HomeMy WebLinkAboutagenda.council.worksession.20111212 MEMORANDUM
TO: Mayor and City Council
FROM: David Hornbacher, Director of Utilities and Environmental
Initiatives
THROUGH: Randy Ready, Assistant City Manager
DATE OF MEMO: December 8, 2011
MEETING DATE: December 12, 2011
RE: Castle Creek Energy Center — Work Session Materials
SUMMARY: Staff will present information related to the Castle Creek Energy Center (CCEC)
to City Council at the December 12, 2012 work session covering three main topics being:
Renewable Energy, Slow Start, and Project Financials. The attached supporting documents
are a basis to facilitate the detailed dialog of these complex issues with Council at the work
session.
BACKGROUND: In 2007, 72% of City voters approved issuance of bonds to construct the
Castle Creek Energy Center, and 77% of voters approved the land exchange to acquire
replacement open space. October 18, 2010, a draft application for exemption of small conduit
hydroelectric facilities was submitted to FERC for comment. On March 22, 2011, Staff
participated in an independent Community Mediation Session. City Council directed staff on
April 26, 2011 to pursue discussions with FERC, Pitkin County and American Rivers for support
of a Minor Water Power Project (MWPP) license application, instead of the conduit exemption
request.
On May 25, 2011, results of the Community Mediation session were released and the report
included a statement of support to pursue conversion to a Minor Water Power Project license
application including the appropriate level of environmental analysis and federal review. On
October 24, 2011 Council gave direction to make application to FERC for a Minor Water Power
Project License, and approved the Memorandum of Understanding with the Colorado Division of
Wildlife including the Stream Health Monitoring Program. On October 24, 2011, City Council
approved on 1 Sl Reading the Land Use Review ordinance for the Castle Creek Energy Center.
CURRENT ISSUES:
Renewable Energy
The City of Aspen Canary Initiative launched the Canary Action Plan in year 2007 as a catalyst
and template of actions and behavioral changes necessary to aggressively reduce Aspen's carbon
Page 1 of 3
footprint and to protect our community's future. Developing renewable electric energy resources
is an integral part of the strategies necessary to meet plan goals. To that end, City staff has
implemented changes in the City's energy portfolio, including growing such renewable energy
sources as wind and hydroelectric to achieve a 75% renewable level. The Castle Creek Energy
Center continues our forward progress by adding 8% towards a sustainable goal of 100%
renewable energy.
The work session discussion will examine the broad benefits and positive environmental
contributions of this project as well as other renewable energy opportunities. Attachment A
contains several relevant excerpts from the Canary Action plan. There are several other
renewable energy alternatives that are worthy of consideration in addition to the Castle Creek
Energy Center in order to reach the goal of 100% renewable energy within the Aspen electric
service area. Those alternatives will also be important ways to help decrease the carbon footprint
within the Holy Cross service area, as well.
Slow Start and Incremental Operations
In September 2010 City Council agreed to a delay of the land planning process to facilitate an
independent Community Mediation Session. City Staff and other community members were
invited to participate in this session held March 22, 2011. The outcome was released to the
Public on May 25, 2011 through the session Mediator, Owen Olpin, and attached (Attachment
B).
One result from the mediation session involves the City adjusting its direction in the FERC
review and approval process from a Conduit Exemption to application for a Minor Water Power
Project license.
Another recommendation of the mediation session is a precautionary and incremental "slow
start" to hydropower diversion. The general principles of the slow start will be discussed at the
work session and are included in Section 6 of the proposed Ordinance for the land planning
approval for the CCEC building. These principles will be further refined as part of a process to
establish an Intergovernmental Agreement (IGA) with Pitkin County for the Castle Creek Energy
Center Operating Protocol, as well as through the FERC licensing process.
Prior to the proposed operation of the CCEC, three years of annual data will have been collected
and analyzed using science -based methodology. Ongoing results of the monitoring of the
fisheries and stream habitat will determine the energy production levels of the facility. Further,
the monitoring program developed with the Colorado Division of Wildlife provides for adaptive
management and adjustment of hydroelectric operations to fully ensure the health of the streams.
Although the City is not alone in ownership of water rights along Castle Creek and Maroon
Creeks, the City is taking unprecedented steps to protect the stream though the slow start, robust
monitoring plan and adaptive management, stream studies, and science based review through a
Board of Experts. Attachment C listing the over 250 water rights on these two streams is
provided for reference.
Page 2 of 3
Finance and Economic Analysis
The City operates two hydroelectric plants and purchases its remaining energy supply needs
from the Municipal Energy Agency of Nebraska (MEAN). Energy produced from the Castle
Creek Energy Center would directly reduce these purchases. Further, the CCEC is a local facility
directly connected to the local electric distribution system, eliminating the energy losses and
associated cost to transport power to Aspen. The economic analysis examines and compares the
costs attributed the Castle Creek Energy Center vs. continued coal fired energy production
purchases.
Attachment D includes:
1) Graphic representation of the Cumulative Loss /Profit for a broad range of economic
scenarios. The worst case (red line) example assumes a minimal increase in the cost of
coal at 1% per year, and that production from the CCEC would never increase from the
initial precautionary slow start level of 34% below full production. The second (blue
line) example projects the cost of coal fired energy increasing at an inflationary rate of
2% per year, and the CCEC production moving from the slow start over a 6 year period
to full production. The third (green line) optimistic case assumes a 3% annual increase in
the cost of coal energy, and a 6 year period from slow start to full production.
2) Updated CCEC Project Budget
3) Economic Analysis and Return on Investment - the 3 comparisons assume a 2%
inflationary cost of coal fired energy and vary by three different energy production levels
being: a) 6 year ramp up of operations to 100 %; b) At 3years, progress from the slow
start 34% reduction to a 17% reduction, remaining at a 17% reduction for the life of
project; and c) Initial slow start reduction of 34% remaining in place permanently.
During the 1980's the City constructed the Ruedi Reservoir and the Maroon Creek hydroelectric
plant. The debt used to build these City -owned facilities is paid in full and they continue to
deliver renewable energy to the community as long -term taxpayer -owned investments.
Attachment E depicts the progress of the Ruedi hydropower plant from its initial operation
through full payment of debt service, to today as it delivers renewable energy at a cost below
coal -fired energy from our supplier. The decision to build the Ruedi hydroelectric plant has
resulted in low cost energy which contributes to the City maintaining the 6th lowest residential
electric rates in the state (Attachment F).
ATTACHMENTS:
A: Excerpts from the Canary Action Plan.
B: Report of Community Mediation Session on the proposed Castle Creek Hydro Project, May
25, 2011
C: Castle Creek and Maroon Creek Water Rights Tabulation, Division 5
D: Castle Creek Energy Center Economic Analysis
E: Ruedi Reservoir Hydroelectric Plant
F: Colorado Association of Municipal Utilities Residential Rate Comparison
Page 3 of 3
Attachment A: Excerpts from May 2007, City of Aspen Canary Initiative, Climate Action Plan
Pagel
Global climate change presents one of the foremost economic, social and environmental threats to
the new century. Increasing concentrations of greenhouse gases in the atmosphere are causing
higher temperatures. These increases are expected to lead to: more frequent intense storms, rising
sea levels, changes in precipitation, snow pack and water availability, biodiversity loss, species
extinction, changes in infectious disease incidence, increases in mortality due to heat stress, and
humandis placement.
The scientific community agrees that human activities are almost certainly contributing to the rise in
global temperature. The release of carbon dioxide into the atmosphere through burning fossil fuels
to generate electricity, manufacture goods, heat our homes, power our transportation, and grow our
food is trapping additional heat in the atmosphere, thus causing global warming.
Global warming is more than a quality of life issue. It is about our future ability to live and how that
future rests on the choices we make in our daily lives. In order to address the threats presented by
global climate change, governments, businesses and the individual citizen must take action now and
into the future. The City of Aspen recognizes the need to address the political challenges we face
head -on, with facts and figures, and with an action agenda that involves the entire community. This
Canary Action Plan seeks to fulfill our fundamental desire to continue to raise the standard of living
by taking an active, responsible approach to protect our environment, increase our economic
prosperity, and foster a sustainable community. Only by taking action now can we fulfill the desire
to provide future generations with the same quality of life we enjoy.
"People say time changes things, but really you have to
change them yourself.
-Andy Warhol
•
Page 28
D. Electricity
Aspen Electric provides renewable energy at no additional charge to the customer. Holy Cross
Energy offers customers the option of purchasing electricity from renewable sources.
Principles for Reducing Building Energy Use:
1. Support environmentally responsible, sustainable energy sources such as solar, wind, geothermal,
biomass, and small hydroelectric power plants.
2. Meet all growth in electricity demand since 2004 with new, zero - carbon dioxide sources of
electricity with an end goal of 100% renewable energy by 2015. •
May 25, 2011
OWEN OLPIN, MEDIATOR
SOUTH FISH CREEK RANCH,P.O. BOX 10
TEASDALE, UTAH 84773
•
CITY OF ASPEN'S PROPOSED CASTLE CREEK HYDRO•PRO 'CT •
To the Citizens of the City of Aspen and Pitkin County
•
It is my privilege to present the Report of a community mediation convened to
examine and develop principles and procedures to address concerns that have arisen over
the City of Aspen's proposed Castle Creek Hydro Project. Those concerns have centered
on potential impacts on the stream health of Castle and Maroon Creeks, the City's strong
corntnitnent to develop renewable energy in response to the imperatives of global
climate change, and the appropriate intensity of environmental review and analysis to be
undertaken by the Federal Energy Regulatory Commission in Project approval
proceedings. The Report sets forth consensus recommendations of the mediation
Participants on those important matters.
The twelve distinguished mediation Participants are identified in the attachment to ;
the Report, as are the highly qualified Experts who made their expertise available to and •
deliberated th&:Participants-
A Public Forum will be held on June 16, 2011, from 5:30 to 8:00 pm. in the
Paepcke Auditorium at the Aspen Institute to provide further information and afford
'concerned citizens the opportunity to ask questions and express views on the proposed
Project and its potential impacts.
it has, indeed, been my privilege to serve as mediator and strive with the
Participants and Experts as they worked diligently and probed deeply to achieve
• consensus in fashioning the recommendations set forth in the Report. There is also need
. to salute Tim McFlynn and Ruthie Brown for their tireless efforts in convening and
carrying out the mediation that led to the Report.
fully submitted,
Owen Olpin, Mediator
•
REPORT
OF
COMMUNITY MEDIATION SESSION
ON THE PROPOSED
CASTLE CREEK HYDRO PROJECT
(MARCS22, 2011 AT THEASPENIN4TITUTE)
MAY 25, 2011
1
Introduction
On March 22, 2011, a small number of nonprofit and community leaders and
concerned landowners met privately at the Aspen Institute with City of Aspen
senior staff to address issues raised by individuals and organizations
objecting to the proposed Castle Creek Hydro Project ( "Project"). The all -
day meeting was mediated by Mr. Owen Olpin. The participants were
benefited greatly by collaboration among and contributions from the experts
advising the City and the independent experts who had reviewed the Project
on behalf of the Pltkin County Healthy Rivers & Streams Program.
Participants, Experts and other attendees are Ilsted on Attachment "A ".
This Report has been prepared to summarize the recommended guiding
Principles for City decision- making on the Project and on the path forward
on two pivotal issues: streamflow protection and environmental review by the
Federal Energy Regulatory Commission ('°FERC ").
Statement of Principles
The City of Aspen's continued leadership is imperative in its Canary
Initiative programs and other projects that reduce carbon emissions,
developed and approved through a community- driven and ecologically
responsible public process. Decision- making on the proposed Project should
be informed by science as well as by (a) the urgency and magnitude of the
global climate crisis, (b) guaranteed protection of stream flows sufficient to
ensure true stream health in both Castle and Maroon Creeks, and (c) legal
protection of water rights held by the City of Aspen.
Healthy Streams
A precautionary and incremental approach to any and all Project operations
is imperative, in order to ensure that healthy functioning stream ecosystems
in both Castle and Maroon Creeks are fully protected from adverse impacts
by Project operations.
The centerpiece of an operating protocol suggested by the City, well - received
by the Participants, and the subject of ongoing collaborative review, analysis
and refinement by both the City and the Healthy Rivers experts, is a "slow
start" with small incremental increases in hydropower diversions, as
warranted by rigorous ongoing monitoring and as approved in advance by
the Project oversight Board of Experts. Project oversight in this suggested
protocol would be vested in a three member Board of fisheries/stream health
experts with one member representing Pitkin County's Healthy Rivers and
2
Streams, one member representing the Colorado Division of Wildlife and one
member representing the City of Aspen. To insure both public participation
in and the transparency of Project oversight, the Board of Experts wiH hold
open meetings, post baseline and monitoring data on its website, and give
notice of opportunities for public input to all interested parties requesting
same. Some Participants suggested adding one or more citizen members to
the Board of Experts.
The Board of Experts by unanimous consensus would (a) approve in advance
the details of the initial "slow start" of hydropower diversions and specify, as
well as modify from time to time as needed, the details of a rigorous
monitoring plan including the impacts to be monitored; (b) make regular and
ongoing determinations regarding the Project's effects on stream health
based upon data collected pursuant to the monitoring plan; and (c) impose
such additional limitations upon Project operations and diversions as may be
required to fully protect healthy functioning stream ecosystems. Such an
operating protocol would be legally binding and enforceable as an express
condition of the FERC approval, as a specific condition of land use approval
within the City Ordinance approving the Castle Creek Energy Center, and as
either an inclusion in the stipulated diligence decree concerning the City's
water rights or a separately executed contract between the City and Pitkin
County, whichever is more appropriate.
FERC Exemption or Licensing
The Participants are aware of the issues associated with the FERC exemption,
permitting or licensing process. The Participants' interest is limited to
ensuring that the environmental safeguards on this Project are at least as
comprehensive and rigorous as the most stringent of any FERC licensing
process appropriate to a Project of this size and scope.
The Participants support the City's decision to pursue a conversion of its
FERC application for a small conduit exemption to a minor water power
project license application (1.5 MW or less) as defined in 18 CFR 4.30 (B)(17),
including the appropriate level of NEPA analysis and review (not less than an
Environmental Assessment).
Next Steps
The Participants urge City collaboration with organizations like American
Rivers, Healthy Rivers & Streams, and other sources of expertise and
experience, to the end that an exemplary level of environmental responsibility
for Castle and Maroon Creeks characterizes this Project going forward. All
3
Participants also support one or more open Public Meetings on the important
issues raised by the Project including but not limited to environmental
responsibility, renewable energy generation, climate change, fiscal
responsibility, and the historic legacy of the City of Aspen. To attract broad
participation, such meetings should be planned as well as attended by
interested landowners and citizens, river conservation and renewable energy
organizations, the City of Aspen and its Utilities and Renewable Energy
Department, and the Pitkin County Healthy Rivers and Streams program.
Mediator's Comment
The Mediator has reviewed this Report and believes that it fairly and
adequately summarizes the results of the March 22, 2011 session at The
Aspen Institute and continued collaborative efforts through the date of this
Report. The Mediator compliments all the Participants and Experts for their
constructive and collaborative work together and for their civility in
addressing a tough and complex problem.
•
4
Attachment "A"
Mediator
Owen Olpin, Esq.
Teasdale, UT
Participants
Steve Barwick
City Manager
Aspen, CO
Bill Budinger
The Rodel Foundations
Aspen; CO
Tom Cardamone
Executive Director
Aspen Center for Environmental Studies
Aspen, CO
Sharon Clarke
Land and Water Conservation Specialist
Roaring Fork Conservancy
Basalt, CO
Al Dietsch
Citizen
Aspen, CO
John Ely
Healthy Rivers & Streams Program
Pitkin County
Aspen, CO
5
Connie Harvey
Maroon Creek Landowner
Aspen Co
David Hornbacher
Director
Utilities and Renewabies
Aspen, CO
John Katzenberger
Director
Aspen Center for Global Change
Basalt, CO
Nathan Ratledge
Director
Community Office for Resource Efficiency
Aspen, CO
Will Roush
Castle Creek Landowner
Aspen CO
Auden Schendler
Vice President of Sustainability
Aspen Skiing Company
Aspen, CO
6
Healthy Rivers & Streams Experts
Greg Espergren, PhD
Aquatic Biologist
Trout Unlimited
Eagle, CO
Kurt Johnson
Hydropower Consultant
Telluride Energy
Telluride, CO
Sarah Klahn, Esq.
Water Lawyer
White & Jankowski
Denver, CO
Lee Rozaklis. PE
Hydrology and Water Engineering
Hydrosphere /AMEC
Boulder, CO
City of Aspen Experts
Cindy Covell, Esq.
Water Lawyer
Alperstein & Covell
Denver, CO
Bill Miller, PhD
Senior Aquatic Ecologist and President
Miller Ecological Consultants
Denver, CO
7
Karl Kumli, Esq.
Energy, Water and Public Utilities Lawyer
Dietze & Davis, P.C.
Boulder, CO
Kerry Sundeen
Hydrologist and President
Grand River Consulting
Glenwood Springs, CO
Conveners
Ruthie Brown
Co- Convener
Aspen, CO
Tim McFlynn
Co- Convener
Aspen, CO
Raporteur
Olivia Katz
Aspen, CO
8
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