent those who have fallen in

the water from being drawn into turbines, penstocks, siphons, or other enclosed water passages. 

As such, they serve as last chance safety devices. However, adequate safety devices and warning

signs should be the first line of protection because the probability of survival if someone is

caught by a trashrack is doubtful.

Guards - Uniformed guards and watchmen are employed in some heavily used public areas to

enforce regulations and warning signs and minimize trespassing and vandalism.

(4) ESCAPE DEVICES - Escape devices include such items as life preservers, safety ropes,

escape nets, escape ladders and suspended cables. These items provide a means of escape for

persons who are otherwise unable to get out of hazardous waters.

Life Preservers - It is desirable that life rings and safety ropes be provided near dams,

powerhouses, and canals, etc., where it is likely that someone would be available to use them to

aid a victim. These devices should be in readily accessible locations and well identified. If the

project is unmanned, then the desirability or need must be assessed on a case-by-case basis. For

instance, if vandalism is a problem, then life preservers at an unmanned project may be an

unreasonable requirement.

Escape Ladders - When project waters flow through open but confined channels, such as lined

canals and concrete lined intake and tailrace areas, self escape devices such as ladders may be

considered. As a general rule, and only if considered safe, such devices should be alternately

installed on both sides of the canal at intervals of about 250 feet. These devices, however, could

be attractive nuisances. Therefore, their location or use should be carefully considered to avoid

unsafe use of such devices. If these devices would create a more unsafe condition, then they

should not be employed.

Safety Nets - When canals terminate at hazardous structures such as siphon inlets, powerhouse
-14-

and penstock inlets, or spillways, etc., safety cables, booms, or safety nets are often necessary for

a victim to grab when caught in midstream. If they can be safely installed and used, escape

ladders should be located on each side of the safety booms or safety nets to adequately provide

for an effective means of escape. Use of safety ladders should always be governed by whether or

not they will, in fact, increase public safety. The safety nets often consist of woven rope or

woven wire fencing of sufficient height to reach the normal water surface when suspended from

a cable across the entire canal width. Care should be taken in the design of suspended cables,

because a single suspended cable may not be readily visible and could pose a hazard to boaters,

rafters or canoeists. Boat restraining barriers can also be used as an aid to escape from hazardous

waters.

Canoe/Kayak Portages - Designated canoe/kayak portages serve not only as recreational

facilities, but also as safety facilities. Where necessary there should be landing and portage areas

around dams or other structures. If adequately signed portages are not located in safe areas,

boaters can unknowingly enter hazardous areas and dangerous situations. Portage signs large

enough to direct them to safe take-out sites are necessary at all projects that have even occasional

canoeing or kayaking use. As a general rule, canoe/kayak portages should not be within 300 feet

of any dam, spillway, or powerhouse. However, portages in closer proximity to structures are

permissible if it can be shown that their location does not create unsafe conditions. Kayakers

may desire to go over lower dams. This must be discouraged by warnings, barriers and at the

request of the project owner, enforcement by local agencies.

Boat Ramps - Ramps for boats, particularly larger power or sailboats, are a necessary part of the

recreation facilities at many projects. Generally, boat ramps should be located at least 300 feet

from a dam, particularly spillways, power and canal intakes, and channels leading to dams and

other structures. If any existing boat ramp is closer than 300 feet from hazardous areas, or areas

with high water velocities during flood conditions, procedures and facilities should be provided

to close the ramps until the flood subsides to safe levels. Boat ramps may be located closer to

structures if it can be shown that their location does not create unsafe conditions. Information on

dangerous areas, restrictions on speed or access, alcohol use restrictions, enforcement and

penalties, sailboat clearance for power lines and bridges, and other information relevant to safe

boating practices should be provided at boat ramps or through other means, such as pamphlets,

brochures, maps, etc.

(5) PROJECT OPERATING PROCEDURES - In certain situations, changing project operating

procedures can improve safety conditions at a project. For instance, altering or imposing

ramping rates for generating units can prevent sudden increases in tailwater levels. Modifying

gate opening procedures may reduce or eliminate sudden surges in flows or may be used to direct

flows to less hazardous areas. Each owner should be encouraged to review operating procedures

as they affect public safety and to propose any necessary improvements, consistent with good

public safety practices and the primary purposes of the project.
-15-

VANDALISM, ENFORCEMENT, AND OTHER PROBLEMS

At a few projects, especially the remotely controlled developments located in isolated areas, acts

of vandalism are common. Fences and gates may be torn down or cut; safety signs may be

painted over, torn down, bullet-riddled or even stolen; life rings may be removed and safety ropes

and cables may be cut or destroyed. While such acts are difficult to prevent, efforts can be made

to reduce them. Wire cables can be substituted for ropes and heavier and stronger gauge

materials can be used. If possible, signs can be stenciled on concrete surfaces. Frequent

surveillance of vandal-prone areas may be effective. Safety devices should be freshly painted

and well maintained to be effective. Back-up systems should be installed where feasible. 

Facilities damaged by acts of vandalism should be promptly restored.

Consultation with officials of local townships and villages to assist in enacting laws or

ordinances prohibiting boaters and others from entering dangerous areas, boaters anchoring to or

crossing over boat restraining barriers, and fishermen, swimmers or other recreationists from

misusing boat barriers, can improve the barrier’s effectiveness. This approach is desirable and

provides local enforcement so that the public does not misuse or defeat the purpose of the

barriers. Owners should be encouraged to communicate such needs to local officials and

agencies so that there is adequate enforcement of safety laws and regulations. The FERC staff

should actively support licensees or owners in law enforcement efforts.
-16-

BASIC PUBLIC SAFETY MEASURES

Each project should be reviewed for public safety needs on a case-specific basis. It is extremely

important to assess the number and type of public safety measures at any project based on the

public use patterns at a project. Projects that do not have significant and documented

recreational use may, for instance, require only nominal public safety measures such as proper

signing. The following is a partial listing of public safety measures that should be considered

when undertaking a case-by-case review of public safety at a project (Reference Figure 1

[Appendix 1]):

1. Boat restraining barriers upstream of overflow, gated, flashboard (or rubber dam) and

needle beam spillways, powerhouse and canal intake areas, and upstream of natural

channels that extend to project structures.

2. Warning signs in tailrace areas.

3. Clearly visible and legible warning signs an appropriate distance upstream of and facing

the reservoir of each dam.

4. Fences at substations and restricted access to hazardous areas around dams and other

project structures.

5. Audible warning devices, together with signs to explain their meaning, at those projects

with sudden changes in operation that result in large flows and rapidly changing tailwater

levels.

6. Restricted public access to powerhouses, intakes, and other operating structures.

7. If necessary, canoe/kayak portage signs and routes at projects where canoeists and

kayakers require portage around the dam. (Note: Kayakers should be prohibited from

traversing over dams).

8. If determined necessary, signs (at least one) facing the reservoir on each dam with a

hazardous spillway, with lighting for night time visibility.

9. Signs posted at surge chambers to warn of sudden discharges.

10. Warning signs posted to warn boaters that may have to pass under low bridges.

11. Beacons at those projects with heavy boating activity when spillway gates are open or

being opened.

12. Trashracks in the intake areas of powerhouses.
13. Where safe installation can take place, escape devices installed at about 250 foot intervals 

in steep-sided or concrete lined canals. 

14. Signs that warn of thin ice posted where project operations cause hazardous thin ice 

conditions. 

15. Powerline clearances in accord with appropriate codes. 

16. Buoys to mark special hazards for boaters in projects reservoirs such as shallow areas, 

stumps, rock, outcroppings, etc. 

17. Spillways, intake areas, and tailrace areas sufficiently lighted at night (i.e. perimeter 

lighting) to be recognizable from the shoreline and the reservoir, if appropriate. 

Because the operation of projects may change and because the public use of many projects 

continues to increase, the public safety aspects of each project should be periodically evaluated 

by the owner. Any changes should be brought to the attention of the Regional Engineer so that 

the FERC can review the adequacy of such changes. An owner should have a well-conceived 

public safety plan for each of its developments (for further information refer to Appendix 4). 

During FERC staff inspections, a review of all public safety devices and measures should also be 

made to identify the need for additional devices or improvements to existing devices. Working 

cooperatively with project owners, the goal of maximizing public safety at FERC jurisdictional 

projects can be achieved. 

 -17- 
-18-

Attachment I

References

1. National Director of Boating Safety Materials - 

National Water Safety Council (U.S. Coast Guard, Office of Boating Safety) June 1975.

2. Wisconsin Department of Natural Resources, Wisconsin Administrative Code,

Chapter NR330, Warning Signs and Portages For Dams.

3. Planning, Design, Operation and Maintenance of Inland Water Swimming Beaches,

National Water Safety Congress, 1988, NWSC B-12.

4. Guide for the Safe Operation and Maintenance of Marinas, National Water Safety

Congress 1988, NWSC B-13.

5. Recreation Planning and Design Criteria, U.S. Army Corps of Engineers, EM 110-1-400,

July 31, 1987.

6. Water Safety Journal, Quarterly Publication, National Water Safety Congress - Water

Safety Journal, P.O. Box 19000, Seattle, WA 98109.

7. Water Safety and the Young Adult, Training Kits #NWSC-TM, NWSC-TC, and

NWSC-TV - National Water Safety Congress, 2182 Ivory Crest Drive, Buford, GA

30518.

8. Public Safety at Dams, USBR SEED Course, Author - Rob Rocklin, U.S. Bureau of

Reclamation, May 22, 1987.

9. Public Safety and Access Program (DRAFT), Department of the Interior, Bureau of

Reclamation, Denver, Colorado, September 1989.

10. Hydro User Group (Wisconsin, Michigan) Uniform Signing and Warning Device

Recommendations, 1988 HUG Meeting, Wausau, Wisconsin.
Substation

8-Foot ChainLink Fence

Hand

Rail

Fence

Boat

Ramp

Minimum Distance

to Structure 300'

Boat Restraining

Barrier Minimum

Distance to Structure

300 Feet

Stream Flow

Buoy With

Warning Sign

Anchor

(if necessary)

Warning

Signs

Spillway Warning

Sign & Light

Lights

Beacon

Strobe

Light

Warning Signs

& Lights

Warning

Sign

Boat Restraining

Barrier

Hand Rail

Canoe

Portage

Minimum Distance

to Structure 300'

Warning

Signs

Portage

Sign Portage

Trail

6-Foot ChainLink Fence

Life

Preserver Spotlight for

Boat Barrier

Powerhouse

Audible Warning

Device (Buzzer)

Tailrace Warning

Signs & Meaning

of Audible Warning

Device

Warning

Signs

Figure 1 - Typical hydropower dam showing location of public safety facilities

- Not to Scale - Tras

Escape

Ladder
-21-
Appendix 3

***This is a Reproduction of the Original Letter***

FEDERAL ENERGY REGULATORY COMMISSION

ATLANTA REGIONAL OFFICE

700 PEACHTREE STREET, N.E.

ATLANTA, GEORGIA 30308

August 2, 1991

Addressee List Enclosed

This letter addresses public safety devices at hydroelectric projects that are subject to the

Commission's licensing authority, either licensed or exempted projects. Pursuant to Sections

12.4, 12.42 and 12.43 of the Commission's Regulations (18 C.F.R., Part 12), an owner of a

project may be required to install and properly maintain any signs, lights, sirens, barriers or other

safety devices necessary to adequately warn and/or protect the public in its use of project lands

and waters.

Existing public safety devices or measures that have been required by a Commission

action or requirement are, by definition, approved project facilities or measures. In addition,

public safety devices or measures installed by owners on their own initiative are considered

approved, unless specifically stated otherwise by the Commission or its authorized

representative.

Licensees and exemptees must adequately maintain such devices or measures in the

operation of their projects. Failure to do so would be a violation of the Commission's regulations

and could subject a licensee or exemptee to the enforcement provisions of the Federal Power Act.

We are aware that certain safety devices may need to be temporarily removed, because of

project maintenance, winter ice periods, annual flooding, river debris problems, or other reasons. 

Therefore, unless required by an emergency situation, you must notify this office in writing at

least 10 days in advance of your intent to remove or render inoperative any safety device. The

notification should include the reason and proposed date for removal, and a schedule for

reinstallation. You must also provide this office written notification no later than 10 days after

reinstallation. Based on the information submitted in your notification, we may require changes

to your removal and reinstallation plan and may prescribe such additional safety measures as are

deemed appropriate. For those devices routinely removed or rendered inoperative on an annual

basis, a one-time notification giving the reason for removal, and submission of a schedule for

periodic removal and reinstallation would be appropriate. During any period when an approved

device is temporarily removed, you must develop such additional measures as are appropriate for

the particular project site to properly notify and protect the public if there is any increased danger

while the approved device is not in place. Your notification to this office must include a

description of those additional measures.
-2-

You are also reminded that Section 12.10(b) requires that you report all accidents

resulting in deaths or serious injuries that occur at a project.

If you have any questions regarding public safety devices or measures, please contact Mr.

Lorance (Randy) Yates of this office.

Sincerely,

Robert W. Crisp, P.E.

Director
Appendix 4

***This is a Reproduction of the Original Letter***

FEDERAL ENERGY REGULATORY COMMISSION

NEW YORK REGIONAL OFFICE

201 VARICK STREET, ROOM 664

NEW YORK, NEW YORK 10014

March 11, 1992

To the party addressed:

RE: Public Safety at Hydropower Projects

On August 1, 1991, we sent you a letter concerning public safety devices and measures at

hydropower projects subject to the Commission's jurisdiction. To assist us in our continuing effort to

review the adequacy of public safety measures, you are requested to provide this office with a public

safety plan (plan) for your project(s).

It is not intended that preparation of the plan be a major endeavor requiring substantial resources. 

The information in the plan should be in a simple, basic form. Therefore, the plan need not be overly

complex. The plan should, at a minimum, include a listing of each existing safety device at your

project(s) and a schematic drawing showing the general location of each device. For the latter

information, you may use a sketch or an existing plan view drawing. We are enclosing as samples the

schematic drawing form our March 1990 publication, Public Safety at Hydropower Projects and a

drawing form a plan submitted by a Licensee.

All safety devices, including fences, sign, boat barriers, buoys, log booms, alarms, illumination

and beacon lights should be listed and shown on the drawing. In addition it should include additional

information, such as height and type of fences, size and type of boat barriers, distance of barriers from

spillways and intakes, sign wording, and type and schedule of alarms.

If you have previously given us a plan that complies with the above, please provide only the date

of that submittal.

Please submit two copies of the plan by April 30, 1992. If you have any questions, feel free to

call Mr. Joseph Enrico of my staff at (212) 337-2619

Sincerely,

Anton J. Sidoti

Director
Portland Portland

San Francisco San Francisco

Chicago Chicago

Ne

Ne

Atlanta Atlanta

Division of Dam Safety and Inspe

Regional Office Boundaries
 Appendix 6 

DIVISION OF DAM SAFETY AND INSPECTIONS 

Mr. William H. Allerton, Acting Director 

Division of Dam Safety and Inspections 

Federal Energy Regulatory Commission 

888 First Street, N.E. 

Washington, DC 20426 

Telephone: (202) 502-6025 

Mr. Gerald Cross, Regional Engineer 

New York Regional Office 

Federal Energy Regulatory Commission 

19 West 34th Street, Suite 400 

New York, New York 10001 

Telephone: (212) 273-5911 

Mr. Wayne B. King, Regional Engineer 

Atlanta Regional Office 

Federal Energy Regulatory Commission 

3700 Crestwood Parkway, Suite 950 

Duluth, Georgia 30096 

678-245-3075 

Ms. Peggy A. Harding, Regional Engineer 

Chicago Regional Office 

Federal Energy Regulatory Commission 

Federal Building 

230 South Dearborn Street, Room 3130 

Chicago, Illinois 60604 

Telephone: (312) 596-4438 

Mr. Douglas Johnson, Regional Engineer 

Portland Regional Office 

Federal Energy Regulatory Commission 

805 SW Broadway, Suite 550 

Portland, Oregon 97205 

Telephone: (503) 552-2715 

Mr. Robert Finucane, Regional Engineer 

San Francisco Regional Office 

Federal Energy Regulatory Commission 

100 First Street, Suite 2300 

San Francisco, California 94105 

Telephone: (415) 369-3368