142 FERC ¶ 61,128

UNITED STATES OF AMERICA

FEDERAL ENERGY REGULATORY COMMISSION

18 CFR Part 40

[Docket No. RM12-12-000; Order No. 775]

Regional Reliability Standard PRC-006-NPCC-1 —

Automatic Underfrequency Load Shedding

(Issued February 21, 2013)

AGENCY: Federal Energy Regulatory Commission.

ACTION: Final Rule.

SUMMARY: Under section 215 of the Federal Power Act (FPA), the Federal Energy 

Regulatory Commission (Commission) approves regional Reliability Standard PRC-006-

NPCC-1 (Automatic Underfrequency Load Shedding), submitted to the Commission for 

approval by the North American Electric Reliability Corporation (NERC). Regional

Reliability Standard PRC-006-NPCC-1 applies to generator owners, planning 

coordinators, distribution providers, and transmission owners in the Northeast Power 

Coordinating Council Region. Regional Reliability Standard PRC-006-NPCC-1 is 

designed to ensure the development of an effective automatic underfrequency load 

shedding (UFLS) program to preserve the security and integrity of the Bulk-Power 

System during declining system frequency events, in coordination with the NERC 

continent-wide UFLS Reliability Standard PRC-006-1. The Commission approves the 

related violation risk factors, violation severity levels, implementation plan, and effective 

dates proposed by NERC. 
Docket No. RM12-12-000 ii

EFFECTIVE DATE: This rule will become effective [insert date 60 days after 

publication in the FEDERAL REGISTER].

FOR FURTHER INFORMATION CONTACT:

Enakpodia Agbedia (Technical Information)

Office of Electric Reliability, Division of Reliability Standards 

Federal Energy Regulatory Commission 

888 First Street, NE 

Washington, DC 20426 

Telephone: (202) 502-6750

Enakpodia.Agbedia@ferc.gov

Matthew Vlissides (Legal Information)

Office of the General Counsel

Federal Energy Regulatory Commission

888 First Street, NE 

Washington, DC 20426

Telephone: (202) 502-8408

Matthew.Vlissides@ferc.gov 

SUPPLEMENTARY INFORMATION: 
142 FERC ¶ 61,128

UNITED STATES OF AMERICA

FEDERAL ENERGY REGULATORY COMMISSION

Before Commissioners: Jon Wellinghoff, Chairman;

 Philip D. Moeller, John R. Norris,

Cheryl A. LaFleur, and Tony T. Clark.

Regional Reliability Standard PRC-006-NPCC-1 —

Automatic Underfrequency Load Shedding

Docket No. RM12-12-000

ORDER NO. 775

FINAL RULE

(Issued February 21, 2013)

1. Under section 215 of the Federal Power Act (FPA),1 the Commission approves

regional Reliability Standard PRC-006-NPCC-1 (Automatic Underfrequency Load 

Shedding). The Commission also approves the related violation risk factors (VRFs), 

violation severity levels (VSLs), implementation plan, and effective dates proposed by 

the North American Electric Reliability Corporation (NERC). NERC submitted regional 

Reliability Standard PRC-006-NPCC-1 to the Commission for approval. The regional 

Reliability Standard applies to generator owners, planning coordinators, distribution 

providers, and transmission owners in the Northeast Power Coordinating Council 

(NPCC) Region and is designed to ensure the development of an effective automatic 

 1 16 U.S.C. 824o (2006).
Docket No. RM12-12-000 - 2 -

underfrequency load shedding (UFLS) program to preserve the security and integrity of 

the Bulk-Power System during declining system frequency events, in coordination with 

NERC’s continent-wide UFLS Reliability Standard PRC-006-1. 

I. Background

A. Mandatory Reliability Standards

2. Section 215 of the FPA requires a Commission-certified Electric Reliability 

Organization (ERO) to develop mandatory and enforceable Reliability Standards that are 

subject to Commission review and approval. Once approved, the Reliability Standards 

may be enforced by NERC (the Commission-certified ERO), subject to Commission 

oversight, or by the Commission independently.2

 

3. A Regional Entity may develop a Reliability Standard for Commission approval to 

be effective in that region only.3

 In Order No. 672, the Commission stated that:

As a general matter, we will accept the following two types of regional 

differences, provided they are otherwise just, reasonable, not unduly 

discriminatory or preferential and in the public interest, as required under 

the statute: (1) a regional difference that is more stringent than the 

continent-wide Reliability Standard, including a regional difference that 

addresses matters that the continent-wide Reliability Standard does not; and 

(2) a regional Reliability Standard that is necessitated by a physical 

difference in the Bulk-Power System.

4

 2 16 U.S.C. § 824o(e) (2006).

3 16 U.S.C. § 824o(e)(4). A Regional Entity is an entity approved by the 

Commission to enforce Reliability Standards under delegated authority from the ERO. 

See 16 U.S.C. §§ 824o(a)(7) and (e)(4).

4 Rules Concerning Certification of the Electric Reliability Organization; and 

Procedures for the Establishment, Approval, and Enforcement of Electric Reliability 

(continued...)
Docket No. RM12-12-000 - 3 -

4. On April 19, 2007, the Commission accepted delegation agreements between 

NERC and each of the eight Regional Entities.5

 In the order, the Commission accepted 

NPCC as a Regional Entity.

5. NERC’s Commission-approved and currently-effective Reliability Standard 

PRC-006-1 establishes continent-wide design and documentation requirements for UFLS 

programs that arrest declining frequency and assist recovery of frequency following 

system events leading to frequency degradation. 

B. NERC Petition

6. On May 4, 2012, NERC petitioned the Commission to approve regional 

Reliability Standard PRC-006-NPCC-1 and the related violation risk factors, violation 

severity levels, effective dates, and implementation plan.6

 On August 3, 2012, NERC 

filed an errata regarding the proposed implementation plan. NERC stated that regional 

Reliability Standard PRC-006-NPCC-1 is based on the program characteristics defined 

within NPCC Directory #12 Underfrequency Load Shedding Program Requirements

(NPCC Directory #12), which contains the criteria that govern the NPCC Automatic 

 

Standards, Order No. 672, FERC Stats. & Regs. ¶ 31,204, at P 291 (2006), order on 

reh’g, Order No. 672-A, FERC Stats. & Regs. ¶ 31,212 (2006).

5 North American Electric Reliability Corp., 119 FERC ¶ 61,060 (2007), order on 

reh’g, 120 FERC ¶ 61,260 (2007).

6 Regional Reliability Standard PRC-006-NPCC-1 is available on the 

Commission’s eLibrary document retrieval system in Docket No. RM12-12-000 and on 

the NERC website, www.nerc.com.
Docket No. RM12-12-000 - 4 -

UFLS program that have been in place since June 26, 2009.7 According to NERC,

regional Reliability Standard PRC-006-NPCC-1 will achieve a coordinated, 

comprehensive UFLS region-wide consistent program within the NPCC Region and 

provides the regional requirements necessary to achieve and facilitate the broader 

program characteristics contained in the requirements of the NERC Reliability Standard 

PRC-006-1.8

 NERC stated that the regional Reliability Standard adds specificity not 

contained in NERC Reliability Standard PRC-006-1 and is designed to work in 

conjunction with and augment Reliability Standard PRC-006-1 by mitigating the 

consequences of an underfrequency event, while accommodating differences in system 

transmission and distribution topology among NPCC planning coordinators due to 

historical design criteria, makeup of load demands, and generation resources.9

 NERC 

further stated that regional Reliability Standard PRC-006-NPCC-1 facilitates uniformity

and compliance, and clearly delineates what the applicable entities’ requirements are 

within the NPCC Region to achieve a robust, reliable and effective UFLS program. 10

7. In the petition, NERC proposed violation risk factors and violation severity levels

for each requirement of the regional Reliability Standard, an implementation plan, and 

effective dates. NERC stated that these proposals were developed and reviewed for 

 7 NERC Petition at 11.

8 Id. at 29-30.

9 Id. 

10 Id. at 30.
Docket No. RM12-12-000 - 5 -

consistency with NERC and Commission guidelines. NERC proposed two effective 

dates for the regional Reliability Standard. NERC stated that Requirements R1 

through R7 would become effective on the first day of the first calendar quarter 

following applicable regulatory approval but no earlier than January 1, 2016. For

Requirements R8 through R23, NERC stated that they will become effective the first day 

of the first calendar quarter two years following applicable regulatory approval. 

C. Notice of Proposed Rulemaking

8. On September 20, 2012, the Commission issued a Notice of Proposed Rulemaking 

(NOPR) proposing to approve regional Reliability Standard PRC-006-NPCC-1 as just, 

reasonable, not unduly discriminatory or preferential, and in the public interest. 11 The 

Commission proposed to approve regional Reliability Standard PRC-006-NPCC-1 

because it is designed to operate in conjunction with the NERC continent-wide UFLS 

Reliability Standard PRC-006-1 by mitigating the consequences of underfrequency 

events, while accommodating differences in system transmission and distribution 

topology among NPCC planning coordinators due to historical design criteria, makeup of 

load demands, and generation resources. The NOPR determined that the regional 

Reliability Standard includes requirements that are not found in the corresponding NERC 

 11 Regional Reliability Standard PRC-006-NPCC-1 — Automatic Underfrequency 

Load Shedding, Notice of Proposed Rulemaking, 77 Fed. Reg. 59,151 (September 26, 

2012), FERC Stats. & Regs. ¶ 32,691 (2012).
Docket No. RM12-12-000 - 6 -

Reliability Standard PRC-006-1 and that are more stringent than Reliability Standard 

PRC-006-1. 

9. While proposing to approve regional Reliability Standard PRC-006-NPCC-1, the 

NOPR sought comment on two issues: (1) the technical basis for the 57.8 Hz maximum 

tripping limit for existing nuclear units established in Requirement R19; and (2) the timeframe for actions that result in changes to the NPCC UFLS program. 

10. In response to the NOPR, initial comments were filed by NERC, NPCC, 

New York Independent System Operator (NYISO), PSEG Companies (PSEG),12 and 

Dominion Resources Services, Inc. (Dominion).

13 NERC and NPCC filed reply 

comments. 

II. Discussion

11. Pursuant to FPA section 215(d)(2), we approve regional Reliability Standard 

PRC-006-NPCC-1 as just, reasonable, not unduly discriminatory or preferential, and in 

the public interest. Regional Reliability Standard PRC-006-NPCC-1 is designed to 

operate in conjunction with the NERC continent-wide UFLS Reliability Standard 

PRC-006-1 by mitigating the consequences of underfrequency events, while 

 12 PSEG is comprised of PSEG Power LLC and PSEG Energy Resources & 

Trade LLC.

13 Dominion filed comments on behalf of Virginia Electric and Power Company, 

Dominion Energy Kewaunee, Inc., Dominion Nuclear Connecticut, Inc., Dominion 

Energy Brayton Point, LLC, Dominion Energy Manchester Street, Inc., Elwood 

Energy, LLC, Kincaid Generation, LLC, and Fairless Energy, LLC.
Docket No. RM12-12-000 - 7 -

accommodating differences in system transmission and distribution topology among 

NPCC planning coordinators. Regional Reliability Standard PRC-006-NPCC-1 includes 

requirements that are not found in the corresponding NERC Reliability Standard 

PRC-006-1 and that are more stringent than Reliability Standard PRC-006-1 while

accommodating differences in system transmission and distribution topology among 

NPCC planning coordinators due to historical design criteria, makeup of load demands, 

and generation resources. 

12. We address below the following issues raised in the NOPR and/or comments: 

(A) Requirement R19 – nuclear generating plants; (B) Time-frame for completion of 

actions; (C) Compensatory load shedding requirements; and (D) violation risk factors and 

violations severity levels.

A. PRC-006-NPCC-1, Requirement R19

13. In the NOPR, the Commission sought comments on the technical basis for the 

57.8 Hz maximum tripping limit for existing nuclear units established in 

Requirement R19. The NOPR observed that Requirement R19 provides that:

R19 Each Generator Owner of existing nuclear generating plants with units that 

have underfrequency relay threshold settings above the Eastern 

Interconnection generator tripping curve in Figure 1, based on their 

licensing design basis, shall: [Violation Risk Factor: High] [Time Horizon: 

Long Term Planning]

19.1 Set the underfrequency protection to operate at as low a frequency as 

possible in accordance with the plant design licensing limitations but

not greater than 57.8Hz.

19.2 Set the frequency trip setting upper tolerance to no greater than + 0.1 

Hz.
Docket No. RM12-12-000 - 8 -

19.3 Transmit the initial frequency trip setting and any changes to the 

setting and the technical basis for the settings to the Planning 

Coordinator.

14. The NOPR stated that the NERC petition did not explain the technical basis for 

establishing 57.8 Hz as the maximum frequency at which existing nuclear units may trip 

pursuant to Requirement R19.1, other than to state that the regional Reliability Standard 

was based on the work of an NPCC working group.14 The NOPR stated that the 

NERC petition and its attachments did not provide any information as to how the 57.8 Hz 

limit was developed. The NOPR sought comment from NPCC, NERC, and other 

interested entities explaining the technical basis for the 57.8 Hz limit established in 

Requirement R19.1. 

Comments

15. NPCC states that its UFLS program is designed to arrest frequency decline at or 

above 58.0 Hz while incorporating the performance characteristics of regional generation. 

In determining the 57.8 Hz limit for existing nuclear units within the NPCC Region, 

NPCC states that it “considered the minimum program frequency of 58.0 Hz, the existing 

maximum trip settings of the nuclear units (gathered through surveys) within NPCC’s 

footprint, system response, and credible islands as determined by the NPCC Planning 

Coordinators.”

15 NPCC states that a maximum frequency threshold trip setting of 

 14 NERC Petition at 11.

15 NPCC Initial Comments at 4.
Docket No. RM12-12-000 - 9 -

57.8 Hz for existing nuclear units provides a “margin of 0.2 Hz above the highest 

frequency at which [the nuclear units in NPCC’s footprint] are expected to be tripped by 

low coolant flow or under frequency protection and yields acceptable system 

performance with minimum changes required to the nuclear units.”

16 NPCC adds that it 

considered 0.2 Hz to be a conservative margin and was developed in consideration of the 

typical relay drift tolerance of ± 0.1 Hz,

17 which ensures the units do not trip above 

58.0 Hz. NPCC states that if existing nuclear units adhere to the 57.8 Hz maximum 

tripping limit requirement, “islands with a 25% generation deficiency are able to survive, 

maintain automatic UFLS program requirements, and the program will achieve 

satisfactory system performance.”

18 

16. NERC states that it supports the comments submitted by NPCC regarding the 

technical basis for the 57.8 Hz limit. NERC also states that the requirements in regional 

Reliability Standard PRC-006-NPCC-1 are consistent with the continent-wide UFLS 

Reliability Standard PRC-006-1.

19 

 16 Id. at 5.

17 NPCC states that a relay setting of 57.8 Hz with a typical relay drift tolerance of 

± 0.1 Hz would result in actual trip bandwidth of between 57.9 Hz and 57.7 Hz.

18 Id.

19 NYISO supports approval of regional Reliability Standard PRC-006-NPCC-1 

without modification. NYISO Comments at 2.
Docket No. RM12-12-000 - 10 -

Commission Determination

17. The Commission finds that NPCC has provided an adequate technical basis for the 

57.8 Hz maximum frequency threshold trip setting for existing nuclear units, as set forth 

in Requirement R19. As explained by NPCC, a maximum frequency threshold trip 

setting of 57.8 Hz for existing nuclear units provides a margin of 0.2 Hz above the 

highest frequency at which the nuclear units in NPCC’s footprint are expected to trip by 

low coolant flow or underfrequency protection. Adherence to the 57.8 Hz limit should 

also result in islands with a 25% generation deficiency being able to survive and maintain 

automatic UFLS program requirements. 

B. Time-Frame for Completion of Actions

18. In the NOPR, the Commission sought comments on the time-frames for actions 

that result in changes to the NPCC UFLS program. The NOPR observed that NERC’s 

Reliability Standard PRC-006-1, Requirement R3, requires the planning coordinator to 

set the schedule for distribution providers and transmission owners to implement the 

UFLS program and that regional Reliability Standard PRC-006-NPCC-1, Requirements 

R5, R16.2, and R19.3, require distribution providers, transmission owners, and generator 

owners to provide, inform, and transmit exceptions to the UFLS program and 

justifications for the exceptions to the planning coordinator. The NOPR stated that these

Requirements in regional Reliability Standard PRC-006-NPCC-1 do not specify a timeframe for the completion of these actions. The NOPR indicated that Requirements R5, 

R16.2, and R19.3 address actions that can result in changes to the UFLS program and 

should occur before the UFLS program is implemented, thus making it necessary for 
Docket No. RM12-12-000 - 11 -

entities to provide the required information to the planning coordinator within a specified 

period of time. The NOPR further observed that other Requirements in regional 

Reliability Standard PRC-006-NPCC-1 require actions of distribution providers, 

transmission owners, and generator owners that should occur before the UFLS program is 

implemented and that those actions include specific time-frames for completion.

20 The 

NOPR sought comment on whether Requirements R5, R16.2, and R19.3 should also 

specify time-frames for completion of the required actions and, if so, the appropriate 

time-frames for each. 

Comments

19. NPCC states that Requirement R5 addresses a limited set of non-conforming 

circumstances and places the burden on entities to demonstrate that such non-conforming 

circumstances do not degrade the overall performance of the UFLS program. NPCC 

states that the absence of time-frames for completion of the required actions in 

Requirement R5 means that responsible entities are required to notify the NPCC planning 

coordinator “upon identification of any non-conformance with Requirement R5.”21 

NPCC states that this is the current practice with respect to applicable entities. NPCC 

states that providing a time-frame would “result in delays of the transmittal of critical 

 20 See, e.g., Requirements R11, R14, and R23 of proposed regional Reliability 

Standard PRC-006-NPCC-1.

21 NPCC Initial Comments at 7.
Docket No. RM12-12-000 - 12 -

information to the Planning Coordinator which could potentially impact UFLS system 

performance.”

22

20. NPCC states that Requirement R16 addresses an existing class of non-nuclear 

units that “trip above the threshold curve for setting underfrequency trip protection for 

generators and which already provide compensatory load shedding in accordance with 

existing procedures.”

23 NPCC states that “Planning Coordinators within NPCC have 

information for the class of existing units for R16, with underfrequency protection set to 

trip above the curve in Figure 1, [and thus] assigning time-frames is of no benefit to the 

program.”

24 NPCC states, however, that Requirement R16.2 also requires changes to 

underfrequency settings, along with the technical basis for those settings from generators 

in this class of units, to be transmitted to the planning coordinator. NPCC maintains that 

“[i]t is the expectation that in the absence of a time-frame,” in Requirement R16.2 those 

entities, “immediately upon identification of such a change,” would notify the Planning 

Coordinator.25

21. NPCC states that Requirement R19.3, similar to the requirements regarding nonnuclear units in Requirement R16.2, requires responsible entities to provide planning 

coordinators with the current operating parameters of an existing class of nuclear units 

 22 Id.

23 Id.

24 Id. at 7-8.

25 Id. at 8.
Docket No. RM12-12-000 - 13 -

that trip above the threshold curve for setting underfrequency trip protection for 

generators units. NPCC further states that like Requirement R16.2, Requirement 19.3 

requires responsible entities to transmit changes to the underfrequency settings to the 

planning coordinator. NPCC maintains that, in the absence of time-frames, responsible 

entities must notify the planning coordinator “immediately upon identification of such 

change.”26

22. NPCC also states that there is a limited number of existing nuclear and nonnuclear units that trip above the curve in Figure 1. NPCC notes that Requirement R15 

requires that all new units conform to the curve in Figure 1. According to NPCC, the 

number of units that must comply with Requirement R16 and Requirement R19 is limited 

to the existing set of units described above and thus the inclusions of time-frames is 

unnecessary.

23. NERC states that it supports the comments submitted by NPCC on this issue. 

Commission Determination

24. The Commission finds that NPCC has provided adequate justification for not 

including specific time-frames in Requirements R5, R16.2, and R19.3. NPCC states that 

these Requirements apply to a limited number of existing nuclear and non-nuclear units

whose performance characteristics are already incorporated in the regional UFLS 

program, and that planning coordinators within NPCC have the existing technical 

 26 Id.
Docket No. RM12-12-000 - 14 -

parameters necessary to incorporate existing unit attributes and compensatory load 

shedding information into their assessment. NPCC further states that the absence of 

specific time-frames in these Requirements means that responsible entities must

immediately notify planning coordinators upon identification of any non-conformance or 

changes to underfrequency settings pursuant to these Requirements. The Commission 

determines that this satisfies the concern raised in the NOPR.

C. Compensatory Load Shedding Requirements

25. Reliability Standard PRC-006-NPCC-1, Requirements R3, R16 and R18, address 

compensatory load shedding.

27 In particular, Requirement R16.3 requires generator 

owners of existing non-nuclear units that have non-conforming underfrequency 

protection set points to, among other things, “[h]ave compensatory load shedding, as 

provided by a Distribution Provider or Transmission Owner that is adequate to 

compensate for the loss of their generator due to early tripping.” Requirement R18 

requires that “[e]ach Generator Owner, Distribution Provider or Transmission Owner 

within the Planning Coordinator area of ISO-NE or the New York ISO shall apply the 

criteria described in Attachment B to determine the compensatory load shedding that is 

required in Requirement R16.3 for generating units in its respective NPCC area.” 

Attachment B, Section 2.5, provides that the “amount of compensatory load shedding 

 27 Compensatory load shedding is automatic shedding of load adequate to 

compensate for the loss of a generator due to the generator tripping early (i.e., because 

the generator has underfrequency protection set to trip above the curve in Figure 1).
Docket No. RM12-12-000 - 15 -

shall be equivalent (±5%) to the average net generator megawatt output for the prior two 

calendar years, as specified by the Planning Coordinator, plus expected station loads to 

be transferred to the system upon loss of the facility.”

Comments

26. Dominion states that there are technical difficulties associated with Requirements 

R16.3 and R18. Dominion states that shedding additional load equivalent to a nonconforming generator would be extremely difficult to design and coordinate and that the 

design would have to account for the real-time status and output of the generator. 

Dominion also states that Requirements R16.3 and R18 are unreasonable because they 

require non-conforming generators to procure compensatory load shedding service for 

which Dominion has found no willing provider. Dominion maintains that, as a result, the 

regional Reliability Standard cannot be practically implemented and may have an adverse 

impact on the Bulk-Power System. Dominion further states that NPCC’s assertion that 

generators in NPCC are already following these procedures as part of NPCC Directory 

#12 is misleading because only NPCC Full Members are required to follow the existing 

criteria. Dominion maintains that the regional Reliability Standard will impact a number 

of generators that are not NPCC Full Members. In addition, Dominion observes that 

several entities raised concerns with the compensatory load shedding provisions during 

the regional Reliability Standard drafting process. Dominion also maintains that Order 
Docket No. RM12-12-000 - 16 -

No. 763,28 in which the Commission approved the continent-wide NERC UFLS 

Reliability Standard PRC-006-1, supports Dominion’s position that it is inappropriate for 

the regional Reliability Standard “to require a non-conforming generator to obtain 

compensating load shedding as it is ultimately the planning coordinators responsibility to 

design the UFLS system to account for such generator.”29

27. PSEG states that it is inappropriate for planning coordinators to assign 

responsibility for compensatory load shedding, asserting that it is inconsistent with 

Order No. 763. PSEG also contends that the regional Reliability Standard contravenes 

the prohibition in FPA section 215 against setting standards for “adequacy or safety of 

electric facilities or services” because the regional Reliability Standard requires generator 

owners with existing non-conforming units to construct additional capacity or acquire 

off-setting UFLS at their expense.30 PSEG also states that Requirement R16 imposes 

obligations upon generator owners that are absent from the NERC Reliability Functional 

Model.

31 PSEG states that one of the tasks of a generator owner is to “[p]rovide verified 

 28 Automatic Underfrequency Load Shedding and Load Shedding Plans Reliability 

Standards, Order No. 763, 139 FERC ¶ 61,098, clarified, 140 FERC ¶ 61,164 (2012).

29 Dominion Comments at 8.

30 16 U.S.C. § 824o(i)(2). PSEG also contends that the regional Reliability 

Standard contravenes the definition of “Reliability Standard” in FPA section 215, which 

excludes “any requirement to enlarge [Bulk-Power System] facilities or to construct new 

transmission capacity or generation capacity.” 16 U.S.C. § 824o(a)(3).

31 The NERC Reliability Functional Model provides the framework for the 

development and applicability of NERC’s Reliability Standards. NERC, Reliability 

(continued...)
Docket No. RM12-12-000 - 17 -

generating facility performance characteristics/data,” but that there is no obligation for

generators to compensate other entities for performance that does not meet a specific 

level. PSEG further states that distribution providers and transmission owners in NPCC 

do not have tariffs in place that would permit them to charge and/or provide generator 

owners with compensatory load shedding. 

28. In reply to Dominion’s and PSEG’s comments, NPCC states that the regional 

Reliability Standard drafting team considered comments regarding the difficulty of 

designing and coordinating the shedding of load equivalent to a non-conforming 

generator, but that the overarching reliability objective of re-establishing a balance 

between load and generation during possible islanding events made shedding additional 

load necessary. NPCC states that it is impractical to expect an exact match between 

compensatory load shedding and unit output but maintains that compensatory load 

shedding based on an average megawatt output, as provided in Attachment B, aligns the 

amount of compensatory load shedding with the unit output most likely to be lost when 

the unit trips prematurely. NPCC further states that requiring compensatory load 

shedding based on a two year average net generator megawatt output is an effective 

approach to integrating small non-conforming generators into the design of a UFLS 

program. In addition, NPCC observes that that Regional Criteria requiring nonconforming generation to secure compensatory load shedding preexist the development 

 

Functional Model, Version 5 at 7 (approved May 2010), available at 

http://www.nerc.com/files/Functional_Model_V5_Final_2009Dec1.pdf. 
Docket No. RM12-12-000 - 18 -

of the regional Reliability Standard and that it is a cost effective alternative for 

generators. With respect to Order No. 763, NPCC states that the regional Reliability 

Standard is consistent with the Commission’s determination that it is appropriate for 

planning coordinators to consider generators that trip outside of the UFLS set points. 

29. NPCC maintains that the regional Reliability Standard Requirements R1 and R3 

are “only intended to communicate the results of locational assessments, and there is no 

obligation to obtain compensatory load shedding based solely on this information nor 

does the Planning Coordinator determine whether mitigation is necessary or who will be 

responsible for providing mitigation.”32 NPCC states that compensatory load shedding is 

merely an option to bring non-conforming generators into compliance. In response to 

comments regarding the absence of tariffs that permit for compensatory load shedding 

service, NPCC states that such concerns are tempered by the fact that all new generators, 

going forward, must conform with the underfrequency trip performance characteristics in 

the regional Reliability Standard and that compensatory load shedding only potentially 

impacts existing, non-conforming, non-nuclear units. 

30. NPCC further notes that the existing compensatory load shedding requirements are 

presently contained in NPCC Directory #12 and “have been successfully implemented 

within the region . . . and non-conforming generators that are already interconnected 

either have existing contracts to provide compensatory load shedding or have mitigated 

 32 NPCC Reply Comments at 5.
Docket No. RM12-12-000 - 19 -

the conditions that would trip the unit above the performance curve in order to comply 

with the Regional Criteria.”33 NPCC states that the regional Reliability Standard 

achieved an 83.5 percent overall approval “with a majority of registered Generator 

Owners in the region voting to approve the standard.”34 With respect to FPA section 215, 

NPCC maintains that compensatory load shedding does not present a resource adequacy 

issue but, instead, addresses a generating unit’s ability to perform, with the generator 

having the option of meeting the performance curve, mitigating the operating condition, 

or obtaining compensatory load shedding. With respect to the NERC Reliability

Functional Model, NPCC states that the absence of a task within the functional model 

does not preclude assigning a new or existing task based on a new or revised Reliability 

Standard. NPCC states that the functional model only defines the functions that must be 

performed to ensure the reliability of the bulk electric system and should not be used to 

restrict a reliability-related activity or Reliability Standard requirements.

31. In reply to Dominion’s and PSEG’s comments, NERC states it never intended to 

suggest that it is inappropriate for planning coordinators to determine whether mitigation 

is necessary and who will provide mitigation with respect to generators that trip outside 

the UFLS set points in UFLS programs. NERC states that “[o]n the contrary, the 

Planning Coordinator is one of the functional entities with responsibility for maintaining 

 33 Id. at 6-7.

34 Id. at 9.
Docket No. RM12-12-000 - 20 -

the reliability of the Bulk-Power System.”35 NERC maintains that it has stated that it is 

inappropriate for a Reliability Standard to supplant the planning coordinator’s role in 

establishing UFLS program requirements. However, NERC states that regional 

Reliability Standard PRC-006-NPCC-1 “reflects the NPCC Planning Coordinators’

collective assessment of how to address this concern.”36 

32. Further, NERC claims that the technical concerns raised in the comments are 

overstated. NERC states that concerns “regarding potential overfrequency excursions 

due to overcompensating when a generating unit with non-conforming trip setting is 

off-line would be appropriate if compensatory loadshedding was applied to large 

generating units or if the provision was open-ended with applicability to future generating 

units not studied by the Planning Coordinator.”37 NERC observes that the compensatory 

load shedding provisions in the regional Reliability Standard, by contrast, are limited to a 

“defined amount of generating capacity that is included in Planning Coordinator

assessments, [and] does not jeopardize reliability of the Bulk-Power System.”38

Commission Determination

33. The Commission rejects the protests made by Dominion and PSEG regarding 

the compensatory load shedding provisions of regional Reliability Standard PRC-006-

 35 NERC Reply Comments at 2.

36 Id. at 3.

37 Id. at 4.

38 Id.
Docket No. RM12-12-000 - 21 -

NPCC-1. Based on the record before us, we are not persuaded that the compensatory 

load shedding option for existing, non-conforming units in Requirement R16 presents a 

technical barrier to implementation of the regional Reliability Standard. NPCC states 

that generators already comply with the compensatory load shedding requirements in 

NPCC Directory #12, which is not disputed by Dominion and PSEG. While Dominion 

maintains that the regional Reliability Standard will require more generators (i.e., 

non-NPCC Full Members) to comply with the compensatory load shedding requirement, 

the fact that there are generators who do so now refutes the assertion that the requirement 

is technically or practically infeasible.

39 Moreover, we agree with NERC that the

concerns regarding overfrequency excursions due to overcompensating for loss of 

off-line units might be valid if compensatory load shedding was applied to large 

generating units or to new generating units, but that is not the case here since 

compensatory load shedding only applies to existing, non-conforming, non-nuclear units. 

We also observe that, according to the implementation plan, compliance with 

Requirements R16.3 and R18 will become effective the first day of the first calendar 

quarter two years following applicable regulatory approval. Thus, the implementation 

plan provides existing, non-conforming generators a significant amount of time to 

prepare for compliance with the regional Reliability Standard.

 39 We also note NPCC’s statement that the regional Reliability Standard achieved 

an 83.5 percent overall approval “with a majority of registered Generator Owners in the 

region voting to approve the standard.” See NPCC Reply Comments at 9.
Docket No. RM12-12-000 - 22 -

34. We agree with NPCC that the NERC Reliability Functional Model does not 

preclude the assignment of a new or revised task in a Reliability Standard, such as to 

generator owners. The NERC Reliability Functional Model provides that:

The Model is a guideline for the development of standards 

and their applicability. The Model it [sic] is not a Standard 

and does not have compliance requirements. Standards 

developers are not required to include all tasks envisioned in 

the model, nor are the developers precluded from developing 

Reliability Standards that address functions not described in 

the model. Where conflicts or inconsistency exist, the 

Reliability Standards requirements take precedence over the 

Model.40 

35. We disagree with Dominion and PSEG that the regional Reliability Standard is 

inconsistent with Order No. 763. In the context of the rulemaking addressing the 

continent-wide UFLS Reliability Standard PRC-006-1, Order No. 763 explained that it 

would be inappropriate to include in Reliability Standard PRC-006-1 specific 

requirements as to how to mitigate generators that tripped outside of the UFLS program

(e.g., by procuring load to shed).

41 We agree with NERC that, while it is inappropriate 

for a continent-wide Reliability Standard to supplant the planning coordinator’s role in 

establishing UFLS program requirements, the regional Reliability Standard PRC-006-

NPCC-1 incorporates the NPCC’s planning coordinators’ views and experience.

42 

 40 NERC Reliability Functional Model, Version 5 at 7. 

41 Order No. 763, 139 FERC ¶ 61,098 at P 58.

42 We also note that the Commission granted clarification of Order No. 763, 

regarding NERC’s NOPR comments on compensatory load shedding, and found that 

(continued...)
Docket No. RM12-12-000 - 23 -

Accordingly, we see no inconsistency between Order No. 763 and our determination in 

this Final Rule.

36. Finally, we reject the claim that the compensatory load shedding provisions in 

regional Reliability Standard PRC-006-NPCC-1 contravene FPA section 215. As 

discussed above, the compensatory load shedding option for existing, non-conforming, 

non-nuclear units is one option for such generators. Generator owners may instead 

choose to bring their units into compliance rather than secure compensatory load 

shedding. We do not find that the regional Reliability Standard implicates the 

proscription in FPA section 215 against ordering the “construction of additional 

generation or transmission capacity or to set and enforce compliance with standards for 

adequacy or safety of electric facilities or services.” The regional Reliability Standard 

does not require responsible entities to construct additional generation capacity or address 

the adequacy of electric facilities services. Instead, it merely requires generator owners, 

if they choose to, to secure compensatory load shedding to balance the performance 

characteristics of their existing, non-conforming units.

 

NERC stated that “it is not appropriate for the Reliability Standards to prescribe how a 

planning coordinator determines whether mitigation is necessary or who is responsible 

for providing mitigation.” Automatic Underfrequency Load Shedding and Load 

Shedding Plans Reliability Standards, Order No. 763, 139 FERC ¶ 61,098, clarified, 

140 FERC ¶ 61,164, at P 12 (2012).
Docket No. RM12-12-000 - 24 -

D. Violation Risk Factors, Violation Severity Levels, Implementation 

Plan, and Effective Dates

37. In the NOPR, the Commission proposed to approve NERC’s proposed violation 

risk factors and violation severity levels for regional Reliability Standard PRC-006-

NPCC-1 as consistent with the Commission’s established guidelines.43 In addition, the 

Commission proposed to accept the implementation plan and effective dates proposed by 

NERC for regional Reliability Standard PRC-006-NPCC-1.

Comments

38. No comments were received that specifically addressed the violation risk factors, 

violation severity levels, implementation plan, and effective dates proposed by NERC. 44

Commission Determination

39. The Commission approves the violation risk factors, violation severity levels, 

implementation plan, and effective dates proposed by NERC.

III. Information Collection Statement 

40. The Office of Management and Budget (OMB) regulations require that OMB 

approve certain reporting and recordkeeping (collections of information) imposed by an 

agency.

45 Upon approval of a collection(s) of information, OMB will assign an OMB 

 43 See North American Electric Reliability Corp., 135 FERC ¶ 61,166 (2011).

44 Dominion’s comments regarding the technical and practical feasibility of 

implementing regional Reliability Standard PRC-006-NPCC-1 were addressed in the 

previous section.

45 5 CFR 1320.11.
Docket No. RM12-12-000 - 25 -

control number and expiration date. Respondents subject to the filing requirements of 

this rule will not be penalized for failing to respond to these collections of information 

unless the collections of information display a valid OMB control number. 

41. The Commission is submitting these reporting and recordkeeping requirements to 

OMB for its review and approval under section 3507(d) of Paperwork Reduction Act 

of 1995. The Commission solicited comments on the need for and the purpose of the 

information contained in regional Reliability Standard PRC-006-NPCC-1 and the 

corresponding burden to implement the regional Reliability Standard. The Commission 

received comments on specific requirements in the regional Reliability Standard, which 

we address in this Final Rule. However, the Commission did not receive any comments 

on our reporting burden estimates. The Final Rule approves regional Reliability Standard

PRC-006-NPCC-1. As noted previously, this is the first time NERC has requested 

Commission approval of regional Reliability Standard PRC-006-NPCC-1. Regional

Reliability Standard PRC-006-NPCC-1 is designed to work with and augment the NERC 

continent-wide UFLS Reliability Standard PRC-006-1 by mitigating the consequences of 

underfrequency events, while accommodating differences in system transmission and 

distribution topology among NPCC planning coordinators due to historical design 

criteria, makeup of load demands, and generation resources. Regional Reliability 

Standard PRC-006-NPCC-1 is only applicable to generator owners, planning 

coordinators, distribution providers, and transmission owners in the NPCC Region. To 

properly account for the burden on respondents, the Commission will treat the burden 
Docket No. RM12-12-000 - 26 -

resulting from NERC-approved Reliability Standard PRC-006-NPCC-1 as pertaining to 

entities within the NPCC Region. 

42. Public Reporting Burden: Our estimate below regarding the number of 

respondents is based on the NERC Compliance Registry as of July 24, 2012. According 

to the NERC Compliance Registry, there are 2 planning coordinators and 135 generator 

owners within the United States portion of the NPCC Region. The individual burden 

estimates are based on the time needed for planning coordinators to incrementally gather 

data, run studies, and analyze study results to design or update the UFLS programs that 

are required in the regional Reliability Standard in addition to the requirements of the 

NERC Reliability Standard PRC-006-1.46 Additionally, generator owners must set each 

underfrequency trip relay below the appropriate generator underfrequency trip protection 

settings threshold curve in regional Reliability Standard PRC-006-NPCC-1, Figure 1 and 

provide the generator underfrequency trip setting and time delay to its planning 

coordinator within 45 days of the planning coordinator’s request. These burden estimates 

are consistent with estimates for similar tasks in other Commission-approved Reliability 

Standards. The following burden estimates relate to the requirements for this Final Rule

in Docket No. RM12-12-000 (For Planning Coordinators) and are in addition to the 

burden estimates for the continent-wide Reliability Standard PRC-006-1, which was 

approved in Order No. 763 (approved by OMB Control No. 1902-0244 on 7/9/2012).

 46 The burden estimates for Reliability Standard PRC-006-1 are included in Order 

No. 763 and are not repeated here. 
Docket No. RM12-12-000 - 27 -

PRC-006-NPCC-1 (FERC725L) (Automatic 

Underfrequency Load 

Shedding)47

Number of 

Respondents 

Annually

(1)

Number of 

Responses 

per 

Respondent

(2)

Average 

Burden Hours 

Per Response

(3)

Total 

Annual 

Burden 

Hours

(1)x(2)x(3)

PCs*: Design and document 

Automatic UFLS Program 2 1

8 16

PCs: Update and Maintain 

UFLS Program Database 16 32

GOs*: Provide Documentation 

and Data to the Planning 

Coordinator 135 1 16 2160

GOs: Record Retention 4 540

Total 2748

*PC=planning coordinator; GO=generator owner

Total Annual Hours for Collection: (Compliance/Documentation) = 2,748 hours. 

Total Reporting Cost for planning coordinators: = 48 hours @ $120/hour = $5,760.

Total Reporting Cost for generator owners: = 2,160 hours @ $120/hour = $259,200.

Total Record Retention Cost for generator owners: 540 hours @ $28/hour = $15,120.

Total Annual Cost (Reporting + Record Retention)48 : = $5,760 + $259,200 +$15,120 = 

$280,080.

 47 Reliability Standard PRC-006-NPCC-1 applies to planning coordinators, 

transmission owners, distribution providers and generator owners. However, the burden 

associated with the transmission owners and distribution providers is not included within 

this table because the Commission accounted for it under Commission-approved 

Reliability Standards PRC-006-1, PRC-007-0 and PRC-009-0.

48 The Commission bases the hourly reporting cost on the cost of an engineer to 

implement the requirements of the rule. The record retention cost comes from 

Commission staff research on record retention requirements. 
Docket No. RM12-12-000 - 28 -

Title: Mandatory Reliability Standards for the NPCC Region.

Action: Proposed Collection FERC-725L.

OMB Control No.: 1902-0261.

Respondents: Businesses or other for-profit institutions; not-for-profit institutions.

Frequency of Responses: On Occasion.

Necessity of the Information: This Final Rule approves regional Reliability Standard 

PRC-006-NPCC-1 pertaining to automatic underfrequency load shedding. The regional 

Reliability Standard helps ensure the development of an effective UFLS program that 

preserves the security and integrity of the Bulk-Power System during declining system 

frequency events in coordination with the continent-wide Reliability Standard PRC-006-1 

requirements. 

Internal Review: The Commission has reviewed the regional Reliability Standard and 

made a determination that its action is necessary to implement section 215 of the FPA. 

These requirements, if accepted, should conform to the Commission’s expectation for 

UFLS programs as well as procedures within the NPCC Region.

43. Interested persons may obtain information on the reporting requirements by 

contacting the following: Federal Energy Regulatory Commission, 888 First Street, NE 

Washington, DC 20426 [Attention: Ellen Brown, Office of the Executive Director, 

e-mail: DataClearance@ferc.gov, phone: 202-502-8663, fax: 202-273-0873].

For submitting comments concerning the collection(s) of information and the associated 

burden estimate(s), please send your comments to the Commission and to the Office of 

Management and Budget, Office of Information and Regulatory Affairs, Washington, 
Docket No. RM12-12-000 - 29 -

DC 20503 [Attention: Desk Officer for the Federal Energy Regulatory Commission, 

phone: 202-395-4638, fax: 202-395-7285]. For security reasons, comments to OMB 

should be submitted by e-mail to: oira_submission@omb.eop.gov. Comments submitted 

to OMB should include FERC-725L and Docket Number RM12- 12-000. 

IV. Environmental Analysis

44. The Commission is required to prepare an Environmental Assessment or an 

Environmental Impact Statement for any action that may have a significant adverse effect 

on the human environment.49 The Commission has categorically excluded certain actions 

from this requirement as not having a significant effect on the human environment. 

Included in the exclusion are rules that are clarifying, corrective, or procedural or that do 

not substantially change the effect of the regulations being amended.50 The actions 

proposed here fall within this categorical exclusion in the Commission’s regulations.

V. Regulatory Flexibility Act Certification

45. The Regulatory Flexibility Act of 1980 (RFA)51 generally requires a description 

and analysis of final rules that will have significant economic impact on a substantial 

number of small entities. The RFA mandates consideration of regulatory alternatives that 

accomplish the stated objectives of a proposed rule and that minimize any significant 

 49 Regulations Implementing National Environmental Policy Act of 1969, Order 

No. 486, 52 FR 47897 (Dec. 17, 1987), FERC Stats. & Regs., Regulations Preambles 

1986-1990 ¶ 30,783 (1987).

50 18 CFR 380.4(a)(2)(ii).

51 5 U.S.C. §§ 601-612.
Docket No. RM12-12-000 - 30 -

economic impact on a substantial number of small entities. The Small Business 

Administration’s (SBA) Office of Size Standards develops the numerical definition of a 

small business.52 The SBA has established a size standard for electric utilities, stating 

that a firm is small if, including its affiliates, it is primarily engaged in the transmission, 

generation and/or distribution of electric energy for sale and its total electric output for 

the preceding twelve months did not exceed four million megawatt hours.53 

46. Regional Reliability Standard PRC-006-NPCC-1 establishes a coordinated, 

comprehensive UFLS region-wide consistent program with the NPCC region to achieve 

and facilitate the broader program characteristics contained in the requirements of the 

continent-wide PRC-006-1.54 It will be applicable to planning coordinators, generator 

owners, transmission owners and distribution providers. Comparison of the NERC 

Compliance Registry with data submitted to the Energy Information Administration on 

Form EIA-861 indicates that 5 small entities are registered as generator owners in the

United States portion of the NPCC Region.55 The Commission estimates that the small 

generator owners to whom the proposed regional Reliability Standard applies will incur 

compliance and record keeping costs of $10,160 ($2,032 per generator owner). 

 52 13 CFR 121.101.

53 13 CFR 121.201, Sector 22, Utilities & n.1. 

54 NERC Petition at 29-30

55 The two planning coordinators in the United States portion of the NPCC Region 

are not considered small entities.
Docket No. RM12-12-000 - 31 -

Accordingly, regional Reliability Standard PRC-006-NPCC-1 should not impose a 

significant operating cost increase or decrease on the affected small entities. 

47. Further, NERC explains that the cost for smaller entities to implement regional 

Reliability Standard PRC-006-NPCC-1 was considered during the development process. 

NERC states that regional Reliability Standard PRC-006-NPCC-1 provides an 

opportunity for smaller entities to aggregate their load with other such entities in the same 

electrical island. This allows each smaller entity’s respective planning coordinator to 

achieve the desired aggregate outcome within that island according to program 

characteristics.56

48. Based on this understanding, the Commission certifies that the regional Reliability 

Standard will not have a significant economic impact on a substantial number of small 

entities. Accordingly, no regulatory flexibility analysis is required. 

VI. Document Availability

49. In addition to publishing the full text of this document in the Federal Register, the 

Commission provides all interested persons an opportunity to view and/or print the 

contents of this document via the Internet through FERC's Home Page 

(http://www.ferc.gov) and in FERC's Public Reference Room during normal business 

hours (8:30 am to 5:00 pm Eastern time) at 888 First Street, NE, Room 2A, Washington 

DC 20426.

 56 NERC Petition at 25.
Docket No. RM12-12-000 - 32 -

50. From FERC's Home Page on the Internet, this information is available on 

eLibrary. The full text of this document is available on eLibrary in PDF and Microsoft 

Word format for viewing, printing, and/or downloading. To access this document in 

eLibrary, type the docket number excluding the last three digits of this document in the 

docket number field.

51. User assistance is available for eLibrary and the FERC’s website during normal 

business hours from FERC Online Support at 202-502-6652 (toll free at 1-866-208-3676) 

or email at ferconlinesupport@ferc.gov, or the Public Reference Room at 202-502-8371, 

TTY 202-502-8659. E-mail the Public Reference Room at 

public.referenceroom@ferc.gov.

VII. Effective Date and Congressional Notification

52. These regulations are effective [insert date 60 days from the date the rule is 

published in the Federal Register]. The Commission has determined, with the 

concurrence of the Administrator of the Office of Information and Regulatory Affairs of 

OMB, that this rule is not a “major rule” as defined in section 351 of the Small Business 

Regulatory Enforcement Fairness Act of 1996.

By the Commission.

( S E A L )

Nathaniel J. Davis, Sr.,

Deputy Secretary.