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HomeMy WebLinkAboutIBT_guidance_v1Version 1  Modified 3/20/2009  1  Regulation of Surface Water Transfers  Statutory Guidance      In 1993, the North Carolina Legislature adopted the Regulation of Surface Water Transfers Act (G.S. §143‐ 215.22I).   The intent of the law is to regulate large surface water transfers between river basins.  It does  this by requiring a certificate from the Environmental Management Commission (EMC).  The act has been  modified several time since it was first adopted, most recently in 2007 when part .22I was repealed and  replaced with part .22L.      A unique feature of the IBT law is that certain sub‐basins are also defined as river basins.  According to  G.S. §143‐215.22G, there are 38 river basins (subbasins to the major river basins), rather than 17.  An IBT  certificate is required for any transfer, above the following thresholds, between any of these defined river  basins.    Water systems that meet the following criteria are required to apply for an Interbasin Transfer (IBT)  Certificate:  (1) Initiate a new transfer of at least 2 million gallons per day (MGD) of surface water from one  river basin to another;  (2) Increase an existing transfer by 25% or more above the average daily flow ( ADF)  transferred  from June 30, 1992‐ 1 July 1993 (if the total transfer including the increase is more than 2  MGD);  (3) Increase an existing transfer above the amount approved by the Commission in a certificate  issued prior to 1 July 1993.    Due to the fact that the Surface Water Transfer Act was first adopted in 1993, many of the IBT rules and  requirements reference a system’s daily flows and capacity at that time.  Facilities that were in existence  prior to 1993 are said to have Grandfathered Transfers up to either 25% above their ADF at that time,  their maximum system capacity at that time, or 2 MGD ‐  whichever is greater.  If a facility existed or was  under construction by July 1, 1993, a certificate is not required up to the full capacity of that facility to  transfer water, regardless of the transfer amount.      It is important to note that although North Carolina does allow systems to take water from one  river basin in order to meet needs in another, the needs of certain communities may take  precedence over others.  It is state policy that the foreseeable needs of systems serving areas  outside their source river basin are subordinate to the needs of systems serving areas within their  source river basin.    The procedure for obtaining an Interbasin Transfer Certificate is specifically laid out in G.S. §143‐215.22L.   The full process can take three to five years and offers a number of opportunities for public comment and  review.  Figure 1 is a schematic of the interbasin transfer certification process.    2  FIGURE 1 – IBT CERTIFICATION PROCESS FLOW CHART     II. Applicant submits draft environmental document (EIS or EA) 30 days notice of scoping meetings 3+ Public meetings held within 90 days of NOI submittal I. Applicant submits Notice of Intent to file a petition. 30 days notice of public hearing EMC holds a public hearing Comments accepted for 30 days after hearing EMC prepares written response to comments EMC determines adequacy of environmental document III. Applicant submits petition to EMC EMC issues Draft Determination within 90 days of receiving petition Public notice of draft determination and 30- day notice of hearings 2+ public hearings held within 60 days of draft determination Comments accepted for 30 days after last hearing EMC prepares written response to comments EMC issues final determination Comments accepted for 30 days after last meeting Settlement discussions, if requested. 3  An applicant for an Interbasin Transfer may be any “person” who transfers over 2 MGD (maximum daily  amount) of water .  Although the primary applicant does not need to be a public water system, the  statutes do prohibit reselling transferred water to any public water system not listed on the certificate as a  co‐applicant.  Therefore all public water systems having a foreseeable need to purchase transferred water  should become a co‐applicant to the certificate.    ʺPublic water systemʺ means a system for the provision to the public of water for human  consumption through pipes or other constructed conveyances if the system serves 15 or more  service connections or which regularly serves 25 or more individuals. The term includes:    a. Any collection, treatment, storage or distribution facility under control of the operator of  the system and used primarily in connection with the system; and  b. Any collection or pretreatment storage facility not under the control of the operator of the  system that is used primarily in connection with the system.  A public water system is either  a ʺcommunity water systemʺ or a ʺnoncommunity water systemʺ as follows:    a. ʺCommunity water systemʺ means a public water system that serves 15 or more  service connections or that regularly serves at least 25 year‐round residents.  b. ʺNoncommunity water systemʺ means a public water system that is not a community  water system.  ‐ G.S. §130A‐313       STEP I: NOTICE OF INTENT AND SCOPING MEETINGS    To begin the IBT Certification process, an applicant must submit a Notice of Intent to File a Petition (NOI)  to the EMC.  The primary applicant may file the notice on behalf of any co‐applicants.  The notice should  identify the proposed source water, source basin, receiving basin(s), and include a nontechnical  description of the request.     DWR staff recommends that the applicant be prepared to move forward with both the scheduling and  notice of the scoping meetings when submitting the NOI is submitted to the EMC.  Within 90 days after  the NOI is filed, the applicant is required to hold at least three public meetings:  • at least one in the source river basin, upstream from the proposed point of withdrawal;  • at least one in source river basin, downstream from the proposed point of withdrawal;   • and at least one in each receiving river basin.     The purpose of these meetings is to 1) to receive comments on the scope of the environmental documents  that the applicant will prepare and 2) provide information regarding the nature and extent of the  proposed transfer.    30 days written notice of the public meetings and the opportunity to comment must be provided as  described below in Table 1.  The notice should specifically include a request from the applicant for  comments on the alternatives and issues that should be addressed in the environmental documents.    The applicant must accept written comment on the scope of the environmental documents for a  minimum of 30 days following the last public meeting.  4  Table 1: IBT NOTICE REQUIREMENT CHECKLIST §143-215.22L(c) Subsection DESCRIPTION (1) Publish notice in the North Carolina Register1 (The register is published twice monthly- see http://www.oah.state.nc.us/rules/register/ for schedule of publication). Publish notice in a newspaper of general circulation2 in: (2)(a),(c),(e) Any NC county partially located within the source or receiving river basins. 2 (2)(b) Any (politically independent) city or county in any state that is located within both the source river basin and the extended IBT boundaries3. (2)(d) Any county (in any NC river basin) for which the source river basin has been identified as a future source of water in a local water supply plan. 2 Send notice via first-class mail or email to each of the following: (3)(a),(b) The board of commissioners of any NC county partially located within the source or receiving river basins, -AND- The governing body of any county (or politically independent city) in any state that falls within the source or receiving basins and the extended IBT boundaries.3 (3)(c) The governing body of any public water supply system that withdraws surface water from the source river basin. 2 (3)(d) All state water management or use agencies, environmental protection agencies, and the office of the governor in any state containing at least a portion of either the source or receiving river basins. (3)(e) Anyone who has registered a water withdrawal or transfer from the source river basin under NC statutes2 or under similar law in another state. (3)(f) Anyone who holds a certificate for a transfer from the source river basin under NC statutes2 or under similar law in another state. (3)(g) Anyone in the source river basin holding a National Pollutant Discharge Elimination System (NPDES) wastewater discharge permit for a discharge of 100,000 gallons per day or more. 2 (3)(h) To any other person who submits to the applicant a written request to receive notices relating to the petition.4 1 DWR staff will contact the Register to publish the notice once the applicant has provided the final language. 2 DWR staff will provide this information as it relates to entities in North Carolina. It is the applicant’s responsibility to collect any other information required by this statute. 3 Extended IBT boundaries included in Figure 2. 4 DWR staff will provide contact information for those individuals who have requested that the State notify them of Interbasin transfer issues. 5  Figure 2 6  STEP II: PREPARATION AND SUBMITTAL OF ENVIRONMENTAL DOCUMENTS    All applicants must prepare an environmental document in support of their petition.  The applicant  prepares this document on behalf of the Department for approval by the Environmental Management  Commission.  In all cases, the applicant must prepare an Environmental Assessment (EA), with an  Environmental Impact Statement (EIS) being additionally required for any transfer between the 17 major  river basins.    An EIS should address the following requirements, which are also set forth in G.S. §113A‐4 and §143‐ 215.22L(d):    1. A comprehensive analysis of the environmental impacts that would occur in the source and the  receiving river basins if the petition for a certificate is granted;  2. Any significant adverse environmental effects which cannot be avoided;  3. A description of measures to mitigate any adverse impacts that may arise from the proposed  interbasin transfer;  4. An evaluation of alternatives to the proposed interbasin transfer, including water supply options  that do not require an Interbasin transfer and use of water conservation measures.  5. The relationship between the short‐term uses of the environment involved in the proposed action  and the maintenance and enhancement of long‐term productivity and;  6. Any irreversible and irretrievable environmental changes which would be involved in the  proposed action should it be implemented.    The Commission is required to hold a public hearing on the draft environmental document.  Thirty‐days  notice of the hearing will be published via the Environmental Bulletin and as listed in Table 1.  Anyone  wishing to view the environmental document and submit written comments may do so.  The  Commission will accept written comments for 30 days after hearing.  After the public hearing the  Commission will prepare a record of all comments, including written responses to those questions posed  in writing.  The record will also include complete copies of scientific or technical comments related to the  potential impact of the interbasin transfer.     The Commission may not act on any petition until they have determined that the environmental  document is adequate.  Any decision made by the EMC regarding the adequacy of the environmental  document is subject to review if their final decision on the certificate is contested.          STEP III: PETITION    Although there is no application required to apply for an Interbasin Transfer Certificate, all applicants are  required to submit a petition.  The Division recommends that the applicant begin preparing its Petition  while the draft environmental document is being reviewed by the EMC.  A petition must include all of  the components listed in Table 2.  The petition must also be signed by all public water systems intending  to purchase or otherwise use the transferred water.5  5 The Division can assist the applicant by providing a current list of existing public water systems; however, the applicant will need to determine which current and future users should be included as co-applicants on the certificate. 7    TABLE 2 : PETITION REQUIREMENTS PROJECT OVERVIEW 9 A description of any facilities used to transfer water (including the location and capacity of water intakes, pumps, pipelines, etc.) 9 A description of all proposed consumptive and non-consumptive uses of the transferred water. WATER QUALITY 9 A summary of the water quality for both the source and receiving waterbodies, including any waters that are 303(d) listed for being impaired. 9 Information on aquatic habitats for rare, threatened, and endangered species in both the source and receiving waterbodies. 9 In-stream flow data for segments of the source and receiving waterbodies that may be affected by the transfer. 9 A demonstration that the proposed transfer, if added to all other existing and planned transfers (or registered withdrawals) in the source river basin, would not reduce the amount of available water to a degree that would impair existing uses, pursuant to NC’s antidegradation policy. This demonstration should also include: • Existing and planned consumptive uses in the source river basin; • Existing and planned nonconsumptive uses in the source river basin; • A finding that the transfer would not result in a water level inadequate to support existing uses of the reservoir (if the proposed transfer would impact a reservoir in the source basin). MITIGATION AND ANTIDEGRADATION 9 A description of water conservation measures in use by the applicant at the time of the petition and additional conservation measures that will be implemented if the certificate is granted. 9 A description of existing and future water transfers (or withdrawals) from the source river basin that are either registered or included in a local water supply plan (LWSP). WATER SUPPLY 9 A LWSP. If the plan is more than two years old, the petition should include an updated version. 9 An assessment of the applicant's future water supply needs. 9 A summary of present and future water supply needs, as identified in LWSPs, for public water systems within the source river basin. This analysis should include agricultural, recreational, and industrial uses, as well as electric power generation. 9 A description of existing, planned, and potential sources of water within the receiving river basin that are a practicable alternative to the proposed transfer. This should include surface water impoundments, groundwater wells, reinjection storage, and purchases. OTHER 9 Any other information deemed necessary by the Commission for review of the proposed water transfer. • A compliance and monitoring plan • Water balance table showing how increase in water use and transfer change over time.     The applicant, any interested party, the Department, or the Commission may request a settlement  discussion.  In this event, the Commission will appoint a mediator who may be a member of the  Commission, an employee of the Department, or a neutral third party.  The mediator may not be  someone who has served or will serve as a hearing officer.    8  The mediation officer will make all reasonable efforts to initiate settlement discussions between the  applicant and all other interested parties.  Nothing occurring during the settlement discussions may be  subject to discovery.  All statements or conduct by a party, the mediation officer, or other persons are  inadmissible in any subsequent proceedings on the petition.         STEP IV: DRAFT DETERMINATION    Within 90 days after applicant submits its petition, the Commission will issue a draft determination on  whether or not to grant the certificate.     The draft determination must include the same conditions and limitations, findings of fact, and  conclusions of law that would be required in a final determination.  The Commission will give notice of  the draft determination as previously described in Table 1.    Within 60 days of the issuance of the draft determination, the Commission will hold several public  hearings:  • At least one in the affected area of the source river basin,   • at least one in the affected area of the receiving river basin(s),  • additional hearings based on various interests of either upstream or downstream parties  potentially affected by the proposed transfer.    Thirty‐day written notice of the public hearing will be provided (as described in Table 1) and written  comments on the draft determination will be accepted for a minimum of 30 days following the last public  hearing.  After the public hearings, the Commission will again prepare a record of all comments, which  will include written responses to those questions posed in writing.  The record will also include complete  copies of scientific or technical comments related to the potential impact of the interbasin transfer.         STEP V:  FINAL DETERMINATION    In determining whether or not to issue a certificate, the Commission is required by law to consider  specific documents, factors, and adhere to a burden of proof.  Each of these requirements is explicitly  defined by regulation.    A. Documents.  The Commission is required to reference each of the following documents:   1. Petition;  2. Environmental document prepared by the applicant;  3. Information on the water quality of the source and receiving river basins;   Including waters that are identified as impaired, that are subject to a total maximum daily load (TMDL),  or that would have their assimilative capacity impaired if the certificate is issued.  4. All oral and written comments;  5. Any other information that the Commission determines to be relevant and useful.      9  B.  Findings of Fact.  The Commission is required to consider each of the following factors and state, in writing, Findings of  Fact and Conclusions of Law with regard to each:  1. The necessity and reasonableness of both the amount of water to be transferred and its  proposed uses;  2. The present and reasonably foreseeable6 detrimental impacts on the source and receiving river  basins, including:   6 LWSPs are to estimate future water needs, however other more recent information may be used if the EMC finds it reliable. • Present and future effects on water supply  needs (public, industrial, economic,  recreational, and agricultural)  • Wastewater assimilation  • Water quality  • Fish and wildlife habitat  • Electric power generation  • Navigation  • Recreation  This determination should also include specific findings about measures that would avoid the above  detrimental impacts.  3. The cumulative effect of any existing/proposed water transfer or consumptive use (in the  source basin) on the source major river basin;  4. The availability of reasonable alternatives to the proposed transfer (not limited to those  proposed by the applicant), including the potential capacity of alternative water sources, the  potential of each alternative to either reduce or avoid the proposed transfer, probable costs, and  environmental impacts. The final determination must also include specific findings on the  following issues related to alternatives:  • Why the applicantʹs need for water cannot be satisfied by alternatives within the receiving  basin (including unused capacity under an existing transfer certificate);   • The extent to which access to potential surface and ground water sources within the  receiving river basin is no longer available due to depletion, contamination, or the  declaration of a capacity use area;  • The feasibility of purchasing water from other suppliers in the receiving basin and of the  transfer of water from another sub‐basin within the receiving major river basin.  When  technically and economically feasible, the Commission must give preference to alternatives  involving transfers within the major receiving river basin;  5. The applicantʹs right of withdrawal and present/proposed usage of impoundment storage;  6. The storage allocations (and purposes) for any water, withdrawn or transferred, that would be  stored in a multipurpose reservoir constructed by the United States Army Corps of Engineers;  7. Whether the service area of the applicant is located in both the source river basin and the  receiving river basin;  8. Any other facts and circumstances that are reasonably necessary to meet regulatory  requirements.    10  C.  Burden of Proof  The Commission will to grant a certificate if it finds that the applicant has established, by a  preponderance of evidence, all of the following:  1. The benefits of the proposed transfer outweigh its detriments (decision guided by the approved  environmental document).  2. Any detriments have been (or will be) mitigated to the maximum degree practicable.  3. The amount of the transfer does not exceed the amount of the projected shortfall under the  applicantʹs water supply plan.  This determination should take into account all other sources of  water that are available to the applicant.  4. There are no reasonable alternatives to the proposed transfer.    STEP VI: CERTIFICATE CONDITIONS AND LIMITATIONS    The Commission may choose to grant the certificate in whole, in part, or deny the certificate. They may  also impose any conditions or limitations that they find necessary, including placing a limit on the time  period that the certificate is valid.  One particular requirement is that the conditions include mitigation  measures to minimize detrimental effects in the source and receiving river basins.  In addition, the  certificate requires all of the following:     (1) A water conservation plan specifying measures to be implemented by the applicant, to ensure  efficient use of the transferred water in the receiving basin. Except in circumstances of technical  or economic infeasibility, or adverse environmental impact, the water conservation plan shall  require measures that equal or exceed the most stringent conservation plan implemented by a  community water system withdrawing from the source river basin.    (2) A drought management plan that specifies how the transfer will be managed during drought  conditions or other emergencies. Except in circumstances of technical or economic infeasibility, or  adverse environmental impact, this plan will include mandatory reductions based on the severity  and duration of a drought in the source river basin.  The plan must also equal or exceed the most  stringent water conservation plan implemented by a community water system withdrawing  water from the source river basin.    (3) A limit on the maximum daily water transfer.  The certificate must also include specific  methods or devices to measure the amount of water transferred.    (4) A provision that the Commission may amend a certificate to reduce the authorized transfer  whenever it appears that an alternative source of water is available to the certificate holder from  within the receiving river basin.  This may include, but not be limited to, the purchase of water  from another supplier within the receiving basin or the transfer of water from another sub‐basin  within the receiving major river basin.    11  (5) A provision that the Commission may amend the certificate, at any time, to reduce the  authorized transfer if they find that the applicantʹs projected water needs are less than the  projected needs as defined at the time the certificate was granted.    (6) A requirement that the certificate holder report the quantity of water transferred during each  calendar quarter. The report should be submitted to the Commission no later than 30 days after  the end of the quarter.    (7) A provision that the applicant will not sell transferred water to another public water supply  system in the receiving basin that is not listed as a co‐applicant on the certificate.     When any transfer equals or exceeds eighty percent (80%) of the amount authorized in the certificate, the  applicant must submit a detailed plan to the Commission specifying how future water needs will be  addressed.  The applicant must begin implementing the plan when the transfer equals or exceeds ninety  percent (90%) of the authorized amount.      Any final decision by the Commission may be subject to both administrative and judicial reviews.   Anyone wishing to appeal the EMC’s decision may do so by contacting the Office of Administrative  Hearings.