Generator Verification Reliability Standards, 58492-58500 [2013-23169]
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Federal Register / Vol. 78, No. 185 / Tuesday, September 24, 2013 / Proposed Rules
A. Background
DEPARTMENT OF ENERGY
On September 4, 2012, the
Commission issued an NPR to address
the risk of injury posed by magnet sets.
77 FR 53781. The NPR defined ‘‘magnet
set’’ as ‘‘any aggregation of separable,
permanent, magnetic objects that is a
consumer product intended or marketed
by the manufacturer primarily as a
manipulative or construction desk toy
for general entertainment, such as
puzzle working, sculpture building,
mental stimulation, or stress relief.’’ As
explained in the NPR, magnet sets can
cause serious, life-threatening injuries.
The NPR and staff’s briefing package are
available on the Commission’s Web site
at: https://www.cpsc.gov/PageFiles/
128934/magnetstd.pdf. Under the
proposed rule, if a magnet that is part
of a magnet set fits within the CPSC’s
small parts cylinder, the magnet would
be required to have a flux index of 50
or less, or the magnet set would violate
the standard. The flux index would be
determined by the method described in
ASTM F963–11, Standard Consumer
Safety Specification for Toy Safety.
These requirements would be issued
under the Consumer Product Safety Act
(CPSA).
Federal Energy Regulatory
Commission
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B. The Public Meeting
The CPSA requires that the
Commission provide an opportunity for
the ‘‘oral presentation of data, views, or
arguments,’’ in addition to written
comments, when the Commission
develops a consumer product safety
standard. 15 U.S.C. 2058(d)(2). Thus,
the Commission is providing this forum
for oral presentations concerning the
proposed magnet set standard. See the
information under the headings DATES
and ADDRESSES at the beginning of this
notice for information on making
requests to give oral presentations at the
meeting.
Participants should limit their
presentations to approximately 10
minutes, exclusive of any periods of
questioning by the Commissioners or
CPSC staff. To prevent duplicative
presentations, groups will be directed to
designate a spokesperson. The
Commission reserves the right to limit
the time further for any presentation
and impose restrictions to avoid
excessive duplication of presentations.
Dated: September 19, 2013.
Todd A. Stevenson,
Secretary, U.S. Consumer Product Safety
Commission.
[FR Doc. 2013–23138 Filed 9–23–13; 8:45 am]
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[Docket No. RM13–16–000]
Generator Verification Reliability
Standards
Federal Energy Regulatory
Commission, DOE.
ACTION: Notice of proposed rulemaking.
AGENCY:
Pursuant to section 215 of the
Federal Power Act, the Federal Energy
Regulatory Commission (Commission)
proposes to approve the following
Reliability Standards that were
submitted to the Commission for
approval by the North American Electric
Reliability Corporation, the
Commission-certified Electric
Reliability Organization: MOD–025–2
(Verification and Data Reporting of
Generator Real and Reactive Power
Capability and Synchronous Condenser
Reactive Power Capability), MOD–026–
1 (Verification of Models and Data for
Generator Excitation Control System or
Plant Volt/Var Control Functions),
MOD–027–1 (Verification of Models and
Data for Turbine/Governor and Load
Control or Active Power/Frequency
Control Functions), PRC–019–1
(Coordination of Generating Unit or
Plant Capabilities, Voltage Regulating
Controls, and Protection), and PRC–
024–1 (Generator Frequency and
Voltage Protective Relay Settings). The
proposed generator verification
Reliability Standards help ensure that
verified data is available for power
system planning and operational studies
by requiring the verification of generator
equipment needed to support BulkPower System reliability and enhance
coordination of important protection
system settings.
The Commission proposes to approve,
with modifications, the associated
implementation plans, violation risk
factors and violation severity levels. The
Commission also proposes to approve
the retirement of existing Reliability
Standards MOD–024–1 (Verification of
Generator Gross and Net Real Power
Capability) and MOD–025–1
(Verification of Generator Gross and Net
Reactive Power Capability) prior to the
effective date of MOD–025–2.
DATES: Comments are due November 25,
2013.
ADDRESSES: You may submit comments,
identified by docket number by any of
the following methods:
• Agency Web site: https://ferc.gov.
Documents created electronically using
SUMMARY:
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word processing software should be
filed in native applications or print-toPDF format and not in a scanned format.
• Mail/Hand Delivery: Commenters
unable to file comments electronically
must mail or hand deliver their
comments to: Federal Energy Regulatory
Commission, Secretary of the
Commission, 888 First Street NE.,
Washington, DC 20426.
FOR FURTHER INFORMATION CONTACT:
Mark Bennett (Legal Information), Office
of General Counsel, Federal Energy
Regulatory Commission, 888 First Street
NE., Washington, DC 20426, (202) 502–
8524, mark.bennett@ferc.gov.
Syed Ahmad (Technical Information),
Office of Electric Reliability, Federal
Energy Regulatory Commission, 888
First Street NE., Washington, DC 20426,
(202) 502–8718, syed.ahmad@ferc.gov.
SUPPLEMENTARY INFORMATION:
Notice of Proposed Rulemaking
(Issued September 19, 2013)
1. Under section 215 of the Federal
Power Act (FPA) 1 the Commission
proposes to approve five Reliability
Standards that were submitted to the
Commission for approval by the North
American Electric Reliability
Corporation (NERC), the Commissioncertified Electric Reliability
Organization (ERO): MOD–025–2
(Verification and Data Reporting of
Generator Real and Reactive Power
Capability and Synchronous Condenser
Reactive Power Capability),
MOD–026–1 (Verification of Models and
Data for Generator Excitation Control
System or Plant Volt/Var Control
Functions), MOD–027–1 (Verification of
Models and Data for Turbine/Governor
and Load Control or Active Power/
Frequency Control Functions), PRC–
019–1 (Coordination of Generating Unit
or Plant Capabilities, Voltage Regulating
Controls, and Protection), and PRC–
024–1 (Generator Frequency and
Voltage Protective Relay Settings). The
Commission proposes to approve, with
modifications, the associated
implementation plans, violation risk
factors and violation severity levels. The
Commission also proposes to approve
the retirement of existing Reliability
Standards MOD–024–1 and
MOD–025–1 immediately prior to the
effective date of MOD–025–2.
2. The purpose of the proposed
Reliability Standards is to ensure that
generators remain in operation during
specified voltage and frequency
excursions; properly coordinate
protective relays and generator voltage
regulator controls; and ensure that
1 16
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generator models accurately reflect the
generator’s capabilities and equipment
performance. Proposed Reliability
Standards MOD–026–1, MOD–027–1,
PRC–019–1 and PRC–024–1 are new
whereas proposed Reliability Standard
MOD–025–2 consolidates two existing
standards, MOD–024–1 (Verification of
Generator Gross and Net Real Power
Capability) and MOD–025–1
(Verification of Generator Gross and Net
Reactive Power Capability) into one new
Reliability Standard. Portions of
proposed Reliability Standards MOD–
025–2 and PRC–024–1 respond to
Commission directives issued in Order
No. 693.2
3. Collectively, the proposed
Reliability Standards improve the
accuracy of model verifications needed
to support reliability and enhance the
coordination of generator protection
systems and voltage regulating system
controls. Such improvements should
help reduce the risk of generator trips
and provide more accurate models for
transmission planners and planning
coordinators to develop system models
and simulations.
4. In contrast to the greater than 20
MVA applicability threshold for the
three other proposed Reliability
Standards in NERC’s petition, proposed
standards MOD–026–1 and MOD–027–1
would exclude units rated below 100
MVA (Eastern and Quebec
Interconnections), 75 MVA (Western
Interconnection) and 50 MVA (ERCOT
Interconnection). This difference in
applicability thresholds could exclude
approximately 20 percent of registered
generator owners/operators from
compliance. The Commission seeks
comment on whether the higher
applicability thresholds limit the overall
effectiveness of the proposed Reliability
Standards, especially in areas with a
high concentration of generators falling
below the thresholds.
5. Further, proposed Reliability
Standard MOD–026–1 contains a
provision allowing transmission
planners to compel certain generator
owners to comply with the proposed
standard’s Requirements if the generator
owners are deemed to have ‘‘technically
justified’’ units, even if the generators
fall below the stated applicability
threshold. The Commission seeks
comment on this proposed process, and
also seeks comment regarding whether
this provision should be included in
proposed Reliability Standard MOD–
027–1.
2 See
Mandatory Reliability Standards for the
Bulk-Power System, Order No. 693, FERC Stats. &
Regs. ¶ 31,242, order on reh’g, Order No. 693–A,
120 FERC ¶ 61,053 (2007).
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I. Background
Section 215 of the FPA and Order No.
693 Directives
6. Section 215 of the FPA requires a
Commission-certified ERO to develop
mandatory and enforceable Reliability
Standards, subject to Commission
review and approval. Specifically, the
Commission may approve, by rule or
order, a proposed Reliability Standard
or modification to a Reliability Standard
if it determines that the Reliability
Standard is just, reasonable, not unduly
discriminatory or preferential, and in
the public interest.3 Once approved, the
Reliability Standards may be enforced
by the ERO, subject to Commission
oversight, or by the Commission
independently.4
7. Pursuant to section 215 of the FPA,
the Commission established a process to
select and certify an ERO,5 and
subsequently certified NERC.6 On
March 16, 2007, the Commission issued
Order No. 693, approving 83 of the 107
Reliability Standards filed by NERC.
Because MOD–024–1 and MOD–025–1,
which NERC had included in its filing,
involved regional procedures that had
not been submitted, the Commission
postponed either approving or
remanding these standards until NERC
submitted additional information.
However, the Commission issued
directives in Order No. 693 with respect
to MOD–024–1 and MOD–025–1 that
NERC states are addressed in proposed
Reliability Standard MOD–025–2.
8. Reliability Standards MOD–024–1
and MOD–025–1 were ‘‘fill-in-theblank’’ Reliability Standards that
required regional reliability
organizations to develop procedures to
verify generator real and reactive power
capability, respectively. Regarding
MOD–024–1, the Commission directed
NERC to clearly define the test
conditions and methodologies
contained in the Reliability Standard,
and also to clarify the time period
within which regional reliability
organizations must provide generator
real power capability verification.7 For
MOD–025–1, the Commission directed
NERC to clarify that MVAR capability
3 16
U.S.C. 824o(d)(2).
824o(e)(3).
5 Rules Concerning Certification of the Electric
Reliability Organization; and Procedures for the
Establishment, Approval, and Enforcement of
Electric Reliability Standards, Order No. 672, FERC
Stats. & Regs. ¶ 31,204, order on reh’g, Order No.
672–A, FERC Stats. & Regs. ¶ 31,212 (2006).
6 North American Electric Reliability Corp., 116
FERC ¶ 61,062, order on reh’g and compliance, 117
FERC ¶ 61,126 (2006), aff’d sub nom. Alcoa, Inc.
v. FERC, 564 F.3d 1342 (D.C. Cir. 2009).
7 Order No. 693, FERC Stats. & Regs. ¶ 31,242 at
PP 1310–1311.
4 Id.
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verifications should be made at multiple
points over a generator unit’s operating
range, and also directed NERC to clarify
the time period within which reactive
power capability verifications are to be
provided.8
9. Two directives contained in Order
No. 693 pertain to proposed Reliability
Standard PRC–024–1. When discussing
NERC’s proposed TPL Reliability
Standards, the Commission stated that
NERC should use the Nuclear
Regulatory Commission’s (NRC) voltage
ride through requirements when
implementing Reliability Standards to
‘‘assure that there is consistency
between the Reliability Standards and
the NRC requirement that the system is
accurately modeled.’’ 9 The Commission
further directed NERC to explicitly
require generators to be ‘‘capable of
riding through the same set of Category
B and C contingencies, as required by
wind generators in Order No. 661, or
that those generators that cannot ride
through be simulated as tripping.’’ 10
II. NERC Petition and Proposed
Reliability Standards
A. NERC Petition
10. On May 30, 2013, NERC filed a
petition seeking approval of proposed
Reliability Standards MOD–025–2,
MOD–026–1, MOD–027–1, PRC–019–1
and PRC–024–1. Four of the five
Reliability Standards are new, while
existing Reliability Standards MOD–
024–1 and MOD–025–1 were merged
into proposed Reliability Standard
MOD–025–2. NERC also seeks approval
of the associated implementation plans,
violation risk factors and violation
severity levels, and retirement of current
Reliability Standards MOD–024–1 and
MOD–025–1 at midnight of the day
immediately prior to the effective date
of MOD–025–2. NERC proposes to
phase in effective dates in stages over
periods ranging from five years (for
MOD–025–2, PRC–019–1 and PRC–024–
1) to ten years (for MOD–026–1 and
MOD–027–1).11 NERC states that ‘‘these
five proposed Reliability Standards
address generator verifications needed
to support Bulk-Power System
reliability and will ensure that accurate
data is verified and made available for
planning simulations.’’ 12
11. NERC explains that Bulk-Power
System reliability benefits from ‘‘good
quality simulation models of power
system equipment,’’ and that ‘‘model
validation ensures the proper
8 Id.
PP 1321–1323.
P 1787.
10 Id.
11 NERC Petition, Exhibit B.
12 NERC Petition at 2.
9 Id.
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performance of the control systems and
validates the computer models used for
stability analysis.’’ 13 NERC further
states that the proposed Reliability
Standards will enhance reliability
because the tests performed to obtain
model data may reveal latent defects
that could cause ‘‘inappropriate unit
response during system
disturbances.’’ 14 NERC also states that
simulating the response of synchronous
machines and related control systems in
sufficient detail is essential for effective
power system planning and operational
studies.15 For accurate simulations
reflecting actual equipment performance
covering a range of disturbances, NERC
states that models must not only contain
adequate information, they must also
correspond to actual field values.16
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B. Proposed Reliability Standards
1. Reliability Standard MOD–025–2
12. Proposed Reliability Standard
MOD–025–2 merges two existing
Reliability Standards, MOD–024–1 and
MOD–25–1, and has the stated purpose
of ensuring the accuracy of generator
information related to gross and net real
and reactive power capability and
synchronous condenser reactive power
capability that is available for planning
models and bulk electric system
reliability assessments.17 The proposed
Reliability Standard applies to generator
owners and transmission owners that
own synchronous condensers, and has
three requirements and two
Attachments. Attachment 1,
incorporated into Requirements R1.1,
R2.1 and R3.1, specifies the periodicity
for performing real and reactive power
capability verification and the
verification specifications for applicable
facilities. Attachment 2, which
generator owners and transmission
owners will use to report to their
transmission planners the information
described in Attachment 1, is
incorporated into Requirements R1.2,
R2.2 and R3.2.
13. NERC states that proposed
Reliability Standard MOD–025–2
addresses the directives the Commission
issued in Order No. 693. Specifically,
NERC states:
(1) Requirement R1, Part 1.2 specifies
that a generator owner must submit
Attachment 2 or another form
containing the same information to its
transmission planner within 90 calendar
days of either the date the data is
13 Id.
14 Id.
15 Id.
at 2–3.
at 3.
Standard MOD–025–2, Section A.3
(Purpose).
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2. Reliability Standard MOD–026–1
14. Proposed Reliability Standard
MOD–026–1, which is applicable to
generator owners and transmission
planners, is a new Reliability Standard
that has six requirements and an
Attachment describing the periodicity
for excitation control system or plan
volt/var function model verification.
NERC explains that the purpose of
proposed Reliability Standard MOD–
026–1 is to ensure that detailed
modeling of generator excitation
systems, essential for valid simulations
in power system stability studies, will
be conducted, and that those models
accurately represent generator excitation
control system or plant volt/var control
function behavior for bulk electric
system reliability assessments.19
Requirement R1 requires transmission
planners to provide generator owners
with specified information within 90
days of a written request, including
instructions on how to obtain models,
block diagrams and/or data sheets and
model data for any of the generator
owner’s existing applicable unit specific
excitation control system or plant volt/
var control function contained in the
transmission planner’s dynamic
database from the current (in-use)
models. NERC explains that
Requirement R1 ensures that the
transmission planner provides
necessary information to the generator
owners so that they can provide a
useable model in an acceptable format.
This further ensures that generator
owners can comply with Requirement
R2 by providing relevant information to
transmission planners.20
15. Requirement R2 requires each
generator owner to provide its
transmission planner with a verified
generator excitation control system or
plant volt/var control function model
that includes the data and
documentation specified in
Requirement R2, Part 2.1. The
periodicity for this requirement is set
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Petition at 10–12.
at 14–16.
20 Id. at 15.
forth in Attachment 1. The purpose of
Requirement R2 is to verify that the
generator excitation control system or
plant volt/var control function model
and the model parameters used in
dynamic simulations performed by the
transmission planner accurately
represent the generator excitation
control system or plant volt/var control
function behavior when assessing bulk
electric system reliability.21
Requirement R3 requires generator
owners to provide written responses to
transmission planner requests within 90
days regarding unusable models,
technical concerns and transmission
planner determinations that simulated
excitation control system or plant volt/
var control function model responses do
not match a recorded response to a
transmission system event. NERC
explains that Requirement R3 of
proposed Reliability Standard MOD–
026–1 ‘‘provides response requirements
for a Generator Owner when it receives
certain requests from the Transmission
Planner. This communication ensures
that Generator Owners have an
obligation to respond in a timely fashion
when there are demonstrated problems
with a model that was provided by the
Generator Owner in accordance with
Requirement R2.’’ 22 Under Requirement
R4, generator owners are required to
determine whether changes to
applicable units affect models provided
pursuant to Requirement R2, and to
provide the transmission planner with
revised model data or plans to perform
model verification.
16. Requirement R5 requires a
generator owner to respond within 90
days to a ‘‘technically justified unit
request’’ from its transmission planner
to perform a model review of a unit or
plant, including details for model
verification or corrected model data. A
footnote to Requirement R5 states that
‘‘Technical justification is achieved by
the Transmission Planner demonstrating
that the simulated unit or plant
response does not match the measured
unit or plant response.’’ Also,
Applicability section 4.2.4 in MOD–
026–1 states that facilities to which the
standard applies include ‘‘For all
Interconnections: A technically justified
unit that meets NERC registry criteria
but is not otherwise included in the
above Applicability sections 4.2.1, 4.2.2,
or 4.2.3 and is requested by the
Transmission Planner.’’
17. NERC explains that Requirement
R5 allows transmission planners to
request that generator owners who
otherwise are not covered by the
18 NERC
16 Id.
17 Reliability
recorded for a staged test or the date the
data is selected for verification using
historical operational data; (2)
Requirement R1, Part 1.1 requires a
generator owner to verify the real power
capability of its generating units as set
forth in Attachment 1, including the
consideration of ambient conditions
during the verification period; and (3)
Attachment 1, Sections 2.1 through 2.4,
requires reactive power capability
verification at multiple points across a
unit’s operating range.18
19 Id.
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22 Id.
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Applicability section (i.e., whose MVA
ratings are lower than the applicability
thresholds specified in Section 4 of
proposed Reliability Standard MOD–
026–1 but meet or exceed the Registry
Criteria) to provide model verifications
or to correct model data.23 Requirement
R6 requires transmission planners to
provide written responses to generator
owners within 90 days of receiving a
verified excitation control system or
plant volt/var control function model
information whether the model is usable
or not in accordance with Requirement
R2. If it determines the model to be
unusable, the transmission planner
must explain the technical basis for that
decision.
3. Reliability Standard MOD–027–1
18. The stated purpose of proposed
Reliability Standard MOD–027–1,
which is new and contains five
Requirements and an Attachment, is to
verify that the turbine/governor and
load control or active power/frequency
control model and the model
parameters, used in dynamic
simulations that assess bulk electric
system reliability, accurately represent
generator unit real power response to
system frequency variations.24
Requirement R1 requires transmission
planners to provide generator owners
with guidance that will enable generator
owners to provide the information
required in Requirements R2 and R4
within 90 days of a written request.
Requirement R2 requires generator
owners to provide transmission
planners with a verified turbine/
governor and load control or active
power/frequency control model for each
applicable unit, including
documentation and data in accordance
with the periodicity specified in MOD–
027–1 Attachment 1. Attachment 1
(Turbine/Governor and Load Control or
Active Power/Frequency Control Model
Periodicity) also contains a table listing
verification conditions and related
actions required of generator owners.25
19. Requirement R3 establishes
communication requirements to ensure
that generator owners respond to
transmission planner determinations
that a generator owner’s model is not
‘‘usable,’’ or where there is a difference
between the model and three or more
actual transmission system events.26
Requirement R4 requires generator
owners to provide transmission
planners with updates when changes
23 Id.
at 18.
24 Reliability Standard MOD–27–1, Section A.3
(Purpose).
25 NERC Petition at 20.
26 Id. at 21.
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occur to the turbine/governor and load
control or active power/frequency
control system that alter equipment
response characteristics.27 Requirement
R5 requires transmission planners to
inform generator owners within 90 days
of receiving model information (in
accordance with Requirement R2)
whether the model is usable or not. If a
model is unusable, the transmission
planner shall provide the generator
owner with an explanation of the
technical basis for that decision. Also,
Requirement R3 requires generator
owners to provide a written response
within 90 days.28
4. Proposed Reliability Standard PRC–
019–1
20. Proposed Reliability Standard
PRC–019–1 is new and contains two
requirements intended to ensure that
both generator owners and transmission
owners verify coordination of generating
unit facility or synchronous condenser
voltage regulating controls, limit
functions, equipment capabilities and
protection system settings.29
Requirement R1 requires generator
owners and transmission owners to
coordinate the voltage regulating system
controls with the equipment capabilities
and settings of the applicable protection
system devices and functions.30
Requirement R2 requires generator
owners and transmission owners to
perform the coordination described in
Requirement R1 to address equipment
or setting changes.31 The coordination
required in proposed Reliability
Standard PRC–019–1 must be performed
at least every five years.
5. Proposed Reliability Standard PRC–
024–1
21. Proposed Reliability Standard
PRC–024–1 is new and consists of four
Requirements and two Attachments.
The stated purpose of PRC–024–1 is to
ensure that generator owners set their
generator protective relays such that
generating units remain connected
during defined frequency and voltage
excursions.32 Requirement R1 requires
generator owners having generator
frequency protective relaying activated
to trip their generating units to set their
protective relaying to prevent their
generating units from tripping within
the ‘‘no trip zone’’ of PRC–024–1
Attachment 1 (unless one of three
27 Id.
at 22.
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specified exceptions applies). NERC
explains that Attachment 1 contains
tables with curve data points for each
Interconnection indicating the amount
of time a generator needs to remain
connected at specific defined frequency
excursions.33 Requirement R2 addresses
voltage excursions, requiring, subject to
four exceptions, generator owners to
ensure that their voltage protective
relaying settings prevent their
generating units from tripping within
the ‘‘no trip zone’’ described in PRC–
024–1, Attachment 2.
22. NERC states that the standard
drafting team believes the voltage
profile contained in Attachment 2
includes excursions that would be
expected under Category B and C
contingencies. Therefore, NERC asserts
that by ensuring that generator units
remain connected to the grid during
voltage excursions, Requirement R2 and
Attachment 2 satisfy the Commission
directive issued in Order No. 693 to
‘‘explicitly require either that all
generators are capable of riding through
the same set of Category B and C
contingencies, as required by wind
generators in Order No. 661, or that
those generators that cannot ride
through be simulated as tripping.’’ 34
23. Requirement R3 of proposed
Reliability Standard PRC–024–1
requires generator owners to document
regulatory or equipment limitations that
would prevent them from satisfying the
relay setting criteria in Requirements R1
and R2. Generator owners must inform
their planning coordinator and
transmission planner of such limitations
within 30 calendar days. According to
NERC, the standard drafting team
believes that ‘‘regulatory limitations’’
include NRC requirements and,
therefore, Requirement R3 satisfies the
Commission’s guidance that ‘‘NRC
requirements should be used when
implementing the Reliability
Standards.’’ 35
24. Requirement R4 requires generator
owners to provide their planning
coordinator or transmission planner
with generator protection trip settings
associated with Requirements R1 and
R2 within 60 days of either a written
request or a change to previously
requested trip settings.36
III. Discussion
25. Pursuant to section 215(d) of the
FPA, the Commission proposes to
approve proposed Reliability Standards
28 Id.
29 Reliability Standard PRC–019–1, Section A.3
(Purpose).
30 NERC Petition at 23.
31 Id. at 24.
32 Reliability Standard PRC–024–1, Section A.3
(Purpose).
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33 NERC
Petition at 25.
at 29 (citing Order No. 693, FERC Stats. &
Regs. ¶ 31,242 at P 1787).
35 Id. at 27–28 (citing Order No. 693, FERC Stats.
& Regs. ¶ 31,242 at P 1787).
36 Id. at 31.
34 Id.
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MOD–025–2, MOD–026–1, MOD–027–
1, PRC–019–1 and PRC–024–1,
including the associated
implementation plan and proposed
violation risk factors and violations
severity levels, as just, reasonable, not
unduly discriminatory or preferential,
and in the public interest. The proposed
Reliability Standards help ensure that
verified data is available for power
system planning and operational studies
by requiring the verification of generator
equipment needed to support BulkPower System reliability and enhance
coordination of important protection
system settings. Also, proposed
Reliability Standards MOD–025–2 and
PRC–024–1 satisfy relevant outstanding
directives set forth in Order No. 693. We
also propose to approve the retirement
of the currently-effective standards
MOD–024–1 and MOD–025–1 prior to
the effective date of MOD–025–2.
26. While we propose to approve the
proposed Reliability Standards, we seek
comment on certain aspects of proposed
Reliability Standards MOD–026–1 and
MOD–027–1. Specifically, we discuss
the following issues below: (A) The
higher Megavolt Amperes (MVA)
applicability threshold for proposed
Reliability Standards MOD–026–1 and
MOD–027–1; (B) the process for
determining when it is ‘‘technically
justified’’ for a transmission planner to
require a generator owner to provide
model reviews under MOD–026–1; (C)
why the ‘‘technically justified’’
provision is not also included in MOD–
027–1; and (D) assignment of violation
of severity levels.
mstockstill on DSK4VPTVN1PROD with PROPOSALS
A. Higher MVA Applicability Threshold
in MOD–026–1 and MOD–027–1
27. The applicability thresholds in
proposed Reliability Standards MOD–
026–1 and MOD–027–1 are higher than
for the other three proposed Reliability
Standards, and could exclude
approximately 20 percent of generators
from compliance.37 In contrast to the
greater than 20 MVA applicability
thresholds set forth in the other three
proposed Reliability Standards in
NERC’s petition,38 MOD–026–1 and
MOD–027–1 would exclude units rated
below 100 MVA (Eastern and Quebec
37 See NERC Petition, Exhibit E (Summary of the
Reliability Standard Development Proceeding and
Complete Record of Development of Proposed
Reliability Standard) section entitled
‘‘Consideration of Comments on Draft Standard’’ at
91 indicating that the threshold in the proposed
standard would limit applicability of the standard
to 80 percent of installed MVA on an
Interconnection basis.
38 Reliability Standard MOD–025–2, Section 4.2
(Facilities); Reliability Standard PRC–019–1,
Section 4.2 (Facilities); and Reliability Standard
PRC–024–1, Section 4 (Applicability).
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Interconnection), 75 MVA (Western
Interconnection) and 50 MVA (ERCOT
Interconnection).39
28. During the standard development
process, several industry stakeholders
commented that the standard drafting
team should ensure that the
applicability thresholds of MOD–026–1
and MOD–027–1 be aligned with the
other three proposed Reliability
Standards. In response, the standard
drafting team stated that ‘‘verification of
excitation system is expensive both
from a monetary and human resource
viewpoint. Therefore, the [standard
drafting team] believes that these
applicability thresholds will result in
substantial accuracy improvements to
the excitation models and associated
Reliability Standards, while not unduly
mandating costly and time-consuming
verification efforts.’’ 40 We seek
comment as to whether excluding
approximately 20 percent of generators
from the applicability of MOD–026–1
and MOD–027–1, especially in areas
with a high concentration of generators
falling below the thresholds, would (a)
limit the effectiveness of proposed
Reliability Standards MOD–026–1 and
MOD–027–1 or (b) adversely impact
transmission planners’ ability to reduce
risk to Bulk Power System reliability.
B. Process for Identifying ‘‘Technically
Justified’’ Generating Units in MOD–
026–1
29. Proposed Reliability Standard
MOD–026–1 applies to generating units
that are connected to the bulk electric
system when ‘‘technically justified.’’
Specifically, Applicability Section 4.2.4
allows a transmission planner to compel
a generator owner to provide model
reviews and related information in
accordance with Requirement R5 if the
transmission planner’s unit simulations
do not match the generator owner’s
measured unit data. Under such
circumstances, generator owners with
‘‘technically justified’’ units must
comply with proposed Reliability
Standard MOD–026–1, even though the
unit MVA rating is below the stated
MVA threshold for applicability.
30. While we agree with the intent of
this section, the means by which
transmission planners would become
aware of discrepancies between
simulated units and measured units,
39 Reliability Standard MOD–026–1, Section 4.2
(Facilities); Reliability Standard MOD–027–1,
Section 4.2 (Facilities).
40 NERC Petition, Exhibit E (Summary of the
Reliability Standard Development Proceeding and
Complete Record of Development of Proposed
Reliability Standard) section entitled
‘‘Consideration of Comments on Draft Standard’’ at
91.
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Frm 00010
Fmt 4702
Sfmt 4702
which forms the basis for ‘‘technically
justified’’ determinations, is unclear.
The technical justification, or
discrepancies between simulated units
and measured units, suggests that there
should be some benchmark available in
the process by which transmission
planners identify generator owners for
compliance with MOD–026–1. The
Final Report on the August 2003
blackout stated that ‘‘the regional
councils are to establish and begin
implementing criteria and procedures
for validating data used in power flow
models and dynamic simulations by
benchmarking model data with actual
system performance.’’ 41 The
Commission seeks comment from NERC
and other interested parties as to
whether the means or process for
transmission planners to determine
whether a generator owner’s unit is
‘‘technically justified’’ is sufficiently
clear and workable. We further seek
comment as to whether additional
details regarding how the process will
be implemented should be included in
an attachment to the proposed
Reliability Standard.
C. Should Proposed Reliability Standard
MOD–027–1 Include the ‘‘Technically
Justified’’ Provision
31. Proposed Reliability Standard
MOD–027–1 does not contain a
provision analogous to section 4.2.4 of
MOD–026–1, whereby a transmission
planner may determine whether to
subject a generator owner with units
falling below the stated applicability
threshold to the Requirements in
proposed Reliability Standard MOD–
026–1. We seek comment as to whether
the technical justification provision
should also be included in proposed
Reliability Standard MOD–027–1 to
provide an opportunity for transmission
planners to address discrepancies
between unit simulations and generator
owners’ measured unit data.
D. Violation Severity Levels
1. VSL for MOD–026–1, Requirement R6
and MOD–027–1, Requirement R5
32. For Requirement R6 of MOD–026–
1 and Requirement R5 of MOD–027–1,
NERC proposes a ‘‘severe’’ violation
severity level when a transmission
planner’s written response that a
Generation Owner’s verified model is
useable ‘‘omitted confirmation for all
41 U.S.-Canada Power System Outage Task Force
(Task Force), Final Report on the August 14, 2003
Blackout in the United States and Canada: Causes
and Recommendations (April 2004) (Final Blackout
Report), Recommendation 24. The Final Blackout
Report is available on the Internet at https://
www.ferc.gov/industries/electric/indus-act/
blackout.asp.
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Federal Register / Vol. 78, No. 185 / Tuesday, September 24, 2013 / Proposed Rules
specified model criteria’’ in the
requirement. NERC does not propose
any violation severity level for a
violation of the last sentence of these
requirements: ‘‘If the model is not
useable, the [transmission planner] shall
provide a technical description of why
the model is not useable.’’ Compliance
with this sentence is equally important
as compliance with the other obligations
of these Requirements. Lack of a
violation severity level for this type of
violation is inconsistent with our VSL
Guideline 3 because the proposed
violation severity levels do not address
all obligations in these Requirements.
We propose to direct that NERC submit
a violation severity level that addresses
a violation of the last sentence of
Requirement R6 of MOD–026–1 and
Requirement R5 of MOD–027–1.
2. VSL for PRC–024–1, Requirements R1
and R2
33. NERC proposes to assign a
‘‘severe’’ violation severity level for a
violation of Requirements R1 and R2 of
PRC–024–1 when a generator owner
fails to set its generator frequency or
voltage protective relays so that they do
not trip within the criteria listed within
Requirements R1 and R2 unless there is
a documented and communicated
regulatory or equipment limitation per
Requirement R3. We observe that
Requirements R1 and R2 of PRC–024–1
include three and four bulleted
exceptions, respectively, to the
requirement that the generator
frequency or voltage protective relays
not trip applicable generating unit(s)
within the ‘‘no-trip zone’’ of Attachment
1 or 2 to that standard. For
Requirements R1 and R2, only the third
and fourth exception, respectively,
relate to a regulatory or equipment
limitation in accordance with
Requirement R3. As a result, the
wording of the violation severity level
for Requirements R1 and R2 could be
read to mean that a generator owner that
set generator frequency or voltage
protective relaying to trip within the
‘‘no-trip zone’’ based on either the first
or second exception in Requirement R1
and either the first, second or third
exception in R2, violated that
Requirement with a severe violation
severity level. To avoid that
interpretation, NERC should confirm in
its comments that a generator owner
will not violate Requirement R1 or R2
if it sets generator frequency or voltage
protective relaying to trip within the
‘‘no-trip zone’’ based upon the
exceptions for Requirements R1 and R2.
IV. Information Collection Statement
34. The following collection of
information contained in the Proposed
Rule is subject to review by the Office
of Management and Budget (OMB)
under section 3507(d) of the Paperwork
Reduction Act of 1995 (PRA).42 OMB’s
regulations require that OMB approve
certain reporting and recordkeeping
requirements (collections of
information) imposed by an agency.43
Upon approval of a collection of
information, OMB will assign an OMB
control number and expiration date.
Respondents subject to the filing or
recordkeeping requirements of this rule
will not be penalized for failing to
respond to these collections of
information unless the collections of
information display a valid OMB
control number.
35. The Commission will submit these
reporting and recordkeeping
requirements to OMB for its review and
approval under section 3507(d) of the
PRA. Comments are solicited on the
Commission’s need for this information,
whether the information will have
practical utility, the accuracy of the
provided burden estimate, ways to
enhance the quality, utility, and clarity
of the information to be collected, and
any suggested methods for minimizing
the respondents’ burden, including the
use of automated information
techniques.
36. This Notice of Proposed
Rulemaking proposes to approve five
proposed Reliability Standards: MOD–
025–2, MOD–026–1, MOD–027–1, PRC–
019–1 and PRC–024–1. Proposed
Reliability Standard MOD–025–2 would
replace currently effective Reliability
Standards MOD–024–1 and MOD–025–
1. In Order No. 693, the Commission did
not approve or remand MOD–024–1 and
MOD–025–1, as they were identified as
‘‘fill-in-the-blank’’ Reliability Standards
for which NERC had not submitted
regional procedures.
37. Public Reporting Burden: The
burden and cost estimates below are
based on the increase in the reporting
and recordkeeping burden imposed by
the proposed Reliability Standards. Our
estimate of the number of respondents
affected is based on the NERC
Compliance Registry as of July 30,
2013.44 According to the Compliance
Registry, NERC has registered 901
generator owners within the United
States. Currently, synchronous
condensers are not included in the
NERC Compliance Registry, and the
standard drafting team stated that the
number of transmission owners who
own synchronous condensers is
extremely low. We seek NERC and
industry comment regarding the number
of synchronous condensers currently in
use (including confidential data, if
necessary).
38. The burden estimates reflect the
standards and the number of affected
entities (e.g., the generator owner’s onetime burden to develop testing
procedures, verification process, and
process for collection of data). Estimates
for the additional burden imposed by
the NOPR, if approved as a final rule in
RM13–16, follow.
Number of
respondents 45
Number of
responses per
respondent
Average
burden hours
per response
Total annual
burden hours
(1)
FERC–725G
58497
(2)
(3)
(1)x(2)x(3)
Total annual cost 46
PRC–019–1 (Coordination of Generating Unit or Plant Capabilities, Voltage Regulating Controls, and Protection)
mstockstill on DSK4VPTVN1PROD with PROPOSALS
Develop coordination and relay settings
procedures ............................................
42 44
U.S.C. 3507(d) (2006).
CFR 1320.11 (2013).
44 NERC Compliance Registry (July 30, 2013),
available at https://www.nerc.com/pa/comp/
Registration%20and%20Certification%20DL/
NERC_Compliance_Registry_Matrix_
Summary20130730.pdf.
45 GO = Generator Owner, TP = Transmission
Planner.
43 5
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Jkt 229001
738
GO
1
8
Assuming 10 generators per generator owner,
using EIA–860 2012 generator data (https://
www.eia.gov/electricity/data/eia860/) total number
of units > 20 MW are 7,379, which results in 738
generator owners.
46 The estimates for cost per hour are derived as
follows:
PO 00000
Frm 00011
Fmt 4702
Sfmt 4702
5,904
$307,008 one-time ($52/hr).
$52/hour, the average of the salary plus benefits
for an engineer, from Bureau of Labor and Statistics
at https://bls.gov/oes/current/naics3_221000.htm.
$70/hour, the average of the salary plus benefits
for a manager and an engineer, from Bureau of
Labor and Statistics at https://bls.gov/oes/current/
naics3_221000.htm.
$28/hour, based on a Commission staff study of
record retention burden cost.
E:\FR\FM\24SEP1.SGM
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Federal Register / Vol. 78, No. 185 / Tuesday, September 24, 2013 / Proposed Rules
Number of
respondents 45
Number of
responses per
respondent
Average
burden hours
per response
Total annual
burden hours
(1)
FERC–725G
(2)
(3)
(1)x(2)x(3)
Relay Settings ..........................................
Total annual cost 46
1
8
5,904
413,280 (70/hr).
Evidence Retention 46 ..............................
738
GO
738
GO
1
1
738
20,664 (28/hr).
TOTAL ..............................................
........................
........................
........................
12,546
740,952
PRC–024–1 (Generator Frequency and Voltage Protective Relay Settings)
Develop coordination and relay settings
procedures ............................................
738
GO
738
GO
738
GO
1
8
5,904
307,008 one-time (52/hr).
1
8
5,904
413,280 (70/hr).
1
1
738
20,664 (28/hr).
........................
........................
........................
12,546
Number of
respondents 45
Number of
responses per
respondent
Average
burden hours
per response
Total annual
burden hours
(1)
(2)
(3)
(1)x(2)x(3)
Relay Settings ..........................................
Evidence Retention 46 ..............................
TOTAL ..............................................
FERC–725L
740,952
Total annual cost 46
MOD–025–2 (Verification and Data Reporting of Generator Real and Reactive Power Capability and Synchronous Condenser Reactive
Power Capability)
Develop testing procedures, verification
process, and process for collection of
data .......................................................
738
GO
738
GO
738
GO
1
8
1
6
5,904 (onetime)
4,428
1
1
738
........................
........................
........................
11,070
356
GO
1
8
2,848 (onetime)
148,096 one-time (52/hr).
187
TP
356
GO
543
GO and TP
1
8
1,496
104,720 (70/hr).
1
8
2,848
199,360 (70/hr).
1
1
543
15,204 (28/hr).
........................
........................
........................
7,735
Attachment 2 ............................................
Evidence Retention 46 ..............................
TOTAL ..............................................
Develop testing procedures, verification
process, and process for collection of
data .......................................................
Instructions for obtaining excitation control system or plant voltage/variance
control function model ..........................
Documentation on generator verification
Evidence Retention 46 ..............................
TOTAL ......................................................
$307,008 one-time ($52/hr).
309,960 (70/hr).
20,664 (28/hr).
637,632
467,380
MOD–027–1 (Verification of Models and Data for Turbine/Governor and Load Control or Active Power/Frequency Control Functions)
mstockstill on DSK4VPTVN1PROD with PROPOSALS
Develop testing procedures, verification
process, and process for collection of
data .......................................................
Instructions for obtaining turbine/governor and load control or active power/
frequency control model .......................
Documentation on generator verification
Evidence Retention 46 ..............................
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356
GO
1
187
TP
356
GO
543
GO and TP
1
PO 00000
Frm 00012
2,848 (onetime)
$148,096 one-time (52/hr).
8
1,496
104,720 (70/hr).
1
8
2,848
199,360 (70/hr).
1
Fmt 4702
1
543
15,204 (28/hr).
Sfmt 4702
8
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Federal Register / Vol. 78, No. 185 / Tuesday, September 24, 2013 / Proposed Rules
Number of
respondents 45
Number of
responses per
respondent
Average
burden hours
per response
Total annual
burden hours
(1)
(2)
(3)
(1)x(2)x(3)
TOTAL ....................................
........................
........................
........................
7,735
TOTAL for RM13–16 .......
........................
........................
........................
........................
FERC–725L
mstockstill on DSK4VPTVN1PROD with PROPOSALS
58499
Title: Mandatory Reliability Standards
for the Bulk-Power System
Action: Proposed revisions to FERC–
725A.
OMB Control No: 1902–0244
Respondents: Businesses or other forprofit institutions; not-for-profit
institutions.
Frequency of Responses: One-time,
every five years, and every ten years.
Necessity of the Information: The
proposed approval of the five Reliability
Standards noted above implements the
Congressional mandate of the Energy
Policy Act of 2005 to develop
mandatory and enforceable Reliability
Standards to better ensure the reliability
of the nation’s Bulk-Power System.
Internal Review: The Commission has
reviewed the proposed approval to the
Reliability Standards and made a
determination that its action is
necessary to implement section 215 of
the FPA. The Commission has assured
itself, by means of its internal review,
that there is specific, objective support
for the burden estimate associated with
the information requirements.
39. Interested persons may obtain
information on the reporting
requirements by contacting the
following: Federal Energy Regulatory
Commission, 888 First Street NE.,
Washington, DC 20426 [Attention: Ellen
Brown, Office of the Executive Director,
email: DataClearance@ferc.gov, phone:
(202) 502–8663, fax: (202) 273–0873].
40. For submitting comments
concerning the collection of information
and the associated burden estimates,
please send your comments to the
Commission, and to the Office of
Management and Budget, Office of
Information and Regulatory Affairs,
Washington, DC 20503 [Attention: Desk
Officer for the Federal Energy
Regulatory Commission, phone: (202)
395–4638, fax: (202) 395–7285]. For
security reasons, comments to OMB
should be submitted by email to: oira_
submission@omb.eop.gov. Comments
submitted to OMB should include
Docket Number RM13–16–000 and
OMB Control Number 1902–0252 and
1902–0261.
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V. Regulatory Flexibility Act
Certification
41. The Regulatory Flexibility Act of
1980 (RFA) 47 generally requires a
description and analysis of proposed
rules that will have significant
economic impact on a substantial
number of small entities. The RFA
mandates consideration of regulatory
alternatives that accomplish the stated
objectives of a proposed rule and that
minimize any significant economic
impact on a substantial number of small
entities. The Small Business
Administration’s (SBA’s) Office of Size
Standards develops the numerical
definition of a small business.48 The
SBA has established a size standard for
electric utilities, stating that a firm is
small if, including its affiliates, it is
primarily engaged in the transmission,
generation and/or distribution of
electric energy for sale and its total
electric output for the preceding twelve
months did not exceed four million
megawatt hours.49
42. Proposed Reliability Standards
MOD–025–2, MOD–026–1, MOD–027–
1, PRC–019–1 and PRC–024–1, MOD–
025–2 help ensure that generators
remain in operation during specified
voltage and frequency excursions,
properly coordinate protective relays
and generator voltage regulator controls,
and ensure that generator models
accurately reflect the generator’s
capabilities and equipment
performance. Comparison of the NERC
Compliance Registry with data
submitted to the Energy Information
Administration on Form EIA–861
indicates that, of the 901 generator
owners in the United States registered
by NERC, 49 qualify as small entities
(5.4 percent) and of the 184 of the
transmission planners in the United
States registered by NERC, 42 qualify as
small entities (22 percent). The
Commission estimates that the small
entities to whom the proposed
Reliability Standards PRC–019–1, PRC–
024–1 and MOD–025–1 applies will
47 5
U.S.C. 601–612 (2006).
CFR 121.101 (2013).
49 13 CFR 121.201, Sector 22, Utilities & n.1.
48 13
PO 00000
Frm 00013
Fmt 4702
Sfmt 4702
Total annual cost 46
467,380
$3,054,296 (1,837,080 without
one-time costs).
incur compliance 50 and record keeping
costs 51 of $655,228 ($13,372 per
generator owner). For the proposed
Reliability Standards MOD–026–1 and
MOD–027–1, the Commission estimates
that the small generator owner entities
(22) will incur compliance and record
keeping costs of $83,072 ($3,776 per
generator owner). This will result in a
total compliance and record-keeping
cost for generator owners of $686,870
($14,018 per entity). Additionally, small
transmission planner entities (42) will
incur compliance and record keeping
costs 52 of $47,040 ($1,120 per
transmission planner).
43. The Commission does not
consider the estimated costs per small
entity to have a significant economic
impact for a substantial number of small
entities. Accordingly, the Commission
certifies that this proposed rulemaking
will not have a significant economic
impact on a substantial number of small
entities. The Commission seeks
comment on this certification.
VI. Environmental Analysis
44. The Commission is required to
prepare an Environmental Assessment
or an Environmental Impact Statement
for any action that may have a
significant adverse effect on the human
environment.53 The Commission has
categorically excluded certain actions
from this requirement as not having a
significant effect on the human
environment. Included in the exclusion
are rules that are clarifying, corrective,
or procedural or that do not
substantially change the effect of the
regulations being amended.54 The
actions proposed here fall within this
categorical exclusion in the
Commission’s regulations.
50 Assuming 50 hours per generator owner for
relay settings/testing based on $70/hour.
51 This cost came from the above PRC–019–1,
PRC–024–1, and MOD–025–2 tables.
52 This cost came from the above MOD–026–1 and
MOD–027–1 tables.
53 Regulations Implementing the National
Environmental Policy Act of 1969, Order No. 486,
FERC Stats. & Regs., Regulations Preambles 1986–
1990 ¶ 30,783 (1987).
54 18 CFR 380.4(a)(2)(ii).
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Federal Register / Vol. 78, No. 185 / Tuesday, September 24, 2013 / Proposed Rules
VII. Comment Procedures
45. The Commission invites interested
persons to submit comments on the
matters and issues proposed in this
notice to be adopted, including any
related matters or alternative proposals
that commenters may wish to discuss.
Comments are due November 25, 2013.
Comments must refer to Docket No.
RM13–16–000, and must include the
commenter’s name, the organization
they represent, if applicable, and their
address in their comments.
46. The Commission encourages
comments to be filed electronically via
the eFiling link on the Commission’s
Web site at https://www.ferc.gov. The
Commission accepts most standard
word processing formats. Documents
created electronically using word
processing software should be filed in
native applications or print-to-PDF
format and not in a scanned format.
Commenters filing electronically do not
need to make a paper filing.
47. Commenters that are not able to
file comments electronically must send
original and 14 copies of their
comments to: Federal Energy Regulatory
Commission, Secretary of the
Commission, 888 First Street NE.,
Washington, DC 20426.
48. All comments will be placed in
the Commission’s public files and may
be viewed, printed, or downloaded
remotely as described in the Document
Availability section below. Commenters
on this proposal are not required to
serve copies of their comments on other
commenters.
mstockstill on DSK4VPTVN1PROD with PROPOSALS
VIII. Document Availability
49. In addition to publishing the full
text of this document in the Federal
Register, the Commission provides all
interested persons an opportunity to
view and/or print the contents of this
document via the Internet through the
Commission’s Home Page (https://
www.ferc.gov) and in the Commission’s
Public Reference Room during normal
business hours (8:30 a.m. to 5:00 p.m.
Eastern time) at 888 First Street NE.,
Room 2A, Washington DC 20426.
50. From the Commission’s Home
Page on the Internet, this information is
available on eLibrary. The full text of
this document is available on eLibrary
in PDF and Microsoft Word format for
viewing, printing, and/or downloading.
To access this document in eLibrary,
type the docket number excluding the
last three digits of this document in the
docket number field.
51. User assistance is available for
eLibrary and the Commission’s Web site
during normal business hours from the
Commission’s Online Support at (202)
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502–6652 (toll free at 1–866–208–3676)
or email at ferconlinesupport@ferc.gov,
or the Public Reference Room at (202)
502–8371, TTY (202) 502–8659. Email
the Public Reference Room at
public.referenceroom@ferc.gov.
By the direction of the Commission.
Nathaniel J. Davis, Sr.,
Deputy Secretary.
[FR Doc. 2013–23169 Filed 9–23–13; 8:45 am]
BILLING CODE 6717–01–P
ENVIRONMENTAL PROTECTION
AGENCY
40 CFR Part 131
[EPA–HQ–OW–2010–0606; FRL–9901–25–
OW]
Water Quality Standards Regulatory
Clarifications Proposed Rule; Public
Meeting and Public Webinars
Environmental Protection
Agency (EPA).
ACTION: Announcement of public
meeting and public webinars.
AGENCY:
The Environmental Protection
Agency (EPA) is announcing one public
meeting and two public webinars to be
held for the proposed rule ‘‘Water
Quality Standards Regulatory
Clarifications,’’ which was published
separately in the Federal Register
(September 4, 2013).
DATES: The public meeting will be held
in Washington, DC on October 23, 2013
from 10:00 a.m. to 3:00 p.m. Eastern.
The two public webinars will be held on
September 24, 2013 from 1:00 p.m. to
3:00 p.m. Eastern and November 14,
2013 from 1:00 p.m. to 3:00 p.m.
Eastern. The comment period for the
proposed rulemaking will end on
December 3, 2013. To register for the
public meeting or either public webinar,
please visit: https://www.tetratechffx.com/wqsregs/public/ or contact the
person listed under FOR FURTHER
INFORMATION CONTACT. Information
regarding the time of the public meeting
and public webinars is also listed below
in SUPPLEMENTARY INFORMATION.
ADDRESSES: To register for the public
meeting or either public webinar, please
visit: https://www.tetratech-ffx.com/
wqsregs/public/. You will receive an
email confirmation after your
registration has been submitted.
Information about the public meeting
and webinars can also be found at the
EPA Web site for the rulemaking at,
https://water.epa.gov/lawsregs/
lawsguidance/wqs_index.cfm, under the
‘‘Current Outreach’’ section.
SUMMARY:
PO 00000
Frm 00014
Fmt 4702
Sfmt 4702
The public meeting will be held at the
Smithsonian National Zoological Park
in the Visitor Center Auditorium. The
Zoo address is 3001 Connecticut
Avenue NW. in Washington, DC. The
Visitor Center Auditorium is located at
the Connecticut Avenue entrance to the
zoo. More information about travel to
the Zoo is available at https://
nationalzoo.si.edu/Visit/
gettingtozoo.cfm.
The public webinars will be held
using Adobe® Connect. Following
registration and within one week of the
scheduled webinars, you will receive an
email with information for accessing the
webinar on the day of the event.
The proposed rule was published
separately in the Federal Register and a
complete set of documents related to the
proposal are available for public
inspection at the EPA Docket Center,
located at 1301 Constitution Avenue
NW., Room 3334, Washington, DC
between 8:30 a.m. and 4:30 p.m.,
Monday through Friday, excluding legal
holidays. A reasonable fee may be
charged for copying. Documents are also
available through the electronic docket
system at https://www.regulations.gov
under Docket ID No. EPA–HQ–OW–
2010–0606. The EPA Web site for the
rulemaking can be found at: https://
water.epa.gov/lawsregs/lawsguidance/
wqs_index.cfm.
FOR FURTHER INFORMATION CONTACT:
Janita Aguirre, EPA Headquarters, Office
of Water, Office of Science and
Technology, at 202–566–1860 or email
address: WQSRegulatoryClarifications@
epa.gov.
SUPPLEMENTARY INFORMATION: The
proposal for which EPA is holding the
public meeting and public webinars has
been published separately in the
Federal Register (78 FR 54517;
September 4, 2013). In the proposed
rulemaking, EPA is proposing changes
to the federal water quality standards
(WQS) regulation at 40 CFR Part 131
which helps implement the Clean Water
Act in order to improve effectiveness in
restoring and maintaining the chemical,
physical, and biological integrity of the
nation’s waters. The proposed rule
addresses the following key program
areas: Administrator’s determinations
that new or revised WQS are necessary,
designated uses, triennial reviews,
antidegradation, variances to WQS, and
compliance schedule authorizing
provisions. Once final, the proposed
rule will lead to improved water quality
standard development, implementation
and compliance as well as improving
the ability of water systems to adapt and
respond to the impacts of climate
change.
E:\FR\FM\24SEP1.SGM
24SEP1
]]>Agencies
[Federal Register Volume 78, Number 185 (Tuesday, September 24, 2013)]
[Proposed Rules]
[Pages 58492-58500]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: 2013-23169]
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DEPARTMENT OF ENERGY
Federal Energy Regulatory Commission
18 CFR Part 40
[Docket No. RM13-16-000]
Generator Verification Reliability Standards
AGENCY: Federal Energy Regulatory Commission, DOE.
ACTION: Notice of proposed rulemaking.
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SUMMARY: Pursuant to section 215 of the Federal Power Act, the Federal
Energy Regulatory Commission (Commission) proposes to approve the
following Reliability Standards that were submitted to the Commission
for approval by the North American Electric Reliability Corporation,
the Commission-certified Electric Reliability Organization: MOD-025-2
(Verification and Data Reporting of Generator Real and Reactive Power
Capability and Synchronous Condenser Reactive Power Capability), MOD-
026-1 (Verification of Models and Data for Generator Excitation Control
System or Plant Volt/Var Control Functions), MOD-027-1 (Verification of
Models and Data for Turbine/Governor and Load Control or Active Power/
Frequency Control Functions), PRC-019-1 (Coordination of Generating
Unit or Plant Capabilities, Voltage Regulating Controls, and
Protection), and PRC-024-1 (Generator Frequency and Voltage Protective
Relay Settings). The proposed generator verification Reliability
Standards help ensure that verified data is available for power system
planning and operational studies by requiring the verification of
generator equipment needed to support Bulk-Power System reliability and
enhance coordination of important protection system settings.
The Commission proposes to approve, with modifications, the
associated implementation plans, violation risk factors and violation
severity levels. The Commission also proposes to approve the retirement
of existing Reliability Standards MOD-024-1 (Verification of Generator
Gross and Net Real Power Capability) and MOD-025-1 (Verification of
Generator Gross and Net Reactive Power Capability) prior to the
effective date of MOD-025-2.
DATES: Comments are due November 25, 2013.
ADDRESSES: You may submit comments, identified by docket number by any
of the following methods:
Agency Web site: https://ferc.gov. Documents created
electronically using word processing software should be filed in native
applications or print-to-PDF format and not in a scanned format.
Mail/Hand Delivery: Commenters unable to file comments
electronically must mail or hand deliver their comments to: Federal
Energy Regulatory Commission, Secretary of the Commission, 888 First
Street NE., Washington, DC 20426.
FOR FURTHER INFORMATION CONTACT: Mark Bennett (Legal Information),
Office of General Counsel, Federal Energy Regulatory Commission, 888
First Street NE., Washington, DC 20426, (202) 502-8524,
mark.bennett@ferc.gov.
Syed Ahmad (Technical Information), Office of Electric Reliability,
Federal Energy Regulatory Commission, 888 First Street NE., Washington,
DC 20426, (202) 502-8718, syed.ahmad@ferc.gov.
SUPPLEMENTARY INFORMATION:
Notice of Proposed Rulemaking
(Issued September 19, 2013)
1. Under section 215 of the Federal Power Act (FPA) \1\ the
Commission proposes to approve five Reliability Standards that were
submitted to the Commission for approval by the North American Electric
Reliability Corporation (NERC), the Commission-certified Electric
Reliability Organization (ERO): MOD-025-2 (Verification and Data
Reporting of Generator Real and Reactive Power Capability and
Synchronous Condenser Reactive Power Capability), MOD-026-1
(Verification of Models and Data for Generator Excitation Control
System or Plant Volt/Var Control Functions), MOD-027-1 (Verification of
Models and Data for Turbine/Governor and Load Control or Active Power/
Frequency Control Functions), PRC-019-1 (Coordination of Generating
Unit or Plant Capabilities, Voltage Regulating Controls, and
Protection), and PRC-024-1 (Generator Frequency and Voltage Protective
Relay Settings). The Commission proposes to approve, with
modifications, the associated implementation plans, violation risk
factors and violation severity levels. The Commission also proposes to
approve the retirement of existing Reliability Standards MOD-024-1 and
MOD-025-1 immediately prior to the effective date of MOD-025-2.
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\1\ 16 U.S.C. 824o (2006).
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2. The purpose of the proposed Reliability Standards is to ensure
that generators remain in operation during specified voltage and
frequency excursions; properly coordinate protective relays and
generator voltage regulator controls; and ensure that
[[Page 58493]]
generator models accurately reflect the generator's capabilities and
equipment performance. Proposed Reliability Standards MOD-026-1, MOD-
027-1, PRC-019-1 and PRC-024-1 are new whereas proposed Reliability
Standard MOD-025-2 consolidates two existing standards, MOD-024-1
(Verification of Generator Gross and Net Real Power Capability) and
MOD-025-1 (Verification of Generator Gross and Net Reactive Power
Capability) into one new Reliability Standard. Portions of proposed
Reliability Standards MOD-025-2 and PRC-024-1 respond to Commission
directives issued in Order No. 693.\2\
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\2\ See Mandatory Reliability Standards for the Bulk-Power
System, Order No. 693, FERC Stats. & Regs. ] 31,242, order on reh'g,
Order No. 693-A, 120 FERC ] 61,053 (2007).
---------------------------------------------------------------------------
3. Collectively, the proposed Reliability Standards improve the
accuracy of model verifications needed to support reliability and
enhance the coordination of generator protection systems and voltage
regulating system controls. Such improvements should help reduce the
risk of generator trips and provide more accurate models for
transmission planners and planning coordinators to develop system
models and simulations.
4. In contrast to the greater than 20 MVA applicability threshold
for the three other proposed Reliability Standards in NERC's petition,
proposed standards MOD-026-1 and MOD-027-1 would exclude units rated
below 100 MVA (Eastern and Quebec Interconnections), 75 MVA (Western
Interconnection) and 50 MVA (ERCOT Interconnection). This difference in
applicability thresholds could exclude approximately 20 percent of
registered generator owners/operators from compliance. The Commission
seeks comment on whether the higher applicability thresholds limit the
overall effectiveness of the proposed Reliability Standards, especially
in areas with a high concentration of generators falling below the
thresholds.
5. Further, proposed Reliability Standard MOD-026-1 contains a
provision allowing transmission planners to compel certain generator
owners to comply with the proposed standard's Requirements if the
generator owners are deemed to have ``technically justified'' units,
even if the generators fall below the stated applicability threshold.
The Commission seeks comment on this proposed process, and also seeks
comment regarding whether this provision should be included in proposed
Reliability Standard MOD-027-1.
I. Background
Section 215 of the FPA and Order No. 693 Directives
6. Section 215 of the FPA requires a Commission-certified ERO to
develop mandatory and enforceable Reliability Standards, subject to
Commission review and approval. Specifically, the Commission may
approve, by rule or order, a proposed Reliability Standard or
modification to a Reliability Standard if it determines that the
Reliability Standard is just, reasonable, not unduly discriminatory or
preferential, and in the public interest.\3\ Once approved, the
Reliability Standards may be enforced by the ERO, subject to Commission
oversight, or by the Commission independently.\4\
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\3\ 16 U.S.C. 824o(d)(2).
\4\ Id. 824o(e)(3).
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7. Pursuant to section 215 of the FPA, the Commission established a
process to select and certify an ERO,\5\ and subsequently certified
NERC.\6\ On March 16, 2007, the Commission issued Order No. 693,
approving 83 of the 107 Reliability Standards filed by NERC. Because
MOD-024-1 and MOD-025-1, which NERC had included in its filing,
involved regional procedures that had not been submitted, the
Commission postponed either approving or remanding these standards
until NERC submitted additional information. However, the Commission
issued directives in Order No. 693 with respect to MOD-024-1 and MOD-
025-1 that NERC states are addressed in proposed Reliability Standard
MOD-025-2.
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\5\ Rules Concerning Certification of the Electric Reliability
Organization; and Procedures for the Establishment, Approval, and
Enforcement of Electric Reliability Standards, Order No. 672, FERC
Stats. & Regs. ] 31,204, order on reh'g, Order No. 672-A, FERC
Stats. & Regs. ] 31,212 (2006).
\6\ North American Electric Reliability Corp., 116 FERC ]
61,062, order on reh'g and compliance, 117 FERC ] 61,126 (2006),
aff'd sub nom. Alcoa, Inc. v. FERC, 564 F.3d 1342 (D.C. Cir. 2009).
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8. Reliability Standards MOD-024-1 and MOD-025-1 were ``fill-in-
the-blank'' Reliability Standards that required regional reliability
organizations to develop procedures to verify generator real and
reactive power capability, respectively. Regarding MOD-024-1, the
Commission directed NERC to clearly define the test conditions and
methodologies contained in the Reliability Standard, and also to
clarify the time period within which regional reliability organizations
must provide generator real power capability verification.\7\ For MOD-
025-1, the Commission directed NERC to clarify that MVAR capability
verifications should be made at multiple points over a generator unit's
operating range, and also directed NERC to clarify the time period
within which reactive power capability verifications are to be
provided.\8\
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\7\ Order No. 693, FERC Stats. & Regs. ] 31,242 at PP 1310-1311.
\8\ Id. PP 1321-1323.
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9. Two directives contained in Order No. 693 pertain to proposed
Reliability Standard PRC-024-1. When discussing NERC's proposed TPL
Reliability Standards, the Commission stated that NERC should use the
Nuclear Regulatory Commission's (NRC) voltage ride through requirements
when implementing Reliability Standards to ``assure that there is
consistency between the Reliability Standards and the NRC requirement
that the system is accurately modeled.'' \9\ The Commission further
directed NERC to explicitly require generators to be ``capable of
riding through the same set of Category B and C contingencies, as
required by wind generators in Order No. 661, or that those generators
that cannot ride through be simulated as tripping.'' \10\
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\9\ Id. P 1787.
\10\ Id.
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II. NERC Petition and Proposed Reliability Standards
A. NERC Petition
10. On May 30, 2013, NERC filed a petition seeking approval of
proposed Reliability Standards MOD-025-2, MOD-026-1, MOD-027-1, PRC-
019-1 and PRC-024-1. Four of the five Reliability Standards are new,
while existing Reliability Standards MOD-024-1 and MOD-025-1 were
merged into proposed Reliability Standard MOD-025-2. NERC also seeks
approval of the associated implementation plans, violation risk factors
and violation severity levels, and retirement of current Reliability
Standards MOD-024-1 and MOD-025-1 at midnight of the day immediately
prior to the effective date of MOD-025-2. NERC proposes to phase in
effective dates in stages over periods ranging from five years (for
MOD-025-2, PRC-019-1 and PRC-024-1) to ten years (for MOD-026-1 and
MOD-027-1).\11\ NERC states that ``these five proposed Reliability
Standards address generator verifications needed to support Bulk-Power
System reliability and will ensure that accurate data is verified and
made available for planning simulations.'' \12\
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\11\ NERC Petition, Exhibit B.
\12\ NERC Petition at 2.
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11. NERC explains that Bulk-Power System reliability benefits from
``good quality simulation models of power system equipment,'' and that
``model validation ensures the proper
[[Page 58494]]
performance of the control systems and validates the computer models
used for stability analysis.'' \13\ NERC further states that the
proposed Reliability Standards will enhance reliability because the
tests performed to obtain model data may reveal latent defects that
could cause ``inappropriate unit response during system disturbances.''
\14\ NERC also states that simulating the response of synchronous
machines and related control systems in sufficient detail is essential
for effective power system planning and operational studies.\15\ For
accurate simulations reflecting actual equipment performance covering a
range of disturbances, NERC states that models must not only contain
adequate information, they must also correspond to actual field
values.\16\
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\13\ Id.
\14\ Id. at 2-3.
\15\ Id. at 3.
\16\ Id.
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B. Proposed Reliability Standards
1. Reliability Standard MOD-025-2
12. Proposed Reliability Standard MOD-025-2 merges two existing
Reliability Standards, MOD-024-1 and MOD-25-1, and has the stated
purpose of ensuring the accuracy of generator information related to
gross and net real and reactive power capability and synchronous
condenser reactive power capability that is available for planning
models and bulk electric system reliability assessments.\17\ The
proposed Reliability Standard applies to generator owners and
transmission owners that own synchronous condensers, and has three
requirements and two Attachments. Attachment 1, incorporated into
Requirements R1.1, R2.1 and R3.1, specifies the periodicity for
performing real and reactive power capability verification and the
verification specifications for applicable facilities. Attachment 2,
which generator owners and transmission owners will use to report to
their transmission planners the information described in Attachment 1,
is incorporated into Requirements R1.2, R2.2 and R3.2.
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\17\ Reliability Standard MOD-025-2, Section A.3 (Purpose).
---------------------------------------------------------------------------
13. NERC states that proposed Reliability Standard MOD-025-2
addresses the directives the Commission issued in Order No. 693.
Specifically, NERC states:
(1) Requirement R1, Part 1.2 specifies that a generator owner must
submit Attachment 2 or another form containing the same information to
its transmission planner within 90 calendar days of either the date the
data is recorded for a staged test or the date the data is selected for
verification using historical operational data; (2) Requirement R1,
Part 1.1 requires a generator owner to verify the real power capability
of its generating units as set forth in Attachment 1, including the
consideration of ambient conditions during the verification period; and
(3) Attachment 1, Sections 2.1 through 2.4, requires reactive power
capability verification at multiple points across a unit's operating
range.\18\
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\18\ NERC Petition at 10-12.
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2. Reliability Standard MOD-026-1
14. Proposed Reliability Standard MOD-026-1, which is applicable to
generator owners and transmission planners, is a new Reliability
Standard that has six requirements and an Attachment describing the
periodicity for excitation control system or plan volt/var function
model verification. NERC explains that the purpose of proposed
Reliability Standard MOD-026-1 is to ensure that detailed modeling of
generator excitation systems, essential for valid simulations in power
system stability studies, will be conducted, and that those models
accurately represent generator excitation control system or plant volt/
var control function behavior for bulk electric system reliability
assessments.\19\ Requirement R1 requires transmission planners to
provide generator owners with specified information within 90 days of a
written request, including instructions on how to obtain models, block
diagrams and/or data sheets and model data for any of the generator
owner's existing applicable unit specific excitation control system or
plant volt/var control function contained in the transmission planner's
dynamic database from the current (in-use) models. NERC explains that
Requirement R1 ensures that the transmission planner provides necessary
information to the generator owners so that they can provide a useable
model in an acceptable format. This further ensures that generator
owners can comply with Requirement R2 by providing relevant information
to transmission planners.\20\
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\19\ Id. at 14-16.
\20\ Id. at 15.
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15. Requirement R2 requires each generator owner to provide its
transmission planner with a verified generator excitation control
system or plant volt/var control function model that includes the data
and documentation specified in Requirement R2, Part 2.1. The
periodicity for this requirement is set forth in Attachment 1. The
purpose of Requirement R2 is to verify that the generator excitation
control system or plant volt/var control function model and the model
parameters used in dynamic simulations performed by the transmission
planner accurately represent the generator excitation control system or
plant volt/var control function behavior when assessing bulk electric
system reliability.\21\ Requirement R3 requires generator owners to
provide written responses to transmission planner requests within 90
days regarding unusable models, technical concerns and transmission
planner determinations that simulated excitation control system or
plant volt/var control function model responses do not match a recorded
response to a transmission system event. NERC explains that Requirement
R3 of proposed Reliability Standard MOD-026-1 ``provides response
requirements for a Generator Owner when it receives certain requests
from the Transmission Planner. This communication ensures that
Generator Owners have an obligation to respond in a timely fashion when
there are demonstrated problems with a model that was provided by the
Generator Owner in accordance with Requirement R2.'' \22\ Under
Requirement R4, generator owners are required to determine whether
changes to applicable units affect models provided pursuant to
Requirement R2, and to provide the transmission planner with revised
model data or plans to perform model verification.
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\21\ Id. at 16.
\22\ Id. at 17.
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16. Requirement R5 requires a generator owner to respond within 90
days to a ``technically justified unit request'' from its transmission
planner to perform a model review of a unit or plant, including details
for model verification or corrected model data. A footnote to
Requirement R5 states that ``Technical justification is achieved by the
Transmission Planner demonstrating that the simulated unit or plant
response does not match the measured unit or plant response.'' Also,
Applicability section 4.2.4 in MOD-026-1 states that facilities to
which the standard applies include ``For all Interconnections: A
technically justified unit that meets NERC registry criteria but is not
otherwise included in the above Applicability sections 4.2.1, 4.2.2, or
4.2.3 and is requested by the Transmission Planner.''
17. NERC explains that Requirement R5 allows transmission planners
to request that generator owners who otherwise are not covered by the
[[Page 58495]]
Applicability section (i.e., whose MVA ratings are lower than the
applicability thresholds specified in Section 4 of proposed Reliability
Standard MOD-026-1 but meet or exceed the Registry Criteria) to provide
model verifications or to correct model data.\23\ Requirement R6
requires transmission planners to provide written responses to
generator owners within 90 days of receiving a verified excitation
control system or plant volt/var control function model information
whether the model is usable or not in accordance with Requirement R2.
If it determines the model to be unusable, the transmission planner
must explain the technical basis for that decision.
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\23\ Id. at 18.
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3. Reliability Standard MOD-027-1
18. The stated purpose of proposed Reliability Standard MOD-027-1,
which is new and contains five Requirements and an Attachment, is to
verify that the turbine/governor and load control or active power/
frequency control model and the model parameters, used in dynamic
simulations that assess bulk electric system reliability, accurately
represent generator unit real power response to system frequency
variations.\24\ Requirement R1 requires transmission planners to
provide generator owners with guidance that will enable generator
owners to provide the information required in Requirements R2 and R4
within 90 days of a written request. Requirement R2 requires generator
owners to provide transmission planners with a verified turbine/
governor and load control or active power/frequency control model for
each applicable unit, including documentation and data in accordance
with the periodicity specified in MOD-027-1 Attachment 1. Attachment 1
(Turbine/Governor and Load Control or Active Power/Frequency Control
Model Periodicity) also contains a table listing verification
conditions and related actions required of generator owners.\25\
---------------------------------------------------------------------------
\24\ Reliability Standard MOD-27-1, Section A.3 (Purpose).
\25\ NERC Petition at 20.
---------------------------------------------------------------------------
19. Requirement R3 establishes communication requirements to ensure
that generator owners respond to transmission planner determinations
that a generator owner's model is not ``usable,'' or where there is a
difference between the model and three or more actual transmission
system events.\26\ Requirement R4 requires generator owners to provide
transmission planners with updates when changes occur to the turbine/
governor and load control or active power/frequency control system that
alter equipment response characteristics.\27\ Requirement R5 requires
transmission planners to inform generator owners within 90 days of
receiving model information (in accordance with Requirement R2) whether
the model is usable or not. If a model is unusable, the transmission
planner shall provide the generator owner with an explanation of the
technical basis for that decision. Also, Requirement R3 requires
generator owners to provide a written response within 90 days.\28\
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\26\ Id. at 21.
\27\ Id. at 22.
\28\ Id.
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4. Proposed Reliability Standard PRC-019-1
20. Proposed Reliability Standard PRC-019-1 is new and contains two
requirements intended to ensure that both generator owners and
transmission owners verify coordination of generating unit facility or
synchronous condenser voltage regulating controls, limit functions,
equipment capabilities and protection system settings.\29\ Requirement
R1 requires generator owners and transmission owners to coordinate the
voltage regulating system controls with the equipment capabilities and
settings of the applicable protection system devices and functions.\30\
Requirement R2 requires generator owners and transmission owners to
perform the coordination described in Requirement R1 to address
equipment or setting changes.\31\ The coordination required in proposed
Reliability Standard PRC-019-1 must be performed at least every five
years.
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\29\ Reliability Standard PRC-019-1, Section A.3 (Purpose).
\30\ NERC Petition at 23.
\31\ Id. at 24.
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5. Proposed Reliability Standard PRC-024-1
21. Proposed Reliability Standard PRC-024-1 is new and consists of
four Requirements and two Attachments. The stated purpose of PRC-024-1
is to ensure that generator owners set their generator protective
relays such that generating units remain connected during defined
frequency and voltage excursions.\32\ Requirement R1 requires generator
owners having generator frequency protective relaying activated to trip
their generating units to set their protective relaying to prevent
their generating units from tripping within the ``no trip zone'' of
PRC-024-1 Attachment 1 (unless one of three specified exceptions
applies). NERC explains that Attachment 1 contains tables with curve
data points for each Interconnection indicating the amount of time a
generator needs to remain connected at specific defined frequency
excursions.\33\ Requirement R2 addresses voltage excursions, requiring,
subject to four exceptions, generator owners to ensure that their
voltage protective relaying settings prevent their generating units
from tripping within the ``no trip zone'' described in PRC-024-1,
Attachment 2.
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\32\ Reliability Standard PRC-024-1, Section A.3 (Purpose).
\33\ NERC Petition at 25.
---------------------------------------------------------------------------
22. NERC states that the standard drafting team believes the
voltage profile contained in Attachment 2 includes excursions that
would be expected under Category B and C contingencies. Therefore, NERC
asserts that by ensuring that generator units remain connected to the
grid during voltage excursions, Requirement R2 and Attachment 2 satisfy
the Commission directive issued in Order No. 693 to ``explicitly
require either that all generators are capable of riding through the
same set of Category B and C contingencies, as required by wind
generators in Order No. 661, or that those generators that cannot ride
through be simulated as tripping.'' \34\
---------------------------------------------------------------------------
\34\ Id. at 29 (citing Order No. 693, FERC Stats. & Regs. ]
31,242 at P 1787).
---------------------------------------------------------------------------
23. Requirement R3 of proposed Reliability Standard PRC-024-1
requires generator owners to document regulatory or equipment
limitations that would prevent them from satisfying the relay setting
criteria in Requirements R1 and R2. Generator owners must inform their
planning coordinator and transmission planner of such limitations
within 30 calendar days. According to NERC, the standard drafting team
believes that ``regulatory limitations'' include NRC requirements and,
therefore, Requirement R3 satisfies the Commission's guidance that
``NRC requirements should be used when implementing the Reliability
Standards.'' \35\
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\35\ Id. at 27-28 (citing Order No. 693, FERC Stats. & Regs. ]
31,242 at P 1787).
---------------------------------------------------------------------------
24. Requirement R4 requires generator owners to provide their
planning coordinator or transmission planner with generator protection
trip settings associated with Requirements R1 and R2 within 60 days of
either a written request or a change to previously requested trip
settings.\36\
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\36\ Id. at 31.
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III. Discussion
25. Pursuant to section 215(d) of the FPA, the Commission proposes
to approve proposed Reliability Standards
[[Page 58496]]
MOD-025-2, MOD-026-1, MOD-027-1, PRC-019-1 and PRC-024-1, including the
associated implementation plan and proposed violation risk factors and
violations severity levels, as just, reasonable, not unduly
discriminatory or preferential, and in the public interest. The
proposed Reliability Standards help ensure that verified data is
available for power system planning and operational studies by
requiring the verification of generator equipment needed to support
Bulk-Power System reliability and enhance coordination of important
protection system settings. Also, proposed Reliability Standards MOD-
025-2 and PRC-024-1 satisfy relevant outstanding directives set forth
in Order No. 693. We also propose to approve the retirement of the
currently-effective standards MOD-024-1 and MOD-025-1 prior to the
effective date of MOD-025-2.
26. While we propose to approve the proposed Reliability Standards,
we seek comment on certain aspects of proposed Reliability Standards
MOD-026-1 and MOD-027-1. Specifically, we discuss the following issues
below: (A) The higher Megavolt Amperes (MVA) applicability threshold
for proposed Reliability Standards MOD-026-1 and MOD-027-1; (B) the
process for determining when it is ``technically justified'' for a
transmission planner to require a generator owner to provide model
reviews under MOD-026-1; (C) why the ``technically justified''
provision is not also included in MOD-027-1; and (D) assignment of
violation of severity levels.
A. Higher MVA Applicability Threshold in MOD-026-1 and MOD-027-1
27. The applicability thresholds in proposed Reliability Standards
MOD-026-1 and MOD-027-1 are higher than for the other three proposed
Reliability Standards, and could exclude approximately 20 percent of
generators from compliance.\37\ In contrast to the greater than 20 MVA
applicability thresholds set forth in the other three proposed
Reliability Standards in NERC's petition,\38\ MOD-026-1 and MOD-027-1
would exclude units rated below 100 MVA (Eastern and Quebec
Interconnection), 75 MVA (Western Interconnection) and 50 MVA (ERCOT
Interconnection).\39\
---------------------------------------------------------------------------
\37\ See NERC Petition, Exhibit E (Summary of the Reliability
Standard Development Proceeding and Complete Record of Development
of Proposed Reliability Standard) section entitled ``Consideration
of Comments on Draft Standard'' at 91 indicating that the threshold
in the proposed standard would limit applicability of the standard
to 80 percent of installed MVA on an Interconnection basis.
\38\ Reliability Standard MOD-025-2, Section 4.2 (Facilities);
Reliability Standard PRC-019-1, Section 4.2 (Facilities); and
Reliability Standard PRC-024-1, Section 4 (Applicability).
\39\ Reliability Standard MOD-026-1, Section 4.2 (Facilities);
Reliability Standard MOD-027-1, Section 4.2 (Facilities).
---------------------------------------------------------------------------
28. During the standard development process, several industry
stakeholders commented that the standard drafting team should ensure
that the applicability thresholds of MOD-026-1 and MOD-027-1 be aligned
with the other three proposed Reliability Standards. In response, the
standard drafting team stated that ``verification of excitation system
is expensive both from a monetary and human resource viewpoint.
Therefore, the [standard drafting team] believes that these
applicability thresholds will result in substantial accuracy
improvements to the excitation models and associated Reliability
Standards, while not unduly mandating costly and time-consuming
verification efforts.'' \40\ We seek comment as to whether excluding
approximately 20 percent of generators from the applicability of MOD-
026-1 and MOD-027-1, especially in areas with a high concentration of
generators falling below the thresholds, would (a) limit the
effectiveness of proposed Reliability Standards MOD-026-1 and MOD-027-1
or (b) adversely impact transmission planners' ability to reduce risk
to Bulk Power System reliability.
---------------------------------------------------------------------------
\40\ NERC Petition, Exhibit E (Summary of the Reliability
Standard Development Proceeding and Complete Record of Development
of Proposed Reliability Standard) section entitled ``Consideration
of Comments on Draft Standard'' at 91.
---------------------------------------------------------------------------
B. Process for Identifying ``Technically Justified'' Generating Units
in MOD-026-1
29. Proposed Reliability Standard MOD-026-1 applies to generating
units that are connected to the bulk electric system when ``technically
justified.'' Specifically, Applicability Section 4.2.4 allows a
transmission planner to compel a generator owner to provide model
reviews and related information in accordance with Requirement R5 if
the transmission planner's unit simulations do not match the generator
owner's measured unit data. Under such circumstances, generator owners
with ``technically justified'' units must comply with proposed
Reliability Standard MOD-026-1, even though the unit MVA rating is
below the stated MVA threshold for applicability.
30. While we agree with the intent of this section, the means by
which transmission planners would become aware of discrepancies between
simulated units and measured units, which forms the basis for
``technically justified'' determinations, is unclear. The technical
justification, or discrepancies between simulated units and measured
units, suggests that there should be some benchmark available in the
process by which transmission planners identify generator owners for
compliance with MOD-026-1. The Final Report on the August 2003 blackout
stated that ``the regional councils are to establish and begin
implementing criteria and procedures for validating data used in power
flow models and dynamic simulations by benchmarking model data with
actual system performance.'' \41\ The Commission seeks comment from
NERC and other interested parties as to whether the means or process
for transmission planners to determine whether a generator owner's unit
is ``technically justified'' is sufficiently clear and workable. We
further seek comment as to whether additional details regarding how the
process will be implemented should be included in an attachment to the
proposed Reliability Standard.
---------------------------------------------------------------------------
\41\ U.S.-Canada Power System Outage Task Force (Task Force),
Final Report on the August 14, 2003 Blackout in the United States
and Canada: Causes and Recommendations (April 2004) (Final Blackout
Report), Recommendation 24. The Final Blackout Report is available
on the Internet at https://www.ferc.gov/industries/electric/indus-act/blackout.asp.
---------------------------------------------------------------------------
C. Should Proposed Reliability Standard MOD-027-1 Include the
``Technically Justified'' Provision
31. Proposed Reliability Standard MOD-027-1 does not contain a
provision analogous to section 4.2.4 of MOD-026-1, whereby a
transmission planner may determine whether to subject a generator owner
with units falling below the stated applicability threshold to the
Requirements in proposed Reliability Standard MOD-026-1. We seek
comment as to whether the technical justification provision should also
be included in proposed Reliability Standard MOD-027-1 to provide an
opportunity for transmission planners to address discrepancies between
unit simulations and generator owners' measured unit data.
D. Violation Severity Levels
1. VSL for MOD-026-1, Requirement R6 and MOD-027-1, Requirement R5
32. For Requirement R6 of MOD-026-1 and Requirement R5 of MOD-027-
1, NERC proposes a ``severe'' violation severity level when a
transmission planner's written response that a Generation Owner's
verified model is useable ``omitted confirmation for all
[[Page 58497]]
specified model criteria'' in the requirement. NERC does not propose
any violation severity level for a violation of the last sentence of
these requirements: ``If the model is not useable, the [transmission
planner] shall provide a technical description of why the model is not
useable.'' Compliance with this sentence is equally important as
compliance with the other obligations of these Requirements. Lack of a
violation severity level for this type of violation is inconsistent
with our VSL Guideline 3 because the proposed violation severity levels
do not address all obligations in these Requirements. We propose to
direct that NERC submit a violation severity level that addresses a
violation of the last sentence of Requirement R6 of MOD-026-1 and
Requirement R5 of MOD-027-1.
2. VSL for PRC-024-1, Requirements R1 and R2
33. NERC proposes to assign a ``severe'' violation severity level
for a violation of Requirements R1 and R2 of PRC-024-1 when a generator
owner fails to set its generator frequency or voltage protective relays
so that they do not trip within the criteria listed within Requirements
R1 and R2 unless there is a documented and communicated regulatory or
equipment limitation per Requirement R3. We observe that Requirements
R1 and R2 of PRC-024-1 include three and four bulleted exceptions,
respectively, to the requirement that the generator frequency or
voltage protective relays not trip applicable generating unit(s) within
the ``no-trip zone'' of Attachment 1 or 2 to that standard. For
Requirements R1 and R2, only the third and fourth exception,
respectively, relate to a regulatory or equipment limitation in
accordance with Requirement R3. As a result, the wording of the
violation severity level for Requirements R1 and R2 could be read to
mean that a generator owner that set generator frequency or voltage
protective relaying to trip within the ``no-trip zone'' based on either
the first or second exception in Requirement R1 and either the first,
second or third exception in R2, violated that Requirement with a
severe violation severity level. To avoid that interpretation, NERC
should confirm in its comments that a generator owner will not violate
Requirement R1 or R2 if it sets generator frequency or voltage
protective relaying to trip within the ``no-trip zone'' based upon the
exceptions for Requirements R1 and R2.
IV. Information Collection Statement
34. The following collection of information contained in the
Proposed Rule is subject to review by the Office of Management and
Budget (OMB) under section 3507(d) of the Paperwork Reduction Act of
1995 (PRA).\42\ OMB's regulations require that OMB approve certain
reporting and recordkeeping requirements (collections of information)
imposed by an agency.\43\ Upon approval of a collection of information,
OMB will assign an OMB control number and expiration date. Respondents
subject to the filing or recordkeeping requirements of this rule will
not be penalized for failing to respond to these collections of
information unless the collections of information display a valid OMB
control number.
---------------------------------------------------------------------------
\42\ 44 U.S.C. 3507(d) (2006).
\43\ 5 CFR 1320.11 (2013).
---------------------------------------------------------------------------
35. The Commission will submit these reporting and recordkeeping
requirements to OMB for its review and approval under section 3507(d)
of the PRA. Comments are solicited on the Commission's need for this
information, whether the information will have practical utility, the
accuracy of the provided burden estimate, ways to enhance the quality,
utility, and clarity of the information to be collected, and any
suggested methods for minimizing the respondents' burden, including the
use of automated information techniques.
36. This Notice of Proposed Rulemaking proposes to approve five
proposed Reliability Standards: MOD-025-2, MOD-026-1, MOD-027-1, PRC-
019-1 and PRC-024-1. Proposed Reliability Standard MOD-025-2 would
replace currently effective Reliability Standards MOD-024-1 and MOD-
025-1. In Order No. 693, the Commission did not approve or remand MOD-
024-1 and MOD-025-1, as they were identified as ``fill-in-the-blank''
Reliability Standards for which NERC had not submitted regional
procedures.
37. Public Reporting Burden: The burden and cost estimates below
are based on the increase in the reporting and recordkeeping burden
imposed by the proposed Reliability Standards. Our estimate of the
number of respondents affected is based on the NERC Compliance Registry
as of July 30, 2013.\44\ According to the Compliance Registry, NERC has
registered 901 generator owners within the United States. Currently,
synchronous condensers are not included in the NERC Compliance
Registry, and the standard drafting team stated that the number of
transmission owners who own synchronous condensers is extremely low. We
seek NERC and industry comment regarding the number of synchronous
condensers currently in use (including confidential data, if
necessary).
---------------------------------------------------------------------------
\44\ NERC Compliance Registry (July 30, 2013), available at
https://www.nerc.com/pa/comp/Registration%20and%20Certification%20DL/NERC_Compliance_Registry_Matrix_Summary20130730.pdf.
\45\ GO = Generator Owner, TP = Transmission Planner.
Assuming 10 generators per generator owner, using EIA-860 2012
generator data (https://www.eia.gov/electricity/data/eia860/) total
number of units > 20 MW are 7,379, which results in 738 generator
owners.
\46\ The estimates for cost per hour are derived as follows:
$52/hour, the average of the salary plus benefits for an
engineer, from Bureau of Labor and Statistics at https://bls.gov/oes/current/naics3_221000.htm.
$70/hour, the average of the salary plus benefits for a manager
and an engineer, from Bureau of Labor and Statistics at https://bls.gov/oes/current/naics3_221000.htm.
$28/hour, based on a Commission staff study of record retention
burden cost.
---------------------------------------------------------------------------
38. The burden estimates reflect the standards and the number of
affected entities (e.g., the generator owner's one-time burden to
develop testing procedures, verification process, and process for
collection of data). Estimates for the additional burden imposed by the
NOPR, if approved as a final rule in RM13-16, follow.
--------------------------------------------------------------------------------------------------------------------------------------------------------
Number of Number of Average
FERC-725G respondents responses per burden hours Total annual Total annual cost \46\
\45\ respondent per response burden hours
(1) (2) (3) (1)x(2)x(3)
--------------------------------------------------------------------------------------------------------------------------------------------------------
PRC-019-1 (Coordination of Generating Unit or Plant Capabilities, Voltage Regulating Controls, and Protection)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Develop coordination and relay settings procedures........ 738 1 8 5,904 $307,008 one-time ($52/hr).
GO
[[Page 58498]]
Relay Settings............................................ 738 1 8 5,904 413,280 (70/hr).
GO
Evidence Retention \46\................................... 738 1 1 738 20,664 (28/hr).
GO
-------------------------------------------------------------
TOTAL................................................. .............. .............. .............. 12,546 740,952
--------------------------------------------------------------------------------------------------------------------------------------------------------
PRC-024-1 (Generator Frequency and Voltage Protective Relay Settings)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Develop coordination and relay settings procedures........ 738 1 8 5,904 307,008 one-time (52/hr).
GO
Relay Settings............................................ 738 1 8 5,904 413,280 (70/hr).
GO
Evidence Retention \46\................................... 738 1 1 738 20,664 (28/hr).
GO
-------------------------------------------------------------
TOTAL................................................. .............. .............. .............. 12,546 740,952
--------------------------------------------------------------------------------------------------------------------------------------------------------
--------------------------------------------------------------------------------------------------------------------------------------------------------
Number of Number of Average
FERC-725L respondents responses per burden hours Total annual Total annual cost \46\
\45\ respondent per response burden hours
(1) (2) (3) (1)x(2)x(3)
--------------------------------------------------------------------------------------------------------------------------------------------------------
MOD-025-2 (Verification and Data Reporting of Generator Real and Reactive Power Capability and Synchronous Condenser Reactive Power Capability)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Develop testing procedures, verification process, and 738 1 8 5,904 (one- $307,008 one-time ($52/hr).
process for collection of data....................... GO time)
Attachment 2.......................................... 738 1 6 4,428 309,960 (70/hr).
GO
Evidence Retention \46\............................... 738 1 1 738 20,664 (28/hr).
GO
-----------------------------------------------------------------
TOTAL............................................. .............. .............. .............. 11,070 637,632
--------------------------------------------------------------------------------------------------------------------------------------------------------
Develop testing procedures, verification process, and 356 1 8 2,848 (one- 148,096 one-time (52/hr).
process for collection of data....................... GO time)
Instructions for obtaining excitation control system 187 1 8 1,496 104,720 (70/hr).
or plant voltage/variance control function model..... TP
Documentation on generator verification............... 356 1 8 2,848 199,360 (70/hr).
GO
Evidence Retention \46\............................... 543 1 1 543 15,204 (28/hr).
GO and TP
-----------------------------------------------------------------
TOTAL................................................. .............. .............. .............. 7,735 467,380
--------------------------------------------------------------------------------------------------------------------------------------------------------
MOD-027-1 (Verification of Models and Data for Turbine/Governor and Load Control or Active Power/Frequency Control Functions)
--------------------------------------------------------------------------------------------------------------------------------------------------------
Develop testing procedures, verification process, and 356 1 8 2,848 (one- $148,096 one-time (52/hr).
process for collection of data....................... GO time)
Instructions for obtaining turbine/governor and load 187 1 8 1,496 104,720 (70/hr).
control or active power/frequency control model...... TP
Documentation on generator verification............... 356 1 8 2,848 199,360 (70/hr).
GO
Evidence Retention \46\............................... 543 1 1 543 15,204 (28/hr).
GO and TP
-----------------------------------------------------------------
[[Page 58499]]
TOTAL............................................. .............. .............. .............. 7,735 467,380
--------------------------------------------------------------------------------------------------------------------------------------------------------
TOTAL for RM13-16............................. .............. .............. .............. .............. $3,054,296 (1,837,080 without
one-time costs).
--------------------------------------------------------------------------------------------------------------------------------------------------------
Title: Mandatory Reliability Standards for the Bulk-Power System
Action: Proposed revisions to FERC-725A.
OMB Control No: 1902-0244
Respondents: Businesses or other for-profit institutions; not-for-
profit institutions.
Frequency of Responses: One-time, every five years, and every ten
years.
Necessity of the Information: The proposed approval of the five
Reliability Standards noted above implements the Congressional mandate
of the Energy Policy Act of 2005 to develop mandatory and enforceable
Reliability Standards to better ensure the reliability of the nation's
Bulk-Power System.
Internal Review: The Commission has reviewed the proposed approval
to the Reliability Standards and made a determination that its action
is necessary to implement section 215 of the FPA. The Commission has
assured itself, by means of its internal review, that there is
specific, objective support for the burden estimate associated with the
information requirements.
39. Interested persons may obtain information on the reporting
requirements by contacting the following: Federal Energy Regulatory
Commission, 888 First Street NE., Washington, DC 20426 [Attention:
Ellen Brown, Office of the Executive Director, email:
DataClearance@ferc.gov, phone: (202) 502-8663, fax: (202) 273-0873].
40. For submitting comments concerning the collection of
information and the associated burden estimates, please send your
comments to the Commission, and to the Office of Management and Budget,
Office of Information and Regulatory Affairs, Washington, DC 20503
[Attention: Desk Officer for the Federal Energy Regulatory Commission,
phone: (202) 395-4638, fax: (202) 395-7285]. For security reasons,
comments to OMB should be submitted by email to: oira_submission@omb.eop.gov. Comments submitted to OMB should include Docket
Number RM13-16-000 and OMB Control Number 1902-0252 and 1902-0261.
V. Regulatory Flexibility Act Certification
41. The Regulatory Flexibility Act of 1980 (RFA) \47\ generally
requires a description and analysis of proposed rules that will have
significant economic impact on a substantial number of small entities.
The RFA mandates consideration of regulatory alternatives that
accomplish the stated objectives of a proposed rule and that minimize
any significant economic impact on a substantial number of small
entities. The Small Business Administration's (SBA's) Office of Size
Standards develops the numerical definition of a small business.\48\
The SBA has established a size standard for electric utilities, stating
that a firm is small if, including its affiliates, it is primarily
engaged in the transmission, generation and/or distribution of electric
energy for sale and its total electric output for the preceding twelve
months did not exceed four million megawatt hours.\49\
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\47\ 5 U.S.C. 601-612 (2006).
\48\ 13 CFR 121.101 (2013).
\49\ 13 CFR 121.201, Sector 22, Utilities & n.1.
---------------------------------------------------------------------------
42. Proposed Reliability Standards MOD-025-2, MOD-026-1, MOD-027-1,
PRC-019-1 and PRC-024-1, MOD-025-2 help ensure that generators remain
in operation during specified voltage and frequency excursions,
properly coordinate protective relays and generator voltage regulator
controls, and ensure that generator models accurately reflect the
generator's capabilities and equipment performance. Comparison of the
NERC Compliance Registry with data submitted to the Energy Information
Administration on Form EIA-861 indicates that, of the 901 generator
owners in the United States registered by NERC, 49 qualify as small
entities (5.4 percent) and of the 184 of the transmission planners in
the United States registered by NERC, 42 qualify as small entities (22
percent). The Commission estimates that the small entities to whom the
proposed Reliability Standards PRC-019-1, PRC-024-1 and MOD-025-1
applies will incur compliance \50\ and record keeping costs \51\ of
$655,228 ($13,372 per generator owner). For the proposed Reliability
Standards MOD-026-1 and MOD-027-1, the Commission estimates that the
small generator owner entities (22) will incur compliance and record
keeping costs of $83,072 ($3,776 per generator owner). This will result
in a total compliance and record-keeping cost for generator owners of
$686,870 ($14,018 per entity). Additionally, small transmission planner
entities (42) will incur compliance and record keeping costs \52\ of
$47,040 ($1,120 per transmission planner).
---------------------------------------------------------------------------
\50\ Assuming 50 hours per generator owner for relay settings/
testing based on $70/hour.
\51\ This cost came from the above PRC-019-1, PRC-024-1, and
MOD-025-2 tables.
\52\ This cost came from the above MOD-026-1 and MOD-027-1
tables.
---------------------------------------------------------------------------
43. The Commission does not consider the estimated costs per small
entity to have a significant economic impact for a substantial number
of small entities. Accordingly, the Commission certifies that this
proposed rulemaking will not have a significant economic impact on a
substantial number of small entities. The Commission seeks comment on
this certification.
VI. Environmental Analysis
44. The Commission is required to prepare an Environmental
Assessment or an Environmental Impact Statement for any action that may
have a significant adverse effect on the human environment.\53\ The
Commission has categorically excluded certain actions from this
requirement as not having a significant effect on the human
environment. Included in the exclusion are rules that are clarifying,
corrective, or procedural or that do not substantially change the
effect of the regulations being amended.\54\ The actions proposed here
fall within this categorical exclusion in the Commission's regulations.
---------------------------------------------------------------------------
\53\ Regulations Implementing the National Environmental Policy
Act of 1969, Order No. 486, FERC Stats. & Regs., Regulations
Preambles 1986-1990 ] 30,783 (1987).
\54\ 18 CFR 380.4(a)(2)(ii).
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[[Page 58500]]
VII. Comment Procedures
45. The Commission invites interested persons to submit comments on
the matters and issues proposed in this notice to be adopted, including
any related matters or alternative proposals that commenters may wish
to discuss. Comments are due November 25, 2013. Comments must refer to
Docket No. RM13-16-000, and must include the commenter's name, the
organization they represent, if applicable, and their address in their
comments.
46. The Commission encourages comments to be filed electronically
via the eFiling link on the Commission's Web site at https://www.ferc.gov. The Commission accepts most standard word processing
formats. Documents created electronically using word processing
software should be filed in native applications or print-to-PDF format
and not in a scanned format. Commenters filing electronically do not
need to make a paper filing.
47. Commenters that are not able to file comments electronically
must send original and 14 copies of their comments to: Federal Energy
Regulatory Commission, Secretary of the Commission, 888 First Street
NE., Washington, DC 20426.
48. All comments will be placed in the Commission's public files
and may be viewed, printed, or downloaded remotely as described in the
Document Availability section below. Commenters on this proposal are
not required to serve copies of their comments on other commenters.
VIII. Document Availability
49. In addition to publishing the full text of this document in the
Federal Register, the Commission provides all interested persons an
opportunity to view and/or print the contents of this document via the
Internet through the Commission's Home Page (https://www.ferc.gov) and
in the Commission's Public Reference Room during normal business hours
(8:30 a.m. to 5:00 p.m. Eastern time) at 888 First Street NE., Room 2A,
Washington DC 20426.
50. From the Commission's Home Page on the Internet, this
information is available on eLibrary. The full text of this document is
available on eLibrary in PDF and Microsoft Word format for viewing,
printing, and/or downloading. To access this document in eLibrary, type
the docket number excluding the last three digits of this document in
the docket number field.
51. User assistance is available for eLibrary and the Commission's
Web site during normal business hours from the Commission's Online
Support at (202) 502-6652 (toll free at 1-866-208-3676) or email at
ferconlinesupport@ferc.gov, or the Public Reference Room at (202) 502-
8371, TTY (202) 502-8659. Email the Public Reference Room at
public.referenceroom@ferc.gov.
By the direction of the Commission.
Nathaniel J. Davis, Sr.,
Deputy Secretary.
[FR Doc. 2013-23169 Filed 9-23-13; 8:45 am]
BILLING CODE 6717-01-P
