PREPARING ENVIRONMENTAL DOCUMENTS

GUIDELINES FOR APPLICANTS, CONTRACTORS, AND STAFF 

Federal Energy Regulatory Commission 

Office of Energy Projects 

Division of Hydropower Licensing 

 

 

September 2008 

iii

PREPARING ENVIRONMENTAL DOCUMENTS CONTENTS 

PREFACE....................................................................................................................................................v

COVER SHEET (EISs only).....................................................................................................................ix

FOREWORD (EISs only)..........................................................................................................................xi

TABLE OF CONTENTS..........................................................................................................................xii

LIST OF FIGURES ..................................................................................................................................xv

LIST OF TABLES ....................................................................................................................................xx

ACRONYMS AND ABBREVIATIONS................................................................................................xxi

EXECUTIVE SUMMARY....................................................................................................................xxiii

SOME BASIC CONCEPTS FOR NEPA DOCUMENTS...................................................................xxv

STANDARD HEADING ............................................................................................................................1

1.0 INTRODUCTION..........................................................................................................................1

1.1 APPLICATION...........................................................................................................................1 

1.2 PURPOSE OF ACTION AND NEED FOR POWER................................................................. 2 

1.2.1 Purpose of Action...........................................................................................................2 

1.2.2 Need for Power...............................................................................................................3 

1.3 STATUTORY AND REGULATORY REQUIREMENTS ........................................................4 

1.3.1 Federal Power Act ..........................................................................................................5 

1.3.2 Clean Water Act ...........................................................................................................10 

1.3.3 Endangered Species Act ...............................................................................................11 

1.3.4 Coastal Zone Management Act ....................................................................................13 

1.3.5 National Historic Preservation Act...............................................................................15 

1.3.6 Pacific Northwest Power Planning and Conservation Act ...........................................16 

1.3.7 Wild and Scenic Rivers Act..........................................................................................17 

1.3.8 Magnuson-Stevens Fishery Conservation and Management Act.................................18 

1.3.9 Other Regulatory Requirements ...................................................................................19 

1.4 PUBLIC REVIEW AND CONSULTATION...........................................................................20 

1.4.1 Scoping.........................................................................................................................20 

1.4.2 Interventions.................................................................................................................21 

1.4.3 Comments on the License Application......................................................................... 22 

1.4.4 Comments on the Draft EA or EIS (for Final EA/Final EIS).......................................23 

2.0 PROPOSED ACTION AND ALTERNATIVES.......................................................................24

RELICENSES ...........................................................................................................................................25

2.1 NO-ACTION ALTERNATIVE ................................................................................................25 

2.1.1 Existing Project Facilities.............................................................................................25 

2.1.2 Project Safety................................................................................................................26 

2.1.3 Existing Project Operation ...........................................................................................27 

2.1.4 Existing Environmental Measures................................................................................27 

2.2 APPLICANT’S PROPOSAL ....................................................................................................28 

2.2.1 Proposed Project Facilities ...........................................................................................28 

2.2.2 Proposed Project Operation..........................................................................................29 

2.2.3 Proposed Environmental Measures ..............................................................................29 

2.2.4 Modifications to Applicant’s Proposal--Mandatory Conditions ..................................30 

2.3 STAFF ALTERNATIVE ..........................................................................................................31 

2.4 STAFF ALTERNATIVE WITH MANDATORY CONDITIONS...........................................32 

2.5 OTHER ALTERNATIVES.......................................................................................................32 

2.6 ALTERNATIVES CONSIDERED BUT ELIMINATED FROM FURTHER ANALYSIS ....33 

ORIGINAL LICENSES ...........................................................................................................................36
iv

2.1 NO-ACTION ALTERNATIVE ................................................................................................36 

2.2 APPLICANT’S PROPOSAL ....................................................................................................36 

2.2.1 Project Facilities ...........................................................................................................36 

2.2.2 Project Safety................................................................................................................37 

2.2.3 Project Operation..........................................................................................................38 

2.2.4 Environmental Measures ..............................................................................................38 

2.2.5 Modifications to Applicant’s Proposal—Mandatory Conditions.................................38 

2.3 STAFF ALTERNATIVE ..........................................................................................................39 

2.4 STAFF ALTERNATIVE WITH MANDATORY CONDITIONS...........................................39 

2.5 OTHER ALTERNATIVES.......................................................................................................39 

2.6 ALTERNATIVES CONSIDERED BUT ELIMINATED FROM FURTHER ANALYSIS ....40 

3.0 ENVIRONMENTAL ANALYSIS..............................................................................................41

3.1 GENERAL SETTING...............................................................................................................41 

3.2 SCOPE OF CUMULATIVE EFFECTS ANALYSIS...............................................................42 

3.3 PROPOSED ACTION AND ACTION ALTERNATIVES ......................................................45 

3.4 NO-ACTION ALTERNATIVE ................................................................................................55 

4.0 DEVELOPMENTAL ANALYSIS..............................................................................................56

4.1 POWER AND ECONOMIC BENEFITS OF THE PROJECT.................................................57 

4.2 COMPARISON OF ALTERNATIVES ....................................................................................60 

4.3 COST OF ENVIRONMENTAL MEASURES.........................................................................62 

4.4 AIR QUALITY..........................................................................................................................64 

5.0 CONCLUSIONS AND RECOMMENDATIONS.....................................................................66

5.1 COMPARISON OF ALTERNATIVES ....................................................................................66 

5.2 COMPREHENSIVE DEVELOPMENT AND RECOMMENDED ALTERNATIVE.............70 

5.3 UNAVOIDABLE ADVERSE IMPACTS ................................................................................82 

5.4 SUMMARY OF SECTION 10(j) RECOMMENDATIONS AND 4(e) CONDITIONS ..........83 

5.4.1 Recommendations of Fish and Wildlife Agencies .......................................................83 

5.4.2 Land Management Agencies’ Section 4(e) Conditions................................................91 

5.5 CONSISTENCY WITH COMPREHENSIVE PLANS ............................................................92 

6.0 FINDING OF NO SIGNIFICANT IMPACT (OR SIGNIFICANT IMPACT) (EAs only)...94

7.0 LITERATURE CITED................................................................................................................95

8.0 LIST OF PREPARERS...............................................................................................................97

9.0 LIST OF RECIPIENTS (EISs only)...........................................................................................98

10.0 CONSULTATION DOCUMENTATION .................................................................................99

APPENDICES .........................................................................................................................................100

APPENDIX A—LICENSE CONDITIONS RECOMMENDED BY STAFF .....................................100 

APPENDIX B--RESPONDING TO COMMENTS ON DRAFT EAs AND EISs..............................102 

ATTACHMENT A--SPECIFIC GUIDANCE FOR RESOURCE DISCUSSIONS..........................A-1

3.3.1 Geological and Soil Resources...................................................................................A-1 

3.3.2 Aquatic Resources ......................................................................................................A-2 

3.3 3 Terrestrial Resources ..................................................................................................A-3 

3.3.4 Threatened and Endangered Species ..........................................................................A-4 

3.3.5 Recreation and Land Use............................................................................................A-8 

3.3.6 Cultural Resources......................................................................................................A-9 

3.3.7 Aesthetic Resources..................................................................................................A-10 

3.3.8 Socioeconomics........................................................................................................A-11 

ATTACHMENT B--GENERAL GUIDANCE FOR TEXT, GRAPHICS, AND REFERENCES .. B-1
v

PREFACE

The preparation of quality environmental documents plays a critical role in the 

hydropower licensing process. These guidelines have been developed for the Federal 

Energy Regulatory Commission (Commission) staff as well as applicants who will be 

preparing the Exhibit E (Environmental Report) of a license application or intend to 

prepare and submit an environmental document as part of their application. 

 The Commission staff typically prepares an environmental assessment (EA) to 

support licensing decisions. An environmental impact statement (EIS), however, is 

required for those actions determined by Commission staff to be a major federal action 

significantly affecting the quality of the human environment. 

Under the Commission’s Integrated Licensing Process, the Exhibit E 

(Environmental Report) prepared as part of the license application must follow these 

guidelines as they may be updated from time-to-time [18 CFR, section 5.18(b)]. Further, 

the Commission's regulations give applicants for original, new, or subsequent hydropower 

licenses, exemptions, and certain license amendments the option of using an alternative 

licensing procedure (ALP) for conducting the prefiling consultation process (18 CFR, 

section 4.34). One of the main aspects of an ALP is the preparation (by the applicant or 

its contractor or consultant) of a preliminary draft EA (also known as an applicantprepared EA or APEA), or of a preliminary draft EIS prepared by a consultant chosen 
vi

and directed by the Commission and funded by the applicant under a third-party 

contract.1

These guidelines reflect current National Environmental Policy Act (NEPA) 

standards within the Office of Energy Projects. They do not set Commission policy or 

substitute for the Commission’s regulations.2

 

Use of these guidelines should help expedite and streamline the post-filing 

application review process by improving the overall quality and consistency of content 

and formatting of environmental documents, and minimizing staff revisions to applicantand contractor-prepared documents. 

HOW TO USE THESE GUIDELINES 

These are general guidelines that discuss all sections of a draft environmental 

document. The exact content of Commission NEPA documents, and how particular 

issues are addressed, continues to adapt to changes in legislation, case law, and policy. 

Therefore, there is limited discussion of how to analyze specific resource issues. The best 

sources for current policy on particular issues are recently-issued NEPA documents and 

orders, which can be accessed through the Commission’s eLibrary.3

 The guidelines are presented in the context of what an actual environmental 

document would look like, beginning with the table of contents. For each section, we:4

 

(1) provide a purpose for the section, (2) highlight what to include in the section, and (3) 

provide an example. The examples appear in shaded boxes separated by bold lines. 

Unless otherwise noted, the examples are fictitious. 

Some sections include portions of NEPA or the Council on Environmental 

Quality's (CEQ) NEPA regulations that are found at 40 CFR, Parts 1500-1508. Specific 

guidance for resource discussions and general rules for text, graphics, and references, 

including suggested formats for heading and subheadings, are found in Attachment B, 

General Guidance for Text, Graphics, and References. The format for EAs is the same as 

for EISs with limited exceptions, as noted. We also note how the content of staffprepared documents may differ from applicant-prepared documents. 

 1

 Although the requirements of Exhibit Es prepared under the traditional licensing process (TLP) are 

dictated by sections 4.41, 4.51, and 4.61 of the Commission’s regulations, these guidelines also provide useful 

information in preparing the Exhibit E. 

2

 This document replaces the March 14, 2001, publication entitled Preparing Environmental Assessments. 

3 http://www.ferc.gov/docs-filing/elibrary.asp. 4

 The pronouns “we” and “our” refer to the staff of the Commission’s Office of Energy Projects (OEP). 
vii

UPDATING THESE GUIDELINES 

Submit recommendations for changes or updates to alan.mitchnick@ferc.gov. As 

necessary, we'll review recommended changes and corrections and periodically post 

revised guidelines on the Commission’s web page 

(http://www.ferc.gov/industries/hydropower/gen-info/guidelines.asp). 
viii

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ix

COVER SHEET (EISs only) 

 A Cover Sheet is included in all EISs (40 CFR, section 1502.11) and is selfexplanatory. 

An example of a Cover Sheet (Source: Baker River Project FEIS, FERC No. 2150, April 2006): 

COVER SHEET

a. Title: Relicensing the Baker River Hydroelectric Project, FERC Project No. 2150-033 

b. Subject: Draft Environmental Impact Statement (DEIS) 

c. Lead Agency: Federal Energy Regulatory Commission 

d. Cooperating Agency: U.S. Corps of Engineers [include, as appropriate]

e. Abstract On April 30, 2004, Puget Sound Energy, Inc. (Puget) filed an application to relicense 

the existing Baker River Hydroelectric Project, located on the Baker River in 

Whatcom and Skagit Counties, Washington. The project consists of two 

developments, Upper Baker and Lower Baker. The two developments adjoin one 

another over a distance of about 18 miles on the Baker River. The project has a 

 current installed capacity of 170.03 megawatts (proposed installed capacity is 200.03 

megawatts) and occupies 5,207 acres of lands within the Mt. Baker-Snoqualmie 

National Forest. Currently, the project is operated as a multi-purpose facility for 

hydropower generation, federal flood control storage, recreation, and fisheries. 

 Puget proposes to relicense the project in accordance with a comprehensive Settlement 

Agreement that was developed under the Commission’s alternative licensing 

procedures. The Settlement Agreement contains 50 proposed license articles 

containing various protection, mitigation, and enhancement measures. 

 The staff’s recommendation is to relicense the project as proposed, with certain 

modifications, and additional measures recommended by the agencies. 

e. Contact: Commission staff contact

Federal Energy Regulatory Commission 

Office of Energy Projects 

888 First Street, N.E. 

Washington, D.C. 20426 

(202) 502-XXXX 
x

f. Transmittal: This draft EIS to relicense the existing Baker River Project is being made available for 

public comment on or about April 26, 2006, as required by the National 

Environmental Policy Act of 19691 and the Commission’s Regulations Implementing 

the National Environmental Policy Act (18 CFR, Part 380). 

____________________________ 

 1 National Environmental Policy Act of 1969, as amended (Pub. L. 91-190, 42 U.S.C. 4321–4347, January 

1, 1970, as amended by Pub. L. 94-52, July 3, 1975, Pub. L. 94-83, August 9, 1975, and Pub. L. 97-258, §4(b), 

September 13, 1982). 
xi

FOREWORD (EISs only) 

 A Foreword is included in all EISs: 

An example of a Foreword: 

FOREWORD

The Federal Energy Regulatory Commission (Commission), pursuant to the Federal Power Act (FPA)1 and 

the U.S. Department of Energy (DOE) Organization Act2 is authorized to issue licenses for up to 50 years for the 

construction and operation of non-federal hydroelectric developments subject to its jurisdiction, on the necessary 

conditions: 

 That the project adopted . . . shall be such as in the judgment of the Commission will be best adapted to a 

comprehensive plan for improving or developing a waterway or waterways for the use or benefit of interstate or 

foreign commerce, for the improvement and utilization of waterpower development, for the adequate protection, 

mitigation, and enhancement of fish and wildlife (including related spawning grounds and habitat), and for other 

beneficial public uses, including irrigation, flood control, water supply, and recreational and other purposes referred 

to in Section 4(e) . . . 3

The Commission may require such other conditions not inconsistent with the FPA as may be found 

necessary to provide for the various public interests to be served by the project.4 

____________________________ 

1

16 U.S.C. §§ 791(a)-825(r), as amended by the Electric Consumers Protection Act of 1986, Pub. L. 99-495 

(1986), the Energy Policy Act of 1992, Pub. L. 102-486 (1992), and the Energy Policy Act of 2005, Pub. L. 109-58 

(2005). 

 2Pub. L. 95-91, 91 Stat. 556 (1977). 

 316 U.S.C. § 803(a). 416 U.S.C. § 803(g). 
xii

TABLE OF CONTENTS 

The CEQ recommends the basic content for EISs (see 40 CFR, section 1502.10 

below). EAs generally follow the same format. Each federal agency, however, tailors its 

NEPA documents to its own set of statutes and regulations. Note that some sections will 

not apply to all projects or all documents, as noted in the outline. Also, keep in mind that 

this standard format may not apply in all cases, and it may be adapted to specific 

situations. 

The suggested format for a table of contents for an EA and an EIS are similar, 

except as noted in bold text below. Sections marked with an asterisk are not 

necessary for all projects.

40 CFR, Section 1502.10--Recommended format. 

Agencies shall use a format for environmental impact statements which will 

encourage good analysis and clear presentation of the alternatives including the 

proposed action. The following standard format for environmental impact statements 

should be followed unless the agency determines that there is a compelling reason to 

do otherwise: 

(a) Cover sheet. 

(b) Summary. 

(c) Table of contents. 

(d) Purpose of and need for action. 

(e) Alternatives including proposed action (sections 102(2)(C)(iii) and 102(2)(E) of 

the Act). 

(f) Affected environment. 

(g) Environmental consequences (especially sections 102(2)(C)(I), (ii), (iv), and (v) 

of the Act). 

(h) List of preparers. 

(i) List of Agencies, Organizations, and persons to whom copies of the statement are 

sent. 

(j) Index. 

(k) Appendices (if any). 
xiii

TABLE OF CONTENTS FORMAT FOR AN EA OR EIS 

TABLE OF CONTENTS 

LIST OF FIGURES 

LIST OF TABLES 

ACRONYMS AND ABBREVIATIONS 

EXECUTIVE SUMMARY 

 

1.0 INTRODUCTION 

1.1 Application 

1.2 Purpose of Action and Need for Power 

1.3 Statutory and Regulatory Requirements 

 1.3.1 Federal Power Act 

 1.3.1.1 Section 18 Fishway Prescriptions 

 1.3.1.2 Section 4(e) Conditions* 

 1.3.1.3 Section 10(j) Recommendations 

 1.3.1.4 Section 30(c) Fish and Wildlife Conditions* 

 1.3.2 Clean Water Act

 1.3.3 Endangered Species Act*

 1.3.4 Coastal Zone Management Act* 

 1.3.5 National Historic Preservation Act* 

 1.3.6 Pacific Northwest Power Planning and Conservation Act* 

 1.3.7 Wild and Scenic Rivers Act* 

 1.3.8 Magnuson-Stevens Fishery Conservation and Management Act* 

Other statutes as applicable* 

1.4 Public Review and Comment 

1.4.1 Scoping 

1.4.2 Interventions 

1.4.3 Comments on the Application 

1.4.4 Comments on Draft EA or EIS (final EA/EIS only)* 

2.0 PROPOSED ACTION AND ALTERNATIVES (relicense applications)* 

2.1 No-action Alternative 

2.1.1 Existing Project Facilities 

2.1.2 Project Safety 

2.1.3 Existing Project Operation 

 2.1.4 Existing Environmental Measures 

2.2 Applicant’s Proposal 

2.2.1 Proposed Project Facilities 

2.2.2 Proposed Project Operation 

 2.2.3 Proposed Environmental Measures 

 2.2.4 Modifications to Applicant’s Proposal—Mandatory Conditions* 

2.3 Staff Alternative 

2.4 Staff Alternative with Mandatory Conditions* 

2.5 Other Alternatives (as appropriate)* 

2.6 Alternatives Considered but Eliminated from Detailed Study 

2.6.1 Federal Government Takeover of the Project* 

 2.6.2 Issuing a Nonpower License* 

 2.6.3 Retiring the Project 

2.0 PROPOSED ACTION AND ALTERNATIVES (original license applications)* 

2.1 No-action Alternative 

2.2 Proposed Action 

2.2.1 Proposed Project Facilities 
xiv

2.2.2 Project Safety 

2.2.3 Proposed Project Operation 

 2.2.4 Proposed Environmental Measures 

 2.2.5 Modifications to Applicant’s Proposal—Mandatory Conditions* 

2.3 Staff Alternative 

2.4 Staff Alternative with Mandatory Conditions* 

2.5 Other Alternatives (as appropriate)* 

2.6. Alternatives Considered but Eliminated from Detailed Study 

3.0 ENVIRONMENTAL ANALYSIS 

3.1 General Description of the River Basin 

3.2 Scope of Cumulative Effects Analysis 

3.2.1 Geographic Scope 

3.2.2 Temporal Scope 

3.3 Proposed Action and Action Alternatives 

 3.3.1 Geologic and Soil Resources 

 3.3.2 Aquatic Resources 

 3.3.3 Terrestrial Resources 

 3.3.4 Threatened and Endangered Species 

 3.3.5 Recreation and Land Use 

 3.3.6 Cultural Resources 

 3.3.7 Aesthetic Resources 

 3.3.8 Socioeconomics* 

3.4 No-action Alternative 

4.0 DEVELOPMENTAL ANALYSIS 

4.1 Power and Economic Benefits of the Project 

4.2 Comparison of Alternatives 

4.3 Cost of Environmental Measures 

4.4 Air Quality (as needed)* 

5.0 CONCLUSIONS AND RECOMMENDATIONS 

5.1 Comparison of Alternatives 

5.2 Comprehensive Development and Recommended Alternative 

 5.3 Unavoidable Adverse Effects 

5.4 Recommendations of Fish and Wildlife Agencies 

5.5 Consistency with Comprehensive Plans 

6.0 FINDING OF NO SIGNIFICANT IMPACT (OR OF SIGNIFICANT IMPACT) (EAs only)*

7.0 LITERATURE CITED 

8.0 LIST OF PREPARERS 

9.0 LIST OF RECIPIENTS (EISs only)* 

10.0 CONSULTATION DOCUMENTATION (Exhibit Es only)* 

APPENDICES* 

A--License Conditions Recommended by Staff* 

B--Response to Comments on the Draft Environmental Assessment* 
xv

LIST OF FIGURES 

Between the Table of Contents and Executive Summary, list all figures contained 

in the environmental document and the pages where they're found. 

Example of a List of Figures: 

List of Figures

Figure 1. Location of the Lake Elsinore Hydroelectric Project, FERC No. 11858, California 2 

 

Figure 2. Location of project features for the Big River Hydroelectric Project, FERC No. 602, Ohio 4 

 

Figure 3. Description of the operation of the Lake Elsinore Hydroelectric Project, FERC No. 11858, California 6 

Figure 4. Flow schematic for the North Georgia Project, FERC No. 2354, Georgia 8 

At a minimum, include figures showing the location of the project in the river 

basin (figure 1) and the major project features (figure 2). A schematic can be helpful to 

understand complicated projects (figures 3 and 4). Other figures may be added as 

appropriate to support the text. 

Use the following guidelines when creating figures: (1) keep figures simple and 

uncluttered—include only relevant information; (2) use text to introduce and highlight the 

figures; (3) figures should be able to stand alone; that is, the reader should not have to 

read the text to understand the figure; (4) the caption should thoroughly describe the 

material contained in the figure; and (5) the caption should include a citation for the 

source of the figure. For more information, see Attachment B, General Guidance for 

Text, Graphics, and References. 

Do not include figures that show critical energy infrastructure information (CEII). 

CEII includes information about proposed or existing critical infrastructure that could be 

useful to a person in planning an attack on critical infrastructure and does not simply give 

the location of the critical infrastructure [18 CFR, section 388.113(c)(2)]. CEII includes 

general design drawings of the principal project works (e.g., plan, elevation, profile, and 

section of dam and powerplant), such as those found in Exhibit F; drawings showing 

technical details of a project, such as plans and specifications, supporting design reports, 

Part 12 independent consultant reports, facility details, electrical transmission systems, 

and communication and control center information; locations of critical or vulnerable 

components of the project; inundation information; and global positioning system (GPS) 

coordinates of any project features (precise surveyed or GPS coordinates at or above two 

decimal points of accuracy of equipment and structures). 
xvi

 Example of a project location figure (Source: Lake Elsinore Advanced Pumped Storage Project DEIS, 

 FERC No. 11858, February 2006): 

 Figure 1. Location of the Lake Elsinore Hydroelectric Project, FERC No. 11858, California (Source: 

 application, as modified by staff). 
xvii

 Example of a project features figure: 

 Figure 2. Location of project features for the Big River Hydroelectric Project, FERC No. 602, Ohio (Source: 

application, as modified by staff). 
xviii

 Example of a schematic drawing showing how a project operates (Source: Lake Elsinore Advanced Pumped 

 Storage Project DEIS, FERC No. 11858, February 2006): 

 Figure 3. Description of the operation of the Lake Elsinore Hydroelectric Project, FERC No. 11858, 

California (Source: application, as modified by staff).
xix

 Example of a schematic showing the routing of flow through a multi-development 

 Project (Source: North Georgia Project FEIS, FERC No. 2354, June 1996): 

 

 

Figure 4. 

 Flow schematic for the North Georgia Project, FERC No. 2354, 

 Georgia (Source: staff).
xx

LIST OF TABLES

If you have tables, list them and the pages where they're located after the List of 

Figures. 

Example of a List of Tables: 

List of Tables

Page 1. Existing and proposed hydroelectric developments in the Chugwater River Basin. 

 11 

Page 2. Fish species found in the Chugwater Project area. 16 

Organize information in tables to illustrate data, findings, or other information to 

support the analysis in the environmental document. 

Tables should be placed as soon as possible after the first mention in the text. The 

caption should thoroughly describe the material contained in the table. Cite the source of 

the table in the caption and indicate whether the information was modified by staff. 

Tables can include or exclude grid lines, but ensure consistently throughout document. 

Example of a table used in the text of the environmental document:

Table 1. Temperature and dissolved oxygen levels recorded at various project locations (Source: Harris, 2005, as 

modified by staff). 

Location Temperature (degrees 

Celsius) 

Dissolved oxygen 

(milligrams per liter) 

Copper Creek above Chugwater Lake 0.5-20.2 8.5-10 

Chugwater Lake (5 feet) 8.3-25.5 7.0-9.8 

Chugwater Lake (10 feet) 6.7-11.0 3.2-9.4 

Chugwater Lake (20 feet) 5.9-8.0 0.7-9.2 

Copper Creek in project tailrace 0.2-21.0 8.1-10.2 

Copper Creek 1 mile downstream of tailrace 1.0-21.9 7.5-11.3
xxi

ACRONYMS AND ABBREVIATIONS 

For most environmental documents, it is helpful to have a list of acronyms and 

abbreviations. Define abbreviations and acronyms the first time they are used. 

 Be sparing in use of acronyms to improve readability unless widely recognized. 

Use the organization’s commonly used name. If none is available, create an easily 

understood and remembered name. “FWS” is standard for “Fish and Wildlife Service, 

“NMFS” for “National Marine Fisheries Service,” and “EPA” for “Environmental 

Protection Agency.” But observe the following uses: 

• "Forest Service," not “FS” 

• "Reclamation," not “BR” 

• "Park Service," not “NPS” 

• "Cal Fish and Game," not “CDFG” 

• “Michigan DNR,” not “MDNR” 

• “Olympus,” not OEC (for Olympus Energy Company) 

Example of an Acronyms and Abbreviations section: 

Acronyms and Abbreviations

Advisory Council Advisory Council on Historic Preservation 

ALP Alternative Licensing Process 

APE area of potential effect 

APEA applicant-prepared environmental assessment 

BA biological assessment 

BLM Bureau of Land Management 

CEII critical energy infrastructure information 

CEQ Council on Environmental Quality 

CFR Code of Federal Regulations 

Corps Army Corps of Engineers 

cfs cubic feet per second 

Commerce Department of Commerce 

Commission Federal Energy Regulatory Commission 

Council Northwest Power and Conservation Council 

CWA Clean Water Act 

CZMA Coastal Zone Management Act 

DFW Department of Fish and Wildlife 

DNR Department of Natural Resources 

DO dissolved 

DOE Department of Energy 

EA environmental assessment 

EFH essential fish habitat 

EIS environmental impact statement 

EPAct Energy Policy Act of 2005 

ESA Endangered Species Act 
xxii

FERC Federal Energy Regulatory Commission 

Forest Service U.S. Forest Service 

FPL Florida Power and Light Company 

FONSI finding of no significant impact 

FPA Federal Power Act 

FWS U.S. Fish and Wildlife Service 

GPS global positioning satellite 

HPMP historic properties management plan 

IFIM instream flow incremental methodology 

ILP Integrated Licensing Process 

Interior Department of the Interior 

kW kilowatt 

kWh kilowatt-hour 

msl mean sea level 

MW megawatt 

National Register National Register of Historic Places 

NEPA National Environmental Policy Act 

NERC North American Electric Reliability Corporation 

NGO non-governmental organization 

NHPA National Historic Preservation Act 

NMFS National Marine Fisheries Service 

NOAA National Oceanic and Atmospheric Administration 

OEP Office of Energy Projects 

PMWUA percent maximum weighted usable area 

PURPA Public Utility Regulatory Policies Act 

PA programmatic agreement 

Program Columbia River Fish and Wildlife Program 

TLP traditional licensing process 

USC U.S. Code 

WQC water quality certification 

WUA weighted usable area
xxiii

EXECUTIVE SUMMARY 

The purpose of the Executive Summary5

 is to give the reader a brief and basic 

understanding of the type of action being proposed, the alternatives to the proposed 

action, the main issues analyzed, and a comparison of effects of the different alternatives. 

It should be understandable, standing alone from the rest of the document. The summary 

should highlight economic, environmental, and other issues that were given special 

consideration, including cumulative effects. Follow this format: 

(1) Describe the project (indicate existing project works and any proposed for 

construction), including the location, acreage of federal lands involved, capacity, 

use of power, and the applicant's proposal. 

(2) Describe the other alternatives analyzed. 

(3) Briefly describe public involvement and the major issues analyzed. 

(4) Provide a comparison of environmental effects of the different alternatives on 

each resource (include table as appropriate). 

(5) Briefly discuss your conclusions, including a comparison of the net annual 

benefits of the different alternatives and the trade-offs made. 

 5 CEQ NEPA regulations require that: “Each environmental impact statement shall contain a summary 

which adequately and accurately summarizes the statement. The summary shall stress the major conclusions, areas 

of controversy (including issues raised by agencies and the public), and the issues to be resolved (including the 

choice among alternatives)” (40 CFR section 1502.12).
xxiv

Example of an Executive Summary: 

EXECUTIVE SUMMARY

Municipal Hydro Company (Municipal) proposes to continue to operate the existing 16.7-magawatt (MW) 

Angus Hydroelectric Project (project) located on Copper Creek, near the City of Chugwater in Southeastern 

Wyoming. This combined purpose project supplies part of the electricity needs of the City of Chugwater and all of 

its municipal water supply requirements. Parts of the project occupy 12.8 acres of federal lands administered by the 

U.S. Forest Service (Forest Service) and the Bureau of Land Management (BLM). The Forest Service lands are 

managed by the Swift Ranger District of the Saddle National Forest. This draft environmental assessment (EA) is a 

cooperative undertaking between the Forest Service and the Federal Energy Regulatory Commission (the 

Commission or FERC). 

Proposed Action 

 The project consists of a 6-foot-high, 39-foot-long dam creating a 17-acre reservoir at full pond, a 2-milelong penstock, and a powerhouse with three turbine-generators. The project is described in more detail in section 

2.2. The project is operated in a run-of-river mode. Municipal proposes no capacity or operating changes, but does 

propose measures for the protection and enhancement of environmental resources: increased minimum instream 

flows of 200 cfs to protect fish in the 2.4-mile-long bypassed reach; cattle fencing along Chugwater Creek; a new 

boat ramp at the northern end of the reservoir; and landscaping in the vicinity of the powerhouse. These measures 

are described in detail in section 2.2.4. 

 

Alternatives Considered 

This draft EA analyzes the effects of continued project operation and recommends conditions for a new 

license for the project. In addition to Municipal’s proposal, we consider two alternatives: (1) Municipal’s proposal 

with staff modifications; and (2) no action—continued operation with no changes. 

Under Municipal’s proposal with staff modifications, the project would be operated as proposed by 

Municipal, but would include the following additional measures: monitoring flows and water temperature; minimum 

instream flows for fish of 300 cfs; setting limits on the rate project flows downstream of the project are changed 

under normal operating conditions (ramping rates); and measures to protect resources, including cultural resources 

and values, from damages caused by any operating or maintenance actions that may arise during the term of a new 

license. The recommended staff modifications include or are based in part on recommendations made by the federal 

and state resource agencies that have an interest in the resources that may be affected by continued project operation. 

We include all the section 4(e) measures specified by the Forest Service in the staff alternative. 

Public Involvement and Areas of Concern 

Before filing its license application, Municipal conducted a pre-filing consultation process under the 

traditional licensing process. The intent of the Commission’s prefiling process is to initiate public involvement early 

in the project planning process and to encourage citizens, governmental entities, tribes, and other interested parties to 

identify and resolve issues prior to an application being formally filed with the Commission. After the application 

was filed, we conducted scoping to determine what issues and alternatives should be addressed. A scoping 

document was distributed to interested parties on Jun 15, 2005. Scoping meetings were held in Portland, Oregon, on 

July 29, 2005, and in Troutdale, Oregon, on July 30, 2005. On January 3, 2006, we requested conditions and 

recommendations in response to the notice of ready for environmental analysis. 

The primary issue associated with relicensing the project is the amount of flow necessary to protect rainbow 

trout in the 2-mile-long bypassed reach. 

--example continued on next page-- 

Project Effects 
xxv

Aquatic Resources—Under the applicant’s proposal, adult trout habitat would improve in the 2-mile-long 

bypassed reach. It would increase by 50 percent compared to existing conditions but would continue to be degraded 

by reduced flows. Substantial mortality from stranding would continue. Small numbers of fish would continue to be 

killed as they pass through the turbines. Slight increase in water temperature would also continue to occur. 

With the staff’s modifications to the applicant’s proposal, adult trout habitat would be increased to near 

optimal conditions, a 100 percent increase compared to applicant’s proposal. Stranding, due to flow fluctuations, 

would be reduced to minimal levels. 

Terrestrial Resources-- Fencing to exclude cattle from the riparian zone would substantially improve 12 

acres of riparian vegetation benefiting local wildlife populations. Maintenance activities would continue to disturb 

nesting peregrine falcons. 

Threatened and Endangered Species—The endangered southwestern willow flycatcher would benefit from 

the expected increase in riparian vegetation. 

Recreation—Under the applicant’s proposal, fishing opportunities would be minimally improved as the 

result of increased flows in the bypassed area. Under the staff flow recommendation, fishing would be moderately 

improved. Boating on the reservoir, and associated reservoir fishing, would increase as a result of construction of a 

new boat ramp. 

Cultural Resources—The project would not affect cultural resources. Under the staff alternative, however, 

any future effects would be addressed. 

Visual Resources—Municipal’s proposed landscaping around the powerhouse would improve visual 

quality in an area used for picnicking. 

Under the no-action alternative, environmental conditions would remain the same and no enhancement of 

environmental resources would occur. 

Conclusions 

Based on our analysis, we recommend licensing the project as proposed by Municipal with some staff 

modifications and additional measures, as described above under Alternatives Considered. 

In section 4.1 of the EA, we estimate the annual net benefits of operating and maintaining the project under 

the three alternatives identified above. Our analysis shows that the annual net benefit would be $32,700 for the 

proposed action; $30,100 for the staff alternative; and $35,200 for the no-action alternative. 

On the basis of our independent analysis, we conclude that issuing a new license for the project, with the 

environmental measures that we recommend, would not be a major federal action significantly affecting the quality 

of the human environment. [EAs only] 

We chose the staff alternative as the preferred alternative because: (1) the project would provide a 

dependable source of electrical energy for the region (200,000 megawatthours annually); (2) the 16.7 MW of electric 

energy generated from a renewable resource may offset the use of fossil-fueled, steam-electric generating plants, 

thereby conserving nonrenewable resources and reducing atmospheric pollution; (3) the recommended 

environmental measures proposed by municipal, as modified by staff, would adequately protect and enhance 

environmental resources affected by the project. The overall benefits of the staff alternative would be worth the cost 

of the proposed and recommended environmental measures.

SOME BASIC CONCEPTS FOR NEPA DOCUMENTS 
xxvi

The following are some basic NEPA concepts from the CEQ regulations that 

should guide your writing for all sections of EAs and EISs. Note the emphasis on being 

clear and concise. 

40 CFR, Section 1500.1--Purpose. 

(c) Ultimately, of course, it is not better documents but better decisions that count. NEPA's 

purpose is not to generate paperwork--even excellent paperwork--but to foster excellent action. 

The NEPA process is intended to help public officials make decisions that are based on 

understanding of environmental consequences, and take actions that protect, restore, and enhance 

the environment. These regulations provide the direction to achieve this purpose.

(b) Implement procedures to make the NEPA process more useful to decision makers and the 

public; to reduce paperwork and the accumulation of extraneous background data; and to 

emphasize real environmental issues and alternatives. Environmental impact statements shall be 

concise, clear, and to the point, and shall be supported by evidence that agencies have made the 

necessary environmental analyses.

Section 1500.4--Reducing paperwork. 

Agencies shall reduce excessive paperwork by: 

(a) Reducing the length of environmental impact statements [Sec. 1502.2(c)], by means such as 

setting appropriate page limits [Sects. 1501.7(b)(1) and 1502.7]. 

(b) Preparing analytic rather than encyclopedic environmental impact statements [Sec. 

1502.2(a)]. 

(c) Discussing only briefly issues other than significant ones [Sec. 1502.2(b)]. 

(d) Writing environmental impact statements in plain language (Sec. 1502.8).

(e) Following a clear format for environmental impact statements (Sec. 1502.10). 

(f) Emphasizing the portions of the environmental impact statement that are useful to decision 

makers and the public (Sects. 1502.14 and 1502.15) and reducing emphasis on background 

material (Sec. 1502.16).
1

STANDARD HEADING 

DRAFT ENVIRONMENTAL ASSESSMENT 

[or DRAFT ENVIRONMENTAL IMPACT STATEMENT] 

Federal Energy Regulatory Commission 

Office of Energy Projects 

Division of Hydropower Licensing 

Washington, DC 

List cooperating agencies, as appropriate.

Samples Hydroelectric Project 

FERC Project No. 22000-001--State 

1.0 INTRODUCTION

1.1 APPLICATION 

This section explains what is being applied for and by whom. Include the 

following information: 

• Date the application and any supplements or amendments were filed or are 

scheduled to be filed 

• Applicant's name 

• Type of license or exemption the applicant is seeking 

• Project location (river, county, city if any, state) 

• Size (capacity) of the project 

• Energy benefits produced by the project (annual generation in kWh) 

• Federal lands, if any, the project occupies. Include acreage and agency 

administering the lands--if none, say there are no federal lands involved 

• Proposed new capacity and new construction—if none, so state 

Include a project location map (see figure 1, List of Figures). 
2

Example of an Application section: 

1.1 APPLICATION

On November 13, 1991, Municipal Hydro Company (Municipal) filed an application for a new major 

license for the existing Angus Hydroelectric Project. The 1.2-megawatt (MW) project is located on Copper Creek at 

river mile 19.5 near the City of Chugwater, Wyoming (figure 1). The project does not occupy any federal lands. 

The project generates an average of about 10,758,000 kilowatthours (kWh) of energy annually. Municipal proposes 

no new capacity and no new construction.

1.2 PURPOSE OF ACTION AND NEED FOR POWER 

1.2.1 Purpose of Action 

 This section explains why the Commission requires a license for the project and, 

therefore, a NEPA analysis. It includes the alternatives that are assessed and a listing of 

the major issues that are addressed. This section explains that the proposed federal action 

is the Commission's decision whether to issue a license for the proposed project and, if so, 

what conditions should be placed in the license. The purpose of the proposed action is to 

determine whether to grant an application for the construction and operation, or continued 

operation, of hydroelectric and related facilities in compliance with FPA requirements 

and other laws. The following language should also be included in this section: 

In deciding whether to issue a license for a hydroelectric project, the Commission must determine that the 

project will be best adapted to a comprehensive plan for improving or developing a waterway. In addition 

to the power and developmental purposes for which licenses are issued (e.g., flood control, irrigation and 

water supply), the Commission must give equal consideration to the purposes of energy conservation, the 

protection, mitigation of damage to, and enhancement of fish and wildlife (including related spawning 

grounds and habitat), the protection of recreational opportunities, and the preservation of other aspects of 

environmental quality. 

In addition to this general description, include a brief description of the project-specific 

issues that will be addressed in the environmental document. 
3

Example of a Purpose of Action section: 

1.2.1 Purpose of Action 

The Commission must decide whether to issue a license to Municipal for the project and what conditions 

should be placed in any license issued. In deciding whether to issue a license for a hydroelectric project, the 

Commission must determine that the project will be best adapted to a comprehensive plan for improving or 

developing a waterway. In addition to the power and developmental purposes for which licenses are issued (e.g., 

flood control, irrigation and water supply), the Commission must give equal consideration to the purposes of energy 

conservation, the protection, mitigation of damage to, and enhancement of fish and wildlife (including related 

spawning grounds and habitat), the protection of recreational opportunities, and the preservation of other aspects of 

environmental quality. 

Issuing a new license for the Angus Project would allow Municipal to generate electricity at the project for 

the term of a new license, making electric power from a renewable resource available to its customers. 

This draft environmental assessment (EA) assesses the effects associated with operation of the project, 

alternatives to the proposed project, and makes recommendations to the Commission on whether to issue a new 

license, and if so, recommends terms and conditions to become a part of any license issued. 

In this draft EA, we assess the environmental and economic effects of continuing to operate the project: 

(1) as proposed by Municipal; and (2) with our recommended measures. We also consider the effects of the noaction alternative. Important issues that are addressed include fish passage, minimum flows in the bypassed reach, 

and recreational access. 

1.2.2 Need for Power 

This section presents the need (both project-specific and regional)--for the power 

the project would generate, including total energy and capacity needs, and fossil fuel 

displacement, and shows why providing that energy is important. Cite any plans or 

reports used to project future power demand and explain how the project satisfies or 

would help satisfy these power demands. If the applicant is not a utility, discuss only the 

regional need for power, and include the amount of power to be sold and, if known, 

identify the purchasers. 
4 

Example of a Need for Power section: 

1.2.2 Need for Power 

 The Green Creek Hydroelectric Project would provide hydroelectric generation to meet part of Indiana’s 

power requirements, resource diversity, and capacity needs. The project would have an installed capacity of 16.4 

megawatts (MW) and generate approximately 65,000 megawatt-hours (MWh) per year. 

 The North American Electric Reliability Council (NERC) annually forecasts electrical supply and demand 

nationally and regionally for a 10-year period. The Green Creek Hydroelectric Project is located in the East Central 

Area Reliability Council (ECAR) of the NERC. According to NERC’s 2005 forecast, average annual demand 

requirements for the ECAR region are projected to grow at a rate of 1.9 percent from 2005 through 2014. NERC 

projects resource capacity margins (generating capacity in excess of demand) will range between 9 percent and 20 

percent of firm peak demand during the 10-year forecast period, including estimated new capacity additions. Over 

the next 10 years, ECAR estimates that about 3,300 MW of additional capacity will be brought on line. 

 We conclude that power from the Green Creek Hydroelectric Project would help meet a need for power in 

the ECAR region in both the short and long-term. The project provides low-cost power that displaces nonrenewable, fossil-fired generation and contributes to a diversified generation mix. Displacing the operation of fossilfueled facilities may avoid some power plant emissions and creates an environmental benefit. 

1.3 STATUTORY AND REGULATORY REQUIREMENTS 

This section briefly describes the statutory and regulatory requirements that must 

be addressed as part of the licensing process. Include a table summarizing the major 

requirements. Only include specific requirements if they are relevant to the particular 

project. For example, a section on section 4(e) conditions is not necessary for projects 

not located on federal lands or Indian reservations. 

Note: When referring to different recommendations and mandatory conditions 

throughout the document, use “recommends” for agency terms and conditions and 

recommendations made by other entities, use “specifies” for mandatory conditions, 

and use “prescribes” for fishway prescriptions. For example, FWS recommends a 

minimum flow of 200 cfs and the Forest Service, under section 4(e), specifies that 

two hiking trails be constructed in the vicinity of the dam. 
5 

Example of Statutory and Regulatory Requirements introduction and summary table: 

1.3 STATUTORY AND REGULATORY REQUIREMENTS 

A license for the Smith Project is subject to numerous requirements under the Federal Power Act and other 

applicable statutes. The major regulatory and statutory requirements are summarized in table 1 and described below. 

Table 1. Major Statutory and Regulatory Requirements for the Granite Creek Project (Source: staff). 

Requirement Agency Status 

Section 18 of the FPA (fishway 

prescriptions) 

FWS, NMFS FWS and NMFS prescribed upstream 

fish passage facilities on December 1, 

2006. 

Section 4(e) of the FPA (land 

management conditions) 

Forest Service Forest Service provided preliminary 

conditions on December 5, 2006. 

Section 10(j) of the FPA Oregon DFW, FWS, NMFS The agencies provided section 10(j) 

recommendations on November 30, 

December 1, and December 1, 2006, 

respectively. 

Clean Water Act—water quality 

certification 

Oregon DWR Application for certification received on 

October 3, 2006; due by October 1, 

2007. 

Endangered Species Act 

Consultation 

NMFS Completed; biological opinion issued 

January 13, 2007. 

Coastal Zone Management Act 

Consistency 

Oregon Department of Land 

Conservation and Development 

Consistency certification filed on July 

16, 2006; action by Oregon Department 

of Land Conservation and Development 

due by February 4, 2007. 

Wild and Scenic Rivers Act National Park Service National Park Service issued a 

preliminary consistency determination 

on December 15, 2006. 

1.3.1 Federal Power Act 

1.3.1.1 Section 18 Fishway Prescriptions 

This section would generally not be included in an Exhibit E prepared under the 

ILP unless preliminary conditions were provided but would be included in an 

APEA prepared under the ALP. 

Under section 18 of the FPA, the U.S. Fish and Wildlife Service and the National 

Marine Fisheries Service have the authority to prescribe fishways at projects. In this 

section, identify any fishway facilities prescribed by the U.S. Fish and Wildlife Service, 

the National Marine Fisheries Service, or both. For applicant’s Exhibit Es and APEAs, 

these would be preliminary prescriptions. Further, indicate if no prescriptions were filed 

or if the agencies requested a reservation of authority to prescribe fishways in the future. 

List specific measures in section 2.2.5, Modifications to Applicant’s Proposal—

Mandatory Conditions. 
6 

Example for a reservation of authority for fishways: 

1.3.1.1 Section 18 Fishway Prescriptions

Section 18 of the Federal Power Act states that the Commission is to require construction, operation, and 

maintenance by a licensee of such fishways as may be prescribed by the Secretaries of Commerce or the Interior. 

Interior, by letter dated January 1, 2001, requests that a reservation of authority to prescribe fishways under section 

18 be included in any license issued for the project. 

Example for a fishway prescription: 

1.3.1.1 Section 18 Fishway Prescriptions

Section 18 of the Federal Power Act states that the Commission is to require construction, operation, and 

maintenance by a licensee of such fishways as may be prescribed by the Secretary of Commerce or the Interior. On 

December 3, 2006, the U.S. Fish and Wildlife Service (FWS) timely filed a fishway prescription for the project. 

These conditions are described under section 2.2.5, Modifications to Applicant’s Proposal—Mandatory Conditions.

Alternative Section 18 Fishway Prescriptions under the Energy Policy Act of 2005 

 Under regulations developed by the Departments of Commerce, Interior, and 

Agriculture to implement section 241 of EPAct, any party to a Commission license 

proceeding may: (1) request a trial-type hearing on “disputed issues of material fact;” and 

(2) propose alternative fishway prescriptions that the Departments must accept unless 

inconsistent with certain energy and environmental criteria. 

 Identify any alternative conditions filed by the applicant or others and any requests 

for trial-type hearings under section 241 of EPAct, including the status or results of any 

hearings. 

Example where applicant filed alternative fishway prescriptions: 

Alternative Section 18 Fishway Prescriptions under the Energy Policy Act of 2005 

The Energy Policy Act of 2005 (EPAct) provides parties to this licensing proceeding the opportunity to 

propose alternatives to preliminary prescriptions. In a February 2, 2005, filing in accordance with section 241 of 

EPAct, Municipal filed an alternative prescription under which Municipal would delay construction of fish passage 

facilities until after completion of basin-wide salmon restoration plans as opposed to within 2 years of licensing, as 

required by NMFS. This measure is discussed further in section 3.3.2, Anadromous Fish Restoration. 
7 

Example where applicant requested trial-type hearing and filed alternative fishway prescriptions: 

Alternative Section 18 Fishway Prescriptions under the Energy Policy Act of 2005 

The Energy Policy Act of 2005 (EPAct) provides parties to this licensing proceeding the opportunity to 

request trial-type hearings regarding issues of material fact that support the prescriptions developed under FPA 

section 18. EPAct also provides parties the opportunity to propose alternatives to preliminary prescriptions. In a 

February 2, 2005, filing in accordance with section 241 of EPAct, Municipal requested a hearing regarding issues of 

material fact pertaining to the preliminary fishway prescription. The primary issue raised by Municipal is that it is 

premature to require fish passage unless it can be shown that upstream habitats can support steelhead. An 

administrative law judge is scheduled to release finding following the hearing by August 17, 2005. Municipal also 

filed an alternative prescription under which Municipal would delay construction of fish passage facilities until after 

completion of basin-wide salmon restoration plans as opposed to within 2 years of licensing, as required by NMFS. 

This measure is discussed further in section 3.3.2, Anadromous Fish Restoration. 

1.3.1.2 Section 4(e) Conditions 

This section would generally not be included in an Exhibit E prepared under the 

ILP unless preliminary conditions were provided, but would be included in an 

APEA prepared under the ALP. 

Identify whether any federal land management agencies submitted conditions 

pursuant to section 4(e) of the FPA to protect and ensure proper use of public lands 

(reservations) occupied by the project. Specific measures will be listed in section 2.2.5, 

Modifications to Applicant’s Proposal—Mandatory Conditions. 

Example for listing 4(e) conditions: 

1.3.1.2 Section 4(e) Conditions

Section 4(e) of the FPA provides that any license issued by the Commission for a project within a federal 

reservation shall be subject to and contain such conditions as the Secretary of the responsible federal land 

management agency deems necessary for the adequate protection and use of the reservation. The Forest Service 

filed final conditions by letter dated January 23, 2002 (Appendix A) pursuant to section 4(e) of the Federal Power 

Act. These conditions are described under section 2.2.5, Modifications to Applicant’s Proposal—Mandatory 

Conditions.

Alternative Conditions under the Energy Policy Act of 2005 

 Under regulations developed by the Departments of Commerce, Interior, and 

Agriculture to implement section 241 of EPAct, any party to a Commission license 

proceeding may: (1) request a trial-type hearing on “disputed issues of material fact;” and 

(2) propose alternative land management conditions that the Departments must accept 

unless inconsistent with certain energy and environmental criteria. 

 

 Identify any alternative conditions filed by the applicant or others and any requests 
8 

for trial-type hearings under section 241 of EPAct, including status of results of the 

hearings. 

Example where applicant filed alternative conditions: 

Alternative Section 4(e) Conditions under the Energy Policy Act of 2005 

The Energy Policy Act of 2005 (EPAct) provides parties to this licensing proceeding the opportunity to 

propose alternatives to preliminary conditions. On December 19, 2005, the Commission received a copy of 

Municipal’s filing to the Forest Service proposing alternative 4(e) conditions in response to the Forest Service’s final 

section 4(e) conditions. Municipal’s alternative 4(e) conditions include a recommendation to eliminate Forest 

Service condition no. 7 (Noxious Weed Control Plan) or, in the alternative, limiting weed control to areas disturbed 

by project-related activities. Municipal also provides an alternative to condition no. 9 (Visual Quality Improvement 

Plan) that would restrict measures to lands within the project boundary. The two alternative conditions provided by 

Municipal are analyzed within the corresponding resource areas in section 3, Environmental Analysis, and section 

5.2, Comprehensive Development and Recommended Alternative. 

Example where applicant requested trial-type hearing and filed alternative conditions: 

Alternative Section 4(e) Conditions under the Energy Policy Act of 2005 

The Energy Policy Act of 2005 (EPAct) provides parties to this licensing proceeding the opportunity to 

request trial-type hearings regarding issues of material fact that support the preliminary conditions developed under 

FPA section 4(e) and to propose alternatives to preliminary conditions. On December 19, 2005, the Commission 

received a copy of Municipal’s filing to the Forest Service proposing alternative 4(e) conditions in response to the 

Forest Service’s final 4(e) conditions and seeking a trial-type hearing to resolve disputed issues of material fact with 

respect to Forest Service 4(e) condition no. 7. Municipal contends that weed infestations are not caused by the 

project. An administrative law judge is scheduled to release findings following the hearing and no later than 

February 3, 2006. Municipal’s alternatives to condition no. 7 includes a recommendation to eliminate Forest Service 

condition no. 7 (Noxious Weed Control Plan) or, in the alternative, limiting weed control to areas disturbed by 

project-related activities. Municipal also provides an alternative to condition no. 9 (Visual Quality Improvement 

Plan) that would restrict measures to lands within the project boundary. The two alternative conditions provided by 

Municipal, are analyzed within the corresponding resource areas in section 3, Environmental Analysis, and section 

5.2, Comprehensive Development and Recommended Alternative. 

1.3.1.3 Section 10(j) Recommendations 

This section would generally not be included in Exhibit Es prepared under the ILP 

or APEAs prepared under the ALP unless preliminary conditions were provided, 

and is not applicable to exemption applications. 

In this section, indicate which state and federal agencies filed recommendations 

pursuant to section 10(j) of the FPA and the date of their filings. Refer the reader to 

section 5.4.1, Recommendations of Fish and Wildlife Agencies, for a summary of the 

recommendations and a discussion of how we addressed the recommendations and 

complied with section 10(j). 
9 

An example of a 10(j) section: 

 1.3.1.3 Section 10(j) Recommendations

Under section 10(j) of the FPA, each hydroelectric license issued by the Commission must include 

conditions based on recommendations provided by federal and state fish and wildlife agencies for the protection, 

mitigation, or enhancement of fish and wildlife resources affected by the project. The Commission is required to 

include these conditions unless it determines that they are inconsistent with the purposes and requirements of the 

FPA or other applicable law. Before rejecting or modifying an agency recommendation, the Commission is required 

to attempt to resolve any such inconsistency with the agency, giving due weight to the recommendations, expertise, 

and statutory responsibilities of such agency. 

NMFS and Oregon DFW timely filed, on November 10, 2004, recommendations under section 10(j), as 

summarized in table 4, in section 5.4.1, Recommendations of Fish and Wildlife Agencies. In section 5.4, we also 

discuss how we address the agency recommendations and comply with section 10(j). 

1.3.1.4 Section 30(c) Fish and Wildlife Conditions 

This section would generally not be included in an Exhibit E prepared under the 

ILP unless preliminary conditions were provided, but would be included in an 

APEA prepared under the ALP. 

These conditions described in section 30(c) of the FPA pertain only if the applicant 

is seeking an exemption from licensing or seeking Public Utility Regulatory Policies Act 

(PURPA) benefits for constructing a new dam or diversion. If applicable, identify 

whether conditions were provided by federal and state fish and wildlife agencies for the 

protection of fish and wildlife resources. These conditions are described under section 

2.2.5, Modifications to Applicant’s Proposal—Mandatory Conditions. 

Example for exemption conditions: 

1.3.1.4 Section 30(c) Fish and Wildlife Conditions

Under section 30(c) of the FPA, where project applicants are seeking Public Utility Regulatory Policies Act 

(PURPA) benefits for constructing a new dam or diversion, the project is subject to mandatory conditions provided 

by federal and state fish and wildlife agencies for the protection of fish and wildlife resources. FWS timely filed, on 

October 2, 2005, terms and conditions under section 30(c) of the FPA. These conditions are described under section 

2.2.5, Modifications to Applicant’s Proposal—Mandatory Conditions. 
10 

1.3.2 Clean Water Act 

Even though the filing of an application for a water quality certification is not 

required until after the license application is filed, Applicants should indicate the 

status or their schedule for filing the request for certification. 

The applicant must file a request for a water quality certification (WQC), required 

by section 401 of the Clean Water Act, within 60 days of the Commission’s notice 

requesting terms and conditions and recommendations. 

In this section, include the date the certifying agency received the request for 

certification and the date or status of the certifying agency's action (denying, granting, or 

waiving the section 401 WQC, or the action may be pending). Describe the conditions of 

the water quality certification, if known. 

Note: The section 401 WQC is waived if the certifying agency doesn't act within 

1 year of receiving the applicant's request. Any conditions filed after the 1-year 

deadline has passed are evaluated as recommendations under section 10(a) of the 

FPA. 

Example for when a section 401 WQC is waived: 

1.3.2 Clean Water Act

Under section 401 of the Clean Water Act (CWA), a license applicant must obtain certification from the 

appropriate state pollution control agency verifying compliance with the CWA. On November 21, 2000, Municipal 

applied to the Wyoming Department of Natural Resources (Wyoming DNR) for 401 water quality certification 

(WQC) for the Angus Project. The Wyoming DNR received this request on November 24, 2000. Since Wyoming 

DNR has not acted on the request within 1 year from receipt of the request, the WQC is considered waived. 

Example for a section 401 WQC with conditions: 

1.3.2 Clean Water Act 

Under section 401 of the Clean Water Act (CWA), a license applicant must obtain certification from the 

appropriate state pollution control agency verifying compliance with the CWA. On November 21, 2000, Municipal 

applied to the Wyoming Department of Natural Resources (Wyoming DNR) for 401 water quality certification 

(WQC) for the Angus Project. The Wyoming DNR received this request on November 24, 2000. The Wyoming 

DNR timely issued the section 401 WQC on December 6, 2000 (letter from E. Everett, Water Management 

Supervisor, Wyoming Department of Natural Resources, Locality, Wyoming, December 6, 2000. The conditions of 

the certification are described under section 2.2.5, Modifications to Applicant’s Proposal—Mandatory Conditions.
11 

Example for when a section 401 WQC has not yet been issued: 

1.3.2 Clean Water Act

Under the section 401 of the Clean Water Act (CWA), a license applicant must obtain certification from the 

appropriate state pollution control agency verifying compliance with the CWA. On November 21, 2000, Municipal 

applied to the Wyoming Department of Natural Resources (Wyoming DNR) for 401 water quality certification 

(WQC) for the Angus Project. The Wyoming DNR received this request on November 24, 2000. The Wyoming 

DNR has not yet acted on the request. The WQC is due by November 24, 2001. 

1.3.3 Endangered Species Act 

For an Exhibit E prepared under the ILP, if the applicant is the Commission’s 

non-federal designee for informal consultation under the ESA, a draft BA is 

required [18 CFR, section 5.18(b)(3)(ii)]. Guidance for preparing a BA is found 

in Attachment A, Specific Guidance for Resource Discussions, Threatened and 

Endangered Species section). 

This section briefly describes the consultation process used to address project 

effects on federally listed or proposed species or critical habitat in the project vicinity, 

including whether the applicant was designated as a non-federal representative. Our 

findings are based on the Staff Alternative, unless there is a distinct Staff Alternative with 

Mandatory Conditions alternative. 

Cite the most recent list of species received from FWS and/or NMFS. This section 

references the resource analysis and Comprehensive Development and Recommended 

Alternative sections of the environmental document, and documents the determinations of 

effect for each listed or proposed species or designated or proposed critical habitat (see 

table below).6

 This section also includes a discussion of the status or results of informal 

or formal consultation under section 7 of the Endangered Species Act (ESA). If there are 

many species evaluated, include a summary table. Where a biological opinion has been 

issued, summarize the terms and conditions and conservation measures contained in the 

opinion and whether our recommendations are consistent with the opinion. 

 6

 If some species on the list are not evaluated, explain why. 
12 

 List of possible effect determinations:

Determinations of Effect

Listed Species or Designated Critical Habitat

no effect no direct or indirect effects 

not likely to adversely affect beneficial, insignificant (very small in scale and 

cannot be meaningfully measured, detected, or 

evaluated), or discountable (extremely unlikely to 

occur) effects 

likely to adversely affect measurable adverse effects or results in take 

Proposed Species

no jeopardy 

jeopardy 

jeopardy--an action that reasonably would be 

expected, directly or indirectly, to reduce 

appreciably the likelihood of both the survival and 

recovery of a listed species in the wild by reducing 

the reproduction, numbers, or distribution of that 

species 

Proposed Critical Habitat

no adverse modification 

adverse modification 

adverse modification--a direct or indirect alteration 

that appreciably diminishes the value of critical 

habitat for both the survival and recovery of a listed 

species. 

An example of an ESA section: 

1.3.3 Endangered Species Act

Section 7 of the Endangered Species Act (ESA) requires federal agencies to ensure that their actions are not 

likely to jeopardize the continued existence of endangered or threatened species or result in the destruction or 

adverse modification of the critical habitat of such species. One federally listed species is known to occur in the 

Angus Project vicinity: the Copper mudpuppy (letter from R. Johnson, Field Supervisor, FWS, Long Beach, 

California, to K.D. Bose, Secretary, FERC, Washington, D.C., January 4, 2007). There is also critical habitat for the 

Copper mudpuppy in the project vicinity. Our analyses of project impacts on threatened and endangered species are 

presented in section 3.3.4, Threatened and Endangered Species, and our recommendations in section 5.2, 

Comprehensive Development and Recommended Alternative. 

We conclude that relicensing of the Angus Project, as proposed with staff-recommended measures, is not 

likely to adversely affect the Copper mudpuppy because no construction would occur below the high water mark and 

recommended sedimentation control measures would ensure any potential effects are insignificant. We requested 

FWS concurrence with our conclusion by letter dated May 29, 2007. FWS concurred with our determination on 

June 27, 2007 (letter from R. Johnson, Field Supervisor, FWS, Long Beach, California, to K.D. Bose, Secretary, 

FERC, Washington, D.C.). 
13 

1.3.4 Coastal Zone Management Act 

Section 307(c)(3) of the CZMA requires that all federally licensed and permitted 

activities be consistent with approved state Coastal Zone Management Programs. If the 

project is located within a designated state coastal zone or if a project would affect a 

resource located within the coastal zone, the applicant must certify that the project is 

consistent with the state Coastal Zone Management Program. 

If the project is within or affects a resource within the coastal zone, provide the 

date the applicant sent the consistency certification information to the state coastal 

management agency, the date the state agency received the certification, and the date and 

action taken by the state agency (for example, the agency will either agree or disagree 

with the consistency statement, waive it, or ask for additional information). Describe any 

conditions placed on the state agency's concurrence, and assess the conditions in the 

appropriate section of the EA/EIS. 

If the state agency doesn't respond within 6 months of receiving an adequate 

consistency certification from the applicant, we presume the state agency concurs.7 Its 

response could be to ask for additional information, which may extend beyond the 6 

months from the certification filing. 

If the project is not in or would not affect the coastal zone, state so and cite the 

coastal zone program office's concurrence.

Example for a coastal zone certification that was waived: 

1.3.4 Coastal Zone Management Act

Under section 307(c)(3)(A) of the Coastal Zone Management Act (CZMA), 16 U.S.C. ∋ 1456(3)(A), the 

Commission cannot issue a license for a project within or affecting a state's coastal zone unless the state CZMA 

agency concurs with the license applicant's certification of consistency with the state's CZMA program, or the 

agency's concurrence is conclusively presumed by its failure to act within 180 days of its receipt of the applicant's 

certification. 

On September 10, 1993, Municipal requested that the Washington Department of Ecology (DOE) review 

the consistency certification for the Angus Project. DOE received the request on September 12, 1993, and waived its 

right to review by letter dated November 1, 1993. 

 7

 The state agency has 30 days from the date the applicant files its certification with that agency to notify 

the applicant and the Commission that the certification was missing information or required the correction of 

information that has been provided. If such notice is given, the clock would start on the date the applicant filed the 

necessary data and information. 
14 

Example for a coastal zone certification that was granted, with conditions: 

1.3.4 Coastal Zone Management Act

Under section 307(c)(3)(A) of the Coastal Zone Management Act (CZMA), 16 U.S.C. § 1456(3)(A), the 

Commission cannot issue a license for a project within or affecting a state's coastal zone unless the state CZMA 

agency concurs with the license applicant's certification of consistency with the state's CZMA program, or the 

agency's concurrence is conclusively presumed by its failure to act within 180 days of its receipt of the applicant's 

certification. 

On September 10, 1992, Municipal submitted a consistency certificate to the Washington Department of 

Ecology (DOE) for compliance with the Coastal Zone Management Act 

In Municipal 's submittal, it certified that the proposed activities for the Angus Project comply with the 

Washington approved coastal management program. Further, Municipal asked the DOE to confirm that the project 

would not affect the coastal zone. 

DOE received the request on September 12, 2002. By letter dated October 13, 2002, DOE stated that the 

Angus Project has the potential to impact coastal resources. DOE, however, concluded that if the project is licensed 

and operated with the terms agreed upon in the negotiated Offer of Settlement, no adverse impacts to coastal 

resources are anticipated. 

We recommend that the conditions of the settlement be part of the staff alternative. Therefore, we conclude 

that the Angus Project would be consistent with the Washington Coastal Management Program. 

Example where project is not located within coastal zone: 

1.3.4 Coastal Zone Management Act 

Under section 307(c)(3)(A) of the Coastal Zone Management Act (CZMA), 16 U.S.C. ∋ 1456(3)(A), the 

Commission cannot issue a license for a project within or affecting a state's coastal zone unless the state CZMA 

agency concurs with the license applicant's certification of consistency with the state's CZMA program, or the 

agency's concurrence is conclusively presumed by its failure to act within 180 days of its receipt of the applicant's 

certification. 

The project is not located within the state-designated Coastal Management Zone, which extends inland to 

the crest of the Coast Mountain Range, and the project would not affect Oregon’s coastal resources. Therefore, the 

project is not subject to Oregon coastal zone program review and no consistency certification is needed for the 

action. By letter dated June 16, 2004, the Oregon Department of Coastal Resources concurred. 
15 

1.3.5 National Historic Preservation Act 

Section 106 of the National Historic Preservation Act (NHPA) requires the 

Commission to take into account the effect of licensing a hydropower project on historic 

properties, and to allow the Advisory Council on Historic Preservation (Advisory 

Council) a reasonable opportunity to comment on the proposed action. "Historic 

Properties" are defined as any district, site, building, structure, or object that is included 

in or eligible for inclusion in the National Register of Historic Places (National Register). 

 This section documents any consultation with the Advisory Council, State Historic 

Preservation Officer, National Park Service, Tribal Historic Preservation Officer, 

members of the public, and affected Indian tribes, where applicable. 

 If a potential adverse effect on historic properties has been identified, Commission 

staff will develop a programmatic agreement (PA) to resolve such adverse effects. The 

PA, in turn, would direct the licensee to implement a historic properties management plan 

(HPMP) to resolve all identified adverse effects on historic properties for the term of a 

new license. The applicant may include an HPMP with its license application. 

Example with PA required: 

1.3.5 National Historic Preservation Act 

 Section 106 requires that every federal agency "take into account" how each of its undertakings could affect 

historic properties. Historic properties are districts, sites, buildings, structures, traditional cultural properties, and 

objects significant in American history, architecture, engineering, and culture that are eligible for inclusion in the 

National Register of Historic Places (National Register). 

 To meet the requirements of section 106, the Commission intends to execute a Programmatic Agreement 

(PA) for the protection of historic properties from the effects of the operation of the Buffalo Creek Project. The 

terms of the PA would ensure that the Buffalo Power addresses and treats all historic properties identified within the 

project's area of potential effects (APE) through the finalization of the existing draft Historic Properties Management 

Plan. 

Example with no PA required: 

1.3.5 National Historic Preservation Act 

Section 106 requires that every federal agency "take into account" how each of its undertakings could affect 

historic properties. Historic properties are districts, sites, buildings, structures, traditional cultural properties, and 

objects significant in American history, architecture, engineering, and culture that are eligible for inclusion in the 

National Register of Historic Places (National Register). 

In response to Municipal's April 23, 2004, request, the Commission designated Municipal as a non-federal 

representative for the purposes of conducting section 106 consultation under the NHPA on May 6, 2004. Pursuant to 

section 106, and as the Commission’s designated non-federal representative, Municipal consulted with the SHPO 

and affected Indian tribes to locate, determine National Register eligibility, and assess potential adverse effects to 

historic properties associated with the project. On August 31, 2004, representatives of the Northern Tribe 

participated in an archeological site field trip at the project and commented that they have no specific concerns about 

the project’s effect on such sites. The SHPO responded back in letters dated April 28, 2004, and December 14, 
16 

2004, concurring with Municipal’s findings, and ultimately concluded that no historic properties would be affected 

by the federal licensing action. As a result of these findings made by Municipal and the Northern Tribe, and the 

SHPO’s concurrence that no historic properties would be affected by the project, the drafting of a programmatic 

agreement to resolve adverse effects to historic properties will not be necessary. 

1.3.6 Pacific Northwest Power Planning and Conservation Act 

Under section 4(h) of the Pacific Northwest Power Planning and Conservation 

Act, the Northwest Power and Conservation Council (Council) developed the Columbia 

River Basin Fish and Wildlife Program to protect, mitigate, and enhance the fish and 

wildlife resources associated with development and operation of hydroelectric projects 

within the Columbia River Basin. Section 4(h) of the act states that responsible federal 

and state agencies should provide equitable treatment for fish and wildlife resources, in 

addition to other purposes for which hydropower is developed, and that these agencies 

shall take into account, to the fullest extent practicable, the program adopted under the 

act. 

The program directs agencies to consult with federal and state fish and wildlife 

agencies, appropriate Indian tribes, and the Council during the study, design, 

construction, and operation of any hydroelectric development in the basin. Appendix B 

of the program outlines conditions that should be provided for in any original or new 

license. The program also designates certain river reaches in the Pacific Northwest as 

protected from development. 

This section typically includes a brief description of how the act applies to the 

project, how the proposal would or would not be consistent with the program, and any 

consultation with the Council. 

Example of a discussion under this section: 

1.3.6 Pacific Northwest Power Planning and Conservation Act

Under section 4 (h) of the Pacific Northwest Power Planning and Conservation Act, the Northwest Power 

and Conservation Council developed the Columbia River Basin Fish and Wildlife Program to protect, mitigate, and 

enhance the operation of the hydroelectric projects within the Columbia River Basin. Section 4(h) states that 

responsible federal and state agencies should provide equitable treatment for fish and wildlife resources, in addition 

to other purposes for which hydropower is developed, and that these agencies shall take into account, to the fullest 

extent practicable, the program adopted under the Pacific Northwest Power Planning and Conservation Act. 

The program directs agencies to consult with federal and state fish and wildlife agencies, appropriate Indian 

tribes, and the Council during the study, design, construction, and operation of any hydroelectric development in the 

basin. At the time the application was filed, our regulations required the applicant to consult with the appropriate 

federal and state fish and wildlife agencies and tribes before filing, and after filing, to provide these groups with 

opportunities to review and comment on the application. Municipal has followed this consultation process, and the 

relevant federal and state fish and wildlife agencies and tribes have reviewed and commented on the application. 

To mitigate harm to fish and wildlife resources, the Council has adopted specific provisions to be 
17 

considered in the licensing or relicensing of non-federal hydropower projects (Appendix B of the Program). The 

specific provisions that apply to the proposed project call for: (1) specific plans for fish facilities prior to 

construction; (2) assurance that the project will not degrade fish habitat or reduce numbers of fish; (3) assurance all 

fish protection measures are fully operational at the time the project begins operation; (4) timing construction 

activities, insofar as practical, to reduce adverse effects on wintering grounds; and (5) replacing vegetation if natural 

vegetation is disturbed. 

Our recommendations in this EA (section 3.3.2 and 3.3.3) are consistent with the applicable provisions of 

the program, listed above, with one exception discussed below. Further, a condition of any license issued would 

reserve to the Commission the authority to require future alterations in project structures and operations to take into 

account, to the fullest extent practicable, the applicable provisions of the program. 

The project would not be consistent with the provision requiring that all fish protection measures be fully 

operational at the time the project begins operation. Staff recommends that construction of fish screens be delayed 3 

years until completion of ongoing studies to determine the optimal location for the facilities. 

As part of the Program, the Council has designated over 40,000 miles of river in the Pacific Northwest 

region as not being suitable for hydroelectric development ("protected area"). The project is not located within a 

protected area.

1.3.7 Wild and Scenic Rivers Act 

Section 7(a) of the Wild and Scenic Rivers Act bars the Commission from 

licensing the construction of any dam, water conduit, or other project works on or directly 

affecting any river that is designated a component of the national Wild and Scenic Rivers 

System. This prohibition also applies to river segments designated by Congress as study 

rivers while the segment is under study. This does not, however, preclude licensing of 

developments below or above a wild, scenic, or recreational river or any stream tributary 

thereto that would not invade or unreasonably diminish the scenic, recreational, and fish 

and wildlife values present when the river was designated a component of the Wild And 

Scenic Rivers System. Under section 7(a), the administering Secretary makes 

determinations regarding consistency of a project with the provisions of the act. 

In this section, we include a description of any areas within or in the vicinity of the 

proposed project that are included in, or have been designated for study for inclusion in, 

the National Wild and Scenic Rivers System; our assessment of the effects of the 

proposed action on the designated river reach; and any determinations regarding 

consistency by the agency administering the reach. 
18 

Example of a Wild and Scenic Rivers Act section: 

1.3.7 Wild and Scenic Rivers Act 

Section 7(a) of the Wild and Scenic Rivers Act requires federal agencies to make a determination as to 

whether the operation of the project under a new license would invade the area or unreasonably diminish the scenic, 

recreational, and fish and wildlife values present in the designated river corridor. Public Law 95-111 (November 

10, 1978) designated the Elk River as a Wild and Scenic River, which extends from Elk dam downstream for a 

distance of 12 miles. The Elk Wild and Scenic River is managed by the Forest Service to protect and enhance the 

free-flowing condition, water quality and outstanding remarkable values for which the river was designated while 

providing for public recreation and resource uses that do not adversely affect or degrade those values. 

In May 2005, the Forest Service submitted to the Commission a preliminary section 7(a) determination that 

the proposed project effects, as described in the Commission’s April 2005 draft EIS, not only do not rise to the level 

of unreasonable diminishment, but would protect and enhance the recognized values of the Elk Wild and Scenic 

River System. The Forest Service will make a final determination under section 7(a) coincident with the timing of 

submittal of the final 4(e) terms and conditions. 

1.3.8 Magnuson-Stevens Fishery Conservation and Management Act 

 The consultation requirements of §305(b)(2) of the Magnuson-Stevens Act provide 

that federal agencies must consult with the Secretary of Commerce on all actions, or 

proposed actions, authorized, funded, or undertaken by the agency, that may adversely 

affect essential fish habitat (EFH). In this section, document any EFH that may be 

affected by the project and briefly discuss each managed species and life stage for which 

EFH has been designated.8

For projects that have undergone EFH consultation, describe EFH that may be 

affected by the project and provide a summary of the consultation process. Then, provide 

a listing of any Conservation Recommendations provided by the National Marine 

Fisheries Service (NMFS) or the applicable fishery management council and state our 

conclusions with respect to adoption of these measures. If the project would not 

adversely affect EFH, explain why. 

 8 For an Exhibit E prepared under the ILP, a draft EFH assessment is required if the project may affect EFH 

[18 CFR, section 5.18(b)(3)(iii)]--see Aquatic Resources section (Appendix A).
19 

Example of a Magnuson-Stevens Conservation and Management Act section (no consultation required): 

1.3.8 Magnuson-Stevens Conservation and Management Act 

 The Magnuson-Stevens Fishery Conservation and Management Act (Magnuson-Stevens Act) requires 

federal agencies to consult with NOAA Fisheries on all actions that may adversely affect Essential Fish Habitat 

(EFH). EFH has been designated for Atlantic salmon in the Penobscot River and its tributaries (NEFMC, 1998). 

 On December 15, 2004, PPL Maine filed an EFH assessment with the Commission that was prepared in 

consultation with NMFS, FWS, the Salmon Commission, and the Penobscot Tribe. The purpose of the EFH 

assessment was to evaluate the effects of the Settlement on EFH for Atlantic salmon. PPL Maine’s assessment 

indicates that the relicensing of the Orono Project and the requested modifications to the West Enfield, Stillwater, 

Medway, Milford, and Veazie Projects are part of an overall Penobscot River restoration project that would 

ultimately result in significant net and cumulative improvements to areas designated as Atlantic salmon EFH, as well 

as improve access for Atlantic salmon to areas containing EFH not directly involved with these projects. We have 

incorporated PPL Maine’s assessment into this EA as it pertains to the Orono Project, and conclude that licensing the 

project, as proposed by PPL Maine, in accordance with the Settlement, would not adversely affect EFH. As such, no 

consultation is required with NMFS. 

Example of an Magnuson-Stevens Conservation and Management Act section (consultation required): 

1.3.8 Magnuson-Stevens Conservation and Management Act 

 The Magnuson-Stevens Fishery Conservation and Management Act requires federal agencies to consult with 

NMFS on all actions that may adversely affect Essential Fish Habitat (EFH). In the case of the Green River Project, EFH 

consultation is required for chinook salmon. 

 We concluded in the draft EIS that the proposed project would have only minor, short-term impacts on Chinook 

salmon habitat and on migrating adult and juvenile salmonids. We also concluded that the recommended measures 

would improve habitat conditions overall and would provide a net benefit to chinook salmon. On July 5, 2005, we 

provided NMFS with our EFH assessment and requested that NMFS provide any EFH recommendations along with its 

biological opinion (BO). 

 NMFS filed its EFH consultation with the Commission, along with its BO on December 12, 2005. NMFS found 

that the proposed relicensing would adversely affect EFH for Chinook salmon and recommended that the terms and 

conditions of section 9 of the BO be adopted as EFH consultation measures. We discuss these measures in section 3.3.2, 

Aquatic Resources, of the EIS and make recommendations consistent with the measures in section 5.2, Comprehensive 

Development and Recommended Alternative. 

1.3.9 Other Regulatory Requirements 

Include sections on other statutes as appropriate (e.g., Marine Mammal Protection Act, 

Wilderness Act, Alaska National Interests Lands Conservation Act, Alaska Native Claims 

Settlement Act, Clean Air Act). 
20 

1.4 PUBLIC REVIEW AND CONSULTATION 

This section shows the process the Commission used to consult with agencies, 

tribes, and the public on the proposed action and in complying with statutory 

requirements. 

Example of the standard language introducing the Public Review and Consultation section of the 

environmental document: 

1.4 PUBLIC REVIEW AND CONSULTATION

The Commission's regulations (18 CFR, sections 5.1–5.16*) require that applicants consult with appropriate 

resource agencies, tribes, and other entities before filing an application for a license. This consultation is the first 

step in complying with the Fish and Wildlife Coordination Act, the Endangered Species Act, the National Historic 

Preservation Act, and other federal statutes. Pre-filing consultation must be complete and documented according to 

the Commission's regulations. 

* For projects using the TLP or ALP, replace with section 4.38 for original licenses and section 16.8 for 

relicenses. 

1.4.1 Scoping 

This section briefly describes the scoping process used to identify issues and 

alternatives to be addressed in the draft environmental document. 

Example of a Scoping section: 

1.4.1 Scoping

Before preparing this draft EA, we conducted scoping to determine what issues and alternatives should be 

addressed. A scoping document (SD1) was distributed to interested agencies and others on September 27, 2000. It 

was noticed in the Federal Register on October 3, 2000. Two scoping meetings, both advertised in the Chugwater 

Times, were held on October 27, 2000, in Chugwater, Wyoming, to request oral comments on the project. A court 

reporter recorded all comments and statements made at the scoping meetings, and these are part of the Commission’s 

public record for the project. In addition to comments provided at the scoping meetings, the following entities 

provided written comments: 

 Commenting Entities Date Filed 

 State Department of Parks and Recreation November 18, 2000 

 State Department of Fish and Game November 22, 2000 

 Municipal Hydro Company November 23, 2000 

 American Whitewater November 24, 2000 

 Cowboy Paddlers November 25, 2000 

 U.S. Fish and Wildlife Service November 29, 2000 

A revised Scoping Document (SD2), addressing these comments, was issued on April 5, 2001. 
21 

1.4.2 Interventions 

While this section would not need to be included in an Exhibit E prepared under 

the ILP or an APEA, applicants may want to include the framework for the section. 

This section is prepared by Commission staff after a final application is filed and a 

notice seeking interventions is issued. Indicate those interventions that are in opposition 

to the project. Also, indicate which interventions are filed late and whether the 

Commission has acted on these filings. 

Example of an Interventions section: 

1.4.2 Interventions 

On July 19, 2004, the Commission issued a notice that Municipal had filed an application to relicense the 

Angus Project. This notice set September 29, 2000, as the deadline for filing protests and motions to intervene. In 

response to the notice, the following entities filed motions to intervene: 

Intervenors Date Filed

Chugwater Department of Parks and Recreation August 24, 1994 

Wyoming Trout, Inc. September 16, 1994 

U.S. Department of the Interior September 22, 1994 

Chugwater Chamber of Commerce September 26, 1994* 

Forest Service October 6, 1994 ** 

 On January 4, 1995, the Environmental Protection Agency filed a petition for late intervention. No action 

has been taken on that petition. 

* Intervention in opposition. 

** Late intervention granted on December 1, 1994. 
22 

1.4.3 Comments on the License Application 

For an Exhibit E prepared under the ILP, the applicant should list comment letters 

received on the preliminary licensing proposal. For an APEA prepared under the 

ALP, the applicant should list comment letters received in response to the notice 

requesting preliminary recommendations and terms and conditions. Applicants 

should address any comments received, as appropriate, in section 3, 

Environmental Analysis, and more specifically in an appendix. 

Identify comments and recommendations filed as a result of the notice of ready for 

environmental analysis (ILP and TLP) or notice requesting final terms and conditions and 

recommendations (ALP). Applicants should include a similar section for comments 

received on the notice seeking preliminary recommendations on the draft application or 

licensing proposal and draft APEA. Include the date the applicant or others filed reply 

comments. 

Example of Comments on the License Application section: 

1.4.3 Comments on the License Application 

A notice requesting conditions and recommendations was issued on September 1, 2005. The following 

entities commented: 

 Commenting agencies and other entities Date filed

State Department of Environmental Protection November 10, 2005 

Department of the Interior November 10, 2005 

State Department of Inland Fisheries and Wildlife November 10, 2005 

Department of the Army, Corps of Engineers November 11, 2005 

State Executive Department, State Planning Office November 11, 2005 

American Rivers November 12, 2005 

The applicant filed reply comments on December 12, 2005.
23 

1.4.4 Comments on the Draft EA or EIS (for Final EA/Final EIS) 

This section would not be included in an Exhibit E prepared under the ILP. For 

an APEA prepared under the ALP, include a list of comments received on the draft 

APEA. 

This section provides the dates the draft EA or EIS was issued, when comments 

were due, and description of any public meetings. A list of commenters,9

 a summary of 

their comments, and staff responses are provided in an appendix in the final EA or EIS 

(see Responding to Comments on Draft EA/EIS section). If few comments are received, 

the comments and responses can be addressed in this section. 

Example of Comments on the Draft EA section: 

1.4.4 Comments of the Draft EA 

On December 14, 2006, we issued a draft EA for the White Creek Project. Comments on the draft EA were 

due by January 28, 2007. Written comments on the draft EA were filed by the following entities: 

Commenting Entity Date Filed 

United States Geological Survey January 18, 2007 

Utah Water Resources January 25, 2007 

Forest Service January 26, 2007 

FWS January 26, 2007 

River Associates January 29, 2007 

Appendix E summarizes the comments that were filed, includes our responses to those comments, and indicates 

where we made modifications to the draft EA. 

Example of Comments on the Draft EIS section: 

1.4.4 Comments on the Draft EIS 

The Commission sent the draft EIS to the U.S. Environmental Protection Agency (EPA) and made the draft 

EIS available to the public on September 17, 2004. The Commission requested that any written comments on the 

draft EIS be filed by November 16, 2004. Appendix A lists the commenters, summarizes the comments that were 

filed, and includes our responses to those comments, and indicates where we made modifications to the draft EIS. In 

addition, the Commission accepted oral testimony on the draft EIS at two public meetings: one held on October 19, 

2004, in Chester, California, and one held on October 20, 2004, in Chico, California. The transcripts and notes from 

these meetings were filed in the administrative record for the project. We modified the text of the EIS in response to 

oral and written comments received, as appropriate. 

 9 If the list is short, it can be included in this section of the environmental document.
24 

2.0 PROPOSED ACTION AND ALTERNATIVES 

For an Exhibit E prepared under the ILP or an APEA prepared under the ALP, the 

alternatives typically include the proposed project and the no-action alternative. 

The purpose of this section is to explain: (1) the proposed project--the facilities 

and how they will operate, including any proposed environmental measures; (2) action 

alternatives to the proposal; and (3) the no-action alternative. In the following pages, we 

discuss each section separately and provide examples. Most staff environmental 

documents will have, at a minimum, three alternatives; the applicant's proposal, a staff 

alternative, and a no-action alternative. In rare cases, there may be no staff alternative. If 

the staff alternative excludes significant mandatory conditions, include a fourth 

alternative, “Staff Alternative with Mandatory Conditions,” as described below. 

In addition to the applicant’s proposal, staff alternative, and the no-action 

alternative, alternatives could also include, depending on the circumstances, an agency 

alternative or a project retirement alternative. 

Note: The format of this section will differ for relicenses compared to original 

licenses. In separate sections below, we provide two different versions of how this 

section is written. 
25 

RELICENSES10

2.1 NO-ACTION ALTERNATIVE 

The no-action alternative is the baseline from which to compare the proposed action 

and all action alternatives that are assessed in the environmental document. Under the noaction alternative, for relicenses, the project would continue to operate under the terms and 

conditions of the current license. For unlicensed, operating projects, the no-action 

alternative would be continuation of current operation. Thus the no-action alternative 

would include the existing facilities and current project operation. 

2.1.1 Existing Project Facilities 

Describe the existing project facilities and their dimensions. Provide a short history 

of the project’s development and operation. It's very important that readers understand how 

the project operates, and the connection between the project and the effects discussed later. 

 Otherwise, it will be very difficult to understand project-related effects. 

Describe the following existing features (specify dimensions and type of building 

materials, where appropriate): 

 

• Dams and spillways (including flashboards, if applicable) 

• Reservoirs (surface area and capacity at full pond elevation) 

• Conduits 

• Trashracks 

• Powerhouses (generating capacity) 

• Reservoirs (surface area and capacity at normal full pond elevation) 

• Transmission lines (voltage, length, right-of-way width) 

• Bypassed reach (length, width, estimated flow in bypassed reach) 

• Access roads 

• Project lands and facilities within the project boundary 

Clearly mark all features described in this section on the accompanying figure(s) (see figure 

2, List of Figures).

 10 This section will also largely apply to unlicensed, operating projects. 
26 

 Also provide a description of the project boundary, noting whether or not all of the 

project features are enclosed within the boundary. This can be a separate subsection.

Example of an Existing Project Facilities section for a relicense: 

2.1.1 Existing Project Facilities 

The proposed project would consist of a 100-foot-long, 30-foot-high concrete gravity overflow-type dam that 

impounds the 6-acre Blue Lake reservoir. A 40-foot-long, 25-foot-high intake structure along the right bank of the 

river, which is equipped with a 2.5-inch clear bar spaced trashrack, leads to a 6-foot-diameter, 60-foot-long gated 

penstock, which in turn leads to a powerhouse below the dam containing a single generating unit with an installed 

capacity of 1,000 kilowatts (kW). The penstock and powerhouse bypass about a 100-foot-long reach of the Blue 

River. All these facilities are existing. 

The project boundary includes about 16 acres of land. The project boundary generally follows the 636-foot 

msl elevation contour line, steps up to elevation 642 feet msl in the upper reaches of the reservoir, and expands to 

include lands around the project dam, powerhouse, switchyard, and recreational facilities (East picnic shelter and West 

boat launch). Municipal owns the lands downstream of the reservoir and a buffer zone around Lake Hudson up to 

elevation 622 feet msl, approximately 3 feet above the normal pool, all of which are within the project boundary. In 

addition, Municipal owns the lands associated with the aforementioned facilities. Other lands within the boundary are 

primarily privately owned, and Municipal owns flowage easements on these lands up to the project boundary. No 

federal or tribal lands are within the project boundary. 

2.1.2 Project Safety 

Example of Project Safety section for relicenses: 

2.1.2 Project Safety 

 The project has been operating for more than __ years under the existing license and during this time, 

Commission staff has conducted operational inspections focusing on the continued safety of the structures, 

identification of unauthorized modifications, efficiency and safety of operations, compliance with the terms of the 

license, and proper maintenance. Add the following sentence for projects that currently have Part 12(D) 

requirements: [In addition, the project has been inspected and evaluated every 5 years by an independent consultant 

and a consultant’s safety report has been submitted for Commission review.] As part of the relicensing process, the 

Commission staff would evaluate the continued adequacy of the proposed project facilities under a new license. 

Special articles would be included in any license issued, as appropriate. Commission staff would continue to inspect 

the project during the new license term to assure continued adherence to Commission-approved plans and 

specifications, special license articles relating to construction (if any), operation and maintenance, and accepted 

engineering practices and procedures. 

Example of Project Safety section for constructed operating unlicensed projects: 

2.1.2 Project Safety 

 As part of the licensing process, the Commission would prepare a Safety and Design Assessment (SD&A) 

covering the adequacy of the project facilities. Special articles would be included in any license issued, as appropriate. 

 Operational inspections would focus on the continued safety of the structures, identification of unauthorized 

modifications, efficiency and safety of operations, compliance with the terms of the license, and proper maintenance. 

Add the following sentence for a development that has a dam: (a) that is more than 32.8 feet in height above 

streambed; (b) that impounds an impoundment with a gross storage capacity of more than 2,000 acre-feet; or 
27 

(c) that has a high hazard potential rating. [In addition, any license issued would require an inspection and 

evaluation every 5 years by an independent consultant and submittal of the consultant’s safety report for Commission 

review.]

2.1.3 Existing Project Operation 

 Describe how the project currently operates (seasonally, monthly, daily, hourly, etc., 

as appropriate) and the project's existing mode of operation (peaking, run-of-river, storage). 

The reader should be able to visualize how water flows through the project from upstream 

to downstream. Use figures as appropriate (see figures 3 and 4). If existing operation 

differs from operating conditions in the current license, explain the differences (e.g., 

licensee may be voluntarily releasing greater minimum flows than required by a license 

condition). 

Example of an Existing Project Operation section for a relicense (Source: Cooper Lake EA, FERC No. 2170, 

November 17, 2006): 

2.1.3 Existing Project Operation 

Cooper Lake hydroelectric operations are managed by Chugach to maximize their value in an integrated 

generation network. The project is operated as a peaking facility. It is controlled and monitored remotely from 

Chugach’s dispatch center in Anchorage, although a project operator is on site 8 hours a day and can control operations 

directly. The project currently diverts all flow from Cooper Lake through the tunnel/penstock to the project 

powerhouse; there is no minimum flow requirement for Cooper Creek. The project has an average annual generation of 

about 48,500 MWh and an average outflow through the powerhouse of about 100 cubic feet per second (cfs) (73,000-

acre-feet/year). Powerhouse discharge ranges from 0 to 380 cfs into Kenai Lake, which is the source of the Kenai 

River. 

Chugach conservatively operates the project to prevent spill and overtopping the dam by generally limiting 

the maximum reservoir level to 1,194 feet mean sea level (msl). Although the licensed maximum reservoir level is 

1,210 feet, it has not exceeded 1,200 feet since 1965. The minimum reservoir level is generally maintained above 

1,170 feet. Typically Cooper Lake is drawn down from late fall until early spring, then rapidly refilled during the late 

spring and early summer snow melt, runoff that continues until early fall. Lowest reservoir levels occur in April to 

May and are the highest in August to October. On average, the reservoir fluctuates about 15 feet throughout the year. 

Daily fluctuations in water surface elevation do not exceed 1 inch over 24 hours due to power withdrawals, and 

typically do not vary more than one to two feet within a month. Project operation is not guided by a rule curve; rather 

by reservoir inflow, Chugach’s customer demands, and project safety.

2.1.4 Existing Environmental Measures 

In this section, describe the environmental measures the applicant currently 

implements, such as: 

• Fish passage facilities and screens 

• Minimum flows 

• Waterfowl nesting platforms 
28 

• Revegetation planting 

• Recreational facilities, etc. 

Note whether these are license requirements (include the license article numbers) or 

voluntary measures. Provide further detail and locate any facilities on maps in the 

individual resource sections. 

Example of a Existing Environmental Measures section for a relicense: 

2.1.4 Existing Environmental Measures 

The project includes a Denil fishway along the right bank of the river, which is operated during the months of 

July and August (article 401). Municipal releases a minimum flow of 100 cfs in the bypassed reach from May 1 

through October 31, to protect fishery resources and riparian vegetation (article 402). 

The project includes the following recreational facilities: (1) the Eastside campground; (2) two picnic areas at 

the north end of the project reservoir; (3) a bicycle trail around the project reservoir; and (4) a tailrace fishing area. 

2.2 APPLICANT’S PROPOSAL 

 This section describes proposed changes to the project, including changes in project 

facilities and operation, new environmental measures, and any proposed modifications to 

the project boundary. 

2.2.1 Proposed Project Facilities 

Describe any new facilities proposed or facilities proposed to be removed from the 

project. Also discuss any proposed changes to the project boundary. Include appropriate 

project safety language after last item of project description. 

Example of Proposed Project Facilities section: 

2.2.1 Proposed Project Facilities 

 Municipal proposes to add a third turbine to its South powerhouse. The turbine would have a capacity of 12 

MW, increasing the total capacity to 78 MW. 

 Municipal proposes to amend the project boundary to remove lands surrounding the reservoir above elevation 

334 feet msl. As a result, the project boundary would be reduced to 200 feet above the mean high water elevation and 

would enclose 12 acres of federal lands administered by the Bureau of Land Management. 
29 

2.2.2 Proposed Project Operation 

Describe how operation of the project would change under the applicant’s proposal. 

 Use figures as appropriate (see figures 3 and 4). 

Example of a Proposed Project Operation section: 

2.2.2 Proposed Project Operation 

 The project would continue to be operated in a run-of-river mode from May 1 through September 30. Green 

Power, however, proposes to modify project operations during the rest of the year for power purposes; reservoir 

fluctuations would increase from the current 5 feet below the normal elevation of 1,042 feet above msl to 10 feet 

during low-flow years. 

2.2.3 Proposed Environmental Measures 

Describe the environmental measures that the applicant proposes. Subheadings help 

to group measures by similar activities such as construction and operation or by similar 

resources such as fishery, recreation, and terrestrial resources, or soils. 

If there is a settlement agreement, analyze it as the proposed action. 

Example where an applicant proposes new construction: 

2.2.3 Proposed Environmental Measures 

Construction 

To control sediment and erosion during construction and operation, Municipal proposes to implement an 

Erosion and Sedimentation Control Plan. The plan includes guidelines for cofferdams used to de-water the excavation 

and construction sites, controlling erosion and sediment runoff during site access and project construction, disposing of 

excavated materials, and placing topsoil, seed, and mulch on all disturbed areas when construction is complete. 

Operation 

Municipal proposes to: 

• Operate the project by releasing a minimum flow of 222 cubic feet per second (cfs), or inflow, 

 whichever is less 

• Maintain impoundment level fluctuations within 1 foot of full pond during normal operation; 

• Monitor dissolved oxygen (DO), water temperature, and siltation at the project site; 

• Provide downstream fish passage facilities at Angus dam (under certain provisions, as discussed in 

 Aquatic Resources, section 3.3.2)
30 

Example of grouping environmental measures together by resource: 

2.2.3 Proposed Environmental Measures 

Wildlife 

Municipal proposes to: 

• Upgrade existing transmission lines to current raptor protection standards 

• Install three osprey nest platforms 

• Monitor noxious weed species

Recreation

To enhance recreation opportunities at the Angus Project, Municipal proposes to: 

• Improve the canoe portage 

• Install a barrier-free fishing pier at the tailrace fishing access 

• Construct a fish cleaning station at the impoundment access site

2.2.4 Modifications to Applicant’s Proposal--Mandatory Conditions 

 

This section includes a description of mandatory conditions provided under sections 

18, 4(e), or 30(c) of the FPA and under section 401 of the Clean Water Act. Attach the 

conditions as an appendix, as appropriate. For large sections, subdivide into subsections 

(e.g., 2.2.4.1, 2.2.4.2). 

Example of a Modifications to Applicant’s Proposal--Mandatory Conditions section:

2.2.4 Modifications to Applicant’s Proposal--Mandatory Conditions 

The following mandatory conditions have been provided and are evaluated as part of the Applicant’s 

proposal. 

Section 18 Prescriptions 

The U.S. Fish and Wildlife Service (FWS) section 18 prescription specifies: (1) construction of an upstream 

Denil fish ladder; (2) construction of downstream fish passage facilities, with guidance screen and a bypass sluice; and 

(3) development of a fish passage monitoring plan. 

Section 4(e) Land Management Conditions 

The conditions provided by the Forest Service under section 4(e) are as follows: conditions 1 through 4 are 

standard conditions that would involve obtaining Forest Service approval on final project design and project changes, 

and yearly consultation with the Forest Service to ensure the protection and development of natural resources; 

condition 5 requires a specific minimum flow regime and passive fish screening with downstream passage; and 

condition 6 requires Municipal to construct recreation facilities at the upper end of the reservoir (see appendix A). 

--example continued on next page— 

Water Quality Certification Conditions 
31 

The conditions of the WQC (appendix B) specify the following: 

• The licensee must monitor dissolved oxygen and water temperature at three stations in Copper Creek 

(upstream of the impoundment, at three depths in the impoundment--surface, bottom, mid-depth--and downstream of 

the tailrace) 

• Monitoring must occur once each month during a non-rain condition for a 3-day period during June, July, 

August, and September, and samples are to be collected between 6 a.m. and 8 a.m. 

• Equipment calibration and quality control measures must be instituted to assure accurate reporting 

• Monitoring must be conducted under as close to limiting water quality conditions as possible [i.e., water 

temperatures of 20 degrees centigrade (oC) or greater and river flows below 50 cfs] 

• Water quality monitoring and quality assurance/quality control procedures must be reported on an annual 

basis and a yearly summary report must be submitted to the DES-Division of Water Supply and Pollution Control 

• All existing water uses will be maintained and protected and at no time shall the project cause Class B water 

quality standards to be violated 

2.3 STAFF ALTERNATIVE 

This section would not be included in Exhibit Es prepared under the ILP or APEAs 

prepared under the ALP. 

The other action alternative analyzed throughout the environmental document, with 

rare exceptions, is a staff alternative. This may include modifications to the applicant’s 

proposal, along with additional measures that staff recommends, such as mandatory 

conditions under sections 4(e) or 18 of the FPA, fish and wildlife recommendations under 

section 10(j), and recommendations under section 10(a). 

Example of a Staff Alternative section 

2.3 STAFF ALTERNATIVE

Under the staff alternative, the project would include Municipal 's proposals for the following: (1) controlling 

erosion and sedimentation; (2) operating the reservoir within 1 foot of full pool; (3) protecting aquatic resources 

upstream and downstream from the project; (4) avoiding or mitigating adverse effects on threatened, endangered, and 

sensitive species; (5) mitigating the visual impacts of new project facilities; and (6) managing project lands and waters 

for recreation. Our alternative would not include Municipal’s proposal to construct additional camping areas along the 

reservoir shoreline. 

The staff alternative would also include all the preliminary section 4(e) conditions specified by the Bureau of 

Land Management. 

In addition, this alternative would include the following measures: (1) monitoring water temperature and 

dissolved oxygen downstream of the project tailrace for a minimum of 3 consecutive years after license issuance; and 
32 

(2) monitoring bank erosion and channel instability upstream of the reservoir. Proposed and recommended measures 

are discussed under the appropriate resource sections and summarized in section 4 of the EA.

2.4 STAFF ALTERNATIVE WITH MANDATORY CONDITIONS 

This section would not be included in an Exhibit E prepared under the ILP or an 

APEA prepared under the ALP. 

 The Staff Alternative may exclude some significant mandatory conditions based on 

our comprehensive analysis. Since the Commission must include all valid mandatory 

conditions in any license issued, we evaluate an alternative--Staff Alternative with 

Mandatory Conditions--that includes these excluded conditions, as well as any 

modifications that may be needed to staff-recommended measures. 

Example of Staff Alternative with Mandatory Conditions alternative for relicenses:

2.4 STAFF ALTERNATIVE WITH MANDATORY CONDITIONS 

We recognize that the Commission is required to include valid section 4(e) conditions in any license issued 

for the project. The Staff Alternative with Mandatory Conditions includes staff-recommended measures along with the 

mandatory conditions that we did not include in the Staff Alternative: (1) release of a minimum flow of 300 cfs from 

the Black Creek diversion; and (2) construction of a camp site at the north end of the reservoir. 

Incorporation of these mandatory conditions into a new license would cause us to modify or eliminate some of 

the environmental measures that we include in the Staff Alternative. Our recommendation for habitat improvements in 

Black Creek would no longer be necessary given the Forest Service minimum flow conditions.. 

2.5 OTHER ALTERNATIVES 

Typically, resource agency recommendations (e.g., minimum flow releases, wetland 

mitigation) are not analyzed as a discrete NEPA alternative, so you need to ensure that all 

effects of their recommendations are disclosed in all appropriate resource sections. On 

occasion, however, to improve clarity of the document we may look at an operational 

alternative (e.g., run-of-river operation) or alternative location of a project facility as a 

distinct alternative throughout the document. 

In rare situations, we may evaluate agency recommendations as a distinct 

alternative, but only if they comprise a complete package of measures addressing all 

affected resource areas. Providing a summary of these alternatives gives the reader some 

idea of the alternatives analyzed in the environmental document. To the extent possible, 

involved resource agencies should coordinate with each other on their recommendations 

and endeavor to minimize or eliminate inconsistencies among them to facilitate analysis. In 

limited cases, the agencies will submit to FERC a consistent set of recommendations, with 
33 

a request that they be analyzed as an alternative. If you determine that the set of 

recommendations are a complete, distinct alternative, analyze the recommendations as one 

of the action alternatives. Similarly, if a single agency requests that we evaluate their 

recommendations as a distinct alternative, include them in the NEPA document as part of a 

complete NEPA alternative if you determine that they provide the basis for a reasonable 

alternative. 

Example of an additional alternative analyzed throughout the document: 

2.5 RELICENSING THE PROJECTS WITH A REDUCED LEVEL OF ENVIRONMENTAL 

MEASURES 

 This alternative was recommended by the commenters at the public meeting conducted in Chugwater, 

Wyoming, on April 1, 2000. This option would include the modified operating regimes for the projects as proposed in 

the applicant's proposal, but would exclude most of the other environmental measures described in the applicant's 

proposal. Our analysis of this alternative is found in section 3.

Another example of an additional alternative analyzed throughout the document: 

2.5 FISH PASSAGE ALTERNATIVE

Based on discussions with the FWS and NMFS during pre-filing consultation, Municipal analyzed the effects 

of a fish passage alternative on the project’s environmental and economic resources. 

The Fish Passage Alternative, which was discussed during pre-filing meetings as a potential alternative, 

includes the measures listed in Municipal’s proposal (see sections 2.2.1 and 2.2.3) plus downstream fish passage 

facilities for resident fish at the project as follows: 

 • At the Angus No.1 Development, replace all existing trash racks with 1-inch racks; provide an attraction flow 

equal to 2 percent of turbine capacity (130 cfs) through the existing minimum flow gate for fish passage; 

provide a conveyance flow of at least 20 cfs through an open-channel chute; and create a plunge pool at the 

bottom of the chute appropriately sized to cushion the impact of downstream conveyance 

 • At the Angus No.2 Development, replace the existing trashracks with 1-inch racks; provide an attraction flow 

of 150 cfs (2 percent of turbine capacity) and a conveyance flow of 20 cfs through an open-channel chute on 

the spillway; and create a 20-foot-deep plunge pool 

FWS recommends that the Angus No.1 impoundment be limited to a maximum of 1-foot drawdown year-round. These 

recommendations are discussed in the respective resource areas.

2.6 ALTERNATIVES CONSIDERED BUT ELIMINATED FROM 

FURTHER ANALYSIS 

Before you begin your analysis of the resource issues, look at a wide range of 

alternatives to the proposal. It is possible that circumstances of a particular project make 

license denial and/or project retirement a reasonable alternative for purposes of NEPA, and, 

if so, include this analysis of license denial. Otherwise, briefly explain why license denial 

is being eliminated from further consideration. 
34 

 

Often, you'll look at these alternatives but decide not to give them detailed analysis 

for economic, environmental, or engineering reasons. In this section, document these 

alternatives, such as issuing a non-power license [section 15(f) of the FPA],11 federal 

takeover (section 14 of the FPA),12 or project retirement, to show the range of alternatives 

you considered in reviewing the project and why you don't think these alternatives warrant 

further analysis. 

Example of a Alternative Considered but Eliminated from Further Analysis section (for relicenses): 

2.6 ALTERNATIVES CONSIDERED BUT ELIMINATED FROM FURTHER ANALYSIS 

 We considered several alternatives to the applicant’s proposal, but eliminated them from further analysis 

because they are not reasonable in the circumstances of this case. They are (list alternatives considered): (1) issuing a 

non-power license; and (2) Federal Government takeover of the project.

Example of language used for the non-power license alternative (for relicenses): 

2.6.1 Issuing a Non-power License

A non-power license is a temporary license that the Commission will terminate when it determines that 

another governmental agency will assume regulatory authority and supervision over the lands and facilities covered by 

the non-power license. At this point, no agency has suggested a willingness or ability to do so. No party has sought a 

non-power license and we have no basis for concluding that the project should no longer be used to produce power. 

Thus, we do not consider issuing a non-power license a realistic alternative to relicensing in this circumstance.

 11 Issuing a non-power license is not applicable where section 15 of the FPA has been waived.

12 Federal takeover is not applicable where section 14 of the FPA has been waived or the applicant is a state 

or municipal entity. 
35 

Example of language used to address federal takeover and operation of the project as an alternative (for 

relicenses): 

2.6.2 Federal Government Takeover of the Project

We don't consider federal takeover to be a reasonable alternative. Federal takeover and operation of the 

project would require Congressional approval. While that fact alone wouldn't preclude further consideration of this 

alternative, there is no evidence to indicate that federal takeover should be recommended to Congress. No party has 

suggested federal takeover would be appropriate, and no federal agency has expressed an interest in operating the 

project.

The consideration of whether to include a detailed analysis of a project retirement 

alternative in a NEPA document should begin early in the process during the scoping stage. 

In addressing this issue, you should consider, where applicable, and where information is 

available, the beneficial or adverse effects of the project on a variety of resources or 

interests, including but not limited to: (1) listed threatened or endangered species; 

(2) economic viability of the project, including costs of resource protection measures; 

(3) whether the river is targeted for fish recovery; (4) feasibility of fish passage; 

(5) consistency with comprehensive plan(s); (6) protected river status (e.g., scenic river, 

wilderness area); (7) effectiveness of past mitigation measures and availability of future 

measures; (8) support by applicant or other party for project retirement; (9) Tribal lands, 

resources, or interests; (10) water quality issues, including presence of toxic sediments; 

(11) potential opportunities for recreation; (12) physical condition of project; (13) presence 

of existing project-dependent development (e.g., houses abutting reservoir); (14) other nonpower project-related benefits (e.g., municipal water supply, flood control, irrigation); 

(15) project-dependent resource values (e.g., recreation, wetlands, wildlife, habitat); 

(16) need for power and ancillary services; and (17) historic properties. In comments on 

Scoping Document 1, or as early in the process as possible, resource agencies should 

provide information relating to these factors in their areas of expertise. 

Example of language used to dismiss project retirement as an alternative (for relicenses): 

2.6.3 Retiring the Project 

Project retirement could be accomplished with or without dam removal. Either alterative would involve 

denial of the relicense application and surrender or termination of the existing license with appropriate conditions. No 

participant has suggested that dam removal would be appropriate in this case, and we have no basis for recommending 

it. [Explain why dam removal is considered unreasonable. For example, the reservoir may serve other important 

purposes, such as recreation, irrigation, municipal water supply, or flood control, regardless of whether power is 

produced.] Thus, dam removal is not a reasonable alternative to relicensing the project with appropriate protection, 

mitigation and enhancement measures.
36 

 The second project retirement alternative would involve retaining the dam and disabling or removing 

equipment used to generate power. Project works would remain in place and could be used for historic or other 

purposes. This would require us to identify another government agency with authority to assume regulatory control 

and supervision of the remaining facilities. No agency has stepped forward, and no participant has advocated this 

alternative. Nor have we any basis for recommending it. Because the power supplied by the project is needed, a 

source of replacement power would have to be identified. In these circumstances, we don't consider removal of the 

electric generating equipment to be a reasonable alternative.

ORIGINAL LICENSES 

2.1 NO-ACTION ALTERNATIVE 

 For original licenses, the no-action alternative would be denial of the license. 

Example of No-action Alternative section for an original license: 

2.1 NO-ACTION ALTERNATIVE 

 The no-action alternative is license denial. Under the no-action alternative, the project would not be built and 

environmental resources in the project area would not be affected.

2.2 APPLICANT’S PROPOSAL 

2.2.1 Project Facilities 

Describe the proposed project facilities and their dimensions. It's very important 

that readers understand how the project would operate, and the connection between the 

project and the impacts discussed later. Otherwise, it will be very difficult to understand 

project-related impacts. 

Describe the following features (specify dimensions and type of building materials, 

where appropriate), indicating which facilities are existing and which ones are proposed: 

 

• Dams and spillways (including flashboards, if applicable) 

• Reservoirs (surface area and capacity at full pond elevation) 

• Conduits 

• Trashracks 

• Powerhouses (generating capacity) 

• Reservoirs (surface area and capacity at normal full pond elevation) 

• Transmission lines (voltage, length, right-of-way width) 

• Bypassed reach (length, width, estimated flow in bypassed reach) 
37 

• Access roads 

• Project lands and facilities within the project boundary 

 Clearly mark all features described in this section on the accompanying figure(s) 

(see figure 2, List of Figures).

 Also provide a description of the proposed project boundary, noting whether or not 

all of the project features are enclosed within the boundary. This can be a separate 

subsection.

Example of a Project Facilities section for original license: 

2.2.1 Project Facilities 

The proposed project would consist of an existing 100-foot-long, 30-foot-high concrete gravity overflow-type 

dam that impounds the 6-acre Blue Lake reservoir. A new 40-foot-long, 25-foot-high intake structure would be 

constructed along the right bank of the river, and would be equipped with a 2.5-inch clear bar spaced trashrack, leading 

to a new 6-foot-diameter, 60-foot-long gated penstock, which in turn would lead to a new powerhouse below the dam 

containing a single generating unit with an installed capacity of 1,000 kilowatts (kW). A 2.2-mile-long, 69-kilovolt 

transmission line would be constructed. The penstock and powerhouse would bypass about a 100-foot-long reach of 

the Blue River. 

The proposed project boundary encloses the project dam, powerhouse, intake structure, transmission line, and 

the project impoundment to a point about 0.5 mile upstream of the project dam. The impoundment is bordered 

upstream by the influence of the project dam (water surface elevation 501.4 feet msl), downstream by the lower apron 

of the project dam, and between these two points by the cut bank of the shoreline. 

2.2.2 Project Safety 

Example of Project Safety section for original, unconstructed licenses (including those utilizing existing 

privately or federally owned dams): 

2.2.2 Project Safety 

 As part of the licensing process, the Commission would review the adequacy of the proposed project 

facilities. Special articles would be included in any license issued, as appropriate. Commission staff would inspect the 

licensed project both during and after construction. Inspection during construction would concentrate on adherence to 

Commission-approved plans and specifications, special license articles relating to construction, and accepted 

engineering practices and procedures. Operational inspections would focus on the continued safety of the structures, 

identification of unauthorized modifications, efficiency and safety of operations, compliance with the terms of the 

license, and proper maintenance. Add the following sentence for a development that has or will have a dam: 

(a) that is more than 32.8 feet in height above streambed; (b) that impounds an impoundment with a gross 

storage capacity of more than 2,000 acre-feet; or (c) that has a high hazard potential rating.[ In addition, any 

license issued would require an inspection and evaluation every 5 years by an independent consultant and submittal of 

the consultant’s safety report for Commission review.]
38 

2.2.3 Project Operation 

Describe how the project would operate (seasonally, monthly, daily, hourly, etc., as 

appropriate) and proposed mode of operation (peaking, run-of-river, storage). The reader 

should be able to visualize how water would flow through the project from upstream to 

downstream. Use figures as appropriate (see figures 3 and 4). 

Example of Project Operation section for an original license: 

2.2.3 Project Operation 

 The proposed project would operate run-of-river, and at all times provide water over the crest of the dam. 

The project would use up to 80 cfs (the maximum turbine capacity) of flows from the San Marcos River. The project 

has no bypassed reach, and the dam has no gates or water control features; therefore, the hydropower project is not 

expected to modify existing water surface elevations in the impoundment. 

2.2.4 Environmental Measures 

Describe the environmental measures that are proposed by the applicant. 

Subheadings help to group measures by similar activities such as construction and 

operation or by similar resources such as fishery, recreation, and terrestrial resources, or 

soils. 

If there is a settlement agreement, analyze it as the proposed action. 

Example of Environmental Measures section for original license: 

2.2.4 Proposed Environmental Measures 

Hydraco proposes to: (1) operate run-of-river, and at all times provide water over the crest of the dam; (2) 

repair an existing trash rack; (3) install and maintain a staff gage at the dam; (4) shut down generation at the project 

and pass all flows over the dam when flows in the San Marcos River, as measured at the San Marcos stream flow gage, 

are 100 cfs or less; (5) provide an annual report of weekly flows at the project; and (6) to improve project safety, 

provide signage to an existing boat portage around the project dam. 

2.2.5 Modifications to Applicant’s Proposal—Mandatory Conditions 

 

This section includes a description of mandatory conditions provided under sections 

18, 4(e), or 30(c) of the FPA and under section 401 of the Clean Water Act. Attach the 

conditions as an appendix, as appropriate. For large sections, subdivide into subsections 

(e.g., 2.2.5.1, 2.2.5.2, etc.). For an example, see section 2.2.4 for relicenses above. 
39 

2.3 STAFF ALTERNATIVE 

This section would not be included in an Exhibit E prepared under the ILP or an 

APEA prepared under the ALP. 

The other action alternative analyzed throughout the environmental document, with 

rare exceptions, is a staff alternative. This may include modifications to the applicant’s 

proposal, along with additional measures that staff recommends, such as mandatory 

conditions under sections 4(e) or 18 of the FPA, fish and wildlife recommendations under 

section 10(j), and recommendations under section 10(a). For an example, see section 2.3 

for relicenses above. 

2.4 STAFF ALTERNATIVE WITH MANDATORY CONDITIONS 

This section would not be included in an Exhibit E prepared under the ILP or an 

APEA prepared under the ALP. 

 The Staff Alternative may exclude some significant mandatory conditions based on 

our comprehensive analysis. Since the Commission must include all valid mandatory 

conditions in any license issued, we evaluate an alternative--Staff Alternative with 

Mandatory Conditions--that includes these excluded conditions as well as any 

modifications that may be needed to staff-recommended measures. For an example, see 

section 2.4 for relicenses above. 

2.5 OTHER ALTERNATIVES 

Typically, resource agency recommendations (e.g., minimum flow releases, wetland 

mitigation) are not analyzed as a discrete NEPA alternative, so you need to ensure that all 

effects of their recommendations are disclosed in all appropriate resource sections. On 

occasion, however, to improve clarity of the document we may look at an operational 

alternative (e.g., run-of-river operation) or alternative location of a project facility as a 

distinct alternative throughout the document. 

In rare situations, we may evaluate agency recommendations as a distinct 

alternative, but only if they comprise a complete package of measures addressing all 

affected resource areas. Providing a summary of these alternatives gives the reader some 

idea of the alternatives analyzed in the environmental document. To the extent possible, 

involved resource agencies should coordinate with each other on their recommendations 

and endeavor to minimize or eliminate inconsistencies among them to facilitate analysis. In 
40 

limited cases, the agencies will submit to FERC a consistent set of recommendations, with 

a request that they be analyzed as an alternative. If you determine that the set of 

recommendations are a complete, distinct alternative, analyze the recommendations as one 

of the action alternatives. Similarly, if a single agency requests that we evaluate their 

recommendations as a distinct alternative, include them in the NEPA document as part of a 

complete NEPA alternative if you determine that they provide the basis for a reasonable 

alternative. For an example, see section 2.5 for relicenses above. 

2.6 ALTERNATIVES CONSIDERED BUT ELIMINATED FROM 

FURTHER ANALYSIS 

Before you begin your analysis of the resource issues, look at a wide range of 

alternatives to the proposal. Often, you'll look at these alternatives but decide not to give 

them detailed study for economic, environmental, or engineering reasons. In this section, 

document these alternatives to show the range of alternatives you considered in reviewing 

the project and why you don't think these alternatives warrant further analysis. 

 

Examples of Alternatives Considered but Eliminated from Further Consideration sections (Source: Falls Creek 

Hydroelectric Project and Land Exchange FEIS, FERC No. 11659, June 2004): 

2.6.1 Minimum Corridor Alternative 

We considered an alternative that would include 42 acres of private land and transfer the absolute minimum 

amount of land (75 acres) to the state of Alaska in the form of a narrow corridor along the road, penstock and 

transmission line right-of-way, and small parcels of land around the powerhouse and diversion sites and in areas of 

materials extraction for construction. However, we eliminated this alternative because the narrow corridor would fail 

to provide an adequate buffer between project lands and GBNPP lands. This alternative would not be consistent with 

sound land management practices because the presence of project roads, traversing wilderness areas but not subject to 

park management and control and without any buffer lands surrounding them would create a high risk for unauthorized 

incursions into park land by hunters, recreationists, and others using motorized vehicles. 

2.6.2 Components of Project Alternatives Considered and Dismissed 

We considered a number of alternative project components that were ultimately judged not to be reasonable 

under the circumstances of this project. After this determination, we eliminated the components from detailed study. 

Powerhouse Location 

One alternative configuration was to locate the powerhouse on the beach between the George and Mills 

allotments. Although this location would be the most economical in terms of construction costs and would provide the 

most generation, it was eliminated because of substantial environmental effects. This would divert flow to an adjacent 

basin and alter streamflow throughout the reach of the Kahtaheena River that supports anadromous fish. Further, the 

tailrace might attract spawning salmon away from the Kahtaheena River and the location of the access road along the 

beach would affect shoreline habitat and aesthetics. Another alternative was to place the powerhouse in a shaft 

excavated from the ridge just west of the Lower Falls, but high costs made it uneconomical. Placement of the 

powerhouse in its proposed location, but without a tailrace pipeline discharging further upstream, was rejected due to 

the effects on streamflow in areas used by salmon. 
41

3.0 ENVIRONMENTAL ANALYSIS 

The analysis of issues and alternatives is the substance of the environmental 

document. The environmental analysis section is divided into general setting; the scope of 

environmental analysis, including the resources that are cumulatively affected; an analysis 

of the proposed action and other recommended environmental measures; other action 

alternatives, as appropriate; and the no-action alternative. 

Below, we break down each part of the environmental analysis section, describe its 

purpose, and provide examples. 

Example of introductory paragraph of the Environmental Analysis section: 

In this section, we present: (1) a general description of the project vicinity; (2) an explanation of the scope 

of our cumulative effects analysis; and (3) our analysis of the proposed action and other recommended environmental 

measures. Sections are organized by resource area (aquatic, recreation, etc.). Under each resource area, historic and 

current conditions are first described. The existing condition is the baseline against which the environmental effects 

of the proposed action and alternatives are compared, including an assessment of the effects of proposed mitigation, 

protection, and enhancement measures, and any potential cumulative effects of the proposed action and alternatives. 

Staff conclusions and recommended measures are discussed in section 5.2, Comprehensive Development and 

Recommended Alternative of the EA [or EIS].

 1

_____________________ 

1 Unless noted otherwise, the sources of our information are the license application (Union Electric, 2004a) 

and additional information filed by Union Electric (2004b, and 2005). 

3.1 GENERAL SETTING 

In this section, briefly describe the general setting in which the project is located, or 

will be located. 

 • Describe the river system, including relevant tributaries 

 • Give measurements of the area of the basin and length of stream 

 • Identify the project's river mile designation or other reference point 

 • Describe the topography and climate 

 • Discuss major land uses and economic activities 
42

Example of a General Setting section: 

3.1 GENERAL SETTING 

The Copper River is formed by the confluence of the Suger and Swet Rivers near Foster, Wyoming. The 

river flows generally southeast for 30 miles into the Gulf of Mexico. The topography of the basin is characterized by 

mountainous areas in the western part, gradually changing to low, rounded hills, and level areas of unconsolidated 

soils in the eastern section. The total drainage area of the basin is about 10,060 miles. Water from the river is used 

by most of the cities, towns, and industries along the river for industrial uses (73 percent), public water supply (17 

percent), and agricultural uses (10 percent). Annual precipitation for the basin is about 40 inches and average 

temperature is about 57 degrees Fahrenheit. 

Drainage to the project's impoundment comes from the mountainous areas in the western part of the basin. 

The terrain of the project area is hilly with common changes in elevation from 200 to 600 feet. Immediately next to 

the project impoundment, rock formations are exposed, forming valley walls up to 200 feet high with very steep 

slopes. 

At the project, located at river mile 11, the river drains about 3,257 square miles of land, representing about 

one-third of the total drainage area of the basin. The primary use of the project waters is for city water supply. The 

area upstream of the project is rural, with small farms. The city is located on the south side of the river downstream 

of the project. Within the city limits, there is a spillway dam called the city dam, located 3.75 miles downstream of 

the project. The headpool of the city dam backs up to the tailrace of the Angus Project; there is no hydroelectric 

facility at the city dam.

3.2 SCOPE OF CUMULATIVE EFFECTS ANALYSIS 

In this section, identify resources that will get a cumulative effects analysis based 

on the scoping meetings, site visit, and comments on the scoping documents; the license 

application; public interest in a particular resource; and consultation with the agencies and 

nongovernmental organizations (NGOs). With that information, determine the appropriate 

geographic and temporal scope of analysis for those resources. Below, we discuss: (1) 

how to determine which resources need a cumulative effects analysis; (2) the geographic 

scope of the cumulative analysis; and (3) the temporal scope of analysis. 

(1) Selecting Resources for Cumulative Analysis: 

 CEQ defines cumulative effects as effects on the environment that result from the 

incremental effect of the action when added to other past, present, and reasonably 

foreseeable future actions regardless of what agency or person undertakes the actions. 

[See generally, 40 CFR 1508.8.] Cumulative effects can result from individually minor, 

but collectively significant actions, taking place over a period of time. 

Hydropower projects can contribute to cumulative effects when their effects 

overlap with those of other activities in space, or time, or both. Effects can be either direct 

or indirect. Direct effects are those that occur in the same place and at the same time and 

are a direct result of the proposed action. For example, water quality downstream of a 

project might be affected by reduced spillage at the dam in concert with irrigation 
43

withdrawals. Indirect effects can occur at a distance from the proposed action, or the 

effects may appear some time after the proposed action occurs. For example, an upstream 

timber harvest area and upstream water sewage treatment plant may affect water quality, 

in addition to the effects on water quality from the proposed action. 

 

 Most cumulative effects analysis will identify varying levels of beneficial and 

adverse effects depending on the resource and the individual action. 

Additional guidance on defining cumulative analysis resources can be found in 

Considering Cumulative Effects under the National Environmental Policy Act (Council on 

Environmental Quality, 1997).13 

Example of a Cumulative Effects Analysis section with a resource selected: 

3.2 SCOPE OF CUMULATIVE EFFECTS ANALYSIS

 According to the Council on Environmental Quality’s regulations for implementing NEPA (40 CFR, section 

1508.7), cumulative effect is the impact on the environment that results from the incremental impact of the action 

when added to other past, present, and reasonably foreseeable future actions regardless of what agency (federal or 

non-federal) or person undertakes such other actions. Cumulative impacts can result from individually minor but 

collectively significant actions taking place over a period of time, including hydropower and other land and water 

development activities. 

 Based on our review of the license application and agency and public comments, we have identified 

anadromous fish species and recreational boating as having potential to be cumulatively affected by the project in 

combination with other past, present, and future activities. Anadromous fish species were selected because irrigation, 

domestic water treatment, and hydroelectric developments and diversions along the waterway have affected the 

fishery and habitat by altering the flow regime, blocking or delaying fish movement, and entraining fish into diversion 

canals or penstocks. Recreational boating was selected because a series of dams in the vicinity have diminished 

canoeing and kayaking opportunities as a result of inundation of whitewater and reduced flows downstream of dams.

Example of a Cumulative Effects Analysis section with no resources selected: 

3.2 SCOPE OF CUMULATIVE EFFECTS ANALYSIS

According to the Council on Environmental Quality’s regulations for implementing NEPA (40 CFR, section 

1508.7), cumulative effect is the impact on the environment which results from the incremental impact of the action 

when added to other past, present, and reasonably foreseeable future actions regardless of what agency (federal or 

non-federal) or person undertakes such other actions. Cumulative impacts can result from individually minor but 

collectively significant actions taking place over a period of time, including hydropower and other land and water 

development activities. Through scoping, agency consultation, and our independent analysis we've identified no 

resources that would be cumulatively affected by continuing to operate the Angus Project. The project is located in a 

very small watershed with very little existing or planned future developmental activity other than the existing hydro 

project.

 13 This document is available on the web at http://ceq.eh.doe.gov/nepa/ccenepa/ccenepa.htm. 
44

(2) Geographic Scope of Cumulative Analysis 

 As the CEQ says, without spatial boundaries (geographic), a cumulative effects 

assessment would be global, and while this may be appropriate for some issues such as 

global warming, it’s not appropriate for most other issues. The scoping process, 

consultation, site visits, and the license application will help you identify resources that are 

cumulatively affected. Here, briefly describe how those resources are cumulatively 

affected and explain your choice of the geographic scope of analysis. It’s important to 

remember that not every resource will necessarily have the same geographic scope. 

To determine spatial boundaries, consider the distance the effect can travel in the 

context of resource effects from other hydro and non-hydro activities that might affect a 

wide area. Specifically, determine the area(s) that will be affected by the proposed action 

(impact zone), list the cumulative effects resources within that area that could be affected 

by the proposed action, and determine the geographic area outside of the impact zone that 

is occupied by those resources. Finally, consider the management plans and jurisdictions 

of other agencies for the cumulatively affected resource. 

For hydropower projects, the geographic scope may be the river basin or mainstem 

river for some resources such as anadromous fish, or the stream reach and surrounding 

lands for an endangered plant. Describe the geographic scope for each cumulatively 

affected resource. 

When defining your geographic scope, discuss the location of other hydropower 

projects and other major developmental activities within the area (such as water 

withdrawals for irrigation or public water supply; a steam plant that discharges into the 

impoundment; a water sewage treatment plant located upstream of the project; or a paper 

mill located on the river that affects water quality). Include a schematic diagram of these 

developments and/or list them in a table. Briefly describe how your project interacts, 

affects, or is affected by, these other hydro and water resource developments. The length 

of discussion should reflect the significance of the interaction. Include details of the 

effects of these interactions in the Environmental Effects section. 
45

Example of a Geographic Scope section: 

3.2.1 Geographic Scope 

The geographic scope of the analysis defines the physical limits or boundaries of the proposed action’s 

effects on the resources. Because the proposed action would affect the resources differently, the geographic scope for 

each resource may vary. 

There are about 44 other dams used for hydroelectric generation in the Copper River Basin. About half of 

these dams are located on the lower 80-mile-long part of the basin while the other half are located in the upper 70-

mile-long part of the basin. An 80-mile-long segment of the river separates these two groupings of dams. 

These dams have cumulatively affected the fishery (anadromous fish species) and recreation (canoeing and 

kayaking) on the Copper River. In the Aquatic Resources (section 3.3.2) and Recreation and Land Use (section 

3.3.5) sections of this draft EA, we discuss the site-specific as well as the cumulative effects of relicensing the Angus 

Project on anadromous fish and recreational boating. 

Since a series of dams in the lower reach of the Copper River block the access of several anadromous fish 

species, we limit our look at the cumulative fishery effects of the Angus Project to potential measures that would help 

restore fish populations in the basin. 

To look at the cumulative impacts on recreational boating, we limit our analysis to the upper river--the 20-

mile-long reach between Copper Falls and Copper City--where there are eight existing dams. 

(3) Temporal Scope of Analysis 

The temporal scope includes a brief discussion of past, present, and future actions, 

and their effects on resources based on the new license term (30-50 years). 

Example of a Temporal Scope section: 

3.2.2 Temporal Scope

The temporal scope of analysis includes a discussion of the past, present, and reasonably foreseeable future 

actions and their effects on water, fishery, and recreational resources. Based on the term of the proposed license, we 

will look 30 to 50 years into the future, concentrating on the effects on anadromous fish and recreational boating from 

reasonably foreseeable future actions. The historical discussion is limited, by necessity, to the amount of available 

information. We identified the present resource conditions based on the license application, agency comments, and 

comprehensive plans.

3.3 PROPOSED ACTION AND ACTION ALTERNATIVES 

This is the section of the environmental document that explains the effects of the 

action alternatives on a variety of environmental resources. It begins with a brief 

description of how the section is organized, and includes a brief discussion of resources 

that wouldn't be affected by the proposed action, and, therefore, won't get a detailed 

analysis. Explain why those resources did not get the more detailed analysis. 
46

Example of the Proposed Action and Action Alternatives introductory paragraph: 

In this section, we discuss the effects of the project alternatives on environmental resources. For each resource, 

we first describe the affected environment, which is the existing condition and baseline against which we measure effects. 

 We then discuss and analyze the specific cumulative and site-specific environmental issues. 

Only the resources that would be affected, or about which comments have been received, are addressed in 

detail in this EA. Based on this, we have determined that water quality and quantity, aquatic, terrestrial, threatened 

and endangered species, recreation, cultural, and aesthetic resources may be affected by the proposed action and 

action alternatives. We have not identified any substantive issues related to geology and socioeconomics associated 

with the proposed action, and therefore, these resources are not assessed in the EA. Land use is addressed in the 

recreation and terrestrial sections. We present our recommendations in section 5.2, Comprehensive Development and 

Recommended Alternative section. 

For all resources that will be addressed, describe, by resource: 

• The affected environment 

• Your analysis of the proposed action and any other recommended alternatives or 

measures (“Our Analysis”) 

The amount of detail included in each section should be commensurate with 

the complexity of the action, importance of the resources, and potential for 

environmental effects. Specific guidance on preparing this section is found in 

Attachment A, Specific Guidance for Resource Discussions. 

 This section should only include an analysis of the effects of the action alternatives 

on environmental resources. Any staff-recommended alternatives or measures based on 

that analysis only appear only in section 5.2, Comprehensive Development and 

Recommended Alternative. 

 Affected Environment 

40 CFR, Section 1502.15--Affected environment. 

The environmental impact statement shall succinctly describe the environment of the area(s) to be 

affected or created by the alternatives under consideration. The descriptions shall be no longer 

than is necessary to understand the effects of the alternatives. Data and analyses in a statement 

shall be commensurate with the importance of the impact, with less important material summarized, 

consolidated, or simply referenced. Agencies shall avoid useless bulk in statements and shall 

concentrate effort and attention on important issues. Verbose descriptions of the affected 

environment are themselves no measure of the adequacy of an environmental impact statement. 

The affected environment is the existing condition and the baseline against which to 

measure the effects of the proposed project and any alternative actions. For cumulatively 

affected resources, the affected environment is divided into two parts: a discussion of past 

actions and activities within the geographic scope of analysis, and the resource as it is 

today. First, discuss the effects of past activities/actions on the cumulatively affected 
47

resource; the amount of available information will limit the length of this discussion (this 

doesn't require a detailed account of everything that has happened). Quantify the effects 

on a resource when information is available. Then discuss the existing environment--what 

currently exists and what's affected by the project and non-hydro activities. Finally, 

include information on the resource’s status and expected future condition, based on trends 

and anticipated developmental activities in the basin.14

 Some general tips for writing the affected environment section: 

• Provide only the background in the affected environment necessary to support 

the effects analysis that follows 

• Quantify information contained in descriptions, based on available information 

• Indicate the biological, cultural, and social importance and uniqueness of the 

resources and, if appropriate, its economic importance to the region (e.g., regionally 

significant fishery resources, last remaining patch of old-growth) 

• Cite supporting literature and letters 

• Depict conditions and effects under the no-action alternative 

• Ongoing project and non-project effects should be briefly discussed in the affected 

environment section to the extent they influence the current status, condition, or 

trends of a resource—however, if discussion of ongoing project effects is germane 

to the analysis of environmental effects (e.g., existing entrainment mortality), then 

the discussion should be included in the Environmental Effects section instead 

Example of Affected Environment section with no cumulatively affected resources: 

3.3.3 Terrestrial Resources 

Affected Environment

 The project is located in the foothills of the Wild River Range, just above Copper Valley. The landscape is 

characterized by high relief, with extremely steep side slopes, and a narrow valley. Photographs of the project area 

show a vegetative community dominated by mixed coniferous forest on the slopes above Copper Creek, interspersed 

with open areas in talus and grasses. Riparian areas are confined to narrow bands of vegetation along the reservoir 

and the banks of Copper Creek. A variety of wildlife species occupy the project area including elk, fox, mule deer, 

and mountain lion. However, the project does not include any crucial big game or bird habitats. 

 14 For Exhibit Es prepared for ILP projects, the applicant must provide “a detailed description of the affected 

environment or area(s) to be affected by the proposed project by each resource area. This description must include 

the information on the affected environment filed in the Pre-Application Document provided for in section 5.6, 

developed under the applicant's approved study plan, and otherwise developed or obtained by the applicant. This 

section must include a general description of socio-economic conditions in the vicinity of the project including 

general land use patterns (e.g., urban, agricultural, forested), population patterns, and sources of employment in the 

project vicinity” [section 5.18 (b)(5)(A)]. 
48

Example of an affected environment section with cumulative effects resource: 

 Riverine, Riffle, and Shoal Habitat 

Affected Environment 

Before the Angus Project was built, the Cooper River Basin included about 60 miles of riverine habitat that 

was characteristic of the southern Wild River Mountains and the Copper physiographic province. That is, riverine 

habitat that has high to moderate gradients, fast currents, high velocities, bedrock-boulder-cobble-gravel substrates, 

cool to warm water, and seasonal hydrologies with peak flows in the spring and low flows in the late summer. 

Another characteristic of riverine habitat in this basin is the presence of riffle and shoal areas. These are 

relatively shallow and fast flowing areas that have surface turbulence often over a gravelly substrate. Some of the 

reasons riffle and shoal habitat are valuable to the continuation of a complete and healthy river ecosystem are that 

they provide spawning and rearing sites for fish and aquatic invertebrates, and water is aerated by the turbulence 

found in riffles preventing stagnation. 

Riverine habitat supports aquatic organisms, in particular fish that are adapted to living and surviving in a 

flowing water environment. Many of the species that occupy the riverine environment in the project area, particularly 

Copper Gorge, are not game fish. Nevertheless, they are important because they help maintain a complete, healthy, 

and viable riverine ecosystem. 

Since project construction in 1930, about 40 miles of riverine habitat in the Copper River Basin has been 

replaced with still-water, lake habitat. Likewise, species specifically adapted to the river environment, such as some 

darters, stonerollers, and madtoms, have been displaced by lake-adapted species, such as largemouth bass and other 

sunfishes. Many of the newer inhabitants of the basin are game species, and as such, they have a high consumptive, 

tangible, and recreational value. 

Throughout the Tugalo River Basin only about 20 miles of what might be classified as riverine habitat is 

present today. The remainder of the aquatic habitat present in the basin is characterized as flat-water, lake habitat 

(table 3-1). Moreover, much of the remaining riverine habitat probably does not represent river habitat uninfluenced 

by humans or even the river habitat that existed prior to project implementation. One reason is because flow regimes 

(that is, schedule, duration, and magnitude of flow) in the riverine stretches have been changed as a result of project 

operations. Thus, the amount of water, velocity of flow, width and depth of stream, and generally, the square footage 

of riverine habitat, have likewise been reduced relative to pre-project conditions.

Remember, only discuss past actions for those resources that would be 

cumulatively affected; however, you need to discuss the existing environment (including 

effects that would continue if not changed) and the effects of any proposed future 

actions/activities for all resources. 

Environmental Effects 

 

In this section, describe the beneficial and adverse effects (both direct and indirect) 

of the applicant's proposal, other recommended action alternatives, and environmental 

measures. Again, assess effects on the basis of changes from current conditions (baseline), 

as described in the Affected Environment section, but in the context of present and 

reasonably foreseeable development in the watershed. Within your analysis, describe any 

future actions that may affect the resources. Where appropriate, divide this section using 

subheadings that detail the impacts and agency and NGO recommendations associated 
49

with a specific resource issue (for example, in the Aquatic Resources section, use 

subheadings to talk about minimum flows, fish passage, and ramping rates issues). 

40 CFR, Section 1508.8--Effects 

(a) Direct effects, which are caused by the action and occur at the same time and place. 

(b) Indirect effects, which are caused by the action and are later in time or farther removed in 

distance, but are still reasonably foreseeable. Indirect effects may include growth inducing effects 

and other effects related to induced changes in the pattern of land use, population density or 

growth rate, and related effects on air and water and other natural systems, including ecosystems. 

 Begin by briefly describing or stating the issue (1 paragraph at most). Next, present 

the applicant's proposal for each resource area. Follow with any federal and state agency 

recommendations and any recommendations by NGOs or others. Include the applicant's 

response to the agencies' recommendations and finally, your analysis of the proposed 

action, recommended measures, and any other measures you wish to consider. Staff’s 

recommendations (or Applicant’s recommendation in case of Exhibit Es or APEAs) will 

be presented in the Comprehensive Development and Recommended Alternative section.15

 For some issues, the analysis sections can be quite lengthy and it's easy to lose the 

reader by not providing some closure. Therefore, present your biological conclusions (i.e., 

a summary of the advantages and disadvantages of each option or measure considered) but 

not your recommended measures, when you finish analyzing each issue. Remember, 

measures under consideration may affect other non-developmental (environmental, 

cultural, or recreational) (e.g., construction of a campsite can degrade water quality and 

result in loss of wildlife habitat) and developmental (e.g., typically the measure involves a 

 15 For Exhibit Es prepared for ILP projects, the applicant must present “the results of its studies conducted 

under the approved study plan by resource area and use the data generated by the studies to evaluate the beneficial 

and adverse environmental effects of its proposed project. This section must also include, if applicable, a description 

of any anticipated continuing environmental impacts of continued operation of the project, and the incremental impact 

of proposed new development of project works or changes in project operation. This analysis must be based on the 

information filed in the Pre-Application Document provided for in §5.6, developed under the applicant's approved 

study plan, and other appropriate information, and otherwise developed or obtained by the applicant” [18 CFR, 

section 5.18 (b)(5)(B)]. 

Basic Format for Environmental Effects section: 

• Define the issue 

• Describe the applicant’s proposed measures 

• Describe agency, tribe, NGO, and other recommendations 

• Describe applicant’s responses to the recommendations 

• Provide staff analysis of the effects of the measures (“Our Analysis”)

• Analyze the proposed and recommended measures, alternative conditions, and staff-developed measures 

and disclose the effects of the proposed project and action alternatives--include discussion of cumulative 

effects as appropriate
50

cost that affects overall project economics; may also affect generation, dependable 

capacity, water supply, irrigation) resources. 

Some general tips for writing the environmental effects section: 

• Make sure all issues that are listed in the scoping document are addressed in the 

effects section 

• Address effects in proportion to their significance 

• Analyze effects as long as they are reasonably foreseeable and not speculative 

• Distinguish between short-term and long-term and continuing and new effects 

• Quantify effects to the extent practicable 

• Indicate timing of effects, if important 

• Separately address the effects of different components of the alternatives (e.g., 

construction, operation, maintenance, mitigation measures) 

• Understand that effects can extend beyond the project boundary or construction 

footprint (e.g., water quality effects may be detectable 5 miles downstream of 

powerhouse) 

Note: Use conditional language (i.e., “would” instead of “will) in describing the 

proposed action and alternatives and potential consequences. 
51

Example of an analysis for minimum flows in a bypassed reach (Source: Bar Mills Project EA, FERC No. 

2194, September 12, 2005):

Minimum Flows in the Bypassed Reach 

 Bar Mills Project powerhouse flows are discharged into the upper portion of the Skelton Project 

impoundment bypassing about 1,500 feet of the Saco River. Without the release of an additional minimum flow, only 

leakage flows ranging from 3 to 25 cfs and spill flows would provide habitat for aquatic resources in the bypassed 

reach. FPL Energy proposes to maintain a minimum flow of 25-cfs in the project’s bypassed reach year-round. 

Interior [10(j) recommendation 2] recommends a continuous minimum flow of 250 cfs or inflow, whichever 

is less, in the bypassed reach. NOAA Fisheries [10(j) recommendation 2] also recommends a minimum flow of 250 

cfs for downstream passage of juveniles and adults, and to provide maximum year-round riverine habitat for 

salmonids and other aquatic resources. NOAA Fisheries indicates that the flow amount may need to be modified to 

accommodate the zone of passage for any fishway that is constructed. The Salmon Federation also recommends a 

year-round minimum flow of 250 cfs. Marine Resources [10(j) recommendation 4] recommends a minimum flow of 

at least 100 cfs to provide a zone of passage for diadromous fishes. Maine Fish and Wildlife (10(j) recommendation 

3) recommends a minimum flow of no less than 100 cfs between April 1 and October 31 to maintain a marginal trout 

fishery.1 The Salmon Commission recommends minimum flows in the bypassed reach of 100 cfs or greater to 

provide a zone of passage, habitat connectivity, and holding areas for adult Atlantic salmon. The Saco River Salmon 

Club Hatchery (Hatchery) recommends that year-round minimum flows in the bypassed reach are sufficient for 

attraction of adult salmon migrating upstream and for directing smolts and kelts2 migrating downstream. 

Our Analysis 

We evaluated the benefits of providing a minimum flow in the bypassed reach to habitat for resident fish and 

stocked brown trout and as a zone of passage for migratory species. 

________________ 

 1 Maine Fish and Wildlife states that a seasonal minimum flow of 250 cfs is preferred to support the 

development of a significant fishery and would accept a lower minimum flow during the period from November 1 

through March 31 since trout would have access to the downstream Skelton Project impoundment for overwintering. 

However, Maine Fish and Wildlife did not specify a winter minimum flow. Therefore, for purposes of our analysis 

we assume that Maine Fish and Wildlife recommends a year-round minimum flow of 100 cfs. 

 2 A kelt is a post-spawn adult Atlantic salmon. 
52

Habitat 

FPL Energy based its minimum flow proposal on an Instream Flow Incremental Methodology (IFIM)3 study 

conducted on July 24 and 25, 2002. FPL Energy formed a study team composed of representatives of Maine Fish and 

Wildlife, the FWS, Maine DEP, and the Hatchery. The 1,500-foot-long bypassed reach was divided into 3 separate 

reaches based on habitat type and three transects were established representing each reach.4 The study evaluated flow 

versus habitat relationships for three fish species life stages--brown trout adults, smallmouth bass juveniles and 

smallmouth bass adults--and a macroinvertebrate, Stenonema (mayfly nymph), at five different flows ranging from 

leakage to 250 cfs (table 2 and figure 3).5 

Table 2. Weighted usable area (WUA) and percent of maximum WUA (PMWUA) in parentheses for three fish 

species life stages and one macroinvertebrate at flows ranging from leakage to 250 cfs for transects 1 and 2 combined 

in the Bar Mills Project bypassed reach (bolded values indicate peak WUA values over the range of flows evaluated). 

WUA (PMWUA) 

Species life stage 3 cfs 25 cfs 50 cfs 100 cfs 250 cfs 

Smallmouth bass adults 

(SMBA) 

44 

(0) 

7,217 

(51) 

8,294 

(59) 

9,749 

(69) 

14,152

(100) 

Smallmouth bass juveniles 

(SMBJ) 

1,212 

(3) 

23,134 

(64) 

27,229 

(75) 

29,784 

(82) 

36,220

(100) 

Brown trout adults (BRTA) 3,253 

(9) 

21,431 

(57) 

25,864 

(69) 

30,343 

(81) 

37,316

(100) 

Stenonema (STEN) 487 

(1) 

23,556 

(58) 

30,510 

(76) 

32,947 

(82) 

40,382

(100) 

________________

 3 The IFIM is a tool developed by the U.S. Fish and Wildlife Service (FWS) to evaluate the relationship 

between flow and habitat. Habitat suitable for a particular species life stage is often expressed in terms of weighted 

usable area (WUA). WUA is the wetted area of a stream weighted by its suitability for use by aquatic organisms or 

recreational activity. WUA is usually expressed in units of square feet or square meters of habitat per a specified 

length of stream. 

 4 Because hydraulics at transect 3 were influenced by backwater effects from the Skelton Project 

impoundment and the tailrace releases at Bar Mills, the habitat versus flow relationship was believed to be unreliable. 

 5 Leakage flow at the time of the IFIM study was estimated to be 3 cfs. 
53

Over the range of flows evaluated, little to no habitat was available to fish or macroinvertebrates at a leakage 

flow of 3 cfs and WUA was greatest at the highest evaluation flow of 250 cfs for all species life stages. However, the 

greatest incremental increase in WUA for all of the species life stages over the range of evaluation flows occurs when 

releases increase from leakage to 25 cfs. At 25 cfs, PMWUA6 ranged between 51 to 64 percent for all species life 

stages. Above 25 cfs, another modest increase in the slope of the flow versus WUA curve occurs between 25 and 50 

cfs for smallmouth bass juveniles, brown trout adults, and Stenonema. At 50 cfs, PMWUA increased to about 70 

percent or higher for all species life stages except smallmouth bass adults; PMWUA for smallmouth bass adults 

increased only 8 percentage points and did not reach 70 percent until flows exceeded 100 cfs. Although WUA for all 

species life stages continued to increase above 50 cfs, the rate of increase of the WUA curve leveled off or declined at 

flows from 50 cfs to 250 cfs (figure 3). 

0

20000

40000

60000

0 100 200 300

Flow (cfs)

WUA (square feet)

SMBA SMBJ BRTA STEN

Figure 3. Habitat (WUA) for fish and macroinvertebrate species life stages evaluated at flows (cfs) ranging from 3 

cfs (leakage) to 250 cfs for the Bar Mills bypassed reach instream flow study. 

Maine Fish and Wildlife’s management goal for the bypassed reach is to provide a fishery for stocked brown 

trout in the bypassed reach from April 1 through October 31. Maine Fish and Wildlife anticipates that brown trout 

stocked in the bypassed reach that survive the summer months would be able to overwinter in downstream 

impoundments such as the Skelton impoundment. The IFIM results for brown trout indicate that while maximum 

habitat for adult brown trout would occur at flows of 250 cfs or higher, the greatest rate of increase in habitat with 

increases in flow occurs between leakage and 25 cfs and to a somewhat lesser extent from 25 to 50 cfs before leveling 

off at flows above 50 cfs. PMWUA for adult brown trout increases from 57 percent at 25 cfs to 69 percent at 50 cfs. 

Macroinvertebrates, represented by Stenonema in the IFIM study, are an important food source for both trout 

and smallmouth bass. Improving macroinvertebrate habitat in the bypassed reach could enhance growth of stocked 

brown trout and smallmouth bass. The flow versus habitat relationship for Stenonema was similar to that of brown 

trout except that the rate of increase in habitat from 25 to 50 cfs was somewhat greater for Stenonema. As with brown 

trout adults, while total habitat continued to increase at flows above 50 cfs, the rate of increase leveled off. 

__________________ 

6 PMWUA, as stated here, is based upon the maximum habitat value occurring over the range of flows 

evaluated. Because WUA for each species life stage was increasing over the range of flows evaluated, an actual 

maximum value is unknown. 
54

Example of a terrestrial analysis (Source: Dorena Lake Dam Project, FERC No. 11945, September 2006): 

Environmental Effects 

Project construction would require the permanent loss of 0.127 acre of habitat, with more vegetation 

temporarily disturbed. Although much of this habitat has been previously disturbed and is inhabited primarily by 

noxious invasive species, wildlife could be displaced as a result of construction activities and loss of habitat. 

Additionally, noxious invasive species could proliferate because of soil disturbance. 

Symbiotics proposes several measures to minimize the effects of project construction on wildlife habitat. 

These include: (1) re-seeding of all areas of disturbed soil with a native grass/forb mix; (2) completing construction 

in a timely manner to avoid prolonged disruption of wildlife in the area; (3) not leaving trenches or pits open 

overnight that might trap wildlife; (4) developing a weed management plan in consultation with the Corps that would 

include provisions to limit construction traffic to established roads and parking areas, and to re-seed all areas of 

disturbed soil with a native grass/forb mix; (5) developing a landscape plan in consultation with the Corps prior to 

ground disturbance that would provide for the use of appropriate native landscaping around the powerhouse; and (6) 

consulting with Oregon DFW to identify an area near the north abutment of the dam to restore 5,533 square feet of 

land where noxious weeds are abundant with appropriate native species. 

Interior recommends that Symbiotics consult with FWS to identify onsite locations to mitigate for the 

permanent loss of terrestrial habitat associated with construction of the powerhouse, concrete tailrace channel, 

parking area, switchyard, and valve house. It also recommends that Symbiotics develop and implement a soil erosion 

control plan, which would include a management plan for the control of weeds and invasive species and the 

restoration of disturbed lands with native vegetation. Other aspects of soil erosion control are discussed in section 

V.C.1.b, Geology and Soils Resources. 

Oregon DFW makes several recommendations regarding the effects of project construction on wildlife. It 

recommends that Symbiotics identify, in consultation with FWS and Oregon DFW, onsite locations to mitigate for the 

permanent loss of wildlife habitat associated with the construction of project facilities. Oregon DFW recommends 

Symbiotics remove invasive weeds and revegetate the mitigation site using similar practices to those it proposes to 

restore construction staging areas. Lastly, Oregon DFW recommends that Symbiotics implement its proposed soil 

erosion control plan, as discussed above in section V.C.1.b, Geology and Soils Resources. 

Our Analysis 

Construction of the proposed project would permanently remove approximately 5,520 square feet (0.127 

acre) of vegetation. The proposed project facilities are all located within areas that are dominated by invasive noxious 

forbs or grasses; however, a minimum of three 60-foot-tall bigleaf maple and one black cottonwood would need to be 

removed. Additional vegetation would temporarily be disturbed or removed adjacent to the proposed facilities, at the 

base of the dam, and along the proposed transmission line corridor. During construction, large, mobile wildlife 

species, including osprey and great blue heron, would likely temporarily avoid the areas because of construction noise 

and habitat disturbance. Because the construction sites do not provide unique habitat in the area, these wildlife 

species are likely to use other habitats nearby. Some small and less-mobile species, such as small rodents and lizards 

that use these habitats could be affected more because of vegetation and riprap removal and construction traffic. 

Symbiotics proposes and the agencies recommend measures that would reduce the potential for long-term 

effects on wildlife and wildlife habitat. Symbiotics proposes and FWS and Oregon DFW recommend that Symbiotics 

implement a soil erosion control plan that would provide for the revegetation and replanting of disturbed areas with 

native species and include a management plan for the control of noxious invasive species. Noxious invasive species 

thrive in areas of disturbed soils, especially when they are plentiful in nearby areas. Reseeding and replanting 

disturbed areas with native species, combined with an active invasive species management plan, would allow native 

species to become re-established in construction areas. Symbiotics proposes and FWS and Oregon DFW recommend 

that Symbiotics mitigate for the permanent loss of 0.127 acre of habitat. The permanently lost habitat has been 

previously disturbed and is inhabited by large amounts of invasive species. Symbiotics proposes to revegetate areas 
55

that are disturbed by construction with native species, to control invasive species and restore an additional 5,533 

square feet of land near the north abutment of the dam with native species. As part of its proposed landscape plan, 

Symbiotics also would plant big leaf maple and black cottonwood trees to replace those cut down during construction. 

 These measures would mitigate for the small amount of habitat permanently lost by improving habitat conditions. 

Example of Cumulative Effects section Source (Orono EA, FERC No. 2710, August 2005): 

 Cumulative Effects 

 The installation of downstream fish passage facilities at the Orono project would ensure that mortality of 

outmigrating fishes including Atlantic salmon and alewife is minimized. This, combined with the reduction in 

downstream mortality rates of outmigrating fishes at Veazie should Veazie be removed in the future, should 

contribute to significant positive benefits to anadromous fish within the Penobscot River Basin. The installation of 

upstream and downstream fish passage facilities for American eel at Orono dam together with other activities such as 

the removal of Veazie dam would also likely enhance eel stocks throughout the Penobscot River Basin. For resident 

species such as smallmouth bass and chain pickerel, the potential benefits of maintaining a minimum flow of 200 cfs 

in the Orono bypassed reach may be offset somewhat by the loss of impoundment habitat if and when the Veazie dam 

is removed. While smallmouth bass may benefit from maintaining minimum flows in the Orono bypassed reach and 

creating additional riverine habitat with the removal of Veazie dam, chain pickerel, a species that prefers slower 

moving waters, may be adversely affected by the removal of Veazie dam. However, the overall cumulative effects 

associated with the relicensing of the Orono Project together with the other planned activities under the Settlement 

would be beneficial to the restoration of anadromous and catadromous species (Atlantic salmon, American shad, 

alewife, American eel) to the Penobscot River Basin and to some resident species such as smallmouth bass. 

3.4 NO-ACTION ALTERNATIVE 

This section describes the effects of implementing the no-action alternative on the 

environment. Discuss the no-action alternative for your project. In relicensing cases, be 

sure to discuss any ongoing effects that would continue. 

Example of the No-action Alternative for an original license: 

3.4 NO-ACTION ALTERNATIVE

Under the no-action alternative, the Angus Project would not be constructed. There would be no changes to the 

physical, biological, or cultural resources of the area and electrical generation from the project would not occur. The 

power that would have been developed from a renewable resource would have to be replaced from nonrenewable fuels. 

The noise and air quality impacts of the existing diesel fuel-fired generation system would continue unabated or at 

increased levels as the local electrical demand increased. The risk of spills of diesel fuels would likewise continue at 

current or increasing levels. The financial benefits to the residents of Smithfield in the form of lower electrical rates and 

to Municipal in terms of project operating revenues would not be realized. 

Example of the No-action Alternative for a new license (relicense): 

3.4 NO-ACTION ALTERNATIVE 

Under the no action alternative the project would continue to operate as it has in the past. None of the 

licensee’s proposed measures or the resource agencies’ recommendations and mandatory conditions would be 

required. The existing trout populations would not be enhanced as a result of increased minimum flows. Wetland 

habitat would not be created along the upper margins of the reservoir. Public access to project waters would continue 

to be very limited, and the benefits of the shoreline buffer zone and resource management plan would not be realized. 
56

4.0 DEVELOPMENTAL ANALYSIS 

For an Exhibit E prepared under the ILP or an APEA prepared under the ALP, this 

section would focus on the cost of constructing, operating, and maintaining the 

project, and should, include a table itemizing the cost of all applicant-proposed 

environmental measures, and, if filed, agency recommendations.16

This section describes the electric power benefits of the project; summarizes the 

cost, power value, and net benefit for each of the licensing decision alternatives; and 

provides the estimated cost for each of the environmental measures proposed or 

recommended for inclusion in a license. We use this information in the Comprehensive 

Development and Recommended Alternative section to support our recommendation for 

which alternative to recommend and which measures to recommend including in any 

license issued by the Commission. 

This section typically has four major parts: (1) power and economic benefits; 

(2) comparison of alternatives; (3) cost of environmental measures; and (4) air emissions 

(as needed). If applicable, add a section discussing how the alternatives affect other 

developmental resources such as power generation (at other sites), water supply, irrigation, 

navigation, and flood control. 

The basic sections of the developmental analysis chapter are as follows: 

4.0 DEVELOPMENTAL ANALYSIS 

4.1 POWER AND ECONOMIC BENEFITS OF THE PROJECT 

4.2 COMPARISON OF ALTERNATIVES 

 4.2.1 No-action Alternative 

 4.2.2 Applicant’s Proposal 

 4.2.3 Staff Alternative 

4.3 COST OF ENVIRONMENTAL MEASURES 

 16For ILPs, the economic analysis must include “annualized, current cost-based information. For a new or 

subsequent license, the applicant must include the cost of operating and maintaining the project under the existing 

license. For an original license, the applicant must estimate the cost of constructing, operating, and maintaining the 

proposed project. For either type of license, the applicant should estimate the cost of each proposed resource 

protection, mitigation, or enhancement measure and any specific measure filed with the Commission by agencies, 

Indian tribes, or members of the public when the application is filed. For an existing license, the applicant's economic 

analysis must estimate the value of developmental resources associated with the project under the current license and 

the applicant's proposal. For an original license, the applicant must estimate the value of the developmental resources 

for the proposed project. As applicable, these developmental resources may include power generation, water supply, 

irrigation, navigation, and flood control. Where possible, the value of developmental resources must be based on 

market prices. If a protection, mitigation, or enhancement measure reduces the amount or value of the project's 

developmental resources, the applicant must estimate the reduction” [18 CFR, section 5.18 (b)(5)(E)].
57

4.4 AIR QUALITY (as needed) 

Note: Use additional topical headings as needed to add clarity to your analysis.

 

 In the introduction to this section, explain the purpose of the section and the method 

of analysis. 

Example of introduction to Developmental Analysis section: 

4.0 DEVELOPMENTAL ANALYSIS 

 In this section, we look at the Wide River Project’s use of the Wide River for hydropower purposes to see 

what effect various environmental measures would have on the project’s costs and power benefits. Consistent with 

the Commission’s approach to economic analysis, the power benefit of the project is determined by estimating the 

cost of obtaining the same amount of energy and capacity using the likely alternative generating resources available in 

the region. In keeping with Commission policy as described in Mead, our economic analysis is based on current 

electric power cost conditions and does not consider future escalation of fuel prices in valuing the hydropower 

project’s power benefits.1

 Our analysis includes: (1) an estimate of the net power benefit of the project for each of the licensing 

alternatives; and (2) an estimate of the cost of individual measures considered in the final EIS for the protection, 

mitigation and enhancement of environmental resources affected by the project. To determine the net power benefit 

for each of the licensing alternatives, we compare project costs to the value of the power output as represented by the 

cost of a likely alternative source of power in the region. For any alternative, a positive net annual power benefit 

indicates that the project power costs less than the current cost of alternative generation resources and a negative net 

annual benefit indicates that project power costs more than the current cost of alternative generation resources. This 

estimate helps to support an informed decision concerning what is in the public interest with respect to a proposed 

license. However, project economics is only one of many public interest factors the Commission considers in 

determining whether, and under what conditions, to issue a license. 

-------------------------- 

 1 See Mead Corporation, Publishing Paper Division, 72 FERC ¶ 61,027 (July 13, 1995). In most cases, 

electricity from hydropower would displace some form of fossil-fueled generation, in which fuel cost is the largest 

component of the cost of electricity production. 

4.1 POWER AND ECONOMIC BENEFITS OF THE PROJECT 

Things to cover: 

• Capacity of project, dependable capacity (if applicable) and average annual 

generation 

• Summary of current and proposed operation, including any new capacity 

alternatives 

• Economic assumptions (Power value, interest rates, etc., are usually provided in a 

table with body text or table footnotes to provide source of information.) 
58

Example of power and economic benefits section: 

4.1 POWER AND ECONOMIC BENEFITS OF THE PROJECT 

 Table 4-1 summarizes the assumptions and economic information we use in our analysis. This information 

was provided by Hypowco in its license application. We find that the values provided by Hypowco are reasonable for 

the purposes of our analysis. Cost items common to all alternatives include: taxes and insurance costs; net 

investment (the total investment in power plant facilities remaining to be depreciated); estimated future capital 

investment required to maintain and extend the life of plant equipment and facilities; relicensing costs; normal 

operation and maintenance cost; and Commission fees. 

--example continued on next page-- 
59

Table 4-1. Parameters for economic analysis of the Wide River Project (Source: Hypowco). 

Parameter Value 

Period of analysis (years) 30 

Taxes and insurance (%) 

Federal income tax rate 35 

Levy rate 66 

Assessment rate 1.48 

Insurance 0.07 

Net investment, $a $0 

Future major capital cost, $b $23,634,300 

Relicensing cost, $c $27,741,800 

Operation and maintenance, $/yeard $3,079,000 

Commission fees, $/yeare $689,000 

Energy value ($/MWh) Peak Off-peak 

January 39.16 34.96 

February 37.31 33.91 

March 33.61 30.85 

April 33.41 30.61 

May 29.89 25.35 

June 27.98 25.39 

July 39.00 33.66 

August 47.92 39.13 

September 52.64 44.24 

October 46.92 42.95 

November 47.83 43.21 

December 50.93 44.24 

Capacity value ($/MW-year)f 63,500 

Interest rateg 6.10 

Discount rateh 6.10 

 a

 Net investment is the depreciated project investment allocated to power purposes. 

 b Future major capital costs include major plant rehabilitation to maintain present-day capability scheduled 

between 2006 and 2035 and are expressed as a present value. 

 c

Relicensing costs include the administrative, legal/study, and other expenses to date. 

 d Existing plant operation and maintenance includes operation and maintenance related to environmental 

measures associated with the current license. 

 eCommission fees are based on statements of annual charges received from the Commission for federal lands 

and administrative charges based on authorized capacity. 

 f Source: Application for New License, exhibit D, table D-6.

 gBased on Hypowco’s weighted average cost of capital. 

 h Assumed by staff to be same as interest rate. 
60

 As currently operated, the 155-MW Wide River Project generates an average of 651,000 MWh annually and 

has a dependable capacity of 135 MW. Table 4-1 includes monthly values for generation under high-load period 

(peak) and low-load period (off-peak) conditions. These values represent Hypowco’s marginal cost of generation as 

determined by system load and generation resource simulation. They reflect the cost of a mixture of generation 

resources available to Hypowco. We use monthly variable peak and off-peak energy values for our analysis in order 

to estimate the cost (in lost energy value) of minimum flow and reservoir operating measures that are seasonal and/or 

constrain the hourly operation of the project for peaking. 

 The capacity value of $63,500/MW-year (table 4-1) is based on the amortization and fixed operation and 

maintenance cost for a simple-cycle combustion turbine. Some of the measures that would require operational 

changes reduce the dependable capacity rating of the project. We discuss the effects of proposed operational changes 

on power benefits in section 4.2.2. 

4.2 COMPARISON OF ALTERNATIVES 

 This section summarizes the overall economics for each of the licensing alternatives 

analyzed in the environmental document and describes each alternative in sufficient detail 

for the reader to understand the major causes for differences in project economics between 

the alternatives. The section begins with a summary table comparing the generation, 

capacity, production cost, power benefit, and net power benefit of each alternative. 

Following this, is a sub-section for each alternative which describes the major factors 

responsible for the differences in power benefits between the alternatives. Be sure to 

include: 

• Capacity expansion or reduction 

• Environmental measures that affect dependable capacity rating and average annual 

generation 

• Environmental measures with large capital cost, such as fish passage facilities 

Example of the Comparison of Alternatives section: 

4.2 COMPARISON OF ALTERNATIVES 

 Table 4-2 summarizes the annual cost, power benefits, and annual net benefits for the four alternatives 

considered in this DEIS: no-action, Municipal’s proposal, the staff alternative, and the staff alternative with 

mandatory conditions. 

--example continued on next page--
61

Table 4-2. Summary of the annual cost, power benefits, and annual net benefits for three alternatives for the East 

River Project (Source: staff). 

No Action Municipal’s 

Proposal 

Staff Alternative Staff Alternative 

with Mandatory 

Conditions 

Installed capacity (MW) 1,500 1,750 1,750 1,750 

Annual generation (MWh) 6,330,769 7,280,000 7,280,000 6,800,000 

Annual power value 

($/MWh and mills/kWh) 

$246,900,000 

39.00 

$283,920,000 

39.00 

$283,920,000 

39.00 

$265,200,000 

36.43 

Annual cost 

($/MWh and mills/kWh) 

$58,400,000 

9.20 

$97,552,000 

13.40 

$99,775,000 

13.70 

$99,775,000 

13.70 

Annual net benefit 

($/MWh and mills/kWh) 

$188,500 

29.80 

$186,368,000 

25.60 

$184,145,000 

25.29 

$165,245,000 

22.60 

4.2.1 No-action Alternative 

Under the no-action alternative, the project would continue to operate as it does now. The project generates 

an average of 6,330,769 MWh of electricity annually. The average annual power value of the project under the noaction alternative would be $246.9 million (about $39/MWh). The average annual cost of producing this power 

would be $58.4 million (about $9.2/MWh), resulting in an average annual net benefit of $188.5 million (about 

$29.8/MWh). In other words, the project produces energy at a cost that is less than that of currently available 

alternative generation by $29.8/MWh. 

4.2.2 Municipal’s Proposal 

Municipal proposes to add two new 15-MW turbines and replace the existing turbines at the Fast River 

development with new, more efficient turbines. Upon completion of the proposed new turbines and turbine upgrades, 

the Fast River Project installed capacity would increase to 1,750 MW, an increase of about 250 MW from the current 

installed capacity of 1,500 MW. The total cost of the Fast River turbine replacement is estimated at $250,000,000. In 

addition, Municipal signed a Settlement Agreement that requires it to construct upstream fish passage facilities having 

a total capital cost of $176,000,000. The proposed project would have a dependable capacity of 1,250 MW and an 

average annual generation of 7,280,000 MWh. As proposed by Municipal, the Fast River Project would have an 

average annual power value of $283.9 million ($39/MWh), an annual production cost (levelized over the 30-year 

period of our analysis) of $97.6 million ($13.4/MWh), and an annual net benefit of $186.4 million ($25.60/MWh). In 

other words, the project would produce energy at a cost that is less than that of currently available alternative 

generation by $25.6/MWh. 

4.2.3 Staff Alternative

 The staff alternative includes the same developmental upgrades as Municipal’s proposal and, therefore, 

would have the same capacity and energy attributes. Table 4-3 shows the staff recommended additions, deletions, 

and modifications to Municipal’s proposed environmental protection and enhancement measures and the estimated 

cost of each. [NOTE: USING A TABLE TO SHOW THE COST OF MEASURES STAFF RECOMMENDS 

ADDING OR DELETING FROM THE PROPOSED PROJECT IS OPTIONAL DEPENDING UPON THE 

NUMBER AND COMPLEXITY OF STAFF’S CHANGES.] 

 

Based on a total capacity of 1,750 MW, a dependable capacity of 1,250 MW and an average annual 

generation of 7,280,000 MWh, the Fast River Project would have an average annual power value of $283.9 million 

($39.00/MWh), an annual production cost (levelized over the 30-year period of our analysis) of $99.8 million 

($13.70/MWh), and an annual net benefit of $184.1 million ($25.29/MWh) under the staff alternative. The staff 

alternative would reduce the net annual project benefit by about $2.5 million ($0.31/MWh) compared to the project as 

proposed by Municipal. 
62

4.2.4 Staff Alternative with Mandatory Conditions 

This alternative is similar to the Staff Alternative with the exception of increased minimum flows. This 

alternative would have an average annual power value of $265.2 million ($36.43/MWh), an annual production cost 

(levelized over the 30-year period of our analysis) of $99.8 million ($13.70/MWh), and an annual net benefit of 

$165.2 million ($22.60/MWh). This alternative would reduce the net annual project benefit by about $21.1 million 

($3.0/MWh) compared to the project as proposed by Municipal, and by about $18.9 ($3.31/MWh) compared to the 

Staff Alternative.

4.3 COST OF ENVIRONMENTAL MEASURES 

 The purpose of this section is to provide an itemized list and cost estimate for all of 

the environmental (protection, mitigation and enhancement) measures evaluated in the 

environmental document.17 This information is the source for economic information used 

in the Comprehensive Development section to support the choice of measures 

recommended by staff to include in the license. It is also used in the Fish and Wildlife 

Recommendations section for the 10(j) table. The cost table should be designed to show 

the following information for each measure: 

• Brief description of the measure 

• Entities recommending the measure, including staff 

• Capital, or one-time cost of item 

• Operation and Maintenance, or annual cost of item 

• Effect on energy generation and/or dependable capacity 

• Levelized annual cost of item 

• Source of cost estimate 

Depending upon the complexity and number of measures that need to be included 

in the table, some of the information listed above may be added by footnotes, discussion 

about the data, etc. Order the items in the table as they are introduced in the 

environmental analysis section of the document (geology and soils, aquatic resources, 

 17 Staff often recommends that the applicant develop various resource management and monitoring plans to 

address environmental issues, such as a land use, recreation, wildlife, water quality, or fisheries management plan. 

Two costs are associated with a resource plan: (1) the cost to develop the plan; and (2) the cost to implement the 

plan. Finding an exact cost of a plan, including your recommended components, may be difficult. Here are a few 

ways to estimate the cost of a recommended plan: 

• Review other environmental documents where a resource agency, applicant, or staff has provided the cost of 

the plan 

• Talk with staff who have worked with consulting firms that develop and implement such plans 

• Ask for the cost information at a scoping session 

• Ask applicants to provide costs and supporting documentation in an additional information request 

• Ask a resource agency to provide costs with their recommendations 
63

etc.). For added clarity, you may want to provide sub-headings in the table for each of the 

resource areas. For projects with a significant number of recommendations, summarize 

the costs by resource area in the table and include detailed information in an appendix. 

Example of the Cost of Environmental Measures section: 

4.3 COST OF ENVIRONMENTAL MEASURES 

Table 4-3 gives the cost of each of the environmental enhancement measures considered in our analysis. We 

convert all costs to equal annual (levelized) values over a 30-year period of analysis to give a uniform basis for 

comparing the benefits of a measure to its cost. 

Table 4-3. Cost of environmental mitigation and enhancement measures considered in assessing the environmental 

effects of continuing to operate the Slow River Hydroelectric Project (Source: HYPOWCO, 1998). 

Enhancement/Mitigation 

Measure 

Entity Capital Cost Annual Cost Levelized 

Annual Cost 

Provide minimum flows in the 

Slow River bypassed reach 

HYPOWCO 

FWS 

NMFS 

Staff 

Unknown $209,000a $209,000 

Operational compliance 

monitoring plan for reservoir water 

level fluctuation and bypassed 

reach flow 

Staff 

NMFS 

FWS 

South Carolina 

DNR 

 $30,000 $6,000 $10,900 

New flow gage located on Slow 

River downstream from tailrace 

South Carolina 

DNR 

 $30,000 $6,000 $10,900 

Slow River Fish Habitat 

Enhancement Fund 

FWS 

South Carolina 

DNR 

 $0 $20,000b $1,480 

One upstream vertical slot or 

natural channel fishway designed 

to pass 250,000 American shad & 

2,500,000 blueback herringc

HYPOWCO $1,500,000 $15,000 $242,000 

One upstream fishway designed to 

pass 688,150 American shad & 

3,430,000 blueback herringc

Interior 

Commerce 

$3,500,000 $30,000 $597,000 

Phased approach to upstream 

fishway where Phase I would be 

designed to pass 250,000 

American shad & 2,500,000 

blueback herring and Phase II, 

designed for projected migrant 

numbers, could be added in the 

futurec

Interior 

Commerce 

$1,500,000d

$2,000,000e

 $15,000d 

 $15,000e

$372,000 
64

Enhancement/Mitigation 

Measure 

Entity Capital Cost Annual Cost Levelized 

Annual Cost 

Phase I vertical slot fishway 

designed to pass 250,000 

American shad & 2,500,000 

blueback herring as prescribed by 

Interior & Commerce 

Staff $1,500,000 $15,000 $242,000 

Downstream fish passage, without 

multi-level entrance tower and 

vent pipe 

HYPOWCO $171,000 $5,000 $30,900 

Downstream fish passage, with 

multi-level entrance tower and 

vent pipe 

Interior 

Commerce 

 $680,000 $5,000 $115,000 

Upstream and downstream fishway 

effectiveness testing 

Interior 

Commerce 

HYPOWCO 

Staff 

$750,000 $5,000 $126,000 

RSSL display HYPOWCO 

Staff 

$3,000 $0 $486 

Recreation signage HYPOWCO 

Staff 

$4,000 $800 $1,450 

Trail sign HYPOWCO 

Staff 

$1,000 $200 $362 

Canoe portage Interior 

South Carolina 

DNR 

Citizen 

$630,000 $10,000 $102,000 

Tailrace angler access Interior 

South Carolina 

DNR 

$166,000 $10,000 $26,900 

a

 Based on Hypowco's estimated average annual energy loss of 4,830 MWh at $31/MWh, and $57,000 

annually for replacing lost firm capacity. 

b

 First 3 years, or until fishways become operational; FWS recommends $20,000/year and South Carolina 

DNR recommends $19,318/year. c

 The fishway design includes provisions for two gated sections in the dam for minimum flow release. 

d Phase 1 costs begin in year 1 of new license. 

e

 Phase 2 costs begin in year 15 of new license. 

4.4 AIR QUALITY 

 

A section on air quality may be needed for projects that involve significant 
65

construction activities, such as construction of a new dam and reservoir or when raised as 

an issue. The section should describe state and national ambient air quality standards, 

state and national area designations (attainment, non-attainment, unclassified, etc.), and 

local emissions and air quality regulations. The effects analysis should consider air 

emissions (carbon monoxide, volatile organic compounds, nitrogen dioxide, sulfur 

dioxide, ozone, particulate matter, etc.) from construction equipment, earth moving 

activities, construction worker commutes, material deliveries, earth hauling, and operation 

and maintenance. 

If the information is extensive, this write-up can be included in section 3. 

Examples of analyses of an Air Quality section can be found in the following EISs: 

Lake Elsinore Advanced Pumped Storage Project (section 3.2.10) 

http://elibrary.ferc.gov/idmws/common/OpenNat.asp?fileID=11239487

Upper American River Project (section 3.3.11) 

http://elibrary.ferc.gov/idmws/common/OpenNat.asp?fileID=11611184
66

5.0 CONCLUSIONS AND RECOMMENDATIONS 

5.1 COMPARISON OF ALTERNATIVES 

Include a comparison of the effects on developmental and non-developmental 

resources of each of the alternatives considered in the environmental document. This will 

help the reader see how the alternatives affect each resource. Quantify the effects, if 

possible (for example, acres of lost wetland habitat). A table could be helpful in 

organizing the information (see below). 

Example of Comparison of Alternatives discussion: 

5.1 COMPARISON OF ALTERNATIVES 

In this section, we compare the developmental and non-developmental effects of Municipal’s proposal, 

Municipal’s proposal as modified by staff, and the no-action alternative. 

We estimate the annual generation of the project under the three alternatives identified above. Our analysis 

shows that the annual generation would be 874,900 MWh for the proposed action; 838,600 MWh for the staff 

alternative; and 899,100 MWh for the no-action alternative. 

We summarize the environmental effects of the different alternatives below. 

Aquatic Resources—Under the applicant’s proposal, adult trout habitat would increase in the 2-mile-long 

bypassed reach by 50 percent compared to existing conditions, but would continue to be degraded by reduced flows. 

Substantial mortality from stranding would continue. Small numbers of fish would continue to be killed as they pass 

through the turbines. Slight increase in water temperature would also continue to occur. 

With the staff’s modifications to the applicant’s proposal, adult trout habitat would be increased to near 

optimal conditions, a 100 percent increase compared to the applicant’s proposal. Stranding, due to flow fluctuations, 

would be reduced to minimal levels. 

Terrestrial Resources-- Fencing to exclude cattle from the riparian zone would substantially improve 12 

acres of riparian vegetation benefiting local wildlife populations. Maintenance activities would continue to disturb 

nesting peregrine falcons. 

Threatened and Endangered Species—The endangered southwestern willow flycatcher would benefit from 

the expected increase in riparian vegetation. 

Recreation—Under the applicant’s proposal, fishing opportunities would be minimally improved as the 

result of increased flows in the bypassed area. Under the staff flow recommendation, fishing would be moderately 

improved. Boating on the reservoir, and associated reservoir fishing, would increase as a result of construction of a 

new boat ramp. 

Visual Resources—Municipal’s proposed landscaping around the powerhouse would improve visual quality 

in an area used for picnicking. 

Under the no-action alternative, environmental conditions would remain the same and no enhancement of 

environmental resources would occur. 
67

Example of a chart summarizing the effects of the alternatives: 

Table 5-1. Comparison of Alternatives for the Green Creek Project (Source: staff). 

Resource No Action 

Alternative 

Proposed Action Staff 

Recommended 

Alternative 

Agency 

Alternative 

Generation 201,100 MWh 199,000 MWh 197,080 MWh 175,000 MWh 

Fisheries Continue to 

entrain fish at 

present rate of 

100,000 annually 

Estimated 60,000 

entrained annually 

Estimated 

50,000 entrained 

annually 

Estimated 35,000 

entrained 

annually 

Wetlands No changes to 

wetlands 

Reduce wetland 

habitat by 10% - 

loss of 100 acres 

Loss of 50 acres 

of wetlands 

Loss of 60 acres 

of wetlands 

Threatened and 

Endangered 

Species 

No existing Bald 

Eagle 

management Plan 

Bald Eagle 

Management Plan 

that provides for 

annual nest 

surveys and 

restriction of 

harmful activities 

Bald Eagle 

Management 

Plan with 

environmental 

education 

program 

Bald Eagle 

Management 

Plan 

Cultural 

Resources 

Eligible sites 

protected under 

existing license 

Historic Properties 

Management Plan 

that provides for 

protection 

measures in the 

event shoreline 

erosion threatens 

cultural sites 

Programmatic 

agreement 

Historic 

Properties 

Management 

Plan 

Land Use 25-foot buffer 

zone around 

reservoir 

50-foot buffer 

zone around 

reservoir 

200-foot buffer 

zone plus land 

management 

plan 

300-foot buffer 

zone plus land 

management plan 

Recreational 

Access 

One access point 

on the 

impoundment - 

estimated 300 

user days 

Two new facilities 

(impoundment, 

and tailwater)--

estimated 25% 

increase in visitor 

days 

Three new 

facilities to 

increase access 

One new facility 

at tailwaters 

Example of a chart summarizing the resource effects of different reservoir alternatives (Source: Lake Elsinore 
68

Advanced Pumped Storage Project FEIS, FERC No. 11858, January 2007, as modified): 

Table 5-2. Summary of key differences in the potential effects of the co-applicants’ proposal and the staff alternative 

(Source: staff).

Resource/Issue Upper Reservoir Comparison

Morrell Canyon (Co-applicants) Decker Canyon (Staff)

Area of effect 130-acre footprint; daily fluctuations of 40 

feet and weekly fluctuations of 75 feet 

120-acre footprint; daily and weekly 

fluctuations would be on the same order 

of magnitude as the upper reservoir at 

Morrell Canyon 

Fill materials 2.6 million cubic yards of fill needed for 

dam 

3.0 million cubic yards of fill needed for 

dam 

Less overburden at Decker Canyon 

would allow easier procurement of solid 

rock material for fill for dam and dike 

construction 

Groundwater Construction of tunnels for high pressure 

conduits could affect groundwater; design 

review of collection system for Lion Spring 

and effects on groundwater 

Construction of tunnels for high pressure 

conduits could affect groundwater; no 

collection system would be required 

Seismic hazards Faults may control surface flows at the 

Morrell Canyon site 

No faults have been identified at the 

Decker Canyon site and subsurface flow 

does not appear to be controlled by the 

presence of faults 

Surface water Upper reservoir would interrupt stream flow Same 

Wetland and riparian 

habitat 

Would affect 6.5 acres of wetlands, 

including Lion Spring; loss of these 

wetlands and associated riparian habitat 

would affect plant diversity and wildlife 

species; effects on downstream areas would 

be minimized by the water conveyance 

system under the reservoir 

Would affect 1.2 acres of wetlands; no 

effects on springs or seeps; smaller 

effects on downstream areas because 

drainage area is smaller 

Oak woodland 

communities 

Would convert about 20 acres of southern 

coast live oak forest (500 to 600 individual 

trees over 8 dbh) to project use; would need 

to plant 20 acres to mitigate 

Would convert about 5 acres of southern 

coast live oak forest to project use so 

effects would be similar to Morrell 

Canyon but on a smaller scale; would 

only need 5 acres to mitigate 

Special status 

wildlife 

Would convert 80 acres of chamise 

chaparral and 20 acres of southern coastal 

live oak to project facilities. 

Would convert 95 acres of chamise 

chaparral and 5 acres of southern coastal 

live oak to project facilities. 

Mountain lion Would remove 100 acres of suitable 

mountain lion habitat from Core B; project 

operation and maintenance would not likely 

increase disturbance or risk of interaction 

over levels that currently result from traffic 

on South Main Divide Road and use of 

Morgan Trail 

Would remove 100 acres of suitable 

mountain lion habitat from Core B; 

project operation and maintenance would 

represent a very small increase in 

disturbance, because no trails currently 

provide for recreation at Decker Canyon 

site 

Munz’s onion No suitable habitat at reservoir site; 

however, South Main Divide Road in 

vicinity passes through a soil type that is 

known to support occurrences of this species 

Same 

Developed recreation 

facilities 

Footprint would not include Morgan Trail 

trailhead with minimal effect on users of the 

trailhead during construction but trail would 

Morgan Trail would not have to be 

rerouted and because visitation is low, 

increased traffic on South Main Divide 
69

need to be re-routed either temporarily or 

permanently depending on final design 

Road would have minimal effect on 

Morgan trailhead users 

Dispersed recreation Would affect hang gliders using the 2 most 

suitable of the 9 launch sites and waterside 

setting offered at Lion Spring 

Would eliminate a natural looking canyon 

with oak woodland vegetation and replace it 

with a reservoir surrounded by a chain link 

fence; inconsistent with visual quality 

objectives (retention) 

Would avoid effects on two most popular 

hang glider launch sites 

The existing aesthetic resources within 

Decker Canyon are subordinate to 

Morrell Canyon and construction effects 

associated with building a reservoir in 

this location would be less than those at 

the Morrell site; development of the 

alternative site would not build over a 

mature oak-woodland riparian area (Lion 

Spring) 

Traffic Would achieve a balance of excavation to 

fill within the entire project site 

Same 
70

5.2 COMPREHENSIVE DEVELOPMENT AND RECOMMENDED 

ALTERNATIVE 

Although this section is not directly applicable to an Exhibit E prepared under the 

ILP and an APEA prepared under the ALP, this section should be used by staff and 

applicants to compare costs and benefits of proposed environmental measures and 

discuss the applicant’s basis for not adopting any agency recommendations. 

This section--sometimes called the "balancing" section--comes from sections 4(e)18

and 10(a)19 of the FPA, which require the Commission to give equal consideration to all 

uses of the waterway on which a project is located. Your purpose in this section is to let 

the reader know which proposal you think provides the best use of developmental and 

non-developmental resources--and why. 

This section should spell out how you decided between the action alternatives--the 

applicant's proposal, other action alternatives or measures you considered, such as agency 

recommendations, and the no-action alternative. You should base your conclusions for 

this section on the information provided in sections 3.0 (Environmental Analysis) and 4.0 

(Developmental Analysis). Remember, in this section you should show the "bang for the 

buck"--that is, for the environmental measures you recommend, you should get an 

appropriate level of resource benefits for the economic cost. 

This section is flexible based on the number of recommendations and issues and the 

importance and complexity of the issues. Applicants and contractors should work with 

FERC staff to determine the preferred format for a particular project. The length of the 

discussion should be commensurate with the importance of the resource and costs of the 

measures. 

This section must address the following topics. Each component is discussed in 

detail below. 

 18 In deciding whether to issue a license, "the Commission, in addition to the power and development 

purposes for which licenses are issued, shall give equal consideration to the purposes of energy conservation, the 

protection, mitigation of damage to, and enhancement of, fish and wildlife (including related spawning grounds and 

habitat), the protection of recreational opportunities, and the preservation of other aspects of environmental quality." 

[16 U.S.C. § 797(e) (2000)] 

19 Requires that a project as licensed be, in the judgment of the Commission, best adapted to a 

comprehensive plan for improving or developing a waterway for beneficial public purposes, including "the 

improvement and utilization of water power development, ... the adequate protection, mitigation, and enhancement of 

fish and wildlife (including related spawning grounds and habitat), and ... irrigation, flood control, water supply, and 

recreational and other purposes ..." [16 U.S.C. § 803(a)(1) (2000)] 
71

• Introduction 

• A summary of why we selected the action alternative and a listing of any 

mandatory conditions not included in staff alternative 

• A listing of measures proposed by the applicant included in the staff alternative 

• A listing of the staff-recommended modifications of the applicant’s proposal and 

additional staff-recommended measures 

• A discussion of how we arrived at the key staff-recommended measures, including 

evaluation of recommendations of others 

• A discussion of why we declined to adopt proposed or recommended measures or 

mandatory conditions 

• Basis for selecting preferred alternative 

• Introduction 

Introductory paragraph for the Comprehensive Development and Recommended Alternative section: 

Sections 4(e) and 10(a)(1) of the FPA require the Commission to give equal consideration to the power 

development purposes and to the purposes of energy conservation, the protection, mitigation of damage to, and 

enhancement of fish and wildlife, the protection of recreational opportunities, and the preservation of other aspects of 

environmental quality. Any license issued shall be such as in the Commission's judgment will be best adapted to a 

comprehensive plan for improving or developing a waterway or waterways for all beneficial public uses. This section 

contains the basis for, and a summary of, our recommendations for relicensing the ___________ Project. We weigh 

the costs and benefits of our recommended alternative against other proposed measures. 

• A summary of why we selected the action alternative 

Here we provide a summary of our reasons for selecting the preferred alternative. 

Example of summary: 

 Based on our independent review of agency and public comments filed on this project and our review of the 

environmental and economic effects of the proposed project and its alternatives, we selected the staff alternative as 

the preferred alternative. This alternative includes elements of the applicant’s proposal, section 4(e) conditions, 

resource agency recommendations, alternative conditions under EPAct, and some additional measures. We 

recommend this alternative because: (1) issuance of a new hydropower license by the Commission would allow 

Municipal to operate the project as an economically beneficial and dependable source of electrical energy for its 

customers; (2) the 4.2 MW of electric energy generated from a renewable resource may offset the use of fossil-fueled, 

steam-electric generating plants, thereby conserving nonrenewable resources and reducing atmospheric pollution; (3) 

the public benefits of this alternative would exceed those of the no-action alternative; and (4) the recommended 

measures would protect and enhance fish and wildlife resources and would provide improved recreation opportunities 

at the project when the water supply protection restrictions are no longer required. 

 Finally, for the reasons outlined below, we recommend that certain conditions specified by the [Forest 

Service, WQC agency, FWS, NMFS, etc.] not be included in the staff alternative. The conditions we are not 

recommending include expansion of the Deer Creek recreation site and development of a traffic management plan. 

We recognize, however, that the Commission must include these conditions in any license due to their mandatory 

nature. 
72

• Measures proposed by the applicant included in the staff alternative 

Here we either provide a bulleted list or summary of the measures proposed by the 

license applicant that we recommend be included in the staff alternative. Refer to the 

applicant’s proposal section if more details of the measures are provided in that section. 

Where we modify the applicant’s proposed measures, indicate the changes in italics. 

• Additional staff-recommended measures 

 Provide a list or summary of the additional measures staff recommends be included 

as part of the project, including any modifications to measures proposed by the applicant. 

Make sure the recommendations consist of sufficient detail to fully understand the 

measure, particularly for measures not discussed, or only briefly discussed, further in this 

section. 

• A discussion of how we arrived at the staff-recommended measures 

 This is where balancing occurs. This section can be organized by issue or resource 

area and should discuss all of staff’s recommendations or can focus on the key issues 

(measures that are expensive, conflict with other resource measures, involve significant 

resources, substantially affect project operation, etc.). 

 In the discussion of each issue, we should: 

• Explain the issue 

• Describe what the applicant proposes, if anything, and how it affects resource 

values 

• Describe what others recommend, if anything, and how it affects resource values 

• Summarize staff’s independent analysis of the issue from section 3, Environmental 

Analysis

• Provide staff’s recommendation, including a discussion of how staff’s 

recommendation would best address competing values 

• Provide specific details of any recommended plans or measures 

• Explain why the expected benefits of staff recommended measures(s) would be 

worth the cost of implementing the measures 

 So how do we balance?20

 The general steps described below are not necessarily sequential, but could be 

 20 Also, see Evaluating Relicense Proposals at the Federal Energy Regulatory Commission, DPR-2, April 

1991. 
73

integrative. 

 The detailed balancing discussion should focus on critical issues—those that are 

contentious or controversial, involve significant resources or impacts, can affect multiple 

resources, are expensive, involve substantial staff modifications, can have a substantial 

effect on operation of the project, etc. This section will provide our attempt to 

independently seek solutions that would best address the Commission’s balancing 

mandate. 

 Generally, we would look at a range of alternatives that addresses project effects 

and purposes, starting with the applicant’s proposal, any agency recommendations, and 

any other recommendations presented in the record. If these alternatives don’t cover the 

full range of alternatives, we should develop our own alternative. 

 The next step is to evaluate how each alternative affects the various resources. 

Here we look at the costs and benefits of each alternative along with any interaction with 

other resources. 

 In evaluating alternatives, first we need to understand how the value of each 

competing resource varies for each option we are considering. This could be based on 

quantitative or qualitative information. This could involve a relatively straightforward 

relationship, such as the relationship between quantity of adult fish habitat (weighted 

usable area) and power benefits. Or it could be more involved. For example, how does 

raising the instream flow to improve fish habitat in the bypassed reach affect riparian 

vegetation, swimming and boating, and the project’s power value or how does releasing 

more water to improve downstream water quality affect reservoir boating and fish habitat 

and amount of generation? 

 Once we understand this relationship, we can better understand the effects of 

applicant and agency alternatives and we can start developing more creative solutions. 

Here are the types of questions we should be asking. If a proposed boating flow only 

affects the power value during extreme dry years, can we reduce the proposed flows in 

those years? Can we come up with an alternative that would restructure the proposed 

instream flows to provide a better balance of fishery habitat at a lower cost? Can 

redesigning a proposed project have less environmental effects than the proposed design? 

 We next compare the various alternatives to baseline conditions—existing 

conditions. Since we can’t maximize all benefits, we must make tradeoffs. The effects of 

the different alternatives on competing values, illustrating the various tradeoffs, can be 

summarized in a table or figure. 

 The importance or significance of the resources involved must be factored into the 
74

balancing discussion when weighing benefits and costs. 

• Does the resource provide significant use, generating significant revenue for the 

local area? 

• Are there significant regional or national programs to recover a species? 

• Do the resources have particular legal standing, such as an endangered species or 

wild and scenic river? 

• Is the resource of regional or national significance? 

• Can the generation be easily replaced or would it require additional diesel 

generation? 

• Is the resource unique (such as trophy trout fishery or old-growth forest), or 

common? 

Choosing a Recommendation 

 The above information will provide sufficient information to achieve the best 

balance of competing resources. Describe the tradeoffs made and how the staffrecommended alternative would achieve the most public benefits. Are the expected 

benefits of staff recommended measures(s) worth the cost of implementing the measures? 

 

• A discussion of why we declined to adopt recommendations or conditions 

 This discussion can be integrated into the above discussion. However, if these 

issues are unrelated to any of the previous discussion, they should be discussed here. 

• Basis for selecting preferred alternative 

 Here we look at the development and non-developmental benefits of the 

compilation of all the staff-recommended measures. 

 For applicants preparing the environmental report or APEA, you should evaluate 

your proposal, the agencies' and others' alternatives (if they are a complete set of 

measures), and the no-action alternative at a minimum. 

 Below are two examples of a Comprehensive Development and Recommended 

Alternative section: 

Example of Comprehensive Development and Recommended Alternative section:

5.2. COMPREHENSIVE DEVELOPMENT AND RECOMMENDED ALTERNATIVE

 Sections 4(e) and 10(a) of the FPA require the Commission to give equal consideration to all uses of the 
75

waterway on which a project is located. When we review a hydropower project, we consider the water quality, fish 

and wildlife, recreation, cultural, and other non-developmental values of the involved waterway equally with its 

electric energy and other developmental values. In deciding whether, and under what conditions a hydropower 

project should be licensed, the Commission must weigh the various economic and environmental tradeoffs involved 

in that decision. This section contains the basis for, and a summary of, our recommendations for relicensing the 

Macomb Project. We weigh the costs and benefits of our recommended alternative against other proposed measures. 

 Based on our independent review of agency and public comments filed on this project and our review of the 

environmental and economic effects of the proposed project and its alternatives, we selected the proposed project, 

with staff-recommended modifications, as the preferred option. We recommend this option because: (1) issuance of 

a new hydropower license by the Commission would allow Municipal to operate the project as an economically 

beneficial and dependable source of electrical energy for its customers; (2) the 4.2 MW of electric energy generated 

from a renewable resource may offset the use of fossil-fueled, steam-electric generating plants, thereby conserving 

nonrenewable resources and reducing atmospheric pollution; (3) the public benefits of this alternative would exceed 

those of the no-action alternative; and (4) the recommended measures would protect and enhance fish and wildlife 

resources, and would provide improved recreation opportunities at the project when the water supply protection 

restrictions are no longer required. 

 In the following section, we make recommendations as to which environmental measures proposed by 

Municipal or recommended by agencies and other entities should be included in any license issued for the project. In 

addition to Municipal’s proposed environmental measures, we recommend additional staff-recommended 

environmental measures to be included in any license issued for the project. We also discuss which measures we do 

not recommend including in the license. 

 

Measures Proposed by Municipal

 Based on our environmental analysis of Municipal’s proposal discussed in section 4 and the costs discussed 

in section 5, we recommend including the following environmental measures proposed by Municipal in any license 

issued for the project. 

• Municipal would continue to operate and maintain the oily water separator installed in the powerhouse in 

1997 to remove all oil from water before it is discharged into the project tailrace. 

• Municipal would continue to manage the watershed to protect the water quality and would continue to 

operate Copper Lake to minimize turbidity to protect the water quality. 

• Municipal would install remote water level monitoring equipment at Copper Lake to allow greater lead times 

for making flow ramping decisions that would in turn enable a decrease in ramping rates. 

• Municipal would continue to provide 4.5-cfs flow to the Wild River Mountain Fish Hatchery. 

• Use of the Wild River Mountain Trail within the Copper River watershed would continue. 

• Municipal would install weirs below both the Copper Lakes dam and the Copper Basin diversion to monitor 

the seepage that currently occurs from the Copper Lakes dam and the Copper Basin diversion and, if future 

repairs would reduce seepage, commits to maintain through some other means an amount of flow equal to 

the amount of the seepage flows measured during the first 2 years of seepage monitoring. 

• Municipal would conduct flow monitoring for 5 years just upstream of the tailrace to measure seasonal 

variability of flows in the bypassed reach of Copper Creek. The gaging would not be conducted to USGS 

specifications, but would obtain similar results. We recommend that monitoring occur for 10 years.

• If public recreation access is opened to Copper Lakes, Municipal would consult with Fish and Game about 

conducting fish studies in Copper Lakes. We also recommend that consultation with Parks and Recreation 
76

occur. 

• If Municipal constructs a water treatment facility, Municipal would consult with the Forest Service about 

reopening the Copper Lakes watershed to public recreation. 

Additional Measures Recommended by Staff

• Conduct a water temperature modeling study to identify the effect of project operations and facilities on 

water temperatures in Copper Creek downstream of the project tailrace

• Maintain a continuous minimum flow through the project of 47 cfs, except in the event of a plant power trip 

or for the purpose of protecting the water supply purposes of the project, when the flow may be reduced to 

35 cfs. 

• Limit ramping rates to obtain the following maximum stage changes in Copper Creek downstream from the 

project tailrace: 

February 16 to May 31 No ramping except that ramping up to 1 inch/hour would be permitted when 

needed to ensure adequate quantity and quality of water for domestic water 

supply; when flow ramping is needed for these purposes, Municipal would notify 

a designated fishery agency representative that a flow change is required to allow 

the agencies to investigate aquatic resource-related impacts; 

 2 inches per hour maximum at night 

June 1 to September 15 1 inch per hour maximum 

September 16 to February 15 2 inches per hour maximum 

• Develop and implement a plan to monitor project flows and ramping rates, in consultation with NMFS, 

FWS, Forest Service, and Fish and Game. 

• Develop and implement a fisheries habitat enhancement plan showing the detailed design and feasibility of: 

(1) removing the 5-foot barrier on Copper Creek, (2) improving access to (but not passage through) the 

Copper Creek culvert, (3) enhancing 2,000 square feet of salmonid rearing habitat, and (4) extending the 

existing fish ladder on Copper Creek. The plan shall be developed, in consultation with NMFS, FWS, Forest 

Service, and Fish and Game. 

• Adopt appropriate measures if any cultural resources are disturbed during future project operation and 

maintenance activities. 

 The following is a discussion of the basis for the additional staff-recommended measures. 

Minimum Flow 

 The staff-recommended minimum flow of 47 cfs in Copper Creek downstream from the project tailrace with 

a minimum of 35 cfs during plant outages or if needed to protect the water supply purposes of the project, is designed 

to ensure that the current minimum flow regime is maintained. Currently, Municipal tries to operate the project at a 

minimum flow of 47 cfs (even though the existing license only requires 35 cfs) because at lower flows the operating 

efficiency of the project turbines falls off. Allowing a minimum flow of 35 cfs during project outages and for the 

protection of water supply, would avoid the necessity of modifying the power plant's minimum flow turbine bypass 

system, and allow Municipal to reduce the flows, as they do now, when needed to ensure an adequate and high 

quality water supply. At the February 9, 2000, 10(j) meeting the agencies and staff agreed on this minimum flow 

recommendation. 
77

 Other than the cost of monitoring (see below) to check compliance with minimum flow and ramping rate 

limits, Municipal would incur no loss of power benefits nor would it be required to modify existing minimum flow 

bypass facilities or build costly water treatment facilities to comply with the new minimum flows. The new minimum 

flows would protect the fishery resources by ensuring that the minimum flows over the period of a new license remain 

at the normally higher level of 47 cfs and are not routinely reduced for long periods of time to the 35-cfs level 

allowed by the current license. 

 

Ramping Rates 

 The staff-recommended ramping rates are the same as the ramping rates Fish and Game recommended 

before we issued the draft EA except for the February 16 through May 31 (day time) period, when Fish and Game 

recommends no ramping and we recommend allowing Municipal to ramp the flows up to a rate of 1 inch per hour, if 

needed for domestic water supply purposes. 

 Before the draft EA was issued, FWS recommended that downramping not exceed the rate of 30 cfs per 

hour, which is equivalent to an instream rate of about 1 inch per hour. The operating data Municipal provided 

indicates that most of the time the project operates within this criteria; however, we don’t believe there is a biological 

need to restrict ramping rates to less than Fish and Game’s recommended 2 inches per hour February 16 to May 31 

(nights), and September 16 to February 15 (day and night). Our recommended ramping rates provide adequate 

protection for the critical periods when juvenile fish may be impacted. 

 Eliminating Municipal's ability to ramp project flows for municipal water supply quantity and quality control 

purposes could put Municipal in the position of having to choose between violating a license condition, risking public 

health or constructing a water filtration plant at a cost of about $20,000,000. The ramping rate issue was discussed at 

the February 9, 2000, 10(j) meeting and the agencies agreed to adopt our recommended ramping rates, which sets the 

target of zero ramping for the critical daytime period between February 16 and May 31, but allows Municipal to ramp 

1 inch per hour during this period, when needed to protect the water supply. 

 The staff-recommended ramping rates would not affect project generation or power value and would not 

require any new capital expenditures. Municipal plans to add lake level monitoring with remote readout at the Chum 

operations control center for an estimated cost of $8,300. This capability would improve Municipal's ability to 

manage project flows to meet the required ramping rate limits. Limiting ramping rates to the recommended 

maximums would reduce the possibility of fish stranding, which has been reported to fishery agency representatives 

in the past. We conclude that any loss in operating flexibility caused by this measure would have minimal economic 

consequences and would provide valuable protection to the fishery resources over the term of a new license. 

Monitoring Project Flows and Ramping Rates 

 In a June 10, 1999, letter commenting on agency recommendations for terms and conditions to include in a 

new license for the Copper Lakes Project, Municipal agreed to install a stream gaging station to USGS standards on 

Copper Creek downstream of the project tailrace and to monitor Copper Creek flows upstream of the tailrace for a 

period of 5 years. Municipal is currently monitoring seepage flows from Copper Lakes at several locations and has 

agreed to additional flow monitoring to establish a baseline for leakage from the Copper Creek diversion. The 

agencies' flow monitoring recommendations include specific requirements that may differ somewhat from what 

Municipal is proposing and other agencies are recommending. We are, therefore, recommending that Municipal 

develop a plan, in consultation with Fish and Game, Forest Service, FWS and NMFS, for monitoring project flows 

and reservoir water surface elevations for approval by the Commission prior to implementation. We estimate the plan 

would cost Municipal $5,000 or, about $500 per year over the 30-year period of analysis. The potential savings from 

a well designed monitoring plan is worth this cost. 

Fisheries Habitat Enhancement 

 The staff recommends that Municipal consult with the agencies and develop a plan for implementing stream 

habitat enhancements. We recommend that Municipal include, at a minimum, the following measures in the plan: (1) 
78

remove the 5-foot-high barrier on Copper Creek; (2) modify the existing fish ladder on Copper Creek; (3) improve 

2,000 square feet of salmonid rearing habitat in Copper Creek below the tailrace; and (4) improve fish access to the 

culvert at the mouth of Copper Creek. 

 Municipal proposes to provide funding of $15,000 for the agencies to implement whatever stream habitat 

enhancement measures they choose. Based on our economic analysis, these four measures would cost about $45,000, 

however, the exact cost cannot be determined until Municipal develops final plans and feasibility studies. We 

recommend that Municipal prepare the plan, in consultation with Fish and Game, FWS, NMFS, and Forest Service, 

and give the resource agencies the opportunity to comment on the plan before filing it with the Commission for final 

approval. Our estimated cost for preparing the fish habitat improvement plan is $10,000. 

 The total estimated cost, including implementation, for the staff-recommended fishery habitat enhancements 

is $55,000 (equivalent to a levelized annual cost of about $5,500 over the 30-year period of analysis). We believe the 

habitat enhancements created by this recommendation would substantially improve the existing conditions for the 

important Copper Creek anadromous fish population. Removing the 5-foot Copper Falls in the Copper Creek 

bypassed reach would open up 1,855 feet of stream with relatively good spawning and rearing habitat despite the 

reduced flows. Likewise, improving the access to Copper Creek, which was historically considered an important 

salmon spawning area, would allow more fish to access this tributary habitat. Improving 2,000 square feet of rearing 

habitat and extending the existing fish ladder at the cascade located where Copper Creek drops into the area of tidal 

influence near the mouth of the creek, may, also, contribute to improved conditions for the fishery, if these measures 

are found feasible by the staff-recommended study. The potential benefit of these measures would be worth the 

additional cost, which is $40,000 more than Municipal proposed to contribute for these measures. 

Cultural Resource Protection 

 Municipal is not proposing nor are we recommending any changes to project facilities. However, we 

recommend any new license contain provisions requiring Municipal to take appropriate measures should any cultural 

resources be discovered or disturbed during future operations and maintenance at the project. 

 In conclusion, from our evaluation of the environmental effects and public benefits of the project, we find 

that licensing the Angus Project with our recommended environmental protection measures would be best adapted to 

a comprehensive plan for the Copper River drainage basin. 

Measures not Recommended by Staff 

 Staff finds that some of the measures recommended by other interested parties would not contribute to the 

best comprehensive use of the Copper River water resources, do not exhibit sufficient nexus to project environmental 

effects, or would not result in benefits to non-power resources that would be worth their cost. The following 

discusses the basis for staff’s conclusion not to recommend such measures. 

Fish Passage 

 We do not recommend that Municipal construct fishways or fish screens at the project as recommended by 

the Copper Coalition. We find that the trout population in the project area consists predominantly of rainbow trout 

less than 7 inches in length, and based on all of the available information, we find that most of these trout are nonmigratory. We find no evidence of any mass trout movements in the project area or of any current adverse effects to 

the trout population due to existing passage conditions. We, therefore, conclude that the $158,100 annual cost of 

constructing, operating, and maintaining fishways at the project would not be justified by the limited benefits. 

Another example of Comprehensive Development and Recommended Alternative section (Source: Bar Mills 

Project EA, FERC No. 2194, September 12, 2005): 

5.2.2 Comprehensive Development and Recommended Alternative 
79

Sections 4(e) and 10(a) of the FPA require the Commission to give equal consideration to all uses of the 

waterway on which a project is located. When we review a hydropower project, we consider the water quality, fish 

and wildlife, recreation, cultural, and other non-developmental values of the involved waterway equally with its 

electric energy and other developmental values. In deciding whether, and under what conditions a hydropower 

project should be licensed, the Commission must determine that the project will be best adapted to a comprehensive 

plan for improving or developing the waterway. 

This section contains the basis for, and a summary of, our recommendations for relicensing the Bar Mills 

Project. We weigh the costs and benefits of our recommended alternative against other proposed measures. 

 5.2.2.1 Recommended Alternative 

Based on our independent review and evaluation of the environmental and economic effects of the proposed 

action, the proposed action with additional staff-recommended measures, the composite alternative, and no action, we 

recommend the proposed action with additional staff-recommended measures, as the preferred alternative. 

We recommend this alternative because: (1) issuing a new license would allow FPL Energy to continue 

operating the project as a beneficial and dependable source of electric energy; (2) the 4.0 MW of electric energy 

generated from a renewable resource may offset the use of fossil-fueled, steam-electric generating plants, thereby 

conserving nonrenewable resources and reducing atmospheric pollution; and (3) the recommended environmental 

measures would protect water quality, enhance fish and wildlife resources, and improve public use of project 

recreation facilities and resources. 

FPL Energy Proposal 

FPL Energy proposes to continue to operate the project in a cycling mode with a daily 2-foot impoundment 

drawdown from the top of hinged flashboards, release flows from the powerhouse according to the Instream Flow 

Agreement, and release a 25-cfs minimum flow in the bypassed reach year-round. FPL Energy would address the 

need for fish passage according to the Fish Passage Agreement, and also proposes to implement a HPMP, and 

improve recreation facilities according to a recreation plan. 

Staff’s Evaluation of the Measures Considered 

Our recommended alternative includes provisions of the proposed action with some additional staffrecommended measures including: maintaining a minimum flow of 50-cfs, or inflow if less, in the bypassed reach 

year-round; developing and implementing a flow and water level monitoring plan. We also recommend implementing 

FPL Energy’s proposed recreation plan and HPMP. We discuss our rationale for the measures we are recommending 

or not recommending below. 

Mode of Operation 

 Interior recommends that the project be operated in a run-of-river mode such that instantaneous outflow 

equals inflow and fluctuations in the project impoundment be kept at a minimum at all times. NOAA Fisheries also 

recommends run-of-river operation but states that the impoundment should be held within 6 inches of the normal crest 

elevation. Maine Fish and Wildlife recommend that, except in emergency situations, FPL Energy refrain from 

performing routine maintenance activities, which would require reservoir drawdowns, during May and June to protect 

the littoral zone spawning habitat for smallmouth and largemouth bass. FPL Energy proposes to continue operating 

the Bar Mills Project in a cycling mode with daily reservoir level fluctuations of up to 2 feet below the full pond 

elevation of 148.5 feet USGS datum. 

 Operating the project as recommended by the agencies would reduce the chances of disrupting any spawning 

activity that might occur within or nearby the existing fluctuation zone. However, we are unable at this time to 

recommend that the project be operated in a run-of-river mode. Current project operation provides a regime that 

supports the structure and function of riparian wetlands, and project operation does not significantly affect riparian 
80

vegetation. Additionally, it is not clear that the existing operations are actually having an effect on spawning fishes. 

The abundance of the young-of-year age class of smallmouth bass and the presence of active nests beyond the 

influence of the daily drawdown zone indicates that successful spawning does occur in the impoundment under 

current operations. The apparent slow growth, lack of quality size smallmouth bass and largemouth bass, and the 

apparent presence of a poor year class indicate that the overall health of the bass population is less than optimal and 

would seem to point to other causative factors that may be indicative of the basin as a whole such as low primary 

productivity. Operating the project in a strict run-of-river mode at an annual cost of $6,340 would not seem to 

provide the types of benefits that would improve the overall health of the fishery. We do recommend that 

maintenance drawdowns that exceed the normal 2-foot daily drawdown be avoided during the spring spawning period 

months of May and June in order to protect those nests that have already been established. We don’t anticipate that 

limiting maintenance drawdowns to months outside of the May to June spawning season would entail any significant 

costs. 

Minimum Flows in the Tailrace 

 FPL Energy proposes to continue releasing flows from the Bar Mills powerhouse in accordance with the 

Instream Flow Agreement. According to the Instream Flow Agreement, the flow requirements at Bar Mills are 

determined by the following flow releases made at the upstream Bonny Eagle Project: (1) run-of-river operation from 

April 1 through June 30, with the impoundment maintained within 1 foot of full pond elevation; (2) 400 cfs, or 

inflow, whichever is less, from July 1 through September 30; (3) 600 cfs, or inflow, whichever is less, from October 1 

through November 15; and (4) 250 cfs, or inflow, whichever is less, from November 16 through March 31. Because 

DO levels in the project tailrace were found to meet state standards for Class A waters during low-flow, high 

temperature conditions, continuing to adhere to the conditions of the Flow Agreement would ensure that state water 

quality standards are met downstream of the powerhouse at no additional cost. Therefore, we recommend that the 

above flow releases become a condition of any license issued. 

Minimum Flows in the Bypassed Reach 

 FPL Energy proposes to maintain a minimum flow of 25 cfs in the project’s bypassed reach. Interior, 

NOAA Fisheries, and the Salmon Federation recommend that FPL Energy maintain at least 250 cfs in the bypassed 

reach year-round. Marine Resources, Maine Fish and Wildlife and the Salmon Commission recommend a minimum 

flow of at least 100 cfs. 

 Although habitat for smallmouth bass adults and juveniles, brown trout adults, and macroinvertebrates is 

greatest at a flow of 250 cfs, the rate of habitat improvement is greatest when flows are increased from leakage to 25 

cfs. Another moderate increase in habitat occurs when flows are increased from 25 to 50 cfs for all species life stages 

except smallmouth bass adults. Based on our evaluation of potential benefits to habitat for resident fish, stocked 

brown trout, macroinvertebrates, and to the zone of passage for migratory species (if upstream fish passage is 

ultimately required), we recommend that FPL Energy maintain a minimum flow of 50 cfs in the bypassed reach yearround. A flow of 50 cfs would provide about 70 percent of the maximum habitat (for the range of flows evaluated) 

for three of the four species life stages and nearly 60 percent for smallmouth bass adults. The rate of habitat 

improvement above 50 cfs levels off with further increases in discharge. As a zone-of-passage flow, 50 cfs would 

provide 16-foot-wide and 13-foot-wide passage channels at transect 2 for the 1.5-foot-deep and 2-foot-deep criteria, 

respectively. At 50 cfs, about 14 percent of transect 2 would be passable assuming a depth criterion of 1.5 feet. 

Increasing minimum flows above 50 cfs would not provide incremental improvements to habitat and zone of passage 

conditions worth the cost of $26,920 and $66,570 annually in lost generation, for the 100-cfs and 250-cfs minimum 

flows, respectively. Maintaining a minimum flow of 50 cfs at an annual cost of $7,970 in lost generation would 

provide most of the habitat provided by the higher 250-cfs flow and zone of passage conditions for migratory fishes 

similar to flows of 100 and 250 cfs depending on the depth criterion used. 

Flow and Water Level Monitoring Plan 

 Interior, NOAA Fisheries, Marine Resources, Maine Fish and Wildlife, and the Salmon Commission 

recommend that FPL Energy develop a flow and water level monitoring plan. NOAA Fisheries also recommends 
81

installing flow monitoring equipment in the project tailrace and bypassed reach to confirm minimum flow 

requirements. A plan to monitor impoundment levels and minimum flows (bypassed reach and tailrace) developed in 

consultation with the relevant agencies that describes contingencies for emergencies (such as providing downstream 

flows during project shutdown), scheduled maintenance drawdowns, droughts, as well as reporting criteria, would 

minimize misunderstandings about operational compliance and help ensure that aquatic resources at the project are 

protected during the term of a license. Therefore, we recommend that a plan for monitoring impoundment levels and 

minimum flows in the bypassed reach and tailrace be developed in consultation with the agencies at an annual cost of 

$4,260. 

 

Recreation 

FPL Energy proposes a recreation plan that would enhance recreational facilities and access at the project by 

improving the existing canoe portage take-out and parking, improving access to the tailrace, monitor recreation use 

and capacity, stabilizing minor bank erosion near the canoe put-in, and providing additional recreation use and 

directional signs. The proposed enhancements would improve canoe passage around the project dam, access for 

fishing, swimming and informal recreational activities. We recommend approving and implementing the proposed 

recreation plan, monitoring recreational use, and filing a Commission’s Form 80 report every six years. The 

estimated annual cost of this measure is $4,540. 

Historic Properties Management Plan 

FPL Energy proposes to implement the HPMP and conduct annual monitoring of sites within the project area 

that are eligible for listing in the National Register of Historic Places. The HPMP includes procedures that include 

consultation with the SHPO to address effects when unanticipated historic properties are discovered during landdisturbing maintenance or repair at the project. We recommend approving and implementing the HPMP. The 

estimated annual cost of this measure is $330. 

 

Shoreline Management Plan 

 Interior recommends that a detailed SMP be prepared for licensee-owned lands abutting project waters 

within 330 feet of the high water elevation. The plan is to include buffer strips to protect riparian areas for wildlife 

and aesthetic resources and address the likelihood of increased development pressures in the watershed. 

 Staff notes that there are only 3 acres of land within the project boundary located in the vicinity of the dam 

(FPL Energy does not own land above the full pool elevation in the impoundment area). Also, there appears to be 

little to no developmental pressure along the shoreline. 

 Most of the project land and waters within the 3-acre dam area would be used for recreation access and 

activities. The proposed recreation plan would improve and assure protection of these lands for public recreation. 

We therefore, do not believe a SMP would provide a significant benefit above those that could be provided through 

the recreation plan. Further, any license issued for this project would include a standard land use article that requires 

consultation with federal and state fish and wildlife agencies prior to leasing or providing easements across project 

lands. 

 

--example continued on next page-- 

 5.2.2.2 Conclusion

Based on our review of the agency and public comments filed on the project and our independent analysis 

pursuant to sections 4(e), 10(a)(1), and 10(a)(2) of the FPA, we conclude that licensing the Bar Mills Project, as 

proposed by FPL Energy with the additional staff-recommended measures would be best adapted to a plan for 

improving or developing the Saco River waterway. 
82

5.3 UNAVOIDABLE ADVERSE IMPACTS 

 This section should summarize "any adverse environmental effects that cannot be 

avoided should the proposal be implemented," as required by 40 CFR, section 1502.14, 

including effects of protection, mitigation, and enhancement measures. You should look 

at your assessment and determine if any adverse impacts would occur despite 

implementation of proposed and staff-recommended environmental measures. You should 

discuss any impacts to the resources--whether they are short or long-term, minor or major, 

cumulative or site-specific--that may occur. Use subheadings as appropriate. 

Example of Unavoidable Adverse Impacts: 

5.3 UNAVOIDABLE ADVERSE IMPACTS

Minor amounts of sediment would enter Green Creek as a result of construction of the project, even with 

implementation of erosion control measures, resulting in short-term impacts to resident fish. Some fish entrainment 

mortality would occur. This long-term impact is expected to be minor, given the existing condition of the fishery in 

the project area and in Green Creek upstream and downstream of the project. About 12 acres forested habitat would 

be permanently lost, including 2.2 acres of old-growth habitat; wildlife associated with the affected habitat would be 

lost. Protection of 6.6 acres of old-growth would minimize long-term impacts to wildlife. About 3 acres of secondgrowth forest would also be cleared but would be revegetated. The project would also result in minor increases in 

traffic, noise, and visual disturbance during construction and long-term aesthetic impacts during project operation. 

Two archeological sites could be affected by increased access, but trails would be designed to direct hikers away from 

the area. 
83

5.4 SUMMARY OF SECTION 10(j) RECOMMENDATIONS AND 4(e) 

CONDITIONS 

If no 4(e) conditions are provided, this section would only address fish and wildlife 

agency recommendations and would be labeled section 5.4, Recommendations of 

Fish and Wildlife Agencies. 

Although this section is not directly applicable to an Exhibit E prepared under the 

ILP or an APEA prepared under the ALP, it should be developed by applicants to 

keep track of draft fish and wildlife agency and mandatory conditioning agency 

recommendations and the applicant’s response. 

5.4.1 Recommendations of Fish and Wildlife Agencies 

Section 10(j) of the FPA requires the Commission to: 

• Include license conditions for protection, mitigation, and enhancement of fish and 

wildlife resources based on the recommendations21 received pursuant to the Fish 

and Wildlife Coordination Act (16 U.S.C. 661 et seq.) from the National Marine 

Fisheries Service, the U.S. Fish and Wildlife Service, and state fish and wildlife 

agencies [subsection 10(j)(1)] unless the Commission determines that they are 

inconsistent with provisions of Part 1 of the FPA or other applicable law 

 

• When the Commission believes any such recommendation is inconsistent with Part 

I of the Federal Power Act or other applicable law, attempt to resolve 

inconsistencies with the specified agencies giving due weight to the 

recommendations, expertise, and statutory responsibilities of the agencies 

[subsection 10(j)(2)] 

Draft EA/EIS 

We evaluate each recommendation according to the following process: 

 21 Fish and wildlife recommendation--"means any recommendation designed to protect, mitigate damages to, 

or enhance any wild member of the animal kingdom, including any migratory or nonmigratory mammal, fish, bird, 

amphibian, reptile, mollusk, crustacean, or other invertebrate, whether or not bred, hatched, or born in captivity, and 

includes any egg or offspring thereof, related breeding or spawning grounds, and habitat. A 'fish and wildlife 

recommendation' includes a request for a study which cannot be completed prior to licensing, but does not include a 

request that the proposed project not be constructed or operated, a request for additional pre-licensing studies or 

analysis or, as the term is used in sections 4.34(e)(2) and 4.34(f)(3), a recommendation for facilities, programs, or 

other measures to benefit recreation or tourism" [18 CFR, section 4.30(b)(9)(ii)]. 
84

Measures Considered Outside the Scope of Section 10(j) 

• Late-filed recommendations 

• Post-licensing studies that can be conducted before licensing (e.g., minimum flow study) 

• Measures that are not specific (vague, general, or undefined future fish and wildlife measures) 

• Non-fish and wildlife measures (e.g., recreation facility construction, public access, rare plant protective 

measures, administrative conditions) 

• Measures with no nexus to proposed action

 

We document our findings in this section of the NEPA document. Specifically, the draft 

EA/EIS should: 

• Account for all recommendations filed under section 10(j) 

• Indicate whether you think a fish and wildlife agency recommendation is a specific 

measure for the protection, mitigation, or enhancement of fish and wildlife 

resources affected by the project [i.e., within the scope of 10(j)—see below], and if 

not, why not. All recommendations found to be outside the scope of section 10(j) 

are considered as recommendations under section 10(a). 

• Include your preliminary call on whether the recommendations that are within the 

scope of section 10(j) are or are not consistent with the FPA or other applicable law 

(see below) and should be adopted by the Commission, and discuss in detail the reason 

for not adopting the measure and the basis for your recommendation, including why 

the measures you recommend would protect the resource. Don’t quibble over 

insignificant matters. 

Bases for Findings of Inconsistencies 

• Comprehensive development standard of section 10(a)(1) of the FPA, including equal consideration 

standard of section 4(e) (“balancing considerations”)

• Substantial evidence standard of section 313(b) of the FPA

• Other applicable law
85

o For recommendations that we find inconsistent with sections 10(a) and 4(e), we 

must show that the cost of the measure (i.e., negative impacts it would have) 

outweighs the benefits (i.e., positive impacts it would have on the affected 

natural resource or staff’s recommendation). 

o For recommendations that we find inconsistent with the substantial evidence 

standard of section 313(b), summarize what the agency stated in support of the 

recommendation, and explain, in such detail as necessary, why the agency's 

evidence is not adequate to support its conclusion (e.g., agency does not explain 

why a measure is necessary or bases its recommendation on outdated 

information). If the agency provides no support for a recommendation, say so. 

o If staff finds a recommendation inconsistent with law other than the FPA (e.g., a 

recommendation that directly conflicts with a mandatory water quality 

certification condition under section 401 of the Clean Water Act), explain so. 

• Include a summary table (described below) 

 If the discussion is involved, use subheadings. 

An example of a 10(j) section is included below: 

5.4 FISH AND WILDLIFE AGENCY RECOMMENDATIONS 

Under the provisions of section 10(j) of the FPA, each hydroelectric license issued by the Commission shall 

include conditions based on recommendations provided by federal and state fish and wildlife agencies for the 

protection, mitigation, or enhancement of fish and wildlife resources affected by the project. 

Section 10(j) of the FPA states that whenever the Commission believes that any fish and wildlife agency 

recommendation is inconsistent with the purposes and the requirements of the FPA or other applicable law, the 

Commission and the agency shall attempt to resolve any such inconsistency, giving due weight to the 

recommendations, expertise, and statutory responsibilities of such agency. In response to our REA notice, the 

following fish and wildlife agencies submitted recommendations for the project: Agency 1 (letter filed May 27, 

2005), Agency 2 (letter filed May 26, 2005), and Agency 3 (letter filed May 26, 2005). Table 5-3 lists the federal and 

state recommendations filed subject to section 10(j), and whether the recommendations are adopted under the Staff 

Alternative. Environmental recommendations that we consider outside the scope of section 10(j) have been 

considered under section 10(a) of the FPA and are addressed in the specific resource sections of this document and 

the previous section. 

The Commission staff makes a preliminary determination that three recommendations by Agency 1 and one 

recommendation by Agency 3 may be inconsistent with the purpose and requirements of the FPA or other applicable 

law. 

We do not recommend adopting Agency 1’s recommendation that Smith Electric maintain a daily flow 

fluctuation range of 10,000 cfs in Smith Creek during the fall Chinook salmon rearing period. Our analysis in section 

3.3.2, suggests that Agency 1’s 10-kcfs fluctuation limit would potentially result in less stranding and entrapment of 

fall Chinook salmon in Smith Creek than the operations proposed by Smith Electric, Agency 1, and Agency 3 in the 

settlement agreement. However, the 10 kcfs fluctuation limit would increase fluctuations within the project reservoirs 
86

that could have adverse environmental effects on reservoir fisheries, recreation, shoreline erosion, or cultural 

resources. Additionally, the 10 kcfs fluctuation limit would substantially reduce the ability of the project to provide 

regional electrical system support and load following capability and would also reduce the ability of the project to 

serve other purposes such as flood control, navigation, agriculture, recreation, municipal and industrial use, or cultural 

resources. Lastly, implementation of the 10 kcfs limit would cost approximately $136 million per year, or 32 times 

more than the estimated cost of implementing the agreement (i.e., $4.3 million per year). Based on this information, 

we find that Agency 2’s recommendation to reduce fall Chinook salmon stranding and entrapment in Smith Creek 

may be inconsistent with the comprehensive planning standard of section 10(a) and the equal consideration provision 

of section 4(e) of the FPA. 

We do not recommend adopting Agency 1’s recommendation that Smith Electric conduct annual surveys to 

estimate fall Chinook salmon fry entrapment and stranding losses from flow fluctuations in Smith Creek. As 

discussed in section 3.3.2, Smith Electric conducted stranding and entrapment surveys from 1997 to 2003 and 

demonstrated the benefits of the proposed agreement during two years (2002 and 2003) when Smith Electric 

voluntarily complied with the requirements of the agreement. Under the agreement, Smith Electric, Agency 1, and 

Agency 3 propose to conduct follow-up monitoring using similar methods in 2011, 2012, and 2013. Although 

Agency 1’s recommendation to conduct annual surveys to estimate entrapment and stranding would provide 

information that could be used to track year-to-year conditions in Smith Creek, we believe that the follow-up 

monitoring proposed by the agreement signatories would provide sufficient information to judge the success of the 

measures. Additional monitoring could be required after review of the results of the proposed monitoring. Therefore, 

we conclude that the benefits of Agency 1’s level of tracking would not be worth the additional cost of $150,000. 

Based on this information, we find that Agency 1’s recommendation to conduct annual fall Chinook salmon stranding 

and entrapment surveys in Smith Creek may be inconsistent with the comprehensive planning standard of section 

10(a) and the equal consideration provision of section 4(e) of the FPA. 

We do not recommend adopting Agency 2’s and Agency 3’s recommendation that Smith Electric develop 

and implement a bull trout management plan. Agency 2 and Agency 3 indicate that the plan should include a 

monitoring program to assess the project effects on upstream and downstream bull trout passage, assessment of 

juvenile rearing in the reservoirs, implementation of modifications to correct any passage problems that are identified, 

assessment of off-season passage counts, PIT-tagging of incidentally collected sub-adult fish, and participation in 

information exchange and regional monitoring efforts. However, our analysis in section 3.3.2 suggests that the 

occurrence of bull trout in the project area is extremely rare and there is no evidence that the project affects the few 

bull trout that may infrequently occur within the project area. Additionally, because of the low occurrence of this 

species in the project area, it would be essentially impossible to conduct the recommended studies with any level of 

statistical validity. The rare occurrence of bull trout in the project area and the lack of evidence demonstrating any 

adverse project effects on bull trout suggest that the recommended studies are unwarranted and unnecessary. Based 

on this information, we find that Agency 2’s and Agency 3’s recommendation to develop and implement a bull trout 

management plan may be inconsistent with the substantial evidence standard of section 313(b) of the FPA. 

Summary Table 

 The summary table should include the following: 

• A list of all fish and wildlife agency recommendations filed under section 10(j)—single 

recommendations can be divided into multiple recommendations for clarity and similar 

recommendations made by multiple agencies can be combined; recommendations can 

be numbered to more easily track discussion in the document or reference agency letters 

(e.g., FWS-1, NMFS-3a, etc.) 

• Our conclusions as to whether the recommendations are within the scope of 10(j) and 
87

why they are not within the scope of 10(j) (give clear reason in the table or as a 

footnote) 

• The annual cost to implement the recommendations (be as specific as possible--in 

absence of dollar value use descriptive terms such as insignificant, minor, moderate, 

major, loss of timber value, etc.) 

• Our conclusion (adopt or not adopt) 

o If we don’t adopt a recommendation, briefly describe why 

o If a recommend is partially adopted, briefly describe how our recommendation 

differs from the agency recommendation 

Number the recommendations if there are many. 

 For projects with many recommendations, it may be prudent to refer the reader to the 

comprehensive development section instead of summarizing the reasons we don’t adopt valid 

10(j) recommendation in this section. The preliminary findings of inconsistency would appear 

in the 10(j) summary table. This would avoid redundancy 
88

Example of a summary table: 

Table 5-X. Fish and wildlife agency recommendations for the Blue Creek Project (Source: staff).

Recommendation Agency Within the scope 

of section 10(j) 

Annualized 

cost 

Adopted? 

Revegetation of unstable slopes to 

reduce sedimentation 

FWS Yes. $3,000 Adopted. 

Improvements to fish screen to 

minimize impingement of small fish 

Washington 

DFW 

Yes. $7,000 Adopted. 

Instream flow of 200 cfs in bypassed 

reach 

FWS; 

Washington 

DFW 

Yes. $35,000 Adopted. 

Installation of stream gage FWS, 

NMFS 

Yes. $3,000 Adopted. 

Develop and implement a bull trout 

management plan to address projectrelated impacts over the term of the 

new license 

FWS; 

Washington 

DFW 

Yes. $6,300 Not adopted--effects to 

bull trout are from 

upstream projects. 

Monitoring of 

water temperature and 

stream discharge 

throughout the year 

FWS, 

NMFS, 

Washington 

DFW 

No. No nexus to 

project effects—

project has no 

potential to affect 

temperature or 

flows. 

$15,000 Not adopted. 

Raptor protection measures FWS, 

Washington 

DFW 

Yes. $1,500 Adopted. 

Rare plant survey FWS No. Not a specific 

measure to protect, 

mitigate, or 

enhance fish and 

wildlife resources. 

$2,000 Adopted. 

Riparian vegetation monitoring Washington 

DFW 

Yes. $10,000 Adopted. 

Acquisition and management of 350 

acres of wildlife habitat 

FWS Yes. $9,300 Adopted 

Noxious weed monitoring of all 

lands within project boundary 

FWS Yes. $5,000 Not adopted-- 

recommending 

monitoring of areas 

disturbed by projectrelated activities. 

 

. 
89

Example of a Fish and Wildlife Agency Recommendations section without discussion of reasons for not 

adopting valid 10(j) recommendations and summary: 

5.4 FISH AND WILDLIFE AGENCY RECOMMENDATIONS 

Under the provisions of section 10(j) of the FPA, each hydroelectric license issued by the Commission shall 

include conditions based on recommendations provided by federal and state fish and wildlife agencies for the 

protection, mitigation, or enhancement of fish and wildlife resources affected by the project. In response to our REA 

notice, the following fish and wildlife agencies submitted recommendations for the project: Interior (letter filed 

January 27, 2006) and Oregon DFW (letter filed January 25, 2006). 

Section 10(j) of the FPA states that whenever the Commission believes that any fish and wildlife agency 

recommendation is inconsistent with the purposes and the requirements of the FPA or other applicable law, the 

Commission and the agency shall attempt to resolve any such inconsistency, giving due weight to the 

recommendations, expertise, and statutory responsibilities of such agency. Table 5-4 lists the federal and state 

recommendations filed pursuant to section 10(j) and indicates whether the recommendations are included under the 

Staff Alternative. Environmental recommendations that we consider outside the scope of section 10(j) have been 

considered under section 10(a) of the FPA and are addressed in the specific resource sections of this document. 

Of the 35 recommendations that we consider to be within the scope of section 10(j), we wholly include 25, 

include 5 in part, and do not include 2. We discuss the reasons for not including those recommendations in section 

5.2, Comprehensive Development and Recommended Alternative. Table 5-4 indicates the basis for our preliminary 

determinations concerning measures that we consider inconsistent with section 10(j). 

Table 5-4. Fish and wildlife agency recommendations for the Green River Project (Source: staff) (just showing a few of 

recommendations).

Recommendation Agency Within the scope 

of section 10(j) 

Annualized 

cost 

Adopted? and Basis 

for Preliminary 

Determination of 

Inconsistency 

Establish anadromous fish hatchery 

goals, based on adult returns and 

societal use. 

Interior Yes. $66,700 Not adopteda

 (see 

section 5.2.2). 

Ensure raptors are not subject to 

electrocution 

Interior Yes. $10,000 Yes 

Acquire and manage 20,000 acres 

if initial target lands are 

unavailable. 

Oregon 

DFW 

Yes. $2,000,000 Not adoptedb

 (see 

section 5.2.3). 

Conduct rare plant survey Oregon 

DFW 

No. Not a specific 

measure to protect, 

mitigate, or 

enhance fish and 

wildlife resources. 

$2,000 Yes. 

a

 Preliminary findings that recommendations found to be within the scope of section 10(j) are inconsistent 

with the substantial evidence standards of section 313(b) of the FPA are based on a lack of evidence to support the 

reasonableness of the recommendation or a lack of justification for the measure. 

b

 Preliminary findings that recommendations found to be within the scope of section 10(j) are inconsistent 

with the comprehensive planning standard of section 10(a) of the FPA, including the equal consideration provision of 

section 4(e) of the FPA, are based on staff’s determination that the costs of the measures outweigh the expected 

benefits. 
90

Final EA/EIS

 The final EA/EIS will summarize any attempts to resolve the inconsistencies. The 

final environmental document should include: 

• A revised table of agency recommendations showing the results of the 10(j) process 

• A summary of inconsistencies 

• The date of our 10(j) letter(s) and agency response(s) 

• The date of any teleconference or meetings 

• A discussion of how we attempted to resolve the preliminary inconsistencies and 

the conclusions 

• If we do not resolve an inconsistency, a discussion of how the measures we 

recommend adequately and equitably protect, mitigate, or enhance fish and wildlife 

resources 

Example of discussion summarizing the 10(j) meeting or teleconference: 

To resolve the inconsistencies between the agencies’ recommendations and the purposes and requirements of 

the FPA or other applicable law, Commission staff conducted a 10(j) meeting over the telephone with representatives 

from FWS on April 27, 2006. The recommendations discussed included: (1) operating the project strictly run-of 

river and maintaining reservoir levels in both reservoirs within 0.1-foot of full pond elevation; and (2) improving 

aquatic habitat in Smith Lake by installing woody debris, artificial fish structures, and planting aquatic vegetation in 

the reservoir. 

Run-of-river Project Operations with Specific Reservoir Elevations – Because of the sensitivity and types of 

aquatic resources located downstream from the project dam, FWS was concerned that any unexpected project loss of 

power would cause a shut-down of the projects. FWS said that these unexpected project shut-downs could jeopardize 

the health and well being of aquatic resources by affecting the timing and availability of water released into the rivers 

immediately downstream from the dams. 

Staff discussed the success of the use of the computerized operation at the project to maintain reservoir 

elevations within a very tight range. Municipal is concerned that without having some flexibility in maintaining 

reservoir elevations, the project would be in non-compliance with any license conditions that required the reservoir be 

maintained within 0.1-foot of full pond elevation at all times. 

FWS ultimately agreed to some degree of flexibility in the reservoir operating regimes for both projects. The 

agreed-upon approach would set the lower limit for reservoir elevations at within 0.1-foot of full pond elevation, but 

would allow the pond level to decrease up to 0.3-foot of full pond elevation 1 percent or less of the time. The 

resource agencies agreed to develop the specifics of how the 1 percent criteria for determining the frequency and 

occurrence of the 0.3-foot elevation would be crafted and defined in the Lake Level and Flow Monitoring Plan to be 

developed by Municipal for both projects, in consultation with the resource agencies. 
91

Improve Aquatic Habitat in Smith Lake – FWS withdrew their recommendation for aquatic habitat 

improvement for Smith Lake. Instead, the FWS requested more financial aid from Municipal for their proposed 

Community Fishing Program for Smith Lake. This new request is discussed below in section 5.2, Comprehensive 

Development and Recommended Alternative. 

5.4.2 Land Management Agencies’ Section 4(e) Conditions 

 In this section, we provide a table summarizing the land management conditions 

and indicate whether they, or any alternative conditions, are included in the Staff 

Alternative. 

Example of Land Management Agencies’ Section 4(e) Conditions section: 

5.4.2 Forest Service’s Section 4(e) Conditions 

 In section 2.2.5, Modifications to Applicant’s Proposal—Mandatory Conditions, we list the preliminary 4(e) 

conditions submitted by the Forest Service, and note that section 4(e) of the FPA provides that any license issued by 

the Commission “for a project within a federal reservation shall be subject to and contain such conditions as the 

Secretary of the responsible federal land management agency deems necessary for the adequate protection and use of 

the reservation.” Thus, any 4(e) condition that meets the requirements of the law must be included in any license 

issued by the Commission, regardless of whether we include the condition in our Staff Alternative. 

 Of the Forest Service’s sixteen preliminary conditions, we consider eight of the conditions (conditions 1 

through 8) to be administrative or legal in nature and not specific environmental measures. We therefore, do not 

analyze these conditions in this EA. Table 5-1 summarizes our conclusions with respect to the eight preliminary 4(e) 

conditions that we consider to be environmental measures. We include in the Staff Alternative six conditions as 

specified by the agency, modify one condition to adjust the scope of the measure, and did not recommend one 

condition; the measures not adopted in total are discussed in more detail in section 5.2, Comprehensive Development 

and Recommended Alternative. 

. 

Table 5-1. Forest Service preliminary section 4(e) conditions for the Green Creek Project (Source: staff). 

Condition Annualized cost Adopted? 

No. 9: Transportation 

Plan 

$5,000 Yes. 

No. 10: Campground 

construction 

$23,000 Yes. 

No. 11: Minimum 

flows of 300 cfs 

$65,000 No, we adopt Green Hydro’s alternative condition for a 

minimum flow of 200 cfs and habitat enhancement. 

No. 12: Noxious weed 

control plan 

$3,000 Yes. 

No. 13: Trail 

maintenance 

$10,000 No, we do not adopt applicant funding of trail maintenance 

for the section of trail located outside the project boundary. 

No. 14: Public access 

management plan 

$15,000 Yes. 

No. 15: Emergency 

flow shutoff 

$25,000 Yes. 

No 16: Erosion control 

plan 

$10,000 Yes. 
92

5.5 CONSISTENCY WITH COMPREHENSIVE PLANS 

Under 18 CFR, sections 4.38(e)(6) and 16.8(e)(6), you must identify relevant 

comprehensive plans and explain how and why the proposed project would, would not, or 

should not comply with such plans. Section 10(a)(2)(A) of the FPA requires the 

Commission, before licensing, to consider each proposed project's consistency with 

relevant federal or state comprehensive plans for developing or conserving a waterway. 

Some examples of those plans include federal watershed management plans prepared by 

the U.S. Army Corps of Engineers; plans to protect fishery resources, migratory 

waterfowl, or unique ecosystems by the FWS; and land and resource management plans 

prepared by the Forest Service, National Park Service, or Bureau of Land Management. 

State plans include: state comprehensive outdoor recreation plans, fish and wildlife plans, 

water quality improvement plans, and river basin plans. 

While consulting with the agencies about your project, ask them about relevant 

federal and state plans. The updated list of plans that meet the requirements of 18 C.F.R. 

§2.19 can be found on the FERC web site 

(http://www.ferc.gov/industries/hydropower/gen-info/licensing/complan.pdf) so that you 

may discuss your project's consistency or inconsistency with relevant plans. If the project 

is inconsistent, you should evaluate measures to reduce the project's conflicts with the 

goals of the accepted plan. For inconsistencies that can't be adequately resolved, the 

Commission may recommend an alternative project design or deny the license. 

There may be other plans, that although they do not qualify as comprehensive plans 

under section 10(a)(2)(A), may be relevant to our evaluation of the project. In that case, 

identify and consider those plans in comprehensive development analysis, pursuant to 

section 10(a)(1) of the FPA. 

Example of a project that is consistent with Comprehensive Plans: 

5.5 CONSISTENCY WITH COMPREHENSIVE PLANS

Section 10(a)(2) of the FPA, 16 U.S.C., § 803(a)(2)(A), requires the Commission to consider the extent to 

which a project is consistent with federal or state comprehensive plans for improving, developing, or conserving a 

waterway or waterways affected by the project. We reviewed six comprehensive plans that are applicable to the West 

River Project, located in Wisconsin.1 No inconsistencies were found. 

____________________ 

1 List applicable plans here. [If list is very long, include in text or as an appendix.] 
93

Example of a project that is inconsistent with a Comprehensive Plan: 

5.5 CONSISTENCY WITH COMPREHENSIVE PLANS 

Section 10(a)(2) of the FPA, 16 U.S.C., § 803(a)(2)(A), requires the Commission to consider the extent to which 

a project is consistent with federal or state comprehensive plans for improving, developing, or conserving waterways 

affected by the project. We identified six comprehensive plans that are applicable to the East River Project, located in 

Iowa.1 We have determined that the project would be consistent with their provisions with the exception of the East 

River Basin Watershed Inventory and Assessment, as discussed below. 

The East River Basin Watershed Inventory and Assessment identifies six goals for the East River Basin 

including: 

• Protecting and improving water quantity and quality so that all streams are capable of supporting native aquatic 

communities 

• Protecting and improving habitat conditions to meet the needs of native aquatic species while accommodating 

society’s demands for water and agricultural production 

• Maintaining the diversity and abundance of aquatic communities and improving the quality of the sport fishery 

• Increasing public access 

• Addressing informational and educational opportunities 

• Managing databases to provide accurate and up-to-date data and compatibility with other regions, divisions, and 

agencies 

In certain instances, this document cites the existence and operation of the East River Project as impediments to 

achieving some of these goals, and compares existing conditions to pre-project conditions. In particular, the 

document states that one objective under the first goal is to: 

• Work with the Corps and other basin water regulators, during and following the FERC relicensing process, to 

improve aquatic habitat and recreational use by changing East River Project operation to natural run-of-river 

(non-peaking) operation, or obtain mitigation measures that will result in equivalent or more benefits to natural 

resources and recreation. (pp. 189) 

The proposed action is inconsistent with this objective, because it would continue to operate the project as a 

peaking and load following facility. It is unlikely that other aspects of the proposed action would be considered 

equivalent benefits to that of natural run-of-river operation. Similarly, it is equally unlikely that other alternatives 

(including the no-action alternative) would result in benefits equivalent to that of natural run-of-river operation and 

would, therefore, also be considered inconsistent with this objective. Notwithstanding our finding, we note that the 

signed Settlement Agreement was developed between the applicant and natural resource agencies. We conclude that 

the agencies’ signing of the Settlement Agreement indicates that the proposed action would adequately address 

resource issues on the East River, and would meet the substance of the aforementioned comprehensive plan’s goals 

and objectives. 

____________________ 

1 List applicable plans here. [If list is very long, include in text or as an appendix.] 
94

6.0 FINDING OF NO SIGNIFICANT IMPACT (OR SIGNIFICANT 

IMPACT) (EAs only)

In this section you'll say whether, based on the environmental analysis, the action 

(licensing the project) constitutes a major federal action significantly affecting the human 

environment. Include a summary of any unavoidable adverse impacts. If you conclude 

that there wouldn't be a significant impact, then state a finding of no significant impact and 

incorporate the environmental assessment by reference. 

Example of a Finding of No Significant Impact (FONSI): 

6. 0 FINDING OF NO SIGNIFICANT IMPACT

Continuing to operate the Angus Project, with our recommended measures, involves no land-disturbing or 

land-clearing activities. Our recommended measures would ensure state water quality standards, ensure natural flow 

patterns below the project, and prevent potential dewatering of the impoundment shoreline and tailwater areas. Restoration of the river channel below the spillway and improvements to the canoe portage would cause minor, shortterm increases in soil erosion and sedimentation. Project operation and the associated fish entrained through the 

project's turbines would result in some minor, long-term effects on resident fish in the Copper River. Maintaining the 

existing trashracks would continue to minimize these effects. 

On the basis of our independent analysis, we find that the issuance of a license for the Angus Project, with 

our recommended environmental measures, would not constitute a major federal action significantly affecting the 

quality of the human environment.
95

7.0 LITERATURE CITED 

In this section, you should cite all materials referenced in the environmental 

document: including final study reports, journal articles, other books, agency plans, and 

local government plans. Generally, citations should include author, date, title of report, 

paper, or article, source (journal, book or other), volume, number and page reference (or 

total pages). For internet sources, include web page link and date accessed. 

The publication information should be sufficient to locate the various types of 

literature listed; particularly important is information concerning the location and 

availability of reports, occasional publications, and unpublished materials. 

• Citations are listed alphabetically by author. Multiple references by the same 

author are listed chronologically, with the most recent publication first. 

• When citing several works by the same author, list the earliest work first. After the 

first citation, a line may be used in place of the author’s name to avoid writing the 

same name each time. 

• If the author and year are identical for two or more publications, list alphabetically 

by title and insert lowercase letters after the year to differentiate the references 

(e.g., FERC, 200a). 

• Capitalize only the first word and proper names in the titles of articles and books. 

For clarity, spell out the names of serial publications. 

More information on citing the application and citing letters and personal 

communications and references in the text is found in Attachment B, General Guidance 

for Text, Graphics, and References. 
96

Example of Literature Cited section: 

7.0 LITERATURE CITED 

Backus, P. 2006. Bald eagles soaring high over Montana. The Missoulian. January 3, 2006. Missoula, Montana. 

p. 3. 

Behnke, R.J. 1992. Native trout of western North America. American Fisheries Society Monograph 6. 275 pp. 

California Department of Fish and Game. 2005. State and federally listed endangered and threatened animals of 

California. April 2006. <http://www.dfg.ca.gov/whdab/pdfs/TEAnimals.pdf> Accessed May 3, 2006. 

Federal Energy Regulatory Commission (FERC). 2000. Environmental assessment for the Lake El Dorado 

Hydroelectric Project, FERC No. 184-065, California. FERC/FEIS 0157F. August 2003. 

_________. 1999. Final Environmental assessment for the Lockhart Hydroelectric Project, FERC No. 2620-005, 

South Carolina. August 1999. 56 pp. 

PPL Montana. 2006. Mystic Lake Hydroelectric Project 2301-022 filing of final license application (FLA) per the 

Commission’s Integrated Licensing Process. PPL Montana, Butte, Montana. 

Prichard, D. J., Anderson, C. Correll, J. Fogg, K. Gebhart, R. Krapf, S. Leonard, B. Mitchell, and J. Staats. 1998. A 

user guide to assessing proper functioning condition and the supporting science for lotic areas. Technical 

Report 1737-15. U.S. Department of the Interior, Bureau of Land Management, Denver, Colorado. 126 p. 

Schmetterling, D.A., and D.H. McEvoy. 2000. Abundance and diversity of fishes migrating to a hydroelectric dam 

in Montana. North American Journal of Fisheries Management 20:711-719. 

Squire, J.R. and R.T. Reynolds. 1997. Northern Goshawk (Accipiter gentilis). Birds of North America, No. 298 (A. 

Poole and F. Gill, eds). The Academy of Natural Scientists, Philadelphia, Pennsylvania, and the American 

Ornithologists’ Union, Washington, D.C. 

Tennant, D.L. 1976. Instream flow regimens for fish, wildlife, recreation and related environmental resources. 

Fisheries 1(4): 6-10. 

U.S. Forest Service (Forest Service). 2003. Revised forest plan for the Wasatch-Cache National Forest. 

Intermountain Region, Ogden, Utah. February 2003. 

Utah Division of Parks and Recreation. 1987. Utah state comprehensive outdoor recreation plan. Salt Lake City, 

Utah. December 1987. 
97

8.0 LIST OF PREPARERS 

This section does not have to be included in an Exhibit E prepared under the ILP or 

an APEA prepared under the ALP. 

Provide the name of each person (FERC and contractor staff) who worked on the 

environmental document, including: the section they prepared, current position, highest 

educational degree received, and field in which the degree was received. 

Example of List of Preparers section: 

8. 0 LIST OF PREPARERS 

Name -- EA Coordinator, Recreation and Land Use (Environmental Protection Specialist; M.S., Parks and 

Recreation). 

Name -- Cultural Resources (Archeologist; B.A., Anthropology, Master of Public Administration). 

Name -- Aquatic Resources (Fisheries Biologist; PhD, Fisheries Ecology). 

Name -- Terrestrial Resources, Threatened and Endangered Species (Ecologist; M.S., Marine Estuarine BiologyEnvironmental Science). 

Name -- Purpose and Need for Power, Developmental Resources (Electrical Engineer; B.S., Electrical Engineering).
98

9.0 LIST OF RECIPIENTS (EISs only) 

This section does not have to be included in an Exhibit E prepared under the ILP or 

an APEA prepared under the ALP. 

 The list of recipients would typically include all entities on the Commission’s 

mailing and service lists. In addition, the list should be supplemented to include other 

involved and interested entities but on the mailing and service lists. The names could also 

be listed in columns using an address label format (name, agency, street address, city, 

state, zip code). 

Suggested format for List of Recipients section: 

9. 0 LIST OF RECIPIENTS 

Federal Government Agencies 

Forest Service, Robert Blake, Reno, Nevada 

National Marine Fisheries Service, FERC Coordinator, Santa Rosa, California 

U.S. Fish and Wildlife Service, Field Director, Sacramento, California 

U.S. Fish and Wildlife Service, Susan Hines, Fish and Wildlife Biologist, Sacramento, California 

Native American Groups 

Burns Paiute Tribe, Burns, Idaho 

Nez Perce Tribe, Richard Williams, Cultural Resource Specialist, Lewiston, Idaho 

Federal Representatives and Senators 

U.S. Congress, Honorable Chris John, Washington, D.C. 

U.S. Senate, Honorable John Breaux, Washington, D.C. 

State Legislators 

Molly Johnson, Maine State Legislature, Augusta, Maine 

State Government Agencies 

Maine Department of Environmental Protection, Steve Williams, Bangor, Maine 

County and Municipal Government Agencies 

City of Woodland, Washington, Jim Cox, Mayor 

Non-governmental Organizations 

National Wildlife Federation, James Hardy, Charleston, South Carolina 

Wilderness Society, Robert Black, Atlanta, Georgia 

Individuals 

Jim Jones, Charleston, North Carolina 

John Smith, Atlanta, Georgia
99

10.0 CONSULTATION DOCUMENTATION 

This section is only included in an Exhibit E prepared by an applicant under the 

ILP. 

This section must include a list containing the name and address of every federal, 

state, and interstate resource agency, Indian tribe, or member of the public with which the 

applicant consulted in preparation of the environmental document [18 CFR, section 

5.18(b)(5)(ii)(G)]. 
100

APPENDICES 

Appendices may include information too large to include in the text of the 

document, such as mandatory conditions provided by agencies, settlement agreements, 

response to comments on the draft EA or EIS, etc. Limit appendices to information that is 

essential to the document and supports discussions in the main body. 

40 CFR, Section 1502.18--Appendix. 

If an agency prepares an appendix to an environmental impact statement the appendix shall: 

(a) Consist of material prepared in connection with an environmental impact statement (as distinct 

from material which is not so prepared and which is incorporated by reference [Sec. 1502.21)]. 

(b) Normally consist of material which substantiates any analysis fundamental to the impact 

statement. 

(c) Normally be analytic and relevant to the decision to be made. 

(d) Be circulated with the environmental impact statement or be readily available on request. 

Ensure that information in the main body of the environmental document is 

consistent with any relevant appendix. If information is not directly related to the 

preparation of the document, it should be briefly described in the main text and 

incorporated by reference. Two typical appendices, License Conditions Recommended by 

Staff (for ILPs) and Staff Responses to Comments on the Draft EA or EIS, are described 

below. 

APPENDIX A—LICENSE CONDITIONS RECOMMENDED BY STAFF 

For ILPs, draft environmental documents prepared by Commission staff will 

indicate: (1) mandatory conditions recommended by staff; (2) modifications to mandatory 

conditions recommended by staff; and (3) additional license articles recommended by 

Staff [18 CFR section 5.25(b)]. This information should be included as an appendix. 

 Where we have preliminary or draft mandatory conditions, assume for the purpose 

of this appendix that these measures would be included in the license. 
101

Example of a License Conditions Recommended by Staff Appendix: 

APPENDIX A 

LICENSE CONDITIONS RECOMMENDED BY STAFF 

 On January 3, 2007, the California Department of Water Resources (Cal Water Resources) filed a section 

401 water quality certification containing 6 conditions (Appendix X). On January 12, 2007, the U.S. Forest Service 

filed preliminary 4(e) conditions containing 10 conditions (Appendix X). 

I. MANDATORY CONDITIONS RECOMMENDED BY COMMISSION STAFF

 We recommend including the following mandatory conditions in any license issued for the project: 

 Cal Water Resources Condition Nos. 1, 2, 4, 5, 6 

 Forest Service Condition Nos. 1, 2, 3, 4, 5, 6, 7, 8, 10 

Although we do not recommend Forest Service condition No. 3 for a Public Access Management Plan, we recognize 

that any valid mandatory conditions must be included in any license issued for the project. 

II. MODIFICATIONS TO MANDATORY CONDITIONS RECOMMENDED BY COMMISSION 

STAFF 

 We recommend certain modifications to the remaining mandatory conditions issued by Cal Water Resources 

and the Forest Service: 

Cal Water Resources Condition No. 3: This condition would require Hydro Industries to develop a Water 

Quality Monitoring Plan to continue monitoring temperature, water chemistry, and aquatic biology parameters in 

Gold Lake and Silver Lake. We do not recommend this condition because the project does not have significant 

adverse effects on water quality within the project area and our analysis indicates that none are expected from Hydro 

Industries’ proposed action. See section 3.3.2 of the EA. 

Forest Service Condition No. 9: This condition would require Hydro Industries to prepare a Scenery 

Management Plan to minimize the visual effects of any physical modifications to project features. We do not 

recommend this condition because Hydro Industries does not propose any modifications that would significantly 

affect the visual characteristics of the project area and none are expected from Hydro Industries proposed action. See 

section 3.3.8 of the EA. 

III. ADDITIONAL LICENSE ARTICLES RECOMMENDED BY COMMISSION STAFF 

 We recommend including the following license articles in any license issued for the project: 

[List draft license articles following the format below.] 

Draft Article 001. Administrative Annual Charges. The licensee shall pay the United States annual 

charges, effective the first day of the month in which the license is issued, and as determined in accordance with 

provisions of the Commission’s regulations in effect from time to time, for the purposes of: 

(1) reimbursing the United States for the cost of administration of Part I of the Federal Power Act. The authorized 

installed capacity for that purpose is 11,250 kilowatts; 

(2) recompensing the United States for the use, occupancy, and enjoyment of 588.70 acres of its land (other than for 

transmission line right-of-way); 

(3) recompensing the United States for the use, occupancy, and enjoyment of 84.84 acres of its land for transmission 

line right-of-way. 
102

APPENDIX B--RESPONDING TO COMMENTS ON DRAFT EAs AND EISs 

CEQ’s regulations require that, in preparing a final EIS, agencies “assess and 

consider comments [received on a draft EIS] both individually and collectively” and 

respond to comments by modifying alternatives; developing and evaluating alternatives 

not previously given serious consideration; supplementing, improving, or modifying 

analyses; making factual corrections; or explaining why comments do not warrant further 

agency response [40 CFR, section 1503.4(a)]. 

 The appendix included in a final EA or EIS responding to comments on the draft 

document, both written and those provided at public meetings, should include the 

following: 

• A table of contents and list of acronyms, as necessary, for long appendices 

• A list of the commenters and the dates the comments were filed 

• A summary of the comments (address similar comments together) 

• A point by point response to substantive issues raised, including descriptions of any 

 changes made to document and in what sections of the document those changes 

 may be found. 

 Respond to comments commensurate with their substance. Avoid the use of 

phrases such as “comment noted” or “no response needed.” You don’t need to respond to 

editorial changes. For identical or similar comments received in high volume (e.g., 

multiple postcards), indicate the number of individuals who filed the comment (list names 

where practicable) and provide one response. 

Example of a Response to Comments appendix (Source: Eel Weir Project FEA, Project No. 2984, November 

2005): 

APPENDIX B 

STAFF RESPONSES TO COMMENTS ON THE DRAFT ENVIRONMENTAL ASSESSMENT

 The Commission staff issued its draft environmental assessment (EA) for the proposed relicensing of the Eel 

Weir Project on July 11, 2005. Staff requested comments on the draft EA be filed within 45 days from the issuance 

date, or by August 25, 2005, which was subsequently extended until September 9, 2005. The following entities and 

individuals filed comments pertaining to the draft EA. 

 Commenting Entity Date Filed

 Carol L. Steiman August 22, 2005 

 Portland Water District August 24, 2005 

 S.D. Warren Company (S.D. Warren) August 25, 2005 

 Conservation Law Foundation (Conservation Law) August 25, 2005 

 Sebago Lake Marina (Sebago Marina) August 25, 2005 

 Sebago Pines Property Owners Association (Sebago Pines) August 26, 2005 
103

 U.S. Fish and Wildlife Service (FWS) August 29, 2005 

 Below, we summarize the substantive comments, provide responses to those comments, and explain how we 

modified the text of the draft EA, as appropriate, to address the comments. Changes addressing editorial comments 

were made to the final EA, but are not described below. The comments are grouped by topic for convenience. 

Hydrology, Lake Level Management, Flood Control, and Associated Issues

Comment: Maine Geology points out a contradiction in the analysis on page 35 of the draft EA, under the subsection 

'increase water levels.' Maine Geology states that the summary statement contradicts earlier statements that periodic 

lowering of the lake shows no benefit to beach profiles. 

Response: We have revised the final EA to correct this apparent discrepancy. 

Comment: Thirty-six property owners filed comments stating that lake levels have exceeded the flowage easements, 

causing flooding and increased erosion. The property owners contend that staff’s recommended target for full pond 

on May 1 would raise lake levels 20 inches higher than the historical average for this date. The property owners 

argue that allowing lake elevations at or near full pond for 8 weeks, and raising lake levels by as much as 20 inches 

above the historical average in May and up to 15 inches in the summer would flood beaches and accelerate the 

historic rate of erosion. In addition, the property owners argue that, if the LLMP is not amended to mimic the 

historical average, they should be compensated for (1) the lost use of the beaches, (2) accelerated shoreline erosion, 

and (3) the cost of stabilizing beaches. 

Response: Based on the many comments received on the LLMP, we now recommend a full pond target elevation of 

266.15 feet ± 0.5 foot, and moving the earliest date for reaching that target to May 15. We also recommend that 

water be spilled should lake levels exceed the crest elevation of 266.65 feet. Our recommended changes should 

substantially reduce shoreline erosion around Sebago Lake, as well as the risk of flooding. In regards to 

compensation for damages, the FPA does not authorize the Commission to impose liquidated damages, or otherwise 

include a damages provision in a project license. Any actions for damages resulting from trespasses of flowage 

easement are matters left for review by state courts. 

Fishery and Aquatic Resources

Comment: FWS does not agree with staff’s rationale for not recommending the agencies’ higher minimum flows. 

First, FWS states that the resource agencies have not identified any need to reduce flows to discourage smallmouth 

bass in the bypassed reach, as stated in the draft EA. Second, FWS states that higher flows would (a) expand habitat 

for trout and salmon in the bypassed reach, (b) result in more and healthier fish, and (c) provide additional fishing 

opportunities. This is inconsistent with staff’s “radical departure” logic. Third, FWS supports temperature 

monitoring in the coldwater refugia as a way to address the effects of higher minimum flows on this habitat. Finally, 

FWS contends that staff’s economic analysis does not account for the cumulative effects of hydro development on the 

coldwater riverine resources in the Presumpscot River. 

Response: We revised our minimum flow analysis based on discussions at the section 10(j) meeting and FWS’s 

comments on the draft EA. In addition, because we recommend flows that could affect the coldwater refugia, we now 

recommend temperature monitoring in that important coldwater habitat. Finally, FWS’s comment regarding our 

economic analysis appears to suggest that the Commission should mitigate for past hydropower development on the 

Presumpscot River. The Commission is not required to mitigate for past effects. Our recommended flows represent 

an appropriate balance among competing uses and are in the public interest. 

A-1 

ATTACHMENT A--SPECIFIC GUIDANCE FOR RESOURCE 

DISCUSSIONS 

For each of the following resource sections, we provide information on what to 

include in the Affected Environment section within the individual resource sections, and 

examples of typical issues discussed in the Environmental Effects section. 

3.3.1 Geological and Soil Resources 

a. Affected Environment: Briefly describe the following: 

• Soil types and characteristics 

• Site characteristics (slope, vegetation, drainage, topography) 

• Location of existing and potential geological and soil hazards , including erodible 

areas, seepage, slope instability, and landslides 

• Existing and potential river bank and shoreline erosion 

• Accumulated sediment and sediment transport in reservoirs and/or downstream 

• Existing erosion control measures 

• Seismology, including proximity to known active faults or fault zones 

b. Environmental Effects: Include, as appropriate, these issues: 

• Effects of land-disturbing activities associated with construction of project facilities 

 and/or construction of project-related facilities (such as recreation facilities, 

fishways), including extent of erosion, slope alteration, vegetation removal, and 

changes in drainage patterns 

• Effects of sediment accumulation and transport 

• Effects of sediment and hazardous waste removal and disposal 

• Effects of project operation on soil erosion (reservoir fluctuations, project releases) 

• Effects of potential penstock rupture

• Description of proposed and recommended protection, mitigation, and enhancement 

measures (e.g., best management practices, soil erosion and sedimentation control 

measures, spoil and disposal measures)
A-2 

3.3.2 Aquatic Resources 

 The Aquatic Resources section can be divided into two separate sections (e.g., 

Water Resources and Fishery Resources) for complex projects. 

a. Affected Environment: Briefly discuss the following: 

Water Resources 

• Water quantity (high, mean, low flows) 

• Annual runoff patterns 

• Any storage and release of project's inflow 

• Description of current flow regime (including those of outside users) on reservoir, 

downstream reach, and bypassed reach 

• Flows released for specific purposes, if applicable 

• Flows released at special times (for example, annual boat races, water supply, ski 

season-snow making) 

• Description of water rights, if any 

• Non-power uses of project waters, such as irrigation, industrial, and municipal uses 

• Water quality in the project reservoir and downstream 

• Existing state water quality standards and use classifications of water bodies (for 

example, drinking water, non-contact recreation) 

• Source and type of any pollutants associated with the project 

Fishery Resources 

 

• Species in the project area, including rare and sensitive species, threatened and 

endangered species 

• Description of aquatic habitats (i.e., riffles, pools), types of substrates, etc. 

• Recreational or commercial value of fishery (refer to angler use, catch rate, or other 

means of estimating value, if available and relevant) 

• State management objectives for fishery or fish habitat (describe applicable state 

and federal resource management plans) and essential fish habitats (EFH) 

• For each managed species and life stage for which EFH was designated, a 

description of abundance, distribution, available habitat, and habitat use by these 

managed species 

• Sport fishery maintenance (that is, naturally reproducing, self-sustaining, or 

stocked) 

• Quantity and size of fish stocked and frequency of stocking 

• Characteristics of the fishery (growth, recruitment, condition, etc.) 
A-3 

 Limit the use of scientific names. Include for rare species, where needed to avoid 

confusion or ambiguity, or where a species is only known by its scientific name. 

b. Environmental Effects: Issues addressed in this section may include, as 

appropriate: 

Water Resources 

• Requirements of the section 401 water quality certification 

• Effects of proposed and recommended project operation on streamflow, dissolved 

oxygen and nitrogen supersaturation, water temperature, and sediment flushing 

• Flow gaging and plans for monitoring water quality 

• Effects of proposed, mandatory, and recommended environmental measures 

• Changes in minimum flow to protect water quality 

Fishery Resources 

• Fish habitat affected by project operation (type of habitat, such as spawning, 

rearing, juvenile; quantity and quality) 

• Impacts associated with impoundment fluctuation 

• Fish entrainment and mortality, mortality rates 

• Instream flows in the bypassed reach and downstream of a peaking/pulsing project, 

and amount of habitat versus flow 

• Ramping rates 

• Effect of proposed and recommended environmental measures (for example, fish 

passage facilities, fish screens, habitat improvement structures) 

• Effects on state management goals and essential fish habitat 

3.3 3 Terrestrial Resources 

a. Affected Environment: Briefly discuss the following (use range or habitat 

maps as needed): 

• Dominant cover types and plant species 

• Seasonal abundance and distribution of key wildlife species in the vicinity of the 

project 

• Existence of noxious weeds and invasive species 

• Recreational or commercial value of terrestrial resources 

• Special status wildlife or plants 

• Quality and quantity of habitats with recognized special botanical or wildlife value 

(for example, wetlands, old growth forests, deer wintering area, migratory corridor) 

• Agency management goals for important wildlife species 
A-4 

 Limit the use of scientific names. Include for rare species, where needed to avoid 

confusion or ambiguity, or where a species is only known by its scientific name. 

b. Environmental Effects: Issues addressed in this section may include, as 

appropriate: 

• Amount and type of habitats that would be permanently removed or temporarily 

cleared and revegetated for construction of project-related facilities 

• Fragmentation of habitat 

• Effects on wetlands and riparian habitats and other habitats (e.g., old growth 

habitat) with recognized special value to wildlife 

• Effects on special status species 

• Effects on wildlife feeding, reproduction, and migration requirements 

• Effects of project operation on reservoir and downstream habitats and populations 

• Effects of maintenance activities on plants and wildlife 

• Potential for mortality from transmission line electrocution and collision and canal 

entrapment 

• Potential for wildlife disturbance from construction, maintenance, and recreational 

activities 

• Potential for the spread of invasive species and need for control measures 

• Effects on agency management goals and guidelines (e.g., National Bald Eagle 

Management Guidelines) 

• Effects of proposed and recommended terrestrial protection, mitigation, or 

enhancement measures 

3.3.4 Threatened and Endangered Species22

 

The environmental document serves as a biological assessment (BA) to facilitate 

the consultation under the Endangered Species Act (see section 1.3.3, Endangered Species 

Act).23 Include information on federally listed or proposed threatened and endangered 

species, candidate species, and designated and proposed critical habitats present in the 

proposed action area in this section, as supplemented by other sections of the document. 

a. Affected Environment: Briefly discuss the following: 

This section describes the biology of the species, listed by FWS or NMFS, which 

 22 For more information, see Hydropower Licensing and Endangered Species, December 2001, for detailed 

instructions on preparing this section. This document is available on the FERC web site 

(http://www.ferc.gov/industries/hydropower/gen-info/guidelines/esa_guide.pdf). 

 23 Where Exhibit Es prepared under the ILP include preparation of a BA, the information can be included in 

this section or summarized here and included as a stand-alone appendix. 
A-5 

could potentially be affected by the project. If species are included on the list of species 

provided by FWS and NMFS, but are not considered further in this section, explain why 

(e.g., no suitable habitat, etc.). Include scientific names, along with subspecies or variety 

name, as appropriate. 

Species background and requirements 

Provide a background of the biology that is relevant to potential effects of the 

project, including aspects of biology that relate to the proposed action (e.g., periods when 

a species may be most sensitive to disturbance). Include general distribution of species 

and species status (trends in habitat and population numbers, historical occurrence in 

project vicinity, amount of habitat remaining). 

Species occurrence in area potentially affected by the project 

 Describe the abundance and distribution of evaluation species in the project area, 

level of use, and timing of use. Summarize results of surveys, including timing and 

method of the surveys and indicate whether the surveys met existing protocols. 

Habitat description and use 

 Describe the habitat for the evaluation species, including amount, quality, and 

suitability. Describe how the evaluation species use the habitat in the area affected by the 

project. For example, for wildlife, describe use for nesting, perching, roosting, migration, 

rearing, feeding, etc. For fish, describe use for migrating, spawning, rearing, 

overwintering, etc. Include seasonal use patterns. 

Critical habitat 

 Describe any critical habitat that has been designated or proposed that could 

potentially be affected by the project. Identify specific habitat unit(s). Describe the 

geographical extent of designated and proposed critical habitat, and the essential elements 

of the habitat (e.g., cover or shelter; sites for breeding, reproduction, and rearing; etc.). 

Include the primary constituent elements identified in the final rule and any activities that 

have been identified as having the potential for altering the primary constituent elements. 

Recovery plans 

 Identify the existence of recovery plans for the listed species considered. Describe 

the relationship between the proposed action and any recovery units, describe any 

recovery actions that may be applicable to the proposed action, and describe any recovery 

plan tasks that apply to the project or the project vicinity. 
A-6 

b. Environmental Effects: Briefly describe the following (also see sections on 

Fishery Resources and Terrestrial Resources above): 

Listed, proposed, and candidate species and critical habitat 

• Describe any direct, indirect, and cumulative impacts, beneficial effects, and effects 

of interrelated and interdependent actions (see table below). If no effects, say so 

and document. The analysis should address effects on individuals as well as 

populations. Where possible, quantify the effects. Generally, determination of 

impact will depend on four factors: (1) which biological resource is present; (2) the 

type of action; (3) the distance between the action and the resource; and (4) the time 

of year. 

• Describe the areal extent, timing, intensity, direction and duration of disturbance. If 

possible, quantify the disturbance (e.g., number of acres; decibel level at a given 

distance, degrees increase in water temperature). Distinguish between long-term 

and short-term effects. Factor in the species sensitivity to change, resilience, and 

recovery rate. 

• Put the effects into perspective. Describe the relative impact on the resources of 

concern (e.g., the proportion of the local population impacted).

• Don't forget to address all the different phases of a project--construction or 

modification of facilities, project operation or changes in project operation, 

maintenance activities (such as road maintenance, right-of-way management, 

pesticide use), and recreational and other land uses (such as boating or grazing on 

project lands). Be specific—describe types of construction activities and 

equipment used, timing, and frequency, etc.

• Discuss the effect of the proposed project on critical habitat, including effects on 

constituent elements. 

• Provide an analysis of cumulative impacts. Describe ongoing actions along with 

future actions, other than future federal actions, that are reasonably expected to 

occur in the project area. Describe measures that would avoid impacts or would 

benefit species in addition to the proposed measures. Be specific as possible. 

Discuss the potential effectiveness of the measures. If impacts can't be avoided, 

describe measures that would minimize or mitigate impacts. 
A-7 

 List of types of effects addressed for endangered species:

• Discuss recommendations made by the FWS and NMFS or other entities, and terms 

and conditions, alternatives, and conservation recommendations included in a 

biological opinion. 

• Discuss alternatives considered (such as alternative penstock routes, minimum flow 

releases, rights-of-way widths, etc.). 

• Describe the need for monitoring--compliance monitoring or effectiveness 

monitoring and adaptive management. Discuss monitoring methods, schedule, 

contingency measures, reporting, etc. 

Recovery plans 

• Discuss consistency with any draft or final species recovery plans or other 

applicable plans. 

Determination of effect 

Description of Effects 

Type of Effect Definition Example 

direct effects direct or immediate effects; 

effects directly attributable 

to the proposed action 

blockage of migration 

corridors; turbine mortality; 

elevated dissolved gas 

levels; erosion resulting 

from construction activities; 

loss of old-growth habitat 

indirect effects effects to individuals or 

habitat that would result 

later in time and are 

reasonably certain to occur 

increased exposure to 

predation and competition; 

erosion resulting from 

reservoir fluctuations 

cumulative effects effects of unrelated future 

state or private activities, 

not including federal 

activities, that are 

reasonably certain to occur 

in the project area 

loss of old-growth habitat 

resulting from timber 

cutting on private and stateowned lands; 

planned basin-wide water 

diversions for irrigation and 

water supply 

beneficial effects wholly positive effects implementation of tributary 

protections; improved 

habitat resulting from 

increased minimum flow 

releases 

effects of interrelated actions actions that are part of the 

primary action and 

dependent on the primary 

action for their justification 

irrigation diversions from a 

proposed project reservoir 

effects of interdependent action actions that have no 

independent utility apart 

from the primary action 

single home development 

along a proposed project 

reservoir 
A-8 

• The determination of effect for each listed and proposed species and designated and 

proposed critical habitat for the staff alternative will appear in section 1.3.3, 

Endangered Species Act. 

3.3.5 Recreation and Land Use 

If you have many recreation issues, land use issues, or both, we suggest dividing 

these resources into two sections: (1) Recreation, (2) Land Use. 

a. Affected Environment: Briefly discuss the following: 

• Existing recreational uses of project lands and waters, including the estimated 

annual use in user days, visitor days, etc. (by activity if possible) 

• Formal and informal public access areas at the project, including the reservoir, 

bypassed reach, and tailwaters; include the type, number, and location of existing 

recreational facilities as well as who owns, operates, and manages each facility, and 

identify which facilities are project facilities, and whether the facilities are located 

within the project boundary 

• Whitewater boating resources at or affected by the project 

• Importance of recreational opportunities and facilities to the public 

• Recreational opportunities and facilities outside, but in the immediate vicinity of, 

the area affected by the project (if appropriate) 

• Specially designated areas at or near the proposed project and the administering 

agency for the designation (for example, National Wild and Scenic Rivers, state 

protected rivers, national trails, wilderness areas, Land and Water Conservation 

Fund Act lands) 

• Existing uses of land within and adjacent to the project, such as residential, 

farming, forestry, grazing, and commercial use and existing land use plans for the 

area 

• Any current shoreline management plan or shoreline permitting process 

• For relicenses, note any measures specifically required in the current license, 

whether there is a project recreation plan, and when it was last revised 

b. Environmental Effects: Issues addressed in this section may include, as 

appropriate: 

• Effects of constructing or operating the project and any alternatives to the proposed 

project on existing recreational opportunities and facilities 

• Effects of proposed and recommended environmental measures (such as, 

recreational access, facilities, flows, safety measures, future recreational 

development or monitoring plans) on recreation resources 
A-9 

• Proposed and recommended measures to provide for the recreational needs at the 

project 

• Effects of constructing or operating the project on land use patterns and 

compatibility of the project with existing land use plans or designations 

3.3.6 Cultural Resources 

Section 106 of the National Historic Preservation Act requires the Commission to 

take into account the effect of licensing a hydropower project on any historic properties, 

and allow the Advisory Council on Historic Preservation (Advisory Council) a reasonable 

opportunity to comment on the proposed action. "Historic properties" are defined as any 

district, site, building, structure, or object that is included in or eligible for inclusion in the 

National Register of Historic Places (National Register). If there would be an adverse 

effect on historic properties, the applicant must develop a historic properties management 

plan (HPMP) to seek to avoid, reduce, or mitigate the effects. During development of the 

HPMP, the applicant should consult with the Commission, the Advisory Council, the State 

Historic Preservation Office (SHPO), Indian tribes, appropriate land-management 

agencies, and any other consulting party that may be involved with the licensing process. 

In most cases, the HPMP would be implemented by execution of a Programmatic 

Agreement that would be signed by the Commission, Advisory Council, SHPO, and other 

consulting parties. 

Other federal laws, such as the American Indian Religious Freedom Act or the 

Native American Graves Protection and Repatriation Act, may also apply when sacred 

areas or burial sites of Indian tribes have been identified. These and other cultural 

resources that possess religious or cultural significance to an Indian tribe, if eligible, can 

be considered as historic properties and treated through the section 106 process. Such 

historic properties are called traditional cultural properties. 

a. Affected Environment: Briefly discuss the following: 

• Definition and description of the area of potential affect (APE)24

• Properties located within the APE that are listed or eligible for listing in the 

National Register of Historic Places (cite a SHPO letter that documents the 

National Register status of any properties) 

• Results of applicant's archaeological, historical, and traditional cultural resource 

surveys 

• Any special study arrangements made between the applicant and Indian tribes 

affected by the project to ensure confidentiality of privileged information or to 

restrict distribution of study results 

 24 The area of potential effect includes the project boundary as well as areas outside the project boundary 

where the project might have an effect to historic properties. 
A-10 

b. Environmental Effects: Issues addressed in this section may include, as 

appropriate: 

• Effects of constructing or operating the project on historic properties, including 

traditional cultural properties 

• Effects of proposed and recommended environmental measures (such as the 

measures outlined in an HPMP, programmatic agreement, or measures for 

recreational resources) on cultural resources 

• Proposed measures to be taken if archeological sites or related human remains are 

discovered during project operation 

3.3.7 Aesthetic Resources

. 

a. Affected Environment: Briefly discuss the following: 

• Visual and aesthetic character and quality of the project area (provide detail about 

the features that may be affected by constructing or operating the proposed project) 

• Public's vantage point(s) for viewing natural features (for example, waterfalls, 

cascades) and project structures and the quality of this view 

• Federal land management restrictions on development, if applicable (for example, 

standards outlined in Forest Service plans) 

• Significance of aesthetic resources to surrounding communities (quantify public use 

if possible) 

b. Environmental Effects: Issues addressed in this section may include, as 

appropriate: 

• Visual and auditory effects of project-related construction and operation on 

aesthetic resources evaluated at key viewing areas 

• Effects of proposed and recommended environmental measures (such as minimum 

flows over a scenic waterfall or spillway) on aesthetic resources 
A-11 

3.3.8 Socioeconomics 

This section is generally only included when there is new construction or if 

socioeconomic issues have been raised. 

a. Affected Environment: Briefly discuss the following: 

• Existing social and economics conditions in the project vicinity 

• Population and demographics, regional employment and income, revenues and 

expenditures, governmental finances, public services, and social conditions 

b. Environmental Effects: Issues addressed in this section may include, as 

appropriate: 

• Law enforcement and public safety, fire protection, emergency services/response, 

property values, real estate/property tax base, tourism, traffic, etc. 

• For large unconstructed projects, the effects of new employment and wages, inmigration, population changes, demand for housing and public services, local tax 

revenues, effects on local governments, and traffic congestion 

Environmental Justice 

In all EISs, and in EAs, when raised—discuss the project’s potential to cause 

disproportionately high adverse human health or environmental effects on minority and 

low-income populations, including Indian tribes. 
A-12 

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B-1 

ATTACHMENT B--GENERAL GUIDANCE FOR TEXT, 

GRAPHICS, AND REFERENCES 

TEXT 

• Use active voice. 

• Minimize use of technical language; define technical terms in plain English. 

• Microsoft Word is the standard word processing software. Documents should be 

created in Word, not converted from other software. The Commission’s current 

font standard is Times New Roman 13 point, but smaller fonts may be used for very 

long documents and tables. 

• Set margins at 1 inch. Use left justification only. Do not use full justification (this 

includes footnotes). Do not use hard returns, except at the end of paragraphs. 

 

• Use the tab key instead of the space bar for paragraph indentation and tabular 

material. Use indent when multiple lines are to be indented. 

• Two spaces follow colons and periods. One space follows a semicolon or comma. 

• Word default for the footnote number is bolded superscript and first line indented 

(do not use the _/). The rest of the footnote is not indented. 

• To prevent single lines at the top and bottom of document pages, set the 

widow/orphan option as the default. Avoid using block protect because it can affect 

macros used by the Secretary's office to issue the final document. 

• EIS page numbers are generally by section (i, ii, 1-1, 1-2, 1-3,...) while EAs are 

generally numbered consecutively (i, ii, 1, 2, 3, ...). 

• For larger documents (EISs), number tables by section (e.g., table 1-1, 1-2); for 

smaller documents (EAs), number consecutively (e.g., table 1, 2). 

• Do not rely solely on the spell check function to check for spelling errors. 

• Remove all tracked changes and comments from the document before electronic or 

print issuance. 
B-2 

• Use units of measurements consistently throughout the document; use English 

measurements. 

• Suggested formats for headings and subheading: 

Heading Level Appearance 

Heading 1: 3.0 ENVIRONMENTAL ANALYSIS 

(CAPS, BOLD, 13 POINT, 

CENTERED)

Heading 2: 3.3 PROPOSED ACTION AND 

ACTION ALTERNATIVES (CAPS, 

BOLD, 13 POINT, ALIGNED ON 

LEFT) 

Heading 3: 3.3.3 Terrestrial Resources (Title 

case, Bold, 13 point, Aligned on Left) 

Heading 4: 3.3.3.1 (optional) Special Status 

Wildlife Species (Title Case, 

Bold, 13 Point, Indented) 

Heading 5: Bird Species (Indented, No 

Numbering, Title Case, Bold, 

13 Point) 

Heading 6: Common Loon 

Heading 7: Cumulative Effects—Body text 

Heading 8: Habitat Requirements. Body text
B-3 

GRAPHICS 

• Graphics should be digitized and embedded within the document file. 

• Graphics should immediately follow the text they support--on the same page, if 

possible. 

• Be sure to explain the most important feature(s) of the graphic in the accompanying 

text. 

• Keep graphics simple. Use additional graphics or appendices to display large 

amounts of information. 

• Make sure figures and charts are readable and understandable when reproduced in 

black and white (for example use distinct patterns instead of colors in bar charts) 

• Make all project features, project boundaries, and land marks clearly visible on 

maps. To illustrate complex projects, use a schematic diagram. 

• Make maps and figures large enough that they are legible. Text within graphics 

should not be less than 10 point. Make sure color figures reproduce well in black 

and white. 

• Be sure to include a north arrow in all maps, and indicate the direction of flow, if 

possible. 

• Include reference scale lines on maps. Measurement conversions (1 inch = 2,000 

feet) won't remain accurate if maps are reduced. 

• Identify on your map all project and related features mentioned in the text of the 

environmental document. 

• For larger documents (EISs), number figures by section (e.g., figure 1-1, 1-2); for 

smaller documents (EAs), number consecutively (e.g., figure 1, 2) 
B-4 

REFERENCES 

Citing the Application 

If much of the information in the environmental analysis section is from the license 

application, include the following footnote at the beginning of the analysis: 

__________________ 

1

 Unless otherwise indicated, our information is taken from the application for new license 

for this project (Power Engineering, 2007). 

Letters and Personal Communications 

Note that citations for letters and personal communications are included in the text 

of the document according to the following general format: 

• (letter from R. Johnson, Regional Administrator, NMFS, Long Beach, California, to 

Kimberly Bose, Secretary, FERC, Washington, D.C., July 16, 2006) 

• (personal communication between A. Jones, Fishery Biologist, NMFS, Long 

Beach, California, and B. Smith, Fishery Biologist, FERC, Washington, D.C., July 

16, 2006) 

Citing Literature in Text 

Text citations include author and year: 

• (Smith, 2007) or Smith (2007) found...—single author 

• (Smith and Jones, 2007)—two authors 

• (Smith et al., 1999)—more than two authors 

• (Jones, 1999; Smith et al., 1999)—multiple references 

• (Smith, 2004, as cited by Jones, 2007)–cited from another source 

Alternatively, you can also exclude the comma between author and year—but be 

consistent throughout.