UNITED STATES DEPARTMENT OF THE INTERIOR

BUREAU OF LAND MANAGEMENT

DRAFT ENVIRONMENTAL ASSESSMENT

Competitive Processes, Terms, and Conditions for Leasing Public Lands for 

Solar and Wind Energy Development and Technical Changes and Corrections 

for 43 CFR Parts 2800 and 2880

Office of the Assistant Director, Energy, Minerals and Realty Management (WO300)

1849 C Street NW, Room 2134LM

Washington, DC 20240

DOI-BLM-WO-301-2013-0001-EA

September 2014
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DRAFT ENVIRONMENTAL ASSESSMENT

Competitive Process, Terms, and Conditions for Leasing Public Lands for Solar and Wind 

Energy Development and Technical Changes and Corrections for 43 CFR Parts 2800 and 

2880

U.S. Department of the Interior

Bureau of Land Management

I. Introduction

The Bureau of Land Management (BLM) is developing a proposed rule to: amend portions of 43 

CFR Part 2800, Rights-of-Way under the Federal Land Policy Management Act; develop a 

revised subpart 2809 for a competitive process for leasing public lands for solar and wind energy 

development; and amend portions of 43 CFR Part 2880, Rights-of-Way under the Mineral 

Leasing Act. While the proposed regulatory amendments are eligible to be categorically excluded 

from the requirement to prepare an environmental assessment (EA) pursuant to the regulations at 

43 CFR 46.205 and 46.210, the BLM Office of the Assistant Director, Minerals and Realty 

Management, elected to prepare this draft environmental assessment (EA) under the National 

Environmental Policy Act of 1969 (NEPA), 42 U.S.C. 4321 et seq. This document will analyze 

and disclose the potential environmental impacts of the proposed rule to inform agency decision

makers and the public. Based on the EA, the BLM will prepare a finding of no significant 

impact (FONSI) or, if the potential environmental impacts of the proposed rule are determined to 

be significant, a more detailed environmental impact statement (EIS) prior to deciding whether to 

issue a final rule based on the proposed rule.

(a) Background and Overview

The Department of the Interior’s (DOI’s) BLM administers over 245 million surface acres of 

public land, most of which is located in the 12 westernmost states, including Alaska. The Federal 

Land Policy and Management Act of 1976 (FLPMA) provides the framework for the 

administration, management, protection, development, and enhancement of public lands. The 

public lands are extremely diverse and they are a storehouse of natural and cultural resources. 

Among the many traditional uses of public lands is energy production, which has historically 

featured the development and production of oil, gas, and coal. Today, renewable resources—

solar, wind, and geothermal—have taken their place alongside the traditional sources of energy

as a growing use of the public lands.

Executive Order (EO) 13212, “Actions to Expedite Energy-Related Projects,” dated May 18, 

2001, established a policy that Federal agencies should take appropriate actions, to the extent 

consistent with applicable law, to expedite projects to increase the production, transmission, or 

conservation of energy. Subsequently, a Memorandum of Understanding was developed among

the Departments of Energy, the Interior, and Agriculture; the Environmental Protection Agency;

the Council on Environmental Quality; and the members of the Western Governors’ Association 

to establish a framework for cooperation between the western states and the Federal 
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Government, to address energy problems facing the west, and to facilitate renewable energy 

production.

In response to EO 13212, in 2002 the BLM developed the Interim Wind Energy Policy to 

address immediate needs for responding to requests for wind energy development on public 

lands. Because of the need for a permanent policy, the BLM in 2003 began a comprehensive 

process of reviewing the potential of the public lands to support wind energy development. 

Utilizing a programmatic environmental impact statement (PEIS; in this case, the Wind PEIS) 

that analyzed alternatives and potential impacts of wind energy development,

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the BLM in 

January of 2006 issued a Record of Decision2(ROD) that:

(1) Established a comprehensive Wind Energy Development Program to administer the 

development of wind energy resources on BLM-administered public lands in 11 western 

states: Arizona, California, Colorado, Idaho, Montana, Nevada, New Mexico, Oregon, 

Utah, Washington, and Wyoming. A component of the program is the requirement for 

continued consultation with Indian Tribes at the project-specific level;

(2) Provided that future project-specific environmental analyses for wind energy 

development would tier from the analysis in the Wind PEIS/ROD, thereby allowing the 

project-specific analyses to focus on critical, site-specific issues of concern;

(3) Established policies and best management practices (BMPs) for the administration of 

wind energy development activities and established minimum requirements for 

mitigation measures;

(4) Replaced the BLM Interim Wind Energy Policy with a new policy that incorporated the 

programmatic policies and BMPs evaluated in the PEIS; and

(5) Amended 52 BLM land use plans in nine states: Colorado, Idaho, Montana, Nevada, New 

Mexico, Oregon, Utah, Washington, and Wyoming. The land use plan amendments 

included the adoption of the Wind Energy Development Program policies and BMPs

described in the Wind PEIS, as well as identification of specific areas where wind energy 

development will be excluded.

The Energy Policy Act of 2005 (the Act) (Public Law (P.L.) 109-58) encouraged the DOI and 

BLM to develop renewable resources on public lands. Section 211 of the Act states: “It is the 

sense of the Congress that the Secretary of the Interior should, before the end of the 10-year 

period beginning on the date of enactment of this Act, seek to have approved non-hydropower 

renewable energy projects located on the public lands with a generation capacity of at least 

10,000 megawatts of electricity.” 

 

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A summary table (Table A-1) displaying the types of environmental impacts of the adopted Wind Energy Program 

is provided in Appendix A. The Wind PEIS was not site-specific; consequently, the level of its environmental 

analysis was generic in nature. Potential impacts associated with each stage of a wind energy project are described 

in Table A-1. The requirement for additional, project-level environmental analysis is part of the adopted Wind 

Energy Program and will be required for individual wind energy development projects. The analysis of 

environmental impacts and comparison of alternatives are contained in Chapters 5 and 6 of the Wind PEIS found at

http://windeis.anl.gov.

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Complete details about the BLM’s Wind Energy Program can be found in the Record of Decision (ROD) at

http://windeis.anl.gov.
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In 2012, the BLM met the goal established by Congress by approving over 12,000 MW of 

renewable energy. However, the development of renewable energy is a continuing Federal 

priority. On June 25, 2013, to emphasize the importance of the renewable energy goals of the 

nation, the President announced the release of a Climate Action Plan to reduced carbon pollution. 

The Climate Action Plan set a new goal for the Department of the Interior to approve a 

renewable energy capacity of at least 20,000 MW of electricity on the public lands by 2020.

In 2007, the BLM issued a Solar Energy Development Policy to address increased interest in 

solar energy development on BLM-administered public lands and to implement goals to 

construct renewable energy facilities on public lands. This policy established procedures for 

processing right-of-way (ROW) applications for solar energy development projects in 

accordance with FLPMA and the BLM’s implementing regulations (43 CFR Part 2800). This 

policy was updated in 2010 by two more detailed policies that established a maximum term for 

authorizations, diligent development requirements, bond coverage, potential best management 

practices for solar energy development projects, and interim guidance on how to calculate rent 

for utility-scale solar energy facilities.

The BLM’s practice at that time was to evaluate solar energy ROW applications on a project-byproject basis. In addition, many of the BLM’s land use plans did not specifically address solar 

energy development; therefore, projects that were not in conformance with existing land use 

plans required individual land use plan amendments. Moreover, the BLM did not have a standard 

set of mitigation measures that could be applied consistently to all solar energy development 

projects. The need to develop mitigation measures case-by-case and amend land use plans added 

to the time needed to process ROW applications for solar energy projects.

On March 11, 2009, the Secretary of the Interior issued Secretarial Order 3285, which 

announced a policy goal of identifying and prioritizing specific locations best suited for the 

large-scale production of solar energy on public lands. The Secretarial Order required DOI 

agencies and bureaus to work collaboratively with each other and with other Federal agencies, 

individual states, Tribes, local governments, and other interested stakeholders, including 

renewable energy generators and transmission and distribution utilities, to encourage the timely 

and responsible development of renewable energy and associated transmission, while protecting 

and enhancing the nation’s water, wildlife, and other natural resources; to identify appropriate 

areas for generation and transmission; to develop best management practices for renewable 

energy and transmission projects on public lands to ensure the most environmentally responsible 

development and delivery of renewable energy; and to establish clear policy direction for 

authorizing the development of solar energy on public lands. On February 22, 2010, Secretarial 

Order 3285 was amended to clarify Departmental roles and responsibilities in prioritizing 

development of renewable energy. The amended order is referred to as Secretarial 

Order 3285A1.

As an agency with a multiple-use mission, to comply with Secretarial Order 3285A1, the BLM

must make land use decisions that are environmentally responsible and sustain the health and 

productivity of the public lands for the use and enjoyment of present and future generations. The 

BLM recognized that for solar energy development to be successful, it must be consistent with 

protection of other important resources and values, including units of the National Park System; 
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national wildlife refuges; other specially designated areas; wildlife; and cultural, historic, and 

paleontological values.

To comply with EO 13212 and the Energy Policy Act of 2005, and later with Secretarial Order

3285A1, and to replace elements of the 2007 Solar Energy Development Policy, the BLM began 

developing a comprehensive Solar Energy Program in much the same way as the BLM had 

developed the 2006 Wind Energy Policy. In May 2008, in conjunction with the DOE, the BLM 

initiated the Programmatic Environmental Impact Statement for Solar Energy Development in 

the Six Southwestern States (Solar PEIS) under NEPA. Through the NEPA process, the agencies 

engaged extensively with their cooperating agencies, key stakeholders, and the public to obtain 

input on the scope, objectives, and potential impacts of the proposed actions. On the basis of this 

input, the BLM incrementally refined its proposed actions, alternatives, and analyses. In 

December 2010, the BLM and DOE published the Draft PEIS. During the comment period, the 

public, as well as many cooperating agencies and key stakeholders, offered suggestions on how 

the BLM and DOE could increase the utility of the analysis, strengthen elements of the BLM’s 

proposed Solar Energy Program, and increase certainty regarding solar energy development on 

BLM-administered lands. On October 28, 2011, the lead agencies published a Supplement to the 

Draft Solar PEIS, in which adjustments were made to elements of the proposed Solar Energy 

Program and to guidance for facilitating utility-scale solar energy development to better meet the 

BLM and DOE’s solar energy objectives. The Final Solar PEIS was published in July 2012; after 

further deliberation and consultation, the ROD3 was signed by the Secretary in October 2012

that:

(1) Established a comprehensive Solar Energy Program to administer the development of 

utility-scale solar energy resources on BLM-administered public lands in six 

southwestern states: Arizona, California, Colorado, Nevada, New Mexico, and Utah. A 

component of the program is the requirement for continued consultation with Tribes at 

the project-specific level;

(2) Provided that future, project-specific environmental analyses for solar energy 

development would tier from the analysis in the Solar PEIS/ROD, thereby allowing the 

project-specific analyses to focus just on critical, site-specific issues of concern;

(3) Established land use allocations and incorporated required programmatic and specific 

design features into 89 BLM land use plans in the six-state study area; and

(4) In addition, the decision:

(a) Identified areas excluded from utility-scale solar energy ROWs;

(b) Established 17 Solar Energy Zones (SEZs), which are priority areas for utilityscale solar energy development ROWs, and identified a process to establish new 

SEZs; and 

(c) Identified “variance areas,” areas potentially available for utility-scale solar 

energy development outside of exclusion areas and SEZs.

 

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The analysis of environmental impacts and the comparison of alternatives are contained in the Draft Solar PEIS, 

Supplement to the Draft Solar PEIS, and Final Solar PEIS. A summary table (Table B-1) comparing the impacts of the 

alternatives considered is attached in Appendix B. Complete details of the BLM’s Solar Program are in the ROD. All 

of these documents are available at http://solareis.anl.gov/.
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As the BLM’s renewable energy program developed, the Office of the Inspector General (OIG) 

evaluated the BLM to assess the effectiveness of its renewable energy program. In its final 

report, the OIG found that the BLM was poised for a massive expansion of wind and solar 

projects. See report number CR-EV-BLM-0004-2010, dated June 12, 2012. Recommendations 

were made by the OIG to improve the long-term management of BLM’s renewable energy 

program. Such recommendations by the OIG included rent, bond management, and the 

competitive processes for solar and wind energy developments on the BLM-administered lands. 

In its response to the OIG, the BLM agreed to implement actions necessary to effectively address 

the recommendations and maintain consistency in its management of the public lands.

II. Purpose and Need for Action and Decision to be Made

The purpose of the proposed action is to amend the BLM’s ROW regulations in response to 

heightened priorities for and interest in wind and solar energy development on public lands. 

Specifically, the purpose is to amend 43 CFR Part 2800, Rights-of-Way under the Federal Land 

Policy and Management Act, to promote the use of preferred areas for solar and wind energy 

development (designated leasing areas), and establish competitive processes, terms, and 

conditions (including rents, fees, and bonding requirements) for solar and wind energy 

development rights-of-way both inside and outside designated leasing areas. In addition to 

setting forth competitive processes for solar and wind energy, the proposed rule would

effectively respond to many of the recommendations made by the OIG.

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The purpose includes 

amending 43 CFR Part 2880, Rights-of-Way under the Mineral Leasing Act (MLA), in order to 

maintain consistency with the administrative procedures under 43 CFR Part 2800. Proposed 

adjustments to Part 2800 regulations are reflected under Part 2880 where possible. The decision 

to be made is whether the BLM should promulgate this rule for implementation.

The need for the action is to respond to changing demand for wind and solar energy development 

on public lands. Through the completed Wind and Solar PEISs, the BLM has identified wind 

and solar energy development on public lands as an important component for meeting the 

nation’s energy goals and objectives, as well as complying with applicable orders and mandates. 

The BLM has also identified a need to respond efficiently and effectively to the high interest in 

wind energy development and utility-scale solar energy development on public lands and to 

ensure consistent application of measures to avoid, minimize, and mitigate the potential adverse 

impacts of such development.

FLPMA directs that the United States receive fair market value for the use of the public lands 

and their resources, unless otherwise provided for by statute. The BLM is proposing the 

competitive processes described in this proposed rule because of the potential size and 

magnitude of the BLM wind and solar energy programs, the level of interest in developing solar 

 

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The Solar Energy PEIS/ROD created designated leasing areas (these are the SEZs), but the Wind PEIS/ROD did not 

create similar areas. The BLM is beginning the process to establish wind energy priority development areas similar 

to SEZs that would be subject to the proposed competitive leasing process.
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and wind energy facilities on public land, and the requirement to receive fair market value for the 

use of the public lands,

III. Issues

Secretarial Order 3285A1, “Renewable Energy Development by the Department of the Interior,” 

established the development of renewable energy on public lands as one of the Department’s 

highest priorities. One of the principal or major uses defined by the FLPMA includes the 

issuance of ROWs on public lands. FLPMA also mandates that “the United States receive fair 

market value for the use of the public lands and their resources unless otherwise provided for by 

statute” (43 U.S.C. 1701(a)(9)). The existing ROW regulations (43 CFR 2804.23) provide 

authority for conducting a competitive process, but only to resolve competing applications for 

the same facility or system. The competitive process in the proposed rule would modify those 

regulations for solar and wind energy development.

Several comments on both the Draft Wind PEIS and the Draft Solar PEIS expressed interest in a 

competitive leasing process with the goal of properly valuing the solar and wind resources on 

public land. In the Wind PEIS, the BLM indicated that competitive bidding would be conducted 

only on a case-by-case basis, mainly because interest in the approach was limited. Greater 

interest in establishing a competitive leasing process was expressed by the public at the time of 

preparation of the Solar PEIS. In response to increasing demand for both types of renewable 

energy development on BLM-administered lands and the mandate to receive fair market value 

for the use of the public lands, the BLM is now proposing to offer through a competitive process

designated leasing areas that have been or will be identified as having high potential for wind or 

solar development and that have been assessed as having a minimum amount of conflict with

other public land resources. For solar energy, the Solar Energy PEIS/ROD established solar 

energy zones (SEZs), which under the proposed action would be considered designated leasing 

areas. While the Wind Energy PEIS/ROD did not establish similar areas for wind energy 

facilities, the BLM is beginning a process to establish wind energy priority development areas 

that would be subject to the proposed competitive leasing process.

The BLM published an Advance Notice of Proposed Rulemaking (ANPR) on December 29, 

2011 (76 FR 81908), stating that regulations would be developed to provide the authority to offer 

public lands inside designated solar or wind energy development leasing areas (e.g., SEZs for 

solar) through a nomination and competitive process instead of simply through an application 

process. In addition to the process that was emphasized in the ANPR, the proposed rule includes 

a different proposed competitive process for lands outside designated leasing areas and a number 

of amendments to other provisions of the rights-of-way regulations found at 43 CFR parts 2800 

and 2880.
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IV. Proposed Action

(a) Description of the Proposed Action

The proposed action is an administrative action to amend and revise portions of 43 CFR 

Part 2800, Rights-of-Way under the Federal Land Policy Management Act and portions of 

43 CFR Part 2880, Rights-of-Way under the Mineral Leasing Act. The proposed regulations 

would implement decisions contained in the RODs for both the Wind and Solar energy PEISs,

and would not in and of themselves authorize development of wind or solar projects. The action 

includes developing a revised subpart 2809 defining a competitive process for solar and wind 

energy development on designated areas of public lands. Under the proposed action, the BLM 

would have the authority to offer designated lands for wind or solar energy development through 

a competitive leasing process consistent with the FLPMA requirement that it receive fair market 

value for the use of public lands. The proposed action also would establish a competitive process 

for solar and wind energy outside designated lands, rental rates, fees, and administrative 

provisions for wind and solar energy ROW grants and leases, as well as other technical revisions 

for ROWs. The BLM is making several administrative changes to clarify the regulations and 

codify existing policies. The following summarizes, by existing or proposed subpart, the 

proposed amendments and revisions to 43 CFR Parts 2800 and 2880.

43 CFR Part 2800—Rights-of-Way under the FLPMA—Proposed Revisions

Subpart 2801, General Information, addresses the acronyms and definitions to be found in 

Part 2800, as well as other general information. Included within this subpart are the ROW

program objectives, scope and the severability of the regulations, identification of when a grant 

is needed, and how to appeal a decision under the regulations in this part.

Proposed amendments to subpart 2801 include the addition of new terms and modification of 

existing terms that are necessary to facilitate the other substantive regulatory changes proposed 

in Part 2800. Other amendments to the subpart include the text that pertains to ROW grants held 

by Federal agencies and describes solar and wind energy development facilities and associated 

action authorizations.

Subpart 2802, Lands Available for FLPMA Grants, addresses those lands available for FLPMA 

authorizations and the BLM designation of ROW corridors. Proposed amendments to this 

subpart would add “designated leasing areas” to the existing regulatory text, where appropriate.

Subpart 2803, Qualifications for Holding FLPMA Grants, states that individuals and entities that 

have the technical and financial ability to use public lands may hold grants. There are no 

proposed amendments to this subpart.

Subpart 2804, Applying for FLPMA Grants, identifies pre-application actions, where to apply,

and what to provide when submitting an application. In addition, this subpart identifies the 

financial obligations associated with an application and/or authorization, to include processing or 
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monitoring fees and the way in which the fees are determined. Further, this subpart addresses the 

circumstances in which the BLM may determine competition among applications and deny an 

application.

Proposed amendments to subpart 2804 provide clarity for the handling of applications for solar 

and wind energy development, any transmission line with a capacity of 100 kV or more, or any 

pipeline 10 inches or more in diameter, and include additions to the existing regulations for 

required pre-application meetings and their cost reimbursement, application filing fees, and the 

BLM’s authority to collect processing fees on behalf of other Federal agencies. The proposed 

rule would establish a competitive process for solar and wind energy outside a designated leasing 

area. BLM also proposes environmental screening criteria, mandatory pre-application public 

meetings and due diligence requirements for solar and wind development applications. The 

BLM could offer lands competitively for all rights-of-way on its own initiative, instead of only 

where there are two or more competing applications.

Subpart 2805, Terms and Conditions of Grants, addresses topics such as how a grant is 

authorized, what is contained within a grant, the general and specific conditions that must be 

complied with, conveyed and retained rights of a grant, and the payment of monitoring fees.

Expansion of the general conditions includes record access, maintenance and repair, common use

and bond determination criteria. Specific terms and conditions for solar and wind authorizations 

include maximum durations for grants, minimum bonding requirement, diligent development 

provisions, and project site repair and cleanliness.

Subpart 2806, Rents, describes the rules for an authorization’s general administrative actions to 

include how the rent is established; when and where rent is to be paid; late rental payments; and 

the proration, exemption, and waiver of rent. Furthermore, subpart 2806 addresses the specific 

rental schedules for authorizations such as linear and communication site rents, and what to do 

when the specific schedules do not apply.

Proposed amendments to subpart 2806 include technical adjustments to incorporate proposed 

amendments to the regulations within this subpart and to remove outdated references to 

communication site rental and identify BLM’s authority to retroactively collect rent. The solar 

and wind rental schedule is introduced and includes a description of the Acreage Rent, Megawatt 

Capacity Fee, and their adjustment and phase-in structure for solar and wind energy 

development.

Subpart 2807, Grant Administration and Operation, addresses requirements of operations for 

grant holders, including when they may begin activities, when they must contact the BLM, and 

their liabilities. In addition, the effects on grants if the lands are transferred from BLM 

ownership are discussed. The conditions under which the BLM may order a temporary 

suspension of activities or suspend or terminate a grant are specified. The requirements for 

amendment and reassignment of grants or leases are discussed, as well as renewal of grants or 

leases.
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Proposed amendments to subpart 2807 include modifications to when grant holder must contact 

the BLM during operations, changes in terms and conditions for assigning grants and leases to a 

third party, and requirements for when the name of the grant holder is changed. Some 

adjustments to the conditions for grant or lease renewal are included, as well as the proposed 

change to include relocated regulatory text that pertains to ROW grants held by Federal agencies.

Subpart 2808, Trespass, defines trespass and discusses the BLM’s actions when it determines 

trespass has occurred. There are no proposed amendments to this subpart.

Subpart 2809, Competitive Process for Leasing Public Lands for Solar and Wind Energy 

Development, is a completely revised subpart. The revised subpart addresses the competitive 

process within designated leasing areas, and includes the nomination and parcel selection 

processes, methods for conducting competitive offers, the bid and bonus bid, selection of the 

successful bidder, variable offsets, BLM’s reserved rights in the competitive process, terms and 

conditions of a solar and wind energy lease, and applications within a designated leasing area. 

43 CFR Part 2880—Rights-of-Way under the MLA—Proposed Revisions

Part 2880 follows the same general outline as Part 2800, but for Mineral Leasing Act (MLA) 

ROWs and temporary use permits (TUPs). The amendments to 43 CFR Part 2880 are proposed 

in order to maintain consistency with the proposed amendments to 43 CFR Part 2800. The 

proposed changes are in subpart 2884 regarding terms for applying for MLA grants or TUPs

(such as application filing and pre-application meetings, POD submittals, processing fees, and 

cost reimbursement for other Federal agencies); subpart 2885 on terms and conditions of MLA 

Grants and TUPs (such as performance and reclamation bonding, rental payment terms, and 

monitoring fees); and subpart 2886 regarding operations on MLA grants and TUPs (including 

when the BLM must be contacted, conditions for assigning MLA grants and TUPs, and renewal

of grants).

(b) No Action Alternative

Under the no action alternative, there would be no modifications or additions to 43 CFR 

Part 2800, Rights-of-Way under the Federal Land Policy Management Act, or 43 CFR Part 2880,

Rights-of-Way under the Mineral Leasing Act, to create a new competitive leasing process. 

Competition for grants for solar or wind energy development would continue to be limited to 

instances where there are competing applications for the same facility or system; there would be 

no competitive leasing for solar and wind energy development in designated areas, except in 

certain circumstances where competition exists.

Rents for solar and wind energy ROW grants would continue to be established by the BLM 

based on current practices. The per-acre county rates for calculating acreage fees and the rates 

for calculating megawatt capacity fees proposed in the regulation would not go into effect.
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V. Affected Environment

The 245 million acres of public lands in the United States that the BLM administers are 

extraordinarily diverse, and include desert mountain ranges, coastal areas, alpine tundra, 

evergreen forests, expanses of rangeland, and red rock canyons. These lands are managed for a 

variety of resource values and uses that include recreation, conservation, visual resources, 

rangeland resources, ROWs, and mineral development.

The proposed rule would apply to all BLM-administered lands. As noted above, some of the

impacts associated with solar and wind energy development on public lands in six southwestern 

states – Arizona, California, Colorado, Nevada, New Mexico, and Utah – have been analyzed 

through the programmatic EISs

(a) Solar

The Solar PEIS/ROD established a Solar Energy Program that is applicable to all solar energy 

development on public lands in six southwestern states: Arizona, California, Colorado, Nevada, 

New Mexico, and Utah. The principal components of the Solar PEIS/ROD: (1) identified about 

285,000 acres (1,153 km2) of public lands in the six states as priority areas for solar development

(called SEZs in the PEIS); (2) in accordance with an established variance process,

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allowed for 

consideration of utility-scale solar development in variance areas outside of SEZs totaling 

approximately 19 million acres (82,964 km2); (3) identified types of lands that are excluded from 

development for the protection of ecological, cultural, recreational, and other resources6and 

uses; and (4) amended 89 land use plans to incorporate the Solar Energy Program and the 

identified SEZs, variance areas, and exclusion areas. These items are described in the ROD for 

the Solar PEIS, which was published in October 2012. 

The 17 SEZs identified in the ROD for the Solar PEIS are the designated solar energy 

development leasing areas for which competitive leasing procedures would be established in the

proposed rule. The Affected Environment for the SEZs is discussed in chapter four and chapters 

8-13 of the Draft and Final PEIS. If fully developed over the next 20 years, the SEZs would 

provide enough electricity to meet the projected need under the reasonably foreseeable 

development scenario (RFDS) presented in the PEIS.7 However, some restriction of the area of 

development within the SEZs is expected because of either technological limitations or resource 

conflicts. To ensure that solar development is not constrained by insufficient availability of

SEZs, the Solar PEIS also included a protocol for the identification of new SEZs. There are 

ongoing efforts to identify new SEZs in Arizona and California through a process that includes 

requirements to amend applicable land use plans and to conduct the necessary environmental and 

public review processes to inform any land use plan amendments.

 

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Described in pages 177–186 of the ROD.

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Excluded areas are defined in Table A-2, pages 38–41, of the ROD.

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The RFDS presented in the Solar PEIS was based on the requirements for electricity generation from renewable 

energy sources established in the Renewable Portfolio Standards in each of the six states. Under the RFDS, the 

estimated amount of solar energy generation on BLM-administered lands in the six-state study area over the 20-

year study period is about 24,000 MW, with a corresponding dedicated use of about 214,000 acres (866 km2).
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(b) Wind

The ROD for the Wind PEIS established a Wind Energy Development Program applicable to all

wind energy development on public lands in 11 western states: Arizona, California, Colorado, 

Idaho, Montana, Nevada, New Mexico, Oregon, Utah, Washington, and Wyoming, and amended 

52 land use plans to adopt the new program. The Affected Environment section of the Wind 

PEIS in chapter four describes the affected resource subject to this proposed rule. Specific wind 

energy development zones were not identified in the Wind PEIS, and no designated leasing areas 

were established. Wind energy development was excluded from certain areas protected by 

statutory or administrative controls (e.g., Wilderness Areas, National Monuments, and 

Wilderness Study Areas). The Wind PEIS did identify the total potentially developable land area 

over the time period 2005 through 2025; this area encompasses approximately 21 million acres 

(84,984 km2) in the 11-state study area. A model was used to estimate that the economically

developable area for public lands in the 11 states was about 160,000 acres (this value is 

analogous to the projected dedicated use area for solar development, 214,000 acres, estimated 

under the RFDS for the Solar PEIS).

VI. Environmental Effects

The Council on Environmental Quality (CEQ) regulations found at 40 CFR 1508.8(a) define 

direct effects as “those effects which are caused by the action and occur at the same time and 

place.” CEQ regulations at 40 CFR 1508.8(b) define indirect effects as those 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 water and air and other natural systems, including ecosystems.” The following discussion 

describes any direct and indirect effects that may result from implementation of the proposed 

rule.

(a) Proposed Action

Direct and Indirect Effects

The new requirements in this proposed rule are of an administrative or procedural nature and 

primarily pertain to establishing an efficient competitive process to obtain fair market value for 

the use of public lands for solar and wind energy, as FLPMA requires. A programmatic analysis 

of the environmental effects of the BLM’s Solar and Wind Energy Development Programs has 

already been completed in the Solar and Wind PEISs described above. These documents have 

analyzed, to the extent practicable, the environmental effects of the establishment of BLM’s 

Wind and Solar Energy Programs, establishing clear requirements for excluding sensitive areas,

and providing for future site-specific analysis of impacts of particular projects. While the 
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proposed rule would be used to authorize both wind and solar energy projects, the proposed rule 

itself does not contribute to any direct or indirect effect associated with the development 

programs analyzed in the two PEISs.

The proposed rule contains provisions that outline how the BLM would comply with NEPA

while processing solar and wind applications. This action would affect the project-specific 

environmental review process outside of designated leasing areas. Subpart 2804 of the proposed

regulations would require the BLM, in coordination with other Federal, state, local agencies and 

Tribes, and the public to evaluate applications for solar or wind energy development before 

either denying the application or deciding to continue processing the application. Subsequently, 

the BLM would prioritize the application for processing based upon screening criteria. 

Prioritization of the applications is established after consideration of known environmental 

factors, national designations, and land use planning decisions of the application area. Early 

review of these criteria with a project application allows for their consideration in the application 

and development of a project through macro and micro siting changes and development of 

design features for specific resources such as endangered species or cultural and historic 

properties. A proposed project with fewer conflicts and a lesser degree of environmental impacts 

would be given priority over a project with more conflicts and greater environmental impacts. 

The prioritization of an application incentivizes the thoughtful and reasonable development of 

the public lands, establishing an agency emphasis on giving priority to applications that meet the 

appropriate prioritization category criteria. Like the existing regulations, the proposed 

regulations would then require the BLM either to complete a NEPA analysis or rely on a 

previously completed NEPA analysis before issuing a ROW grant.

The existing rules identify terms and conditions for rights-of-way issued by the BLM. The 

proposed rule would clarify existing regulations and codify existing policy requirements to

remove procedural uncertainty. The proposed amendments to the terms and conditions are 

generally administrative in nature, such as common use of rights-of-way or maintenance and 

repair of facilities. Since the proposed rule would clarify existing regulations or codify existing 

policy, there is no change to existing requirements. 

The existing rules identify rental requirements for use of the public land within the authority 

granted it by FLPMA. Through statutory policy in FLPMA, the BLM must receive fair market 

value for the use of the public lands and their resources. The BLM would establish a schedule 

for acreage rent specific for solar or wind rights-of-way and a fee per MW for generation of 

energy that captures the value for the increased industrial use of the right-of-way. The proposed 

amendments to the ROW rental structure are administrative in nature and will be used to help 

determine fair market value for the use of the public lands, as determined by the Secretary 

through the BLM.

Existing regulatory authority requires the payment for use of the public land and resources. 

Within the proposed rule, the BLM clarifies how and when it may retroactively collect rent for 

the use of the public land. This proposed amendment to the rule is directed at providing 

administrative clarity for rent on the public land and does not affect rent outside the scope of the 

current regulatory authority of BLM. 
13

Within the proposed rule the BLM clarifies performance and reclamation bonding requirements 

for all rights-of-way and for those specific to solar and wind. The existing rule describes the 

BLM’s authority for collecting a bond for right-of-way authorizations, but leaves the bond as a 

discretionary action for BLM to require. The proposed rule clarifies what a right-of-way 

holder’s bond is responsible for, what the BLM would consider in determining the bond amount 

that the BLM would collect for a right-of-way, and establishes minimum bond amounts specific 

for solar and wind. 

The BLM would require a bond for each solar or wind right-of-way on the public lands. The 

Solar and Wind PEISs considered how the BLM might use a reclamation cost estimate to 

determine the amount of a performance and reclamation bond. 

For the holder of a solar or wind right-of-way authorization, a bond would be required and held 

by the BLM in the event that a holder is unable or unwilling to remove the authorized facilities 

as required. The proposed rule would update and codify existing minimum bonding 

requirements set by policy for solar and wind energy development right-of-way grants and 

establish a standard bond for solar or wind energy development right-of-way leases. The BLM

proposes to update minimum bond amounts for right-of-way grants after review of recent solar 

and wind energy project bonds and their reclamation cost estimates. 

Based upon site-specific requirements, a right-of-way grant’s bond may be higher than the 

minimum bond amount and would be determined based on the reclamation cost estimate. The 

bond amount for these grants, which would be issued outside of designated leasing areas, would 

be sufficient for the BLM to reclaim the land affected by the right-of-way if the holder were to 

default.

The standard bond for right-of-way leases would equal the proposed minimum bond amounts 

outside a designated leasing area for solar and wind energy development. The bond amount for 

these leases, which would be issued inside designated leasing areas, is based on an average of 

existing projects, so the standard bond amount is not expected to vary greatly from the final bond 

amounts of projects outside of designated leasing areas.

There is still the potential for the standard bond amount to be insufficient to fully reclaim areas 

of the public lands affected by a right-of-way. Right-of-way holders are liable for all costs 

associated with the right-of-way, including the costs of full reclamation. If the holder were to go 

bankrupt or for some other reason not be in a position to fully reclaim the land, then the BLM 

would rely on the bond to fund any necessary reclamation. If the bond amount were inadequate

to fully reclaim the public lands affected by a right-of-way, then the BLM may not be able to 

remove the facilities from the affected lands or perform other reclamation activities to return the 

lands to a satisfactory condition. Though the environmental effects of this proposed standard 

bond requirement are too broad, speculative, and conjectural to assess for this proposed 

rulemaking, on a project-by-project basis it is possible that use of a standard bond, as described 

in the proposed rule, could adversely affect environmental and cultural resources on the land in 

the right-of-way or surrounding areas. For example, facilities not removed from the right-of-way 

could continue to impact visual resources, or the habitat for local wildlife may not be fully 

restored on the right-of-way and this may create stress on surrounding areas. 
14

However, the BLM would only use standard bond amounts in designated leasing areas. Such 

areas would be identified in part because there is less potential for impacts to sensitive resources

than in other BLM-managed lands. 

Subpart 2809 of the proposed regulations would require the BLM to review nominations of lands 

for solar and wind energy development within designated leasing areas, identify parcels that are 

most suitable to be offered competitively, and to complete the work necessary—including NEPA 

and other required reviews—to prepare the selected parcels for a competitive offer.

The elements of the Solar Energy Development Program and the associated land use plan 

amendments were evaluated through the preparation of the Final Programmatic Environmental 

Impact Statement for Solar Energy Development in Six Southwestern States. The PEIS contained 

an environmental analysis of the anticipated types of impacts on natural and cultural resources on 

public lands that might result from the development of utility-scale solar facilities. For the 

17 proposed SEZs, a much finer scale of impact analysis was conducted in order to streamline 

the process of authorizing projects within these areas. A summary of the detailed impact analysis 

can be found in Appendix B to this EA. Consideration of development proposals within the 

SEZs will require additional site-specific environmental analysis, but that analysis will 

incorporate the analyses from the PEIS; in other words, further environmental analysis of the 

SEZs will “tier” to the PEIS. The process for considering development in the variance areas will 

also tier to the PEIS to the extent practical and will fully consider site-specific conditions.

The Wind Energy Development Program and the associated land use plan amendments were 

evaluated through the preparation of the Final Programmatic Environmental Impact Statement 

on Wind Energy Development on BLM-Administered Lands in the Western United States. The 

PEIS contained an environmental analysis of the potential environmental impacts to natural and 

cultural resources on public lands that might result from the development of commercial wind 

energy facilities. A summary of the potential environmental impacts can be found in Appendix A 

to this EA. The PEIS assumes that additional site-specific analysis of proposed projects would 

be required under NEPA, but that additional NEPA analyses would be tiered to the PEIS.

The proposed rule would provide for project-specific NEPA analyses both inside and outside of 

designated leasing areas. The proposed rule is primarily administrative, legal and procedural in 

nature, because it would establish a new competitive process. The BLM has determined that the 

proposed rule, if adopted as a final rule, would have no indirect impacts. 

Promulgating the proposed rule could have the positive economic impact of capturing the fair 

market value for the use of public lands through competitive processes that are more clearly 

identified than the existing competitive process. 

Cumulative Effects

The CEQ regulations define cumulative effects as “the impact on the environment which results 

from the incremental impact of the action when added to other past, present, and reasonably 
15

foreseeable future actions regardless of what agency (Federal or non-Federal) or person 

undertakes such actions” (40 CFR 1508.7). Since there are no direct or indirect environmental 

effects of the proposed regulation, there are no cumulative environmental effects.

(b) No Action

Direct and Indirect Effects

The existing regulation is primarily administrative, legal, or procedural in nature with no direct 

or indirect effects on the environment.

Cumulative Effects

Because there are no direct or indirect environmental effects of the no action alternative, there 

are no cumulative environmental effects. 

VII. Tribes, Individuals, Organizations, and Agencies Consulted

(a) Tribes Consulted

Tribes were consulted in the development of the Final Programmatic Environmental Impact 

Statement on Wind Energy Development on BLM-Administered Lands in the Western United 

States and the Final Programmatic Environmental Impact Statement for Solar Energy 

Development in Six Southwestern States. The summary of Tribal consultation for the Wind 

Energy Program is included in in Chapter 7.3 of the Final Wind PEIS. While all Tribes located in 

or with interests in the 11-state study area were contacted by the BLM State Directors, only three 

Tribes indicated an interest in consultation.

For the Solar PEIS, in addition to public scoping, the BLM initiated government-to-government 

consultation with 316 Tribes, chapters, and bands with a potential interest in solar energy 

development on BLM-administered public lands in the six southwestern states. Consultation in 

the form of correspondence; telephone conversations; e-mails; and transmission of maps, 

documents, and reports has taken place with more than 65 Tribes. Face-to-face meetings

occurred with 18 Tribes and 15 federally recognized Tribes commented on the Draft Solar PEIS 

and the Supplement to the Draft. A summary of consultation can be found in Appendix K of the 

Final PEIS.

Tribes were not directly contacted for the competitive lease rule for solar and wind energy 

development. The rule is a BLM administrative and procedural action and does not have any 

tribal implications. Tribes were consulted during the preparation of both the Wind and Solar 

Energy PEISs. Future Tribal consultation will occur when site-specific solar or wind energy 
16

projects are proposed. The Advance Notice of Proposed Rulemaking Regarding a Competitive 

Process for Leasing Public Lands for Solar and Wind Energy Development (ANPR) was 

published in the Federal Register on December 29, 2012.

8 No comments were received from a 

tribe for the ANPR. Further opportunity for tribal comments will be available when the proposed 

rule is published in the Federal Register for public comment.

(b) Others Consulted

As stated in Section III of the ANPR, the notice explained that the BLM believed a rulemaking 

allowing a competitive leasing process would enhance its ability to capture fair market value for 

the use of public lands. It also described how the Wind PEIS and Solar PEIS had identified areas 

with wind and solar energy development potential and fewer resource conflicts.

To facilitate public comments and suggestions on the scope of such competitive processes and 

guide development of such processes, the BLM posed the following questions:

(1) How should a competitive process be structured for leasing lands within designated solar 

or wind energy development leasing areas?

(2) Should a competitive leasing process be implemented for public lands outside of 

designated solar or wind energy development leasing areas? If so, how should such a 

competitive leasing process be structured?

(3) What competitive bidding procedures should the BLM adopt?

(4) What is the appropriate term for a competitive solar energy ROW lease?

(5) What is the appropriate term for a competitive wind energy ROW lease?

(6) Should nomination fees be established for the competitive process? If so, how should the 

fees be determined?

(7) How should the bidding process for competitive solar and wind ROW leases be 

structured to ensure receipt of fair market value?

(8) Should a standard performance bond be required for competitive solar and wind energy 

ROW leases and how should the bond amount be determined?

(9) What diligent development requirements should be included in competitive solar and 

wind energy ROW leases?

The BLM received input from 76 industry representatives, environmental groups, individuals, 

and local and state governments who provided comments and suggestions, and the BLM used 

them to the extent possible in drafting the proposed rule. Commenters were generally supportive 

of a new competitive leasing process within wind and solar designated leasing areas and the 

existing competitive application process for lands outside these areas; the proposed rule adopts 

that approach. Comments on a bidding process included requests that the process be clearly 

defined, that fair market value be obtained, that competitive bidding should be used, and that the 

bid selection process take more into account than just the dollar amount of the highest bid. The 

proposed rule attempts to address these suggestions and contains a provision for the BLM to halt

the competitive leasing process if there is insufficient interest in the process.

 

8

Federal Register, Vol. 76, No. 250, pages 81906–81908, Thursday, December 29, 2011.
17

The majority of commenters suggested a 25- to 30-year timeframe for grant or lease 

authorizations; the proposed rule includes a 30-year term for both. Most commenters suggested 

that a nomination fee be required to allow the BLM to recover its costs; this suggestion is 

incorporated in the proposed rule.

Some commenters, in response to the question of how to ensure receipt of fair market value, 

expressed their opposition to the competitive bidding process, whereas others proposed varying 

models for establishing a lease rate. There was general agreement, however, that performance 

bonds should be required; the proposed rule includes such provision. Commenters were also 

generally supportive of due diligence requirements in leases.

The BLM, in its discretion, will make this EA and an unsigned FONSI available for public 

review on the BLM’s website at blm.gov. These documents will be available to the public to 

better inform them of the proposed rule. 

VIII. List of Preparers

Bureau of Land Management, Renewable Energy Coordination Office: 

Mr. Jayme Lopez, National Wind Energy Program Lead

Mr. Jeff Holdren, Senior Realty Specialist

Argonne National Laboratory, Environmental Science Division: 

Ms. Elizabeth Hocking (J.D.)

Ms. Heidi Hartmann (M.S.)

Mr. Jim May (M.S.)

Mr. Bob Moore (B.S.)
18

APPENDIX A

Wind Energy Development Program, Summary of Impact Assessment

A.1. Introduction

The Record of Decision (ROD) for the Final Programmatic Environmental Impact Statement on 

Wind Energy Development on BLM-Administered Lands in the Western United States (Final 

Wind PEIS) was published in December of 2005. The scope of the Final Wind PEIS analysis 

included an assessment of positive and negative environmental, social, and economic impacts; 

discussion of relevant mitigation measures to address these impacts; and identification of 

appropriate, programmatic policies and best management practices (BMPs) to be included in the 

proposed Wind Energy Development Program. The scope included all Bureau of Land 

Management-administered (BLM-administered) lands in the western United States, excluding 

Alaska. These lands are located in 11 states: Arizona, California, Colorado, Idaho, Montana, 

Nevada, New Mexico, Oregon, Utah, Washington, and Wyoming. A maximum potential 

development scenario (MPDS) was developed to help define the potential magnitude of future 

wind energy development activities on BLM-administered lands within these states. Additional 

modeling was conducted to consider the impact of various economic factors affecting wind 

energy development and to define how much wind power might be generated over the next 

20 years within the 11-state study area.

The Final Wind PEIS also assessed the proposed amendment of 52 BLM land use plans. The 

proposed amendments included: (1) Adoption of the proposed programmatic policies and 

BMPs; and (2) Identification of specific areas where wind energy development would not be 

allowed. None of the proposed amendments addressed designation of lands for competitive rightof-way (ROW) bidding processes, although this was identified as a possibility in the Notice of 

Intent (NOI). Interest in competitive bidding processes was limited to two areas and was 

addressed in local BLM land use planning efforts.

As a programmatic evaluation, the Final Wind PEIS did not evaluate site-specific issues 

associated with individual wind energy development projects. A variety of location-specific 

factors (e.g., soil type, watershed, habitat, vegetation, viewshed, public sentiment, the presence 

of threatened and endangered species, and the presence of cultural resources) would vary 

considerably from site to site, especially over an 11-state region. In addition, the variations in 

project size and design would greatly determine the magnitude of the impacts from given 

projects. The combined effects of these location-specific and project-specific factors cannot be 

fully anticipated or addressed in a programmatic analysis; such effects must be evaluated at the 

project level.

Table A-1 was developed from the impact analysis included in Chapter 5 of the Final Wind 

PEIS1and is presented as a visual summary of the anticipated impacts of the proposed action 

 

1

The complete Final Wind PEIS and ROD, as well as other supporting documents, can be found at 

http://windeis.anl.gov.
19

disclosed in the Final Wind PEIS. The impact analysis looked at 20 resource areas or programs 

and analyzed potential impacts for the four stages of development in a typical wind energy 

project.

Following the table is a narrative summary of the three alternatives that were considered in the 

Final Wind PEIS. This narrative was excerpted from the Executive Summary in the Final Wind 

PEIS.
20

TABLE A-1 Potential Impacts of Wind Energy Development as Summarized from the Wind PEIS

Natural and 

Cultural Resources, 

and Land Uses

Monitoring and 

Testing Stage Construction Stage Operations Stage

Decommissioning 

Stage Comments

Geologic Resources No significant impact Measurable impact 

requiring mitigation

No significant impact No significant impact Sand and gravel use during 

construction.

Soils No significant impact Minimal or short-term 

impact

No significant impact Minimal or short-term 

impact

Most soil disturbance will be 

stabilized seeding.

Paleontological 

Resources

Othera Other Measurable 

impact 

requiring 

mitigation

Other Other Requires case-by-case 

assessment of non-renewable 

resource. Construction stage

most likely to cause damage.

Water 

Resources/Quality

No significant impact Minimal or short-term 

impact

No significant impact Minimal or short-term 

impact

Water use for dust control and 

concrete production. 

Alteration of surface flow by 

roads.

Air Quality No significant impact Measurable impact 

requiring mitigation

No significant impact Measurable impact 

requiring mitigation

Dust; employee, construction, 

and delivery vehicles; 

vegetation clearing; and batch 

plant emissions.

Noise No significant impact Minimal or short-term 

impact

No significant impact Minimal or short-term 

impact

Localized, rural areas, 

construction machinery, and 

blasting.

Transportation No significant impact Measurable impact 

requiring mitigation

No significant impact Measurable impact 

requiring mitigation

Overweight, oversize 

vehicles, increased traffic, 

road and bridge damage, 

access road construction. 

Hazardous Materials, 

Waste Management

No significant impact No significant impact No significant impact

No significant impact

Standard practices greatly 

reduce the chance of spills, 

disposal of construction and 

demolition materials.
21

Health and Safety No significant impact Measurable impact 

requiring mitigation

Measurable impact 

requiring mitigation

Measurable impact 

requiring mitigation

Construction hazards, large 

vehicle traffic, impact on 

nearby homes – lowfrequency noise, shadow 

flicker, aviation hazard.

TABLE A-1 (Cont.)

Natural and 

Cultural Resources, 

and Land Uses

Monitoring and 

Testing Stage Construction Stage Operations Stage

Decommissioning 

Stage Comments

Vegetation No significant impact Minimal or short-term 

impact

No significant impact Minimal or short-term 

impact

5–10% of site permanently 

disturbed. Risk of introduction 

of invasive species, plant 

collection.

Wildlife No significant impact Other Measurable 

impact 

requiring 

mitigation

Other Measurable 

impact 

requiring 

mitigation

Other Measurable 

impact 

requiring 

mitigation

Reduced habitat quality 

(foraging, migration, 

reproduction), human 

disturbance, impact on 

migratory birds/bats, invasive 

vegetation, roads and 

transmission lines.

Wetland and Aquatic 

Biota

No significant impact Minimal or short-term 

impact

No significant impact Minimal or short-term 

impact

Road impact to drainages, 

sediment deposition in 

streams and wetlands from 

construction.

Threatened and 

Endangered Species

Other Measurable 

impact 

requiring 

mitigation

Other Measurable 

impact 

requiring 

mitigation

Other Measurable 

impact 

requiring 

mitigation

Other Measurable 

impact 

requiring 

mitigation

Site-specific; likely avoidance 

of sensitive habitats. 

Construction and 

decommissioning stage

sensitive for most species 

although operations also could 

adversely impact migratory 

birds/bats. Roads and 

transmission lines.
22

TABLE A-1 (Cont.)

Natural and 

Cultural Resources, 

and Land Uses

Monitoring and 

Testing Stage Construction Stage Operations Stage

Decommissioning 

Stage Comments

Aviation No significant impact No significant impact No significant impact No significant impact Federal Aviation 

Administration guidelines are 

clear about consultation on 

location of, and hazard 

marking of facilities. 

Military Operations No significant impact Other Other No significant impact Numerous military training 

routes in the west; needs close 

coordination with military to 

minimize impact to military 

training

Recreation No significant impact Other Measurable 

impact 

requiring 

mitigation

Other Measurable 

impact 

requiring 

mitigation

No significant impact Wind and solar facilities 

largely incompatible with 

some recreation uses; impact 

on viewshed of sensitive 

recreation areas (wilderness 

parks, etc.) and recreation use.

Visual Resources No significant impact Other Other Other Potential to adversely affect 

large areas, residences, and 

specially designated areas.

Cultural Resources No significant impact Other Measurable 

impact 

requiring 

mitigation

Other Measurable 

impact 

requiring 

mitigation

Minimal or short-term 

impact

Disturbance/loss of cultural 

sites, long-term monitoring, 

increased human access, tribal 

concerns; most impacts in 

early stages.

Economics No significant impact Minimal or short-term 

impact

Minimal or short-term 

impact

Minimal or short-term 

impact

There would be positive 

economic impacts, especially 

in California and Nevada; 

impacts would be small 

compared to state economies,

but could be locally 

significant.
23

TABLE A-1 (Cont.)

Natural and 

Cultural Resources, 

and Land Uses

Monitoring and 

Testing Stage Construction Stage Operations Stage

Decommissioning 

Stage Comments

Environmental 

Justice (EJ)

No significant impact Other Other Other There could be EJ concerns if 

any adverse effects were 

significantly high and if they 

would disproportionately 

affected minority and lowincome populations.

a Other = For example, site-specific analysis of individual projects required on a case-by-case basis.
24

A.2. Summary of Wind PEIS Alternatives

A.2 (a) Summary of Impacts

Potential adverse impacts on natural and cultural resources could occur during each stage of 

wind energy development (i.e., site monitoring and testing, construction, operation, and 

decommissioning) if effective mitigation measures are not implemented. The nature and 

magnitude of these impacts would vary by stage and would be determined by the project location 

and size. Potential direct impacts would include use of geologic and water resources; creation or 

increase of geologic hazards or soil erosion; water quality degradation; localized generation of 

airborne dust; generation of noise; alteration or degradation of wildlife habitat or sensitive or 

unique habitat; interference with resident or migratory fish or wildlife species, including 

protected species; alteration or degradation of plant communities, including the occurrence of 

invasive vegetation; land use changes; alteration of visual resources; release of hazardous 

materials or wastes; increased traffic; increased human health and safety hazards; and destruction 

or loss of paleontological or cultural resources. More limited, potential indirect impacts on 

cultural and ecological resources could also occur.

Effective mitigation measures could be implemented to address many of the direct and indirect 

adverse impacts that could occur. For some resources, minimum requirements could be 

established that would effectively mitigate impacts at all potential development sites. For other 

resources, however, such as ecological and visual resources, mitigation would be better defined 

at the project level to address site-specific and species-specific concerns.

The potential impacts of wind energy development on local and regional economies would be 

largely beneficial, depending upon the size of the project and the resultant wind power capacity.

The proposed action and its alternatives presented options for the management of wind energy 

development on BLM-administered lands. A brief summary of the effectiveness of each of the 

alternatives at mitigating potential adverse impacts and facilitating wind energy development is 

provided in the following sections.

Proposed Action: Implement the Wind Energy Development Program

The proposed Wind Energy Development Program policies and BMPs would establish a 

comprehensive mechanism for ensuring that the impacts of wind energy development on BLMadministered lands would be kept to a minimum. The proposed policies and BMPs were 

generated on the basis of an impact analysis conducted for the Wind PEIS and reviews of 

relevant mitigation measures; they would be applicable to all wind energy development projects. 

These elements of the program, along with the proposed amendment of BLM land use plans, 

would likely result in shorter timelines and reduced costs for wind energy projects, thereby 

facilitating development.
25

In terms of facilitating wind energy development, implementation of the proposed action would 

be expected to minimize some of the delays that currently occur for wind energy development 

projects and reduce costs. In addition, the proposed program would ensure consistency in the 

way ROW applications and authorizations for wind energy development are managed. These 

benefits would be realized as a result of the emphasis on site-specific and species-specific 

concerns during the project-level environmental analyses, the amendment of numerous land use 

plans to address wind energy development, and the potential to tier future National 

Environmental Policy Act of 1969 (NEPA) analyses off of the Wind PEIS and decisions in the 

resultant ROD.

In terms of mitigating adverse environmental impacts, the proposed policies would identify 

specific lands on which wind energy development would not be allowed; establish requirements 

for public involvement, consultation with other Federal and state agencies, and government-togovernment consultation; define the need for project-level environmental review; establish 

requirements for the scope and content of the project Plan of Development (POD); and 

incorporate adaptive management strategies. The proposed BMPs would establish 

environmentally sound and economically feasible mechanisms to protect and enhance natural 

and cultural resources. They would identify the issues and concerns that must be addressed by 

project-specific plans, programs, and stipulations during each stage of development. Mitigation 

measures protecting these resources would be required to be incorporated into project PODs; this 

would include incorporation of specific programmatic BMPs as well as the incorporation of 

additional mitigation measures contained in other existing and relevant BLM guidance, or 

developed to address site-specific or species-specific concerns.

Implementation of the proposed program would ensure that potential adverse impacts on most of 

the natural and cultural resources present at wind energy development sites, except wildlife and 

visual resources would be minimal to negligible. This includes potential impacts on soils and 

geologic resources, paleontological resources, water resources, air quality, noise, land use, and 

cultural resources not having a visual component. Potential impacts on wildlife would be 

considerably reduced by the programmatic BMPs and by the requirement that site-specific and 

species-specific concerns be addressed comprehensively at the project level. While it is possible 

that adverse impacts on wildlife could occur at some of the future wind energy development 

sites, the magnitude of these impacts and the degree to which they could be successfully 

mitigated would vary from site to site. Similarly, the proposed program would reduce potential 

impacts on visual resources, although the degree to which this could be achieved would be sitespecific; this includes cultural resources that have a visual component (e.g., sacred landscapes). 

The proposed program would require that the public be involved in and informed regarding 

potential visual impacts of a specific project during the project approval process. Minimum 

requirements regarding project design would be incorporated into individual project plans. 

Ultimately, determinations regarding the magnitude of potential visual impacts would be made 

by local stakeholders.

Finally, with respect to potential environmental impacts, the proposed requirement for the BLM 

and operators to adopt adaptive management strategies would further ensure that potential 

environmental impacts would be kept to a minimum. This includes requirements for periodic 

review and revision of programmatic policies and BMPs; comprehensive site monitoring 
26

programs, including metrics for measuring impacts; and protocols for incorporating monitoring 

observations and new mitigation measures into standard operating procedures and projectspecific BMPs.

The potential economic impacts of the proposed action would generally be beneficial to local and 

regional economies. The projected development would result in new jobs and increased income, 

gross state product, sales tax, and income tax in each of the 11 states during both construction 

and operation. Impacts on residential property values associated with proximity to wind energy 

projects were not calculated in the Wind PEIS; however, other studies of these impacts suggest 

that there would not be any measurable negative impacts.

In terms of cumulative impacts under the proposed action, the potential for wind energy 

development on BLM-administered lands, as projected by the MPDS, is relatively small 

compared both with other commercial uses of BLM-administered lands and with projected levels 

of wind energy development on non-BLM-administered lands. Under the proposed action, 

potential environmental impacts would be mitigated to the maximum extent possible by the 

programmatic policies and BMPs. Provided that the level of development falls within the MPDS 

projections for the next 20 years and that the proposed policies and BMPs are implemented, the 

cumulative impacts of the proposed action are unlikely to be significant. Individual site-specific 

wind energy projects on BLM-administered lands that are within the scope of this cumulative 

analysis and in accordance with the Wind Energy Development Program described by the 

proposed action are considered to have been adequately addressed by the Wind PEIS.

No Action Alternative

Under this alternative, wind energy development would be subject to the terms and conditions of 

the Interim Wind Energy Development Policy. The interim policy establishes some restrictions 

on lands that can be developed and includes requirements for environmental review of individual 

projects in accordance with NEPA. Comprehensive guidance regarding mitigation of potential 

adverse impacts is not included in the interim policy. In addition, under this alternative, land use 

plan amendments to address wind energy development would occur only on a plan-by-plan basis.

In terms of facilitating development, the absence of a BLM Wind Energy Development Program 

would likely cause wind energy development on BLM-administered lands to occur at a slower 

pace than under the proposed action. The anticipated benefits of the Wind Energy Development 

Program, in terms of the availability of comprehensive BMP requirements, land use plan 

amendments, and tiered NEPA analyses, would not be realized under the no action alternative. 

One can predict that without these benefits, the length of time needed to review, process, and 

approve ROW applications for wind energy projects would increase. Extended timelines usually 

translate into increased costs, and the cost per unit of wind power developed would likely be 

greater under the no action alternative than under the proposed action. This could result in delays 

in establishing necessary project financing and power market contracts. Furthermore, developers 

may elect to avoid delay and uncertainty by shifting their projects to state, Tribal, and private 

land with potentially less Federal environmental oversight.
27

In terms of mitigating adverse environmental impacts, implementation of the interim policy 

requirements for project-specific environmental reviews would likely result in the development 

of effective mitigation measures for individual wind energy projects. In that event, the potential 

adverse impacts on natural and cultural resources would be similar to those of the proposed 

action. The absence of a Wind Energy Development Program, however, could result in 

inconsistencies in the type and degree of mitigation required for individual projects.

Economic benefits also would be realized locally and regionally under the no action alternative.

However, if the amount of wind energy development was reduced as a result of real or perceived 

impediments to development on BLM-administered lands, the economic benefits to local 

communities adjacent to BLM-administered lands in the west could be reduced.

Limited Wind Energy Development Alternative

Under this alternative, the amount of wind energy development would be greatly restricted in 

comparison to both the proposed action and the no action alternative. Therefore, in terms of 

facilitating wind energy development, this alternative would be the least effective of the three 

alternatives considered. In terms of mitigating potential environmental impacts, the required 

project-specific reviews, including NEPA analyses, would likely result in effective mitigation so 

that local impacts would be reduced to the greatest extent possible. Potential regional impacts, 

including beneficial economic impacts, would be lower under this alternative because of the 

limited level of development on BLM-administered lands.

A.2 (b) Conclusions

The Wind PEIS is consistent with the requirements promulgated by the Federal Land Policy and 

Management Act of 1976 (FLPMA); NEPA (42 U.S.C. 4321), as amended; and Council on 

Environmental Quality regulations (Code of Federal Regulations, Title 40, Parts 1500−1508 (40 

CFR Parts 1500–1508)). A scoping process was conducted to obtain input from individuals, 

public interest organizations, and governmental agencies, and this input was used to develop the 

alternatives and issues considered in the Wind PEIS. The Draft Wind PEIS was made available 

for public review, and comments received during that review were considered and incorporated 

into the Final Wind PEIS as appropriate. The Final Wind PEIS met all administrative and 

procedural requirements.

On the basis of the impact analyses presented in the Wind PEIS, the proposed action was 

identified as presenting the best approach for managing wind energy development on BLMadministered lands. The Wind Energy Development Program was identified as likely to result in 

the greatest amount of wind energy development over the next 20 years, at the lowest potential 

cost to industry. Simultaneously, the proposed action was identified as providing the most 

comprehensive approach for ensuring that potential adverse impacts would be minimized to the 

greatest extent possible. And, finally, the proposed action was identified as likely to provide the 

greatest economic benefits to local communities and the region as a whole. As a result, the 
28

proposed action was identified as best meeting the objectives of the National Energy Policy 

recommendations to increase renewable energy production on Federal lands.
29

APPENDIX B

Solar Energy Program, Summary of Impact Assessment

B.1 Background

The Record of Decision (ROD) for the Final Programmatic Environmental Impact Statement for 

Solar Energy Development in Six Southwestern States (Final Solar PEIS) established a 

comprehensive Solar Energy Program and amended 89 Bureau of Land Management (BLM)

land use plans to guide the processing of new utility-scale solar energy applications on BLMadministered land. The scope of the Final Solar PEIS analysis included an assessment of positive 

and negative environmental, social, and economic impacts; identification of required 

programmatic design features to address these impacts; and identification of appropriate, 

programmatic policies that were included in the Wind Energy Development Program. A 

reasonably foreseeable development scenario (RFDS) was developed to help define the potential 

magnitude of future solar energy development activities on BLM-administered lands within the 

six-state study area.

Through the Solar PEIS, the BLM evaluated three alternatives for managing utility-scale solar 

energy development on BLM-administered lands in the six-state study area. These alternatives 

included two action alternatives—a solar energy development program alternative and a Solar 

Energy Zone (SEZ) program alternative—and a no action alternative. The solar energy 

development program alternative was identified in the Final Solar PEIS as the BLM’s preferred 

alternative.

Under the solar energy development program alternative (referred to as the “program 

alternative”), the BLM proposed categories of lands to be excluded from utility-scale solar

energy development (about 79 million acres [319,702 km2] proposed for exclusion) and 

identified specific locations well suited for utility-scale production of solar energy (i.e., SEZs) 

where the BLM proposed to prioritize development (about 285,000 acres [1,553 km2] in SEZs). 

The program alternative emphasized and incentivized development within SEZs and proposed a 

collaborative process to identify additional SEZs. To accommodate the flexibility described in 

the BLM’s program objectives, the program alternative allowed for responsible utility-scale solar 

energy development in variance areas outside of SEZs in accordance with a proposed variance 

process (about 19 million acres [82,964 km2] in variance areas). The program alternative also 

established programmatic design features for utility-scale solar energy development on BLMadministered lands.

Under the SEZ program alternative (referred to as the “SEZ alternative”), the BLM would 

restrict utility-scale solar energy development to SEZs only, and identify all other lands as 

exclusion areas for utility-scale solar energy development (approximately 98 million acres 

[396,600 km2]). Under the SEZ alternative, the same programmatic design features applicable to 

the program alternative would apply to utility-scale solar energy development in SEZs, and new 

or expanded SEZs would be identified in the future following the collaborative identification 

process mentioned above.
30

Under the no action alternative, the BLM would continue the issuance of ROW authorizations 

for utility-scale solar energy development on BLM-administered lands by implementing the 

requirements of the BLM’s existing solar energy policies on a project-by-project basis. Lands 

available for solar energy development would include those areas currently allowable under 

existing applicable laws and statutes (approximately 98 million acres [396,600 km2] in the sixstate study area) and in conformance with the approved land use plans. The BLM would not 

implement any of the proposed elements of the Solar Energy Program described in the two 

action alternatives.

Table B-1 was included in the Final Solar PEIS as Table 6.1-2. The in-depth analyses of 

potential impacts of development in the proposed SEZs, as presented in Chapters 8 through 13 of 

the Draft and Final Solar PEIS, provided part of the basis for the summary of impacts of the SEZ 

alternative that is provided in Table B-1. The SEZ analyses included an assessment of 

cumulative impacts, considering ongoing and reasonably foreseeable actions specifically for the 

vicinity of each SEZ.

The impacts of solar development itself were largely similar across the program alternatives 

presented in the Final Solar PEIS. However, because the alternatives represent planning-level 

decisions (i.e., allocation and exclusion decisions), differences between the alternatives were 

found in the location, pace, and concentration of solar energy development. 
31

TABLE B-1 Summary-Level Assessment of Potential Environmental Impacts of Utility-Scale Solar Energy Development by Alternative

Resource

Program Alternative

(approximately 285,000 acresb in priority areas, and

approximately 19 million acres subject to variance process)

SEZ Alternative 

(approximately 

285,000 acres in 

priority areas)

No Action Alternative 

(approximately 

98 million acres available 

for application)

Lands and 

Realty

Solar energy development would preclude other land uses within the 

project footprint and could alter the character of largely rural areas. 

Development of supporting infrastructure (e.g., new transmission lines and 

roads) would also locally affect land use. These impacts potentially could 

be dispersed across the 19 million acres of variance areas; however, 

impacts would be minimized due to the required variance process.

Design features could effectively avoid or minimize many impacts.

Same impacts as program 

alternative, except impacts 

would be concentrated into a 

smaller, known geographic 

area.

Same impacts as program 

alternative, except impacts 

could potentially be more 

dispersed. There would be no 

specific design features to 

reduce impacts.

Specially 

Designated 

Areas and 

Lands with 

Wilderness 

Characteristics

Specially designated areas and lands with wilderness characteristics could 

be significantly affected through direct and indirect impacts (e.g., visual 

impacts, reduced access, noise impacts, and fugitive dust) during both the 

construction and operations stages. Similar impacts potentially could be 

dispersed across the 19 million acres of variance areas; however, impacts 

would be minimized due to the required variance process.

Design features could effectively avoid or minimize many impacts.

All NLCS lands would be excluded. Also excluded would be ACECs; 

SRMAs (except in Nevada and portions of the Yuma East SRMA in 

Arizona); DWMAs; National Recreation Trails and National Backcountry 

Byways; National Historic and Scenic Trails; Wild, Scenic, and 

Recreational Rivers, and segments of rivers determined to be eligible or 

suitable for Wild and Scenic River status; and lands within the proposed 

Mojave Trails National Monument.

All areas where there is an applicable land use plan decision to protect 

lands with wilderness characteristics would be excluded.

Same impacts as program 

alternative, except impacts 

would be concentrated into a 

smaller, known geographic 

area. This concentration of 

development could increase 

the magnitude of potential 

impacts but affect a smaller 

number of areas.

Same impacts as program 

alternative, except that only 

most NLCS lands are 

excluded from solar energy 

development and other 

exclusions do not apply. 

There would be no specific 

design features to reduce 

impacts.

Impacts could potentially be 

more dispersed and greater 

on specially designated lands 

and lands with wilderness 

characteristics due to few 

exclusions under the no 

action alternative.
32

TABLE B-1 (Cont.)

Resource

Program Alternative

(approximately 285,000 acres in priority areas)

(approximately 19 million acres subject to variance process)

SEZ Alternative 

(approximately 

285,000 acres in 

priority areas)

No Action Alternative 

(approximately 

98 million acres available 

for application)

Rangeland 

Resources

Some livestock grazing allotments may be affected by solar energy 

development through reductions in acreage and/or loss of AUMs. 

Wild horses and burros also could be affected, with animals displaced from 

the development area; the number of wild horse and burro HMAs 

overlapping with or in the vicinity of lands available for ROW application 

would be less than under the no action alternative.

These impacts potentially could be dispersed across the 19 million acres of 

variance areas; however, impacts would be minimized due to the required 

variance process. 

Design features could effectively avoid or minimize many impacts.

Same impacts as program 

alternative, except impacts 

would be concentrated into a 

smaller geographic area 

within a known set of 

grazing allotments and 

HMAs (there is very little 

overlap of SEZs with wild 

horse and burro HMAs). 

Same impacts as program 

alternative, except impacts 

could potentially be more 

dispersed, and there is less 

certainty about which 

grazing allotments and 

HMAs potentially could be 

affected. There would be no 

specific design features to 

reduce impacts.

Recreation Recreational uses would be precluded within lands used for solar energy 

development. Recreational experiences could be adversely affected in areas 

proximate to solar energy projects and related transmission. These impacts 

potentially could be dispersed across the 19 million acres of variance areas; 

however, impacts would be minimized due to the required variance 

process.

Design features could effectively avoid or minimize many impacts.

All SRMAs are excluded from solar energy development (except in 

Nevada and portions of the Yuma East SRMA in Arizona). Also excluded 

are developed recreational facilities and special-use permit recreation sites.

Same impacts as program 

alternative, except impacts 

would be concentrated into a 

smaller, known geographic 

area. This could increase the 

magnitude of potential 

impacts but affect fewer 

recreational resources.

Same impacts as program 

alternative. There would be 

no explicit exclusions to 

avoid SRMAs, recreational 

facilities, and special-use 

permit recreation sites. There 

would be no specific design 

features to reduce impacts.

Impacts could potentially be 

more dispersed and greater 

on those recreational areas 

that would be excluded under 

the action alternatives. 
33

TABLE B-1 (Cont.)

Resource

Program Alternative

(approximately 285,000 acres in priority areas)

(approximately 19 million acres subject to variance process)

SEZ Alternative 

(approximately 

285,000 acres in 

priority areas)

No Action Alternative 

(approximately 

98 million acres available 

for application)

Military and 

Civilian 

Aviation

Military and civilian aviation impacts would be identified and adequately 

avoided, minimized, and/or mitigated prior to the BLM’s issuance of a 

ROW authorization.

Same impacts as program 

alternative, except impacts 

would be concentrated into a 

smaller, known geographic 

area.

Same impacts as program 

alternative, except impacts 

could potentially be more 

dispersed.

Soil Resources 

and Geologic 

Hazards

Development of large tracts of land up to several thousand acres for solar 

energy facilities and related infrastructure would result in impacts on soil 

resources in terms of soil compaction and erosion, although these impacts 

could be effectively avoided, minimized, and/or mitigated. Impacts on 

biological soil crusts would be long term and possibly irreversible. These 

impacts potentially could be dispersed across the 19 million acres of 

variance areas; however, impacts would be minimized due to the required 

variance process.

Design features could effectively avoid or minimize many impacts.

Same impacts as program 

alternative, except impacts 

would be concentrated into a 

smaller, known geographic 

area.

Same impacts as program 

alternative, except impacts 

could potentially be more 

dispersed. There would be no 

specific design features to 

reduce impacts.

Mineral 

Resources

Mineral development within the project footprint for solar energy 

development would generally be an incompatible use; however, some 

resources underlying the project area might be developable 

(e.g., directional drilling for oil and gas or geothermal resources, 

underground mining). These impacts potentially could be dispersed across 

the 19 million acres of variance areas; however, impacts would be 

minimized due to the required variance process.

Same impacts as program 

alternative, except impacts 

would be concentrated into a 

smaller, known geographic 

area.

Same impacts as program 

alternative, except impacts 

could be potentially more 

dispersed.

Lands within SEZs may be withdrawn from location and entry under the 

mining laws.

Lands within SEZs may be 

withdrawn from location and 

entry under the mining laws.

No SEZs would be identified 

or withdrawn.
34

TABLE B-1 (Cont.)

Resource

Program Alternative

(approximately 285,000 acres in priority areas)

(approximately 19 million acres subject to variance process)

SEZ Alternative 

(approximately 

285,000 acres in 

priority areas)

No Action Alternative 

(approximately 

98 million acres available 

for application)

Water 

Resources

Solar thermal projects with wet-cooling systems require large volumes of 

water, with potentially significant environmental impacts. Solar thermal 

projects with dry-cooling systems need less than one-tenth of the amount of 

water required for wet-cooling systems. Projects would necessarily be 

limited to locations with sufficient groundwater supplies where water rights 

and the approval of water authorities could be obtained.

All solar energy facilities require smaller volumes of water for mirror or 

panel washing and potable water uses, which would result in relatively 

minor impacts on water supplies.

Other potential impacts, including modification of surface and groundwater 

flow systems, water contamination resulting from chemical leaks or spills, 

and water quality degradation by runoff or excessive withdrawals, can be 

effectively avoided, minimized, and/or mitigated.

Design features could effectively avoid or minimize many impacts.

Same impacts as program 

alternative, except impacts 

would be concentrated into a 

smaller, known geographic 

area. This could increase the 

magnitude of potential 

impacts but affect fewer 

water resources.

Same impacts as program 

alternative, except impacts 

could be potentially more 

dispersed. There would be no 

specific design features to 

reduce impacts.

Vegetation Solar development will typically require the total removal of vegetation at 

most facilities, which could result in significant direct impacts in terms of 

increased risk of invasive species introduction, changes in species 

composition and distribution, habitat loss (e.g., dune or riparian areas), and 

damage to biological soil crusts. Indirect impacts also likely in terms of 

dust deposition, altered drainage patterns, runoff, and sedimentation. 

Impacts potentially could be dispersed across the 19 million acres of 

variance areas; however, impacts would be minimized due to the required 

variance process.

Same impacts as program 

alternative, except impacts 

would be concentrated into a 

smaller, known geographic 

area. This could increase the 

magnitude of potential 

impacts but affect a smaller 

number of areas.

Same impacts as program 

alternative. There would be 

no explicit exclusions to 

avoid known sensitive 

vegetation resources and no 

specific design features to 

reduce impacts. 
35

TABLE B-1 (Cont.)

Resource

Program Alternative

(approximately 285,000 acres in priority areas)

(approximately 19 million acres subject to variance process)

SEZ Alternative 

(approximately 

285,000 acres in 

priority areas)

No Action Alternative 

(approximately 

98 million acres available 

for application)

Vegetation 

(Cont.)

Design features could effectively avoid or minimize many impacts. Impacts could potentially be 

more dispersed and greater 

on those vegetation resources 

excluded under the action 

alternatives.

Less than 14% each of the Central Basin and Range and Chihuahuan 

Deserts Ecoregions, and less than 7% each of the Madrean Archipelago, 

Mojave Basin and Range, and Sonoran Basin and Range Ecoregions are 

located within the lands that would be available for application. Other 

ecoregions coincide with these lands at levels below 5%.

Of the five ecoregions that 

coincide with SEZs, less than 

1% of each ecoregion would 

be available for ROW 

application.

Lands available for 

ROW application span 

22 ecoregions. More than 

50% of 2 ecoregions (Central 

Basin and Range, Northern 

Basin and Range) would be 

available for application.

The land cover types for the following example species overlap with 

variance areas available for ROW application by the percentages shown:

Joshua tree – less than 7%

Saguaro – less than 7%

Less than 1% of the land 

cover type for Joshua tree 

and saguaro species is 

located within the SEZs.

The land cover types for the 

following example species 

overlap with the lands that 

would be available for ROW 

application by the 

percentages shown:

Joshua tree – about 31%

Saguaro – about 26%
36

TABLE B-1 (Cont.)

Resource

Program Alternative

(approximately 285,000 acres in priority areas)

(approximately 19 million acres subject to variance process)

SEZ Alternative 

(approximately 

285,000 acres in 

priority areas)

No Action Alternative 

(approximately 

98 million acres available 

for application)

Wildlife and 

Aquatic Biota

Numerous wildlife species would be adversely affected by loss of habitat, 

disturbance, loss of food and prey species, loss of breeding areas, effects on 

movement and migration, introduction of new species, habitat 

fragmentation, and changes in water availability. Impacts potentially could

be dispersed across the 19 million acres of variance areas; however, 

impacts would be minimized due to the required variance process.

Design features could effectively avoid or minimize many impacts.

Exclusion of ACECs, Research Natural Areas, big game migratory 

corridors and winter ranges, and lands with seasonal restrictions as 

identified in applicable land use plans would avoid impacts on wildlife in 

specific areas

The following example species’ habitats overlap with variance areas 

available for ROW application by the percentages shown:

Same impacts as program 

alternative, except the 

potential area of impact 

would be limited to a 

smaller, known geographic 

area.

Same impacts as program 

alternative. There would be 

no explicit exclusions to 

avoid known sensitive 

wildlife resources, and no 

specific design features to 

reduce impacts.

Impacts could potentially be 

more dispersed and greater 

on those wildlife resources 

excluded under the action 

alternatives.

The following example 

species’ habitats overlap with 

the lands that would be 

available for ROW 

application by the 

percentages shown:

Western rattlesnake – less than 6%

Golden eagle – less than 6%

Black-tailed jackrabbit – less than 6%

Pronghorn – less than 5%

Mule deer – less than 6%

Mountain lion – less than 5%

Less than 1% of the habitats 

for western rattlesnake, 

golden eagle, black-tailed 

jackrabbit, pronghorn, mule 

deer, and mountain lion are 

located within the SEZs.

Western rattlesnake –

about 27%

Golden eagle – about 23%

Black-tailed jackrabbit –

about 24%

Pronghorn – about 22%

Mule deer – about 22%

Mountain lion – about 21%
37

TABLE B-1 (Cont.)

Resource

Program Alternative

(approximately 285,000 acres in priority areas)

(approximately 19 million acres subject to variance process)

SEZ Alternative 

(approximately 

285,000 acres in 

priority areas)

No Action Alternative 

(approximately 

98 million acres available 

for application)

Special Status 

Species

Special status species and critical habitats would be protected in 

accordance with ESA requirements either through avoidance, translocation 

(plants), or acquisition and protection of compensatory habitat. Impacts 

potentially could be dispersed across the 19 million acres of variance areas; 

however, impacts would be minimized due to the required variance 

process.

Design features could effectively avoid or minimize many impacts.

Critical habitat designated or proposed by the USFWS would be excluded. 

All ACECs designated for habitat would be excluded along with identified 

desert tortoise translocation sites and other areas where the BLM has made 

a commitment to protect sensitive species (including Mohave ground 

squirrel and flat-tailed horned lizard habitat in California, greater sagegrouse habitat in California, Nevada, and Utah, and Gunnison’s sagegrouse habitat in Utah). 

Variance areas for ROW application include areas of potentially suitable 

habitat for special status species (see Appendix J of the Final Solar PEIS). 

For example, the following species’ habitats overlap by the percentages 

shown:

Special status species and 

critical habitats would be 

protected as under program 

alternative.

Lands available for ROW 

application within SEZs 

include areas of potentially 

suitable habitat for special 

status species (see 

Appendix J of this Final 

Solar PEIS). 

Special status species and 

critical habitats would be 

protected as under program 

alternative. There would be 

no specific design features to 

reduce impacts.

In some cases, habitat 

identified by state fish and 

game agencies would be 

excluded, as identified 

through applicable land use 

plan decisions. Critical 

habitat, ACECs designated 

for habitat value, and other 

areas where the BLM has 

made a commitment to 

protect sensitive species 

would not be excluded.

Lands available for ROW

application include areas of

potentially suitable habitat

for special status species (see

Appendix J). For example,

the following species’

habitats overlap by the

percentages shown:
38

TABLE B-1 (Cont.)

Resource

Program Alternative

(approximately 285,000 acres in priority areas)

(approximately 19 million acres subject to variance process)

SEZ Alternative 

(approximately 

285,000 acres in 

priority areas)

No Action Alternative 

(approximately 

98 million acres available 

for application)

Special Status 

Species 

(Cont.)

Plants:

Nevada dune beardtongue – less than 61%

White-margined beardtongue – less than 8%

Munz’s cholla – less than 16% 

Animals:

Desert tortoise – less than 12%

Western burrowing owl – less than 8%

Greater sage-grouse – less than 7%

Gunnison prairie dog – less than 3%

Gunnison sage-grouse – less than 1%

Northern aplomado falcon – less than 11%

Southwestern willow flycatcher – less than 1%

Townsend’s big-eared bat – less than 6%

Utah prairie dog – less than 11%

For example, about 1% or 

less of the habitat for two 

plant species (Nevada dune 

beard tongue, whitemargined beard tongue) and 

nine animal species (desert 

tortoise, western burrowing 

owl, greater sage-grouse, 

Gunnison prairie dog, 

Gunnison sage-grouse, 

northern aplomado falcon, 

and southwestern willow 

flycatcher, Townsend’s bigeared bat, and Utah prairie 

dog) are located within the 

SEZs; less than 4% of 

Munz’s cholla habitat is 

located within the SEZs.

Plants: 

Nevada dune

beardtongue – 66% 

White-margined 

beardtongue – 34%

Munz’s cholla – 45%

Animals: 

Desert tortoise – 29%

Western burrowing

owl – 27%

Greater sage-grouse – 54%

Gunnison prairie 

dog – 15%

Gunnison sagegrouse – 24%

Northern aplomado 

falcon – 26%

Southwestern willow 

flycatcher – 7%

Townsend’s big-eared 

bat – 23%

Utah prairie dog – 36%
39

TABLE B-1 (Cont.)

Resource

Program Alternative

(approximately 285,000 acres in priority areas)

(approximately 19 million acres subject to variance process)

SEZ Alternative 

(approximately 

285,000 acres in 

priority areas)

No Action Alternative 

(approximately 

98 million acres available 

for application)

Air Quality 

and Climate

Air quality would be adversely affected locally and temporarily during 

construction by fugitive dust and vehicle emissions, although impacts 

would be relatively minor and could be mitigated (e.g., dust control 

measures, emissions control devices, and vehicle maintenance). Operations 

would result in few air quality impacts. Impacts potentially could be 

dispersed across the 19 million acres of variance areas; however, impacts 

would be minimized due to the required variance process.

Design features could effectively avoid or minimize many impacts.

Climate Change: Relatively minor CO2 emissions would be generated by 

the use of heavy equipment, vehicles, and backup generators. Overall, CO2

emissions could be reduced if solar energy production avoids fossil fuel 

energy production.

Same impacts as program 

alternative, except impacts 

would be concentrated into a 

smaller, known geographic 

area. This could increase the 

magnitude of potential 

impacts, particularly during 

construction, but affect a 

smaller number of areas.

Climate Change: Same 

impacts as program 

alternative, assuming level of 

development is the same.

Same impacts as program 

alternative, except impacts 

could be potentially more 

dispersed and of smaller 

magnitude locally. There 

would be no specific design 

features to reduce impacts.

Climate Change: Same

impacts as program 

alternative, assuming level of 

development is the same.

Visual 

Resources

Solar energy projects and associated infrastructure introduce strong 

contrasts in forms, line, colors, and textures of the existing landscape, 

which may be perceived as negative visual impacts. Suitable development 

sites typically located in basin flats surrounded by elevated lands where 

sensitive viewing locations exist. Impacts potentially could be dispersed 

across the 19 million acres of variance areas; however, impacts would be 

minimized due to the required variance process. 

Various potentially sensitive visual resource areas, including National 

Historic and Scenic Trails, National Historic and Natural Landmarks, 

properties designated or eligible for the National Register of Historic 

Places, and areas with important cultural resources that possess historical 

vistas may be impacted.

Same impacts as program 

alternative, except the 

impacts would be 

concentrated into a smaller, 

known geographic area. This 

could increase the magnitude 

of potential impacts, 

particularly during 

construction, but affect a 

smaller number of areas.

SEZs are visible from 

approximately 

Same impacts as program 

alternative. Some NLCS 

lands are excluded from solar 

energy development under 

the no action alternative. 

There would be no specific 

design features to reduce 

impacts.

Impacts could be potentially 

more dispersed and greater 

on those areas excluded 

under the action alternatives.
40

TABLE B-1 (Cont.)

Resource

Program Alternative

(approximately 285,000 acres in priority areas)

(approximately 19 million acres subject to variance process)

SEZ Alternative 

(approximately 

285,000 acres in 

priority areas)

No Action Alternative 

(approximately 

98 million acres available 

for application)

Visual 

Resources 

(Cont.)

Design features could effectively avoid or minimize many impacts but 

some large impacts cannot be avoided.

All NLCS lands and ACECs are excluded. All SRMAs are excluded 

(except in Nevada and portions of the Yuma East SRMA in Arizona). 

Developed recreational facilities, special-use permit recreation sites, 

National Recreation Trails, and National Backcountry Byways are 

excluded. 

Approximately 995 potentially sensitive visual resource areas (not 

including ACECs) are located in or within 25 mic of the lands available for

ROW viewsheds.

105 potentially sensitive 

visual resource areas (not 

including ACECs) within 

25 mi.

About 1,473 potentially 

sensitive visual resource 

areas (not including ACECs) 

are located in or within 25 mi 

of the lands available for 

ROW application and could 

be affected by solar 

development within their 

viewsheds.

Acoustic 

Environment 

Construction-related noise could adversely affect nearby residents

and/or wildlife, and would be greatest for concentrating solar power 

projects requiring power block construction. Operations-related noise 

impacts would generally be less significant than construction-related noise 

impacts but could still be significant for some receptors located near power 

block or dish engine facilities. Impacts potentially could be dispersed 

across the 19 million acres of variance areas; however, impacts would be 

minimized due to the required variance process.

Design features could effectively avoid or minimize many impacts.

Same impacts as program 

alternative, except impacts 

would be concentrated into a 

smaller, known geographic 

area. This could increase the 

magnitude of potential 

impacts, particularly during 

construction, but affect a 

smaller number of areas.

Same impacts as program 

alternative, except impacts 

could be potentially more 

dispersed. There would be no 

specific design features to 

reduce impacts.

Paleontological 

Resources

Paleontological resources subject to loss during construction, but impacts 

also possible during operations. Impacts potentially could be dispersed 

across the 19 million acres of variance areas; however, impacts would be 

minimized due to the required variance process.

Design features could effectively avoid or minimize many impacts.

Same impacts as program 

alternative, except impacts 

would be concentrated into a 

smaller, known geographic 

area.

Same impacts as program 

alternative, except impacts 

could be potentially more 

dispersed. There would be no 

specific design features to 

reduce impacts.
41

TABLE B-1 (Cont.)

Resource

Program Alternative

(approximately 285,000 acres in priority areas)

(approximately 19 million acres subject to variance process)

SEZ Alternative 

(approximately 

285,000 acres in 

priority areas)

No Action Alternative 

(approximately 

98 million acres available 

for application)

Cultural 

Resources and 

Native 

American 

Concerns

Cultural resources subject to loss during construction, but impacts also 

possible during operations. Impacts potentially could be dispersed across 

the 19 million acres of variance areas; however, impacts would be 

minimized due to the required variance process.

Design features could effectively avoid or minimize many impacts.

ACECs designated for cultural or historic resource values, National 

Historic and Scenic Trails, National Historic and Natural Landmarks, 

properties designated or eligible for the National Register of Historic 

Places, and areas with important cultural and archaeological resources 

would be excluded.

Same impacts as program 

alternative, except impacts 

would be concentrated into a 

smaller, known geographic 

area.

Same exclusions as program 

alternative. 

Same impacts as program 

alternative. There would be 

no explicit exclusions to 

avoid known sensitive 

cultural resources. There 

would be no specific design 

features to reduce impacts.

Impacts could be potentially 

more dispersed and greater 

on those cultural resources 

excluded under the action 

alternatives.

Transportation Local road systems and traffic flow could be adversely affected during 

construction. Impacts during operations would be minor. Impacts 

potentially could be dispersed across the 19 million acres of variance areas; 

however, impacts would be minimized due to the required variance 

process.

Design features could effectively avoid or minimize many impacts.

Same impacts as program 

alternative, except impacts 

would be concentrated into a 

smaller, known geographic 

area. This could increase the 

magnitude of potential 

impacts, particularly during 

construction, but affect a 

smaller number of areas.

Same impacts as program 

alternative, except impacts 

could be potentially more 

dispersed. There would be no 

specific design features to 

reduce impacts.

Abbreviations: ACEC = Area of Critical Environmental Concern; AUM = animal unit month; BLM = Bureau of Land Management; CO2 = carbon dioxide; 

DWMA = Desert Wildlife Management Area; ESA = Endangered Species Act; HMA = herd management area; NLCS = National Landscape Conservation 

System; ROW = right-of-way; SRMA = Special Recreation Management Area; USFWS = U.S. Fish and Wildlife Service.

Footnotes on next page.
42

TABLE B-1 (Cont.)

a The lands composing the no action alternative have not changed significantly since release of the Draft Solar PEIS; thus, the habitat overlap values 

(percentages) presented remain valid. 

b To convert acres to km2, multiply by 0.004047.

c The acreage estimates were calculated on the basis of the best available GIS data. GIS data were not available for the entire set of exclusions; therefore, the 

acreages cannot be quantified at this time.

d To convert mi to km, multiply by 1.609.