- •VOLUME 1 CONTENTS
- •NOTATION
- •ENGLISH/METRIC AND METRIC/ENGLISH EQUIVALENTS
- •EXECUTIVE SUMMARY
- •ES.1 Background
- •ES.2 BLM Proposed Action
- •ES.2.1 BLM Purpose and Need
- •ES.2.2 BLM Scope of Analysis
- •ES.2.3 Applications for Solar Energy Development on BLM Lands
- •ES.2.4 BLM Alternatives
- •ES.2.4.1 Program Elements Common to Both BLM Action Alternatives
- •ES.2.4.3 Solar Energy Zone Program Alternative
- •ES.2.4.4 No Action Alternative
- •ES.2.4.5 Reasonably Foreseeable Solar Energy Development
- •ES.2.4.6 Summary of Impacts of BLM’s Alternatives
- •ES.2.4.7 BLM’s Preferred Alternative
- •ES.3 DOE Proposed Action
- •ES.3.1 DOE Purpose and Need
- •ES.3.2 DOE Scope of Analysis
- •ES.3.3 DOE Alternatives
- •ES.3.3.2 No Action Alternative
- •ES.3.4 Summary of Impacts of DOE’s Alternatives
- •ES.4 Public Involvement, Consultation, and Coordination
- •ES.5 References
- •1 INTRODUCTION
- •1.1 Applicable Federal Orders and Mandates
- •1.1.1 Executive Order 13212
- •1.1.2 Energy Policy Act of 2005
- •1.1.3 Energy Independence and Security Act of 2007
- •1.1.4 DOI Secretarial Order 3285A1
- •1.1.5 Executive Order 13514
- •1.1.6 DOI Secretarial Order 3297
- •1.3 BLM Requirements and Objectives for the PEIS
- •1.3.1 BLM’s Purpose and Need
- •1.3.2 BLM Decisions To Be Made
- •1.3.3 Authorization Process for Solar Energy Development on BLM Lands
- •1.3.3.1 New Applications
- •1.3.3.2 Pending Applications
- •1.3.3.3 Approved Applications
- •1.3.4 BLM Land Use Planning Process
- •1.3.5 BLM Scope of the Analysis
- •1.3.5.1 Program Analysis Versus SEZ-Specific Analysis
- •1.3.6 BLM Planning Criteria
- •1.4 DOE Requirements and Objectives for the PEIS
- •1.4.1 DOE’s Purpose and Need
- •1.4.2 DOE Decisions To Be Made
- •1.4.3 DOE Scope of the Analysis
- •1.5 Cooperating Agencies
- •1.6.1 Renewable Portfolio Standards and Other Regional and State Initiatives
- •1.6.2 Related Initiatives
- •1.6.2.1 Energy Corridor Designation
- •1.6.2.3 California Desert Renewable Energy Conservation Plan
- •1.6.2.4 Arizona Restoration Design Energy Project
- •1.6.2.5 Wind Energy Development PEIS
- •1.6.2.6 Geothermal PEIS
- •1.8 References
- •2.1 Introduction
- •2.2 BLM Alternatives
- •2.2.1 Program Elements Common to Both BLM Action Alternatives
- •2.2.1.1 Right-of-Way Authorization Policies
- •2.2.1.2 Monitoring, Adaptive Management, and Mitigation
- •2.2.1.3 Design Features
- •2.2.1.4 Segregation of Lands with Potential for Solar Development
- •2.2.2.1 Proposed Right-of-Way Exclusion Areas
- •2.2.2.2 Proposed Solar Energy Zones
- •2.2.2.3 Proposed Variance Areas for Utility-Scale Solar Energy Development
- •2.2.2.4 Land Use Plans To Be Amended
- •2.2.3 SEZ Program Alternative
- •2.2.3.1 Proposed Right-of-Way Exclusion Areas
- •2.2.3.2 Proposed Solar Energy Zones
- •2.2.3.3 Solar Energy Zone Policies
- •2.2.3.4 Land Use Plans To Be Amended
- •2.3 DOE Alternatives
- •2.3.1 No Action Alternative
- •2.3.2 Action Alternative—DOE’s Proposed Programmatic Environmental Guidance
- •2.3.2.1 General Mitigation Measures
- •2.3.2.2 Institutional and Public Outreach
- •2.3.2.3 Land Use
- •2.3.2.4 Water Resources and Erosion Control
- •2.3.2.5 Biological Resources
- •2.3.2.6 Air Quality
- •2.3.2.7 Cultural Resources and Native American Interactions
- •2.3.2.8 Visual Resources and Aesthetics
- •2.3.2.9 Socioeconomics
- •2.3.2.10 Environmental Justice
- •2.3.2.11 Safety and Health
- •2.4 Description of Reasonably Foreseeable Development Scenario
- •2.4.1 Comparison of RFDS with Lands Available under the Action Alternatives
- •2.5 Other Alternatives and Issues Considered
- •2.5.1 Distributed Generation
- •2.5.2 Conservation and Demand-Side Management
- •2.5.3 Analysis of Life-Cycle Impacts of Solar Energy Development
- •2.5.4 Analysis of Development on Other Federal, State, or Private Lands
- •2.5.5 Restricting Development to Previously Disturbed Lands
- •2.5.6 Restricting Development to Populated Areas
- •2.5.7 Restricting Development to the Fast-Track Project Applications
- •2.5.8 Analysis of Development on the Maximum Amount of Public Lands Allowable
- •2.5.9 Changes to BLM’s Proposed Solar Energy Zones
- •2.5.10 Other Suggested Alternatives
- •2.5.11 DOE Environmental Requirements
- •2.6 References
- •3.1 Technologies
- •3.2 Development Process Overview for All Technologies
- •3.2.1 Site Characterization
- •3.2.2 Site Preparation and Construction
- •3.2.3 Operations
- •3.2.4 Decommissioning and Reclamation
- •3.2.5 Transmission Facilities
- •3.4 Transportation Considerations
- •3.6 Health and Safety Aspects of Solar Energy Projects
- •3.7 Existing Agency Processes and Guidance
- •3.8 References
- •4 UPDATE TO AFFECTED ENVIRONMENT
- •4.1 Introduction
- •4.2 Lands and Realty
- •4.4 Rangeland Resources
- •4.4.1 Livestock Grazing
- •4.4.2 Wild Horses and Burros
- •4.4.3 Wildland Fire
- •4.5 Recreation
- •4.6 Military and Civilian Aviation
- •4.7 Geologic Setting and Soil Resources
- •4.7.1 Geologic Setting
- •4.7.2 Geologic Hazards
- •4.7.3 Soil Resources
- •4.8 Minerals
- •4.9 Water Resources
- •4.9.1 Surface Water Resources
- •4.9.2 Groundwater Resources
- •4.9.3 Water Rights, Supply, and Use
- •4.10 Ecological Resources
- •4.10.1 Vegetation
- •4.10.2 Wildlife
- •4.10.3 Aquatic Biota
- •4.10.3.1 Pacific Northwest Hydrologic Region
- •4.10.3.2 Lower Colorado, Rio Grande, and Great Basin Hydrologic Regions
- •4.10.3.3 California Hydrologic Region
- •4.10.3.4 Upper Colorado River Hydrologic Region
- •4.10.3.5 Missouri River Basin Hydrologic Region
- •4.10.4 Special Status Species
- •4.11 Air Quality and Climate
- •4.11.3 Update to Section 4.11.2.4 of the Draft Solar PEIS: Visibility Protection
- •4.11.4 Update to Section 4.11.2.5 of the Draft Solar PEIS: General Conformity
- •4.11.5 Addition of New Section 4.11.4: Toxic Dust and Snowmelt
- •4.12 Visual Resources
- •4.13 Acoustic Environment
- •4.14 Paleontological Resources
- •4.15 Cultural Resources
- •4.16 Native American Concerns
- •4.17 Socioeconomics
- •4.18 Environmental Justice
- •4.19 References
- •4.20 Errata to Chapter 4 of the Draft Solar PEIS
- •5.1 Introduction
- •5.2 Lands and Realty
- •5.4 Rangeland Resources
- •5.4.1 Livestock Grazing
- •5.4.2 Wild Horses and Burros
- •5.4.3 Wildland Fire
- •5.5 Recreation
- •5.6 Military and Civilian Aviation
- •5.7 Geologic Setting and Soil Resources
- •5.8 Minerals
- •5.9 Water Resources
- •5.10 Ecological Resources
- •5.10.1 Vegetation
- •5.10.2 Wildlife
- •5.10.3 Aquatic Biota and Habitats
- •5.10.3.1 Common Impacts
- •5.10.3.2 Technology-Specific Impacts
- •5.10.4 Special Status Species
- •5.11 Air Quality and Climate
- •5.11.1 Common Impacts
- •5.11.1.1 Construction: Update to Section 5.11.1.2 of the Draft Solar PEIS
- •5.11.1.2 Operations: Update to Section 5.11.1.3 of the Draft Solar PEIS
- •5.12 Visual Resources
- •5.13 Acoustic Environment
- •5.13.1 Common Impacts
- •5.13.1.1 Construction: Update to Section 5.13.1.2 of the Draft Solar PEIS
- •5.13.1.2 Operations: Update to Section 5.13.1.3 of the Draft Solar PEIS
- •5.14 Paleontological Resources
- •5.15 Cultural Resources
- •5.15.1 Common Impacts
- •5.16 Native American Concerns
- •5.17 Socioeconomics
- •5.18 Environmental Justice
- •5.19 Transportation
- •5.20 Hazardous Materials and Waste
- •5.21 Health and Safety
- •5.22 References
- •5.23 Errata to Chapter 5 of the Draft Solar PEIS
- •6 ANALYSIS OF BLM’S SOLAR ENERGY DEVELOPMENT ALTERNATIVES
- •6.1.2 Minimize Environmental Impacts
- •6.1.3 Minimize Social and Economic Impacts
- •6.1.4 Provide Flexibility to Solar Industry
- •6.1.5 Optimize Existing Transmission Infrastructure and Corridors
- •6.1.6 Standardize and Streamline the Authorization Process
- •6.1.7 Meet Projected Demand for Solar Energy Development
- •6.2 Impacts of the SEZ Program Alternative
- •6.2.2 Minimize Environmental Impacts
- •6.2.3 Minimize Social and Economic Impacts
- •6.2.4 Provide Flexibility to Solar Industry
- •6.2.5 Optimize Existing Transmission Infrastructure and Corridors
- •6.2.6 Standardize and Streamline the Authorization Process
- •6.2.7 Meet Projected Demand for Solar Energy Development
- •6.3 Impacts of the No Action Alternative
- •6.3.2 Minimize Environmental Impacts
- •6.3.3 Minimize Social and Economic Impacts
- •6.3.4 Provide Flexibility to Solar Industry
- •6.3.5 Optimize Existing Transmission Infrastructure and Corridors
- •6.3.6 Standardize and Streamline the Authorization Process
- •6.3.7 Meet Projected Demand for Solar Energy Development
- •6.5 Cumulative Impacts
- •6.5.1 Overview of Activities in the Six-State Study Area
- •6.5.1.1 Energy Production and Distribution
- •6.5.1.2 Other Activities and Trends
- •6.5.2 Cumulative Impact Assessment for Solar Energy Development
- •6.5.2.1 Lands and Realty
- •6.5.2.2 Specially Designated Areas and Lands with Wilderness Characteristics
- •6.5.2.3 Rangeland Resources
- •6.5.2.4 Recreation
- •6.5.2.5 Military and Civilian Aviation
- •6.5.2.6 Geologic Setting and Soil Resources
- •6.5.2.7 Mineral Resources
- •6.5.2.8 Water Resources
- •6.5.2.9 Ecological Resources
- •6.5.2.10 Air Quality and Climate
- •6.5.2.11 Visual Resources
- •6.5.2.12 Acoustic Environment
- •6.5.2.13 Paleontological Resources
- •6.5.2.14 Cultural Resources
- •6.5.2.15 Native American Concerns
- •6.5.2.16 Socioeconomics
- •6.5.2.17 Environmental Justice
- •6.5.2.18 Transportation
- •6.6 Other NEPA Considerations
- •6.6.1 Unavoidable Adverse Impacts
- •6.6.2 Short-Term Use of the Environment and Long-Term Productivity
- •6.6.3 Irreversible and Irretrievable Commitment of Resources
- •6.6.4 Mitigation of Adverse Effects
- •6.7 References
- •7 ANALYSIS OF DOE’S ALTERNATIVES
- •7.1 Impacts of DOE’s Proposed Action
- •7.2 Impacts of the No Action Alternative
- •7.3 Cumulative Impacts
- •7.4 Other NEPA Considerations
- •7.4.1 Unavoidable Adverse Impacts
- •7.4.2 Short-Term Use of the Environment and Long-Term Productivity
- •7.4.3 Irreversible and Irretrievable Commitment of Resources
- •7.4.4 Mitigation of Adverse Effects
- •14.1 Public Scoping and Public Outreach
- •14.2 Government-to-Government Consultation
- •14.3 Coordination of BLM State and Field Offices
- •14.4 Agency Cooperation, Consultation, and Coordination
- •14.5 References
- •15 LIST OF PREPARERS
- •16 GLOSSARY
- •FIGURE ES.2-1 Areas Proposed for Exclusion Since Publication of the Supplement to the Draft Solar PEIS Based on Continued Consultation with Cooperating Agencies and Tribes
- •FIGURE ES.2-4 BLM-Administered Lands in Colorado Available for Application for Solar Energy ROW Authorizations under the BLM Alternatives Considered in This PEIS
- •FIGURE 1.2-2 Solar Direct Normal Insolation Levels in the Southwestern United States
- •FIGURE 2.2-3 BLM-Administered Lands in Colorado Available for Application for Solar Energy ROW Authorizations under the BLM Alternatives Considered in This PEIS
- •FIGURE 2.2-7 Areas Proposed for Exclusion Since Publication of the Supplement to the Draft Solar PEIS Based on Continued Consultation with Cooperating Agencies and Tribes
- •TABLE ES.2-3 Proposed SEZs and Approximate Acreage by State
- •TABLE ES.2-5 Summary-Level Assessment of Potential Environmental Impacts of Utility-Scale Solar Energy Development by Alternative
- •TABLE ES.2-6 Comparison of BLM’s Alternatives with Respect to Objectives for the Agency’s Action
- •TABLE 2.2-3 Proposed SEZs and Approximate Acreage by State
- •TABLE 4.15-3 ACECs Designated for Protection of Cultural Resource Values That Are near BLM-Administered Lands Available for Application through the Variance Process
- •TABLE 6.1-2 Summary-Level Assessment of Potential Environmental Impacts of Utility-Scale Solar Energy Development by Alternative
- •TABLE 6.4-1 Comparison of BLM’s Alternatives with Respect to Objectives for the Agencies’ Action
- •TABLE 6.5-10 Recreational Visits for the BLM and NPS in FY 2000 and FY 2010 and for USFS in FY 2000 and FY 2010
1• The BLM will continue to manage other resources in the affected planning
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areas under the pre-existing terms, conditions, and decisions in the applicable |
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RMPs for those other resources. |
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• The BLM will recognize valid existing rights under the RMPs, as amended. |
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7• The BLM will coordinate with federal, state, and local agencies, and
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tribal governments in the PEIS and plan amendment process to strive for |
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consistency with existing plans and policies, to the extent practicable. |
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• The BLM will coordinate with tribal governments and provide strategies for |
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the protection of recognized traditional uses in the PEIS and plan amendment |
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process. |
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• The BLM will take into account appropriate protection and management of |
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cultural and historic resources in the PEIS and plan amendment process and |
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will engage in all required consultation. |
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• The BLM will recognize in the PEIS and plan amendments the special |
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importance of public lands to people who live in communities surrounded by |
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public lands and the importance of public lands to the nation as a whole. |
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• The BLM will make every effort to encourage public participation throughout |
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the PEIS process. |
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• The BLM has the authority to develop protective management prescriptions |
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for lands with wilderness characteristics within RMPs. As part of the public |
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involvement process for land use planning, the BLM will consider public |
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input regarding lands to be managed to maintain wilderness characteristics. |
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• Environmental protection and energy production are both desirable and |
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necessary objectives of sound land management practices and are not to be |
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considered mutually exclusive priorities. |
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• The BLM will consider and analyze relevant climate change impacts as part of |
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the PEIS process, including the potential for climate change benefits from |
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solar energy development. |
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1.4 DOE REQUIREMENTS AND OBJECTIVES FOR THE PEIS |
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42Different offices within DOE address different aspects and/or approaches to the mission
43of solar power development. For example, the DOE SunShot Initiative is a collaborative national
44initiative (including the Office of Energy Efficiency and Renewable Energy [EERE], Advanced
45Research Projects Agency – Energy [ARPA-E], and the Office of Science) to make solar energy
46cost competitive with other forms of energy by the end of the decade. One aspect of EERE’s
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1 mission in support of SunShot is to provide technical assistance and funding for solar technology 2 research and development (R&D). EERE’s Solar Energy Technologies Program (Solar Program)
3is working to improve the efficiency and reduce the cost of solar technology through research,
4development, and demonstration (RD&D) (in partnership with industry, universities, and
5 national laboratories). The Solar Program also facilitates the deployment of solar technology
6through resource assessment; development of codes and standards; market and policy analysis;
7and by providing technical information to national, state, and local entities. DOE is also
8 evaluating its sites around the country for suitability for various renewable energy technologies, 9 including solar. DOE’s National Nuclear Security Administration (NNSA) is evaluating a
10generic commercial solar power installation in the Nevada National Security Site Site-Wide
11Environmental Impact Statement (NNSS SWEIS; DOE/EIS-0426), which is scheduled for
12completion in 2012. In addition, DOE’s Loan Guarantee Program is available to provide
13financial support for the development of qualifying renewable energy projects, including solar
14energy projects, implemented at the utility scale.
15
16DOE’s Western Area Power Administration (Western) markets and transmits wholesale
17electrical power through an integrated 17,000-circuit mile, high-voltage transmission system
18across 15 western states, including parts of the six-state study area for this PEIS. With respect to
19new utility-scale solar energy facilities, any interconnection between such a facility and the
20Western transmission system would need to comply with Western’s interconnection policies and
21environmental requirements and would require NEPA review in accordance with DOE’s NEPA
22regulations.
23
24While solar technologies generally are considered to be clean and sustainable, they can
25result in adverse direct and indirect impacts on the environment, especially utility-scale facilities.
26DOE is interested in exploring new ways to generate and store energy captured from the sun,
27while minimizing the impacts of solar development and reducing the cost of solar energy
28development. DOE is committed to supporting the development of solar and renewable energy
29projects in an environmentally responsible manner.
30
31
32 1.4.1 DOE’s Purpose and Need
33
34As discussed in Section 1.1, DOE is required to take actions to meet mandates under
35E.O.s 13212 and 13514, as well as Section 603 of the EISA. DOE’s purpose and need is to
36satisfy both E.O.s and comply with congressional mandates to promote, expedite, and advance
37the production and transmission of environmentally sound energy resources, including renewable
38energy resources and, in particular, cost-competitive solar energy systems at the utility scale.
39
40Western’s purpose and need for participating in this PEIS is to identify potential
41transmission impacts and recommend mitigation measures for transmission lines associated with
42solar energy projects. Western anticipates using the transmission environmental impact and
43mitigation measures analysis in this PEIS to streamline its own NEPA documents once specific
44projects are identified and interconnection requests are filed with Western. With the PEIS
45providing the basis for this analysis, project-specific NEPA documentation for interconnections
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1 should be more concise and take less time to prepare, resulting in efficiencies for both Western 2 and the project proponent.
3
4Chapter 2 provides a detailed discussion of DOE’s proposed action and descriptions of
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alternatives. |
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1.4.2 DOE Decisions To Be Made |
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10DOE proposes to further integrate environmental considerations into its analysis and
11selection of proposed solar projects. DOE has built on BLM’s analysis of potential impacts of
12utility-scale solar development on the environment for all phases of development (i.e., during site
13characterization, construction, operation, and decommissioning), and on the identified potential
14mitigation measures, by developing proposed programmatic environmental guidance that could
15be applied to DOE-supported solar projects.
16
17DOE’s investment and deployment strategy would incorporate the decision-making
18framework of the programmatic guidance for early consideration of sound environmental
19practices and potential mitigation measures for solar energy development. The programmatic
20guidance, based on the analyses of the PEIS, would give DOE the tools with which to make
21more informed, environmentally sound decisions at the outset, would help to streamline future
22environmental analysis and documentation for DOE-supported solar projects, and would support
23DOE’s efforts to (1) evaluate how to make technology and resource investments to minimize the
24environmental impacts of solar technologies, and (2) establish environmental mitigation
25recommendations for financial assistance recipients to consider in project plans when applying
26for DOE funding.
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28On the basis of the analysis in this PEIS, DOE could adopt the programmatic
29environmental guidance to be used in its analysis and selection of proposed solar projects. In
30addition, DOE’s proposed programmatic guidance could be used for all projects receiving
31support from DOE, as appropriate, so that a consistent set of mitigation measures would be
32applied to these projects.
33
34At this time, Western does not anticipate making any specific decisions at the
35programmatic level on the basis of the analysis in this PEIS. It anticipates using the analyses of
36transmission development to more expeditiously prepare project-specific NEPA documents and
37expedite decisions regarding future interconnection requests related to solar energy development
38and other energy development in the six-state study area.
39
40
41 1.4.3 DOE Scope of the Analysis
42
43The geographic scope of applicability for DOE’s proposed guidance includes both
44BLM-administered lands and other lands. DOE may support solar projects within SEZs
45identified by the BLM; on other BLM-administered lands; or on other federal, state, tribal,
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