Source: https://openei.org/wiki/RAPID/Roadmap/9-FD-j
Timestamp: 2020-02-18 06:30:18
Document Index: 43713964

Matched Legal Cases: ['§ 1508', '§ 1508', '§ 1500', '§ 1507', '§ 1508', '§ 1502', '§ 1502', '§ 1508', '§ 1508', '§ 46', '§ 46', '§ 46', '§ 46', '§ 485', '§ 1502', '§ 46', '§ 1501', '§ 1501', '§ 1501', '§ 1501', '§ 46', '§ 1506', '§ 1508', '§ 1508', '§ 1501', '§ 1508', '§ 1508', '§ 1501', '§ 1502', '§ 1501', '§ 1502', '§ 1508', '§ 4332', '§ 1502', '§ 1500', '§ 1502', '§ 1500', '§ 1502', '§ 1502', '§ 1500', '§ 1506', '§ 1506', '§ 1503', '§ 1506', '§ 1502', '§ 1503', '§ 1506', '§ 1506', '§ 1505', '§ 46', '§ 4', '§ 4', '§ 4']

RAPID/Roadmap/9-FD-j | Open Energy Information
RAPID/Roadmap/9-FD-j
Bureau of Reclamation - NEPA Review (9-FD-j)
The National Environmental Policy Act (NEPA) requires federal agencies, including the Bureau of Reclamation (BOR), to consider the potential environmental impacts of their proposed actions and any reasonable alternatives before undertaking a major federal action, as defined by 40 C.F.R. § 1508.18. For BOR, NEPA compliance is triggered by a discretionary federal action that is subject to BOR control and responsibility (40 C.F.R. § 1508.18). The nature of the action could either be the construction of a project, granting a permit, providing federal funding, or any other action where a federal decision is required.
The Council on Environmental Quality (CEQ) has established general regulations governing all NEPA actions, which can be found at 40 C.F.R. §§ 1500 - 1518. In addition, 40 C.F.R. § 1507.3 requires federal agencies to establish procedures that implement the CEQ regulations. The United States Department of Interior (DOI) NEPA procedures can be found at 43 C.F.R. 46, et seq. DOI’s NEPA procedures apply to its constituent bureaus such as the BOR. While DOI’s NEPA guidance can be found in Department of Interior, Department Manual Chapter 516, BOR’s NEPA guidance can be found in the BOR NEPA Handbook.
If the BOR determines that there are no significant environmental impacts after completing the EA, it will prepare a FONSI. A FONSI is a document prepared by a federal agency that briefly explains why an action will not have a significant effect on the human environment. See 40 C.F.R. § 1508.13.
During the EA process, analysis of environmental impacts may result in a finding that the proposed federal action may cause significant effects to the environment that cannot be mitigated. The BOR official then decides whether NEPA requires the BOR to prepare an EIS. An EIS should describe the purpose and need for the proposed action, and discuss all of the all environmental impacts of the proposed federal action, alternatives to the proposed action, and mitigation measures. See 40 C.F.R. § 1502.12 and 40 C.F.R. § 1502.3.
Bureau of Reclamation - NEPA Review Process
9-FD-j.1 - Identify Proposed Action
NEPA compliance is triggered by discretionary federal actions subject to BOR control and responsibility (40 C.F.R. § 1508.18). The nature of the action could either be the construction of a project, granting a permit, providing federal funding, or any other action where a federal decision is required. For example, the BOR’s Lease of Power Privilege process is subject to environmental review under NEPA. For more information, see:
Bureau of Reclamation – Lease of Power Privilege:
9-FD-j.2 to 9-FD-j.5 – Does a Categorical Exclusion Apply?
A CX may be granted for categories of actions that individually or cumulatively, do not have a significant effect on the environment. Prior to completing the NEPA process, BOR will review the project to determine whether the project fits within the category of actions covered by an existing CX (DM 516, Department Manual 14.5C (3)). BOR’s CXs are listed in 516 DM 14.5. BOR will apply a CX if the scope of the project is consistent with the terms of an applicable CX and there are no extraordinary circumstances. If the BOR applies a CX, the BOR will issue a Decision Memo and not complete the full NEPA process. If extraordinary circumstances are present, an EA or EIS may be required even though the activity would otherwise be covered by a CX (see 40 C.F.R. § 1508.4).
Extraordinary circumstances are factors or circumstances in which a normally excluded action may have a significant environmental effect that then requires further analysis in an EA or EIS (see 43 C.F.R. § 46.215). To determine whether extraordinary circumstances are present as set forth in 43 C.F.R. § 46.215, the BOR will complete a Categorical Exclusion Checklist. The BOR’s checklist will incorporate the list of extraordinary circumstances found at 43 C.F.R. § 46.215. For example, if an approval fits within the category of projects for which a CX is available, the CX will not be applied if the approved action will, “Have significant impacts on such natural resources and unique geographic characteristics as…wild or scenic rivers;…sole or principal drinking water aquifers; prime farmlands; wetlands; floodplains;…and other ecologically significant or critical areas (43 C.F.R. § 46.215(a)). If the answer to all questions on the checklist is “no”, the BOR will apply the CX and no further NEPA documentation is necessary (for detailed discussion, see chapter 6 of the BOR NEPA Handbook). If the answer to any question on the checklist is “uncertain” or “yes”, the BOR will not apply the CX and will complete the NEPA process.
Where the BOR applies a CX, a Decision Memo is prepared for signature and approval by the authorized BOR officer for proposed activities. Decision Memos must identify the decision to be implemented and the reasons for categorically excluding the proposed action. Specifically, the Decision Memo must state the category of the proposed action, the rationale for using the categorical exclusion, and a finding that no extraordinary circumstances exist. Finally, the Decision Memo must indicate a date of implementation, whether the decision is subject to review or appeal, and the applicable regulations. Certain projects under review for a LOPP might qualify for categorical exclusion from the NEPA process under 43 U.S.C. § 485h(c)(3). When determining whether to apply the CX the BOR will consider whether:
The project is a small conduit hydropower project, (i.e., a hydropower plant constructed at a conduit with the capability of producing 5 MW or less of electric capacity); or
would utilize an existing dam or conduit;
points of diversion and discharge of the LOPP powerplant would be in close proximity to the existing infrastructure and would not significantly affect the flow patterns of the water source;
there would be no increase or change in timing of diversions and discharges; and
the primary purpose of the infrastructure would remain, e.g., most commonly irrigation.
(LOPP Processes, Responsibilities, Timelines, and Charges Directive and Standard).
9-FD-j.6 - Conduct On-Site Evaluation
9-FD-j.7 – Form Interdisciplinary Team to Complete NEPA Review
The BOR will begin the formal NEPA process by forming an interdisciplinary team to conduct the NEPA review. The BOR project manager will review the proposal and then select the resource specialists for the interdisciplinary team (ID Team) for preparation of the NEPA document. The ID Team may be directly involved in the analysis and writing of specific sections or may work with a consultant that is preparing the document (40 C.F.R. § 1502.6).
9-FD-j.8– Conduct Scoping Analysis
Scoping begins the first stage of the planning process and closely involves the public with identifying issues, providing resources and other information, and developing planning criteria to guide preparation of the NEPA document. During scoping, the BOR solicits input on the issues and impacts that will be addressed in a NEPA document as well as the degree to which those issues and impacts will be analyzed. Scoping focuses the analysis on significant issues and reasonable alternatives, to eliminate extraneous discussion, and to reduce the length of the EIS. The scoping process is ongoing throughout the early stages of the NEPA process. See 43 C.F.R. § 46.235.
The CEQ Regulations explicitly address the role of scoping in preparation of an EIS and require scoping for preparation of an EIS. However, scoping is optional when preparing an EA. The BOR can choose to use the scoping process when preparing an EA that deals with uncertainty or controversy regarding potential conflicts over the use of resources or the environmental effects of the proposed action. For example, for an EA the BOR may use scoping to identify and eliminate from detailed study the issues that are not significant or that have been covered by prior environmental review. The scoping process provides a transparent way to identify significant environmental issues and to de-emphasize insignificant issues. See 40 C.F.R. § 1501.7.
Scoping must be conducted both internally with appropriate agency staff, and externally with interested and affected public, agencies, tribes, and organizations (40 C.F.R. § 1501.7). Formal public scoping begins following publication of an NOI in the Federal Register. However, informal internal and external scoping may occur before the formal scoping period begins. Internal scoping is simply the use of BOR and cooperating agency staff to help determine what needs to be analyzed in a NEPA document. External scoping involves notification and opportunities for feedback from other agencies, organizations, tribes, local governments, and the public. While formal scoping prior to completing an EA is optional, formal scoping prior to completing an EIS is required. See 40 C.F.R. § 1501.7.
The Council on Environmental Quality (CEQ) regulations at 40 C.F.R. § 1501.7 require the following in an agency’s scoping process:
Discuss the relationship between the timing of the preparation of the EIS and the BOR’s tentative planning and decision-making schedule.
9-FD-j.9 – Is the Proposed Activity Likely to Have a Significant Effect on the Quality of the Human Environment?
During scoping, the BOR determines the issues to be addressed in either the EA or EIS and identifies any significant issues related to the proposed action that will be considered in the analysis. If the BOR determines the proposed activity is likely to have a significant effect on the quality of the human environment it will not complete the EA process but instead will complete the more detailed EIS process.
9-FD-j.10 – Publish Notice of Intent to Prepare Environmental Assessment (EA)
Under 43 C.F.R. § 46.305 the BOR is required, to the extent practicable, to provide for public notification and involvement during EA preparation. Although there must be some form of public involvement, the BOR has discretion as to the amount and type of public involvement. Examples of public involvement include external scoping, public notification before or during preparation of an EA, public meetings, or public review and comment of the completed EA and unsigned FONSI.
9-FD-j.11 – Has the Developer Prepared an Environmental Assessment (EA)?
The developer may prepare an EA or may pay a contractor to prepare an EA (third-party contracting). However, the BOR is ultimately responsible for the scope and content of the EA, and will independently evaluate the information submitted and its accuracy, along with the environmental issues. The CEQ provides guidance for contracting EAs and EISs at 40 C.F.R. §§ 1506.5(b) and (c). The CEQ regulations state that an EA must contain brief discussions of the need for the proposal, the alternatives considered, the environmental impacts of the proposed action and alternatives, and a listing of agencies and persons consulted (40 C.F.R. § 1508.9(b)).
Note that proposals are limited to federal actions (40 C.F.R. § 1508.23). NEPA review is not required for entirely non-federal actions. However, if there are impacts on BOR managed resources, it may be useful to develop and suggest alternatives or mitigation for those non-federal actions.
9-FD-j.12 to 9-FD-j.16 – Is a Draft EA Required?
When the BOR determines that a public review and comment period is appropriate or to meet NEPA requirements under certain limited circumstances per 40 C.F.R. § 1501.4(e)(2), the BOR must prepare a draft EA. Otherwise, a draft EA is not required, and the BOR can go from analyzing to preparing a proposed EA. If the BOR prepares a draft EA, it must offer a minimum 30-day public comment period, a period that cannot be extended. The BOR must resolve these comments before issuing a decision record.
9-FD-j.17 – Environmental Assessment (EA)
An EA is a concise public document that helps the agency to determine whether an EIS or FONSI is required. It should include a brief assessment of the proposed action and an analysis of the evidence relating to significant environmental impacts. It should also include an analysis of the effects of the proposed action and of the alternatives (see 40 C.F.R. § 1508.9). If the BOR determines that there are no significant environmental impacts after completing the EA, it will prepare a FONSI. A FONSI is a document prepared by a federal agency that briefly explains why an action will not have a significant effect on the human environment (see 40 C.F.R. § 1508.13). During the EA process, analysis of environmental impacts may result in a finding that the proposed federal action may cause significant effects to the environment that cannot be mitigated. The BOR official then decides whether NEPA requires the BOR to prepare an EIS.
At the conclusion of the EA process, the BOR issues a final Environmental Assessment. An EA is typically shorter than an EIS, with fewer opportunities for public comment or involvement, and has fewer procedural requirements, generally requiring less time to prepare than an EIS. CEQ suggests that an EA should be between 10 – 15 pages. See CEQ - Forty Most Asked Questions Concerning CEQ's NEPA Regulations.
9-FD-j.18 to 9-FD-j.19 – Does the BOR Identify a Significant Environmental Impact?
If during the EA process, the BOR determines the proposed activity will have significant environmental impacts, then an EIS must be prepared. If the proposed activity is not likely to cause significant environmental impacts, then the BOR will prepare a Finding of No Significant Impact (FONSI).
An EA may demonstrate that a proposed action would have effects that are significant but could be reduced or avoided through mitigation. In these instances a mitigated FONSI may be used rather than an EIS if the BOR is able to reasonably conclude, based on the EA analysis, that the mitigation measures would be effective in reducing effects to non-significance. The FONSI must clearly identify whether the mitigation measures are needed to reduce effects to non-significance. The mitigation measures chosen must be included in the decision documentation and must provide monitoring to ensure the implementation of these measures. See BOR NEPA Handbook, at 6-12 - 6-14.
If a FONSI cannot be signed because there is a significant impact, then an EIS must be prepared. If an EIS is necessary, the BOR will publish a Notice of Intent (NOI) to prepare an EIS in the Federal Register. The information assembled and analyzed for preparation of the EA may be integrated into the EIS and used for scoping for the EIS (40 C.F.R. § 1501.4(e)(2)).
9-FD-j.20 – Publish Notice of Intent to Prepare Environmental Impact Statement (EIS)
If during the EA process, the BOR identifies the proposed activity will have significant environmental impacts, then an EIS must be prepared (40 C.F.R. § 1502.4). The EIS process is initiated with publication of a notice of intent (NOI) and requires formal scoping (40 C.F.R. § 1501.7).
Publishing the Notice of Intent (NOI) in the Federal Register begins the formal scoping process and serves as the official legal notice that the BOR plans to develop an EIS. The NOI must include:
9-FD-j.21 – Hold Scoping Meeting
When preparing an EIS, the BOR will hold a scoping meeting to involve the public in identifying issues, providing resources and other information, and developing planning criteria to guide preparation of the NEPA document. If the BOR previously conducted scoping for development of an EA, material from the previously conducted scoping analysis may be incorporated into the scoping analysis for the EIS.
"Scope" consists of the range of actions, alternatives, and impacts to be considered in an environmental impact statement. The scope of an individual statement may depend on its relationships to other statements (40 C.F.R. § 1502.20, 40 C.F.R. § 1508.28). To determine the scope of environmental impact statements, agencies must consider three types of actions, three types of alternatives, and three types of impacts. They include:
(3) Similar actions, which when viewed with other reasonably foreseeable or proposed agency actions, have similarities that provide a basis for evaluating their environmental consequences together, such as common timing or geography. The BOR may wish to analyze these actions in the same impact statement. The BOR should do so when the best way to assess adequately the combined impacts of similar actions or reasonable alternatives to such actions is to treat them in a single impact statement.
The NEPA directs federal agencies to “study, develop, and describe appropriate alternatives to recommended courses of action in any proposal that involves unresolved conflicts concerning alternative uses of available resources…” ( 42 U.S.C. § 4332(2)(E)).
The range of alternatives explores ways to meet the purpose and need for the action. The purpose and need statement helps define the range of alternatives. The broader the purpose and need statement, the broader the range of alternatives that must be analyzed. Analysis of alternatives is limited to alternatives that permit the BOR to make a reasoned choice (40 C.F.R. § 1502.14). For some proposals there may exist a very large or even an infinite number of possible reasonable alternatives. When there are potentially a very large number of alternatives, the BOR must analyze only a reasonable number to cover the full spectrum of alternatives (CEQ - Forty Most Asked Questions Concerning CEQ's NEPA Regulations - 1b). When working with cooperating agencies, the range of alternatives may need to reflect the decision space and authority of other agencies, if decisions are being made by more than one agency.
9-FD-j.22 to 9-FD-j.23 – Prepare Draft Environmental Impact Statement (DEIS)
After the BOR conducts the scoping analysis it will prepare a Draft Environmental Impact Statement (DEIS). The CEQ regulations require NEPA documents to be “concise, clear, and to the point” (40 C.F.R. § 1500.2(b); 40 C.F.R. § 1502.4). Analyses must “focus on significant environmental issues and alternatives” and be useful to the decision-maker and the public (40 C.F.R. § 1500.1). Discussions of impacts are to be proportionate to their significance (40 C.F.R. § 1502.2(b)). Similarly, the description of the affected environment is to be no longer than is necessary to understand the effects of the alternatives (40 C.F.R. § 1502.15). “Most important, NEPA documents must concentrate on the issues that are truly significant to the action in question, rather than amassing needless detail” (40 C.F.R. § 1500.1).
9-FD-j.24 – Internal Review and Approval of DEIS
Once the DEIS is complete, the BOR reviews it for adequacy and ensures that it complies with both DOI and CEQ NEPA regulations. Timelines for the review can vary widely between field offices, and the required review process heavily influences the schedule, scope, and budget for the EIS.
See BOR NEPA Handbook at 7-13.
9-FD-j.25 to 9-FD-j.26 – File DEIS with EPA
The BOR publishes public notification of the availability of the DEIS, which includes publication of a Notice of Availability (NOA) in the Federal Register for actions with effects of national concern 40 C.F.R. § 1506.6(b).
The BOR also files DEIS with the EPA in accordance with DOI procedures. The EPA then publishes notice of the filing in the Federal Register. The date the EPA notice appears in the Federal Register initiates the public review period. The minimum review period is 45 days starting from when EPA publishes the NOA in the Federal Register.
See BOR NEPA Handbook Section 7.8.
9-FD-j.27 to 9-FD-j.28 – Comment on DEIS
After the BOR completes the process for preparing a DEIS and files the DEIS with the EPA, the review period for the DEIS begins. The minimum review period for a DEIS is 45 days from the date the Notice of Availability is published in the Federal Register containing notice of the DEIS (40 C.F.R. § 1506.10). During this period, the BOR solicits public comment, and is required to consider and respond to every comment (40 C.F.R. § 1503.4). The BOR may choose to hold a public hearing if there is substantial controversy concerning the proposed action, substantial interest in holding the hearing, or an agency with jurisdiction over the action requests a hearing supported by reasons why a hearing will be helpful (40 C.F.R. § 1506.6(c)).
9-FD-j.29 to 9-FD-j.30 – Prepare Final EIS (FEIS)
At the conclusion of the EIS process, the BOR issues a final Environmental Impact Statement (FEIS). CEQ regulations set forth a preferred standard format for EISs found at 40 C.F.R. § 1502.10. FEISs will incorporate the contents of the DEIS, and consider and address comments where the BOR has determined required based on NEPA regulations (40 C.F.R. § 1503.4).
9-FD-j.31 to 9-FD-j.33 – Internal Review and Approval of FEIS
The BOR will then complete another round of internal review and clearance. Once the BOR completes its internal review it will submit the FEIS to the EPA. Notice of completion of the EIS is published by the EPA in a “Notice of Availability of Weekly Receipt of Environmental Impact Statements” in the Federal Register. This begins the 30-day no action period in which the BOR must wait to issue a Record of Decision (ROD) (40 C.F.R. § 1506.10(b)(2)).
See BOR NEPA Handbook Section 7.10 and Chapter 9.
9-FD-j.34 – Record of Decision (ROD)
After the 30-day no action period, the BOR will issue a Record of Decision (ROD) (40 C.F.R. § 1506.10(b)(2)). ROD’s are concise public records of the BOR’s final decisions (40 C.F.R. § 1505.2 and 43 C.F.R. § 46.110). When the BOR issues a ROD it describes the decision and the alternatives considered, the preferred alternative, factors considered, practicable means of avoiding environmental harm and whether the decision adopted the mean, and any monitoring and enforcement program established. In addition, the ROD summarizes public involvement in the NEPA process and how the BOR addressed public comments.
See BOR NEPA Handbook Section 9.2.
9-FD-j.35 – Does the Developer Decide to Appeal the Decision?
The developer may decide to file an appeal if the developer believes the BOR’s final decision is adverse or incorrect (43 C.F.R. § 4.700). A decision by BOR, subject to appeal, is not effective during the period of time in which the person may file an appeal (43 C.F.R. § 4.21(a)(1)).
9-FD-j.36 to 9-FD-j.37 - File Notice of Appeal (NOA) and Petition for Stay
If the developer wishes to appeal the BOR’s final decision, the developer is required to file a Notice of Appeal in the office that made the decision within 30 days of receipt of the decision (43 C.F.R. § 4.701). The burden of proof is on the developer to show that the decision being appealed from is in error. The decision is in full force and effect, and does not provide for an automatic stay. A request for stay must be filed with the NOA. The petition must show sufficient justification based on the following factors:
9-FD-j.38 to 9-FD-j.39 - File Statement of Reasons (SOR)
9-FD-j.40 – Hold Hearing
9-FD-j.41 - Decision
9-FD-j.42 – Implement and Monitor as Provided in ROD
If the BOR’s final decision is not appealed or if the BOR’s decision is upheld on appeal, the BOR and developer should implement and monitor the final decision as provided in the ROD.
BOR NEPA Handbook
(LOPP Processes, Responsibilities, Timelines, and Charges Directive and Standard)
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