12-003369EPP In Re: Tampa Electric Company, Polk Power Station, Polk 2-5 Combined Cycle Conversion Project vs. *
 Status: Closed
Recommended Order on Friday, August 23, 2013.


View Dockets  
Summary: It is recommended that the Siting Board certify the Project because it favorably satisfies all of the statutory factors that are to be considered under section 403.509(3), Florida Statutes.

1STATE OF FLORIDA

4DIVISION OF ADMINISTRATIVE HEARINGS

8IN RE: TAMPA ELECTRIC COMPANY,

13POLK POWER STATION, POLK 2 - 5

20COMBINED CYCLE CONVERSION Case No. 12 - 3369EPP

28PROJECT

29_______ /

31RECOMMENDED ORDER ON CERTIFICATION

35The certi fication hearing in this case was held on June 25 -

4826, 2013, in Lithia and Bartow, Florida, before Bram D. E.

59Canter, an Administrative Law Judge of the Division of

68Administrative Hearings (ÐDOAHÑ).

71APPEARANCES

72For Tampa Electric Company:

76Lawrence N. Curti n, Esquire

81Holland & Knight LLP

85315 South Calhoun Street, Suite 600

91Tallahassee, Florida 32301

94For the Department of Environmental Protection:

100Toni Sturtevant, Esquire

103Department of Environmental Protection

107Mail Station 35

1103900 Commonwealth Boulevard

113T allahassee, Florida 32399 - 3000

119For Hillsborough County:

122Marva M. Taylor, Esquire

126Hillsborough County Attorney's Office

130601 East County Boulevard

134County Center 27th Floor

138Tampa, Florida 33602 - 4156

143STATEMENT OF THE ISSUE

147The issue to be determined i n this proceeding is whether the

159Governor and Cabinet, sitting as the Siting Board, should certify

169the Polk 2 - 5 Combined Cycle Conversion Project (ÐProjectÑ) of

180Tampa Electric Company ("TEC"), including its associated

189electrical transmission lines, subject to the proposed Conditions

197of C ertification.

200PRELIMINARY STATEMENT

202On October 4, 2012, TEC filed its Application for Site

212Certification ("Application") with the Florida Department of

221Environmental Protection ("Department"). The Application was

229distribut ed to various agencies for review. The Department

238determined the Application was complete on December 17, 2012.

247On January 28, 2013, following the submittal of reports and

257proposed conditions for certification from the reviewing

264agencies, the Department issued its Project Analysis Report for

273the transmission line portion of the Project and, on April 26,

2842013, issued its Project Analysis Report for the power plant

294portion of the Project. The reports included the Department's

303recommended Conditions of Cert ification. On May 21, 2013, the

313Department filed a revised Project Analysis Report.

320Hillsborough County, the Florida Fish and Wildlife

327Conservation Commission ("FWC"), and the Southwest Florida Water

337Management District ("SWFWMD") each filed notices of i ntent to be

350parties. Of these agencies, only Hillsborough County appeared at

359the hearing.

361Hillsborough County requested that a p ublic h earing be held

372within its boundaries so that members of the public who are not

384parties to the certification hearing wou ld have an opportunity to

395provide testimony regarding the proposed transmission line

402corridors. The request was granted and the hearing was held on

413June 25, 2013, in Lithia. Public testimony was received and

423Public Testimony Composite Exhibit 1 was recei ved into the

433record.

434On June 26, 2013, the certification hearing was held in

444Bartow. TEC presented the testimony of eleven witnesses and

453TEC/Department Joint Exhibits 1 - 4 and TEC Exhibits 1 - 55 were

466admitted into evidence. The Department presented the tes timony

475of two witnesses and Department Exhibits 1 - 5, 6A, 6B, 7, and 8

489were admitted into evidence. No other party presented testimony

498or exhibits. Following the hearing, TEC requested and was

507allowed to supplement TEC/Department Joint Exhibit 4.

514The Tra nscripts of the public hearing and certification

523hearing proceeding were filed with DOAH. TEC and the Department

533filed a joint proposed recommended order, which has been

542considered in the preparation of this Recommended Order.

550FINDINGS OF FACT

5531. The p arties stipulated there are no disputed issues of

564fact.

5652. TEC is an investor - owned electric utility regulated by

576the Florida Public Service Commission. It is headquartered in

585Tampa and has supplied electricity to customers in the Tampa Bay

596area since 18 99.

6003. TEC's electric service territory covers approximately

6072,000 square miles and includes all of Hillsborough County and

618portions of Polk, Pasco, and Pinellas Counties. TEC has five

628generating stations, Big Bend, HL Culbreath Bayside, JH Phillips,

637Pol k Power Station, and Partnership Station. The Project is

647proposed for the Polk Power Station.

653Existing Facilities

6554. The Polk Power Station was certified pursuant to the

665Power Plant Siting Act in January 1994. It is located in

676southwest Polk County, 17 miles south of the City of Lakeland and

68828 miles southeast of the City of Tampa. The original site

699consists of 4,348 acres bordered by the Hillsborough County line

710on the west; County Road 663 (Fort Green Road) on the east;

722County Road 630, Bethlehem Road , and Albritton Road on the north;

733and State Road 674 and several former phosphate clay settling

743ponds on the south.

7475. The Polk Power Station has five electric generating

756units and associated facilities. Polk Unit 1 is 260 megawatt

766integrated gasificati on combined cycle facility fired with

774synthesis gas or ÐsyngasÑ produced by gasifying coal and other

784solid fuels. Polk Units 2 through 5 are 165 megawatt simple

795cycle combustion turbine generators fueled primarily with natural

803gas.

8046. Support facilities at the Polk Power Station include a

814755 - acre cooling reservoir, oxygen blown gasifier, air separation

824unit, sulfuric acid plant, slag byproduct storage area, and

833switchyard. The station is served by four 230 kilovolt (ÐkVÑ)

843transmission circuits, a railr oad line, and a natural gas

853pipeline. Water is supplied from four onsite groundwater wells

862for the cooling water reservoir and other plant processes. Other

872existing facilities include an administration building, control

879room, warehouse, and construction management building.

885The Proposed Project

888Need

8897. On January 8, 2013, the Florida Public Service

898Commission issued its Final Order Granting Certification of Need

907for Polk 2 - 5 Combined Cycle Conversion. The Commission

917determined that the most cost effecti ve and reliable alternative

927to meet future power needs is the construction of the Project at

939the Polk Power Station. The Commission ' s Final Order is

950TEC/Department Joint Exhibit 2.

9548. Among other findings, the Commission determined that the

963Project would improve fuel diversity and supply reliability,

971incorporate renewable energy and conservation factors, and is

979needed to maintain electric system reliability and integrity.

987Power Generation

9899. The Project involves the conversion of the four existing

999simple cycle combustion turbine generator units to combined cycle

1008operation. The Project would be a four - on - one combined cycle

1021unit consisting of the four existing combustion turbine

1029generators, each combined with a new heat recovery steam

1038generator, and a new steam turbine generator.

104510. The Project would achieve improved efficiency in

1053electrical power generation. When operated in a simple cycle

1062mode, a combustion turbine generator releases hot gases to the

1072atmosphere. In the proposed combined cycle configur ation, this

1081exhaust heat would be routed to the heat recovery steam

1091generators and the steam produced by the heat recovery generators

1101would be routed to the new steam turbine generator to produce

1112additional electricity.

111411. The Project is designed to allo w the combustion turbine

1125generators to be operated in simple cycle mode when the steam

1136turbine generator is not in service. The combustion turbine

1145generators may also be operated in simple cycle mode to meet peak

1157power demands.

115912. The conversion would i ncrease the nominal net

1168generating capacity of the four existing generators from 660

1177megawatts to 1,160 megawatts. Total capacity for the Polk Power

1188Station would be increased from 1,150 megawatts to 1,420

1199megawatts.

120013. The proposed generating facilitie s would be state - of -

1212the - art, incorporating improvements in technology that have

1221occurred over the past 20 years. They are designed by Black &

1233Veatch, an internationally - recognized engineering firm with

1241significant experience in designing similar facilitie s.

1248Fuels

124914. The four combustion turbine generators would be fired

1258with natural gas as the primary fuel. Ultra - low - sulfur diesel

1271fuel would be the backup fuel. The four heat recovery steam

1282generators would have natural - gas - fired duct burners for peaking

1294operations.

129515. The existing onsite natural gas pipeline would provide

1304the natural gas for the Project and the backup ultra - low - sulfur

1318diesel fuel would be stored in existing onsite fuel storage

1328facilities.

1329Water Use

133116. Groundwater withdrawals from f our wells are authorized

1340by the current Conditions of Certification for 4.3 million

1349gallons per day (ÐmgdÑ) on an annual average and 7.6 mgd on a

1362peak monthly average.

136517. The Project will require additional water for cooling

1374and plant process water uses. To minimize use of groundwater,

1384TEC would treat and reuse 5.7 mgd of treated reclaimed water from

1396the City of Lakeland. The treated reclaimed water would

1405primarily be used to supply the makeup water for the proposed new

1417cooling tower and the existing 75 5 - acre cooling reservoir, as

1429well as some process water needs. The cooling reservoir would be

1440used for condenser cooling purposes. The new six - cell mechanical

1451draft cooling tower would provide cooling for the ProjectÓs

1460auxiliary systems, which would be m odified to use the new cooling

1472tower instead of the reservoir.

147718. The reclaimed water would be initially provided by the

1487City of Lakeland through a 15 - mile pipeline. Later, reclaimed

1498water would be provided by the City of Mulberry and Polk County.

151019. The Project systems are designed to maximize water

1519reuse and recycling to reduce groundwater consumption. However,

1527TEC requests that the maximum groundwater withdrawals currently

1535authorized -- 4.3 mgd on an annual average and 7.6 mgd on a peak

1549monthly basi s Î - be maintained in this certification to ensure

1561that TEC can reliably and safely operate the facilities and

1571manage water quality and levels in the cooling reservoir during

1581extended periods of low rainfall conditions and in the event

1591there is an interrup tion in the delivery of reclaimed water.

160220. The ProjectÓs proposed water uses comply with all

1611applicable agency requirements.

1614Stormwater and Wastewater Discharges

161821. Stormwater and wastewater treatment systems are already

1626in use at the Polk Power Stat ion. These systems would be used

1639for the Project facilities.

164322. The proposed facilities will not significantly affect

1651the quantity or quality of stormwater runoff at the Polk Power

1662Station.

166323. The current wastewater streams include runoff from

1671industr ial areas and process wastewaters. Wastewaters would

1679continue to be collected and treated by the onsite industrial

1689wastewater systems , including the equalization basin,

1695neutralization basin, filtration system, and oil/water separator,

1702and then discharged to the cooling water reservoir.

171024. With the addition of the Project, cooling water

1719blowdown from the new cooling tower and treated reclaimed water

1729will be introduced to the cooling reservoir. TEC has a permit

1740for underground injection control wells whic h it plans to test

1751for disposal of nonhazardous wastewater such as reverse osmosis

1760reject water from the reclaimed water treatment process.

176825. The ProjectÓs stormwater and wastewater discharges

1775would comply with all applicable agency requirements.

1782Air Q uality Impacts

178626. Construction of the Project facilities at the Polk

1795Power Station would generate fugitive dust emissions. These

1803would be controlled by dust suppression control measures such as

1813watering.

181427. The vehicles used by construction workers w ould release

1824nitrogen oxide, carbon monoxide, and other fuel combustion -

1833related air pollutants. These kinds of emissions from

1841construction equipment would be minimized through the use of

1850ultra - low - sulfur - diesel fuel in various diesel engines.

186228. Even un der worst - case conditions, the air quality

1873impacts caused by construction activities would be minimal,

1881temporary, and limited to the construction site.

188829. The Project qualifies as a major modification to an

1898existing major source. Air quality impacts fro m plant operations

1908would be primarily nitrogen oxide, sulfur dioxide, and carbon

1917monoxide emissions from the four combined cycle units,

1925particulate emissions from the cooling tower, and various

1933combustion emissions from operation of the emergency diesel

1941ge nerator.

194330. Air quality analyses were performed for nitrogen

1951oxides, sulfur dioxide, particulates, and carbon monoxide. The

1959dispersion modeling analyses demonstrate that the ProjectÓs air

1967quality impacts would not exceed the applicable regulatory limit s

1977and would not cause or contribute to an exceedance of any

1988Prevention of Significant Deterioration Increment or National

1995Ambient Air Quality Standard.

199931. For certain air emissions, Best Available Control

2007Technology ("BACT") is required. BACT controls for nitrogen

2017oxide would include the use of dry, low - nitrogen - oxide burners

2030when firing natural gas and water injection when firing ultra -

2041low - sulfur diesel fuel, and the installation of selective

2051catalytic reduction technologies for the combined cycle

2058comb ustion turbines. For sulfur dioxide emissions and emissions

2067of sulfuric acid mist, BACT controls would include the use of

2078low - sulfur natural gas as a primary fuel and ultra - low - sulfur

2093diesel fuel as a backup fuel.

209932. For carbon monoxide and volatile org anic compounds,

2108BACT calls for good combustion design and operation. BACT for

2118combustion particulates would be the use of low - ash natural gas

2130as a primary fuel and ultra - low - sulfur diesel fuel as a backup

2145fuel.

214633. For the emergency diesel engine, propos ed BACT for all

2157pollutants would be compliance with the applicable Standards of

2166Performance for Stationary Combustion Ignition Internal

2172Combustion Engines, which are federal standards that have been

2181adopted by the Department.

218534. Proposed BACT for particu late emissions from the

2194cooling tower is the use of high efficiency drift eliminators.

220435. The proposed air quality control technology for the

2213Project and the expected emissions from the ProjectÓs

2221construction and operation would comply with all applicab le

2230agency requirements.

2232Transmission Lines and Corridors

223636. The Project includes two new transmission line

2244corridors. The proposed ÐPolk - Pebbledale CorridorÑ is a

22535.5 - mile, single - circuit 250 kV transmission line from the Polk

2266Power Station north to the Pebbledale substation in Polk County.

2276The proposed ÐPolk - Fishhawk CorridorÑ would be a single - circuit

2288250 kV transmission line running west from the Polk Power Station

2299to the Mines substation near the intersection of State Road 674

2310and County Road 39 in Hillsborough County; from there, north and

2321then west again to connect to a new Aspen switching station to be

2334located near the intersection of County Road 672 and Balm - Boyette

2346Road; and from the Aspen station, two separate 230kV transmission

2356lines wo uld run northeast to the existing Fishhawk substation

2366near the intersection of Fishhawk Boulevard and Boyette Road; a

2376total length of 27 miles.

238137. TEC exercised its option under section 403.5064(1)(b),

2389Florida Statutes, to allow parties to file alternate transmission

2398line corridors. No alternate corridors were filed or reviewed in

2408this proceeding.

241038. TEC used a multidisciplinary team to evaluate

2418alternative corridors for the new transmission lines. The team

2427conducted initial data collection, prepared regional screening

2434maps, identified alternate route segments, developed evaluation

2441criteria, evaluated the routes, and selected the preferred

2449routes. Public participation was a part of this effort.

245839. A regional screening map was created to identify

2467ex isting infrastructure, roads, railroads, rivers and other water

2476bodies, and siting constraints within the study area. TEC has

2486existing transmission line rights - of - way in much of the study

2499area, which together with public road rights - of - way provided co -

2513loc ation opportunities.

251640. The Polk - Pebbledale Corridor runs across former

2525phosphate mining lands and follows roads and existing

2533transmission line corridors to a point south of the town of

2544Bradley Junction where it turns to the northeast and follows a

2555tran smission line through reclaimed phosphate lands to the

2564intersection with another existing transmission line.

257041. In this certification proceeding, no party or non - party

2581expressed opposition to the Polk - Pebbledale transmission line

2590corridor.

259142. The Polk - Fishhawk Corridor runs across former and

2601active phosphate mining lands, along road rights - of - way, and

2613agricultural lands. As it approaches the Fishhawk substation,

2621however, it passes through a residential development, referred to

2630as the Fishhawk Communit y. The portion of the corridor that runs

2642through the Fish h awk Community follows an existing TEC - owned

2654transmission line right - of - way.

266143. No developer, agricultural operator, commercial entity,

2668agency, or local government expressed opposition to the Polk to

2678Fishhawk transmission line corridor, but residents of the

2686Fishhawk Community testified in opposition to the corridor at the

2696public hearing held in the Fishhawk community center. Their

2705testimony at the public hearing is discussed later in this

2715Recommen ded Order.

271844. The proposed transmission lines would be installed on

2727steel poles embedded in the ground. Guy wires are generally not

2738needed except where a transmission line makes a large angle turn

2749or guy wires are otherwise necessary for safety and sou nd

2760engineering. Pole heights would vary from 80 to 135 feet. The

2771typical span length between poles would be 500 to 700 feet, but

2783it can range up to 1 , 000 feet, when necessary to avoid natural or

2797manmade obstacles or other siting constraints.

280345. The co rridors are wider than the rights - of - way that

2817will ultimately be determined in order to allow for flexibility

2827in the final selection of the rights - of - way. The proposed

2840rights - of - way would be reviewed by the agencies to insure

2853compliance with the Condition s of Certification.

286046. Each transmission line would be designed, constructed,

2868operated, and maintained in compliance with good engineering

2876practices and all applicable codes, standards, and industry

2884guidelines, including the National Electric Safety Code , the

2892North American Electric Reliability Corporation, the American

2899Society of Civil Engineers, requirements of the Florida Public

2908Service Commission and the Federal Energy Regulatory Commission,

2916the DOT Utility Accommodation Guide, applicable local and st ate

2926government requirements, and TEC's internal design standards.

2933TEC designs all of its 230 kV transmission lines to withstand a

2945130 - mile - per - hour wind band, which exceeds the criteria in the

2960National Electric Safety Code.

2964Electric and Magnetic Fields

29684 7. The electric field produced by a transmission line is

2979relatively constant over time. The magnetic field fluctuates

2987over time depending on the load on the line. Electric and

2998magnetic fields have been calculated for each of the

3007configurations that may be used for the Project, based on the

3018maximum requested voltage and current. The maximum expected

3026levels for the electric and magnetic fields are within the limits

3037in Florida Administrative Code Chapter 62 - 814.

304548. Considerable scientific research has b een conducted in

3054the past 30 years to understand the potential health effects

3064associated with electric and magnetic fields. There is general

3073agreement among scientists in national and international health

3081agencies that the available evidence does not show adverse health

3091effects can occur from exposure to the electric and magnetic

3101fields associated with transmission lines.

310649. The DepartmentÓs limits for electric and magnetic

3114fields at the edge of a transmission line right - of - way are lower

3129than the limits recommended by the World Health Organization.

3138Noise Impacts

314050 . The noise limits applicable to the Project are those

3151contained in the Polk Land Development Code and the in the rules

3163of the Environmental Protection Commission of Hillsborough

3170County. The Polk County noise limits are 75 decibels, A - weighted

3182measurement (ÐdBAÑ) from 7:00 a.m. to 9:00 p.m. for non -

3193residential areas and 65 dBA from 7:00 a.m. to 9:00 p.m. for

3205residential areas. The noise requirements applicable to

3212transmission lines in Hillsb orough County are 60 dBA from

32227:00 a.m. to 10:00 p.m. and 55 dBA from 10:00 p.m. to 7:00 a.m.

323651. Noise levels measured at four locations in the vicinity

3246of the Project site varied between 41.9 and 51.1 dBA. Offsite

3257noise levels during construction of P roject facilities at the

3267power station would be minimal because of the distance from the

3278construction area to the site boundaries. Noise levels at the

3288power station during operation are not expected to differ

3297significantly from existing levels.

330152. Audib le noise associated with transmission lines is

3310usually associated with Ðcorona,Ñ which is a phenomenon that

3320occurs when there is an irregularity on the surface of the

3331conductors, such as water droplets or other significant

3339particles. If the noise occurs d uring a rainstorm it is usually

3351masked by the noise of the rain. At other times, corona noise

3363will often be masked by other outdoor noises.

337153. Noise calculations were conducted for the proposed

3379transmission lines and ranged from 32.0 to 45.2 dBA. Thes e

3390levels do not exceed the applicable limits.

3397Wetlands and Terrestrial Ecology

340154. The areas proposed for the ProjectÓs generating and

3410associated facilities have been altered by the construction and

3419operation of the Polk Power Station. These areas are a lso

3430surrounded by lands altered by phosphate mining and reclamation.

3439Wildlife habitats have already been destroyed, altered, or

3447diminished by these activities and no longer have high functional

3457values.

345855. Construction activities at the power plant site would

3467not disturb any native or reclaimed wetland or upland habitats.

347756. Wildlife species expected to be found onsite would be

3487common species for the region. Only two listed species of

3497special concern were documented at the power station, the

3506American A lligator and Tricolored Heron. They are both found in

3517the reclaimed wetland west of the construction area and would not

3528be affected. Impacts to other wildlife caused by construction at

3538the Polk Power Station would be temporary and insignificant.

354757. The re are no known threatened or endangered plant

3557species at the Polk Power Station. No reclaimed or natural

3567upland or wetland habitats are proposed to be affected.

357658. Wildlife habitats along the proposed transmission line

3584corridors includes pine flat woo ds, mixed forested uplands, and

3594various wetlands, including cypress forests, mixed hardwood

3601swamps, and marshes. Surrounding land covers are dominated by

3610current or former phosphate mining, farmsteads, or landscaped

3618residential properties. The Balm - Boyet te Scrub Preserve, Little

3628Manatee River, Hurrah Creek, Fishhawk Creek, and Little Fishhawk

3637Creek provide the best wildlife habitats along the transmission

3646line corridors, but the corridors would cross these areas where

3656there are already existing transmissi on line rights - of - way or

3669roads.

367059. Wildlife found along the corridors are species commonly

3679found in the region. No listed species are known to occur.

3690Construction and maintenance of the transmission lines within the

3699corridors would not significantly im pact the habitats of fish and

3710wildlife found in these areas.

371560. Impacts to vegetation along the transmission line

3723corridors would be minimized by siting the rights - of - way within

3736the most disturbed areas or on existing road and transmission

3746line rights - o f - way. TEC would span all open waters such as

3761streams and tributaries. For smaller water crossings and

3769wetlands, the facilities would be co - located with existing linear

3780facilities to minimize impacts. Restrictive clearing practices

3787on forested wetlands would be utilized, removing vegetation

3795selectively. Impacts from filling would be avoided or minimized

3804to the greatest extent practicable through a careful alignment of

3814the transmission line rights - of - way and through the choice of

3827span distances between s tructures. Where wetland impacts cannot

3836be avoided, the impacts would be minimized and mitigation would

3846be provided.

384861. Prior to the final selection of rights - of - way and the

3862beginning of construction, surveys would be conducted to

3870determine the presenc e of protected plant and animal species and

3881the results would be shared with the FWC to determine if

3892mitigation may be required in accordance with Conditions of

3901Certification.

3902Archeological and Historic Sites

39066 2 . When the Polk Power Station was first cer tified and

3919subsequently, archeological surveys were conducted to determine

3926the presence of cultural and historical resources of

3934significance. No such resources were identified.

39406 3 . Cultural and historical resources in the study area for

3952the transmission line corridors were evaluated during the

3960corridor selection process. All National Register of Historic

3968Places sites and districts as well as other known cultural

3978resources were mapped and candidate corridors were laid out to

3988avoid those resources. Corrid ors were laid out to co - locate with

4001other transmission lines and linear facilities that have already

4010disturbed the land to reduce the potential for new disturbances

4020to cultural resources.

40236 4 . After the rights - of - way within the corridors have been

4038determin ed, cultural resource surveys would be conducted to

4047identify the location of any archeological or historical

4055resources and determine potential impacts whether they can be

4064avoided. The surveys would be submitted to the Division of

4074Natural Resources for its review and consideration.

4081Transportation Impacts

40836 5 . No additional transportation impacts are expected from

4093the operation of the Project because there would be no addition

4104to the current Polk Power Station staff of 78 employees to

4115operate all facilitie s.

41196 6 . The construction phase would generate 357 daily trips

4130by construction workers and 50 additional delivery trips. The

4139trip distribution per day is expected to be 228 northbound trips

4150on State Road 37, 82 southbound trips on State Road 37, 75

4162northb ound trips on Fort Green Road, and 22 southbound trips on

4174Fort Green Road. Even at the peak of construction activities,

4184the surrounding roadway network is expected to operate at

4193acceptable levels of service.

4197Land Use Compatibility

42006 7 . The Project facili ties would be located within the

4212existing power station site, which is the logical and efficient

4222location for the Project. There are no conflicting land uses in

4233the vicinity of the Project site.

42396 8 . Most of the land uses along the corridors are former

4252a nd active phosphate mining lands, undeveloped lands,

4260agriculture, and rural residences. The key exception is the

4269segment of the Polk - Fishhawk Corridor that runs through the

4280developed Fishhawk Community, which is a suburban residential

4288areaansmission lines of the types proposed are frequently

4296located in proximity to all of these affected land uses,

4306including the suburban residential areas.

431169 . It is officially recogni zed that many people, if given

4323a choice, would prefer not to have high voltage transm ission

4334lines near their homes, primarily based on aesthetic

4342considerations. However, it is also official ly recogni zed that

4352many people are willing to live near transmission lines. Until

4362there is a practical alternative to above - ground transmission

4372lines, they will have to be located in developed areas in order

4384to supply electricity to residences. The proposed transmission

4392lines are not incompatible with residential uses.

43997 0 . Polk County and Hillsborough County do not oppose the

4411Project on any basis, inc luding land use compatibility. The

4421Project is consistent with the comprehensive plans and the land

4431development regulations of these counties.

4436Soci oe conomic Impacts

44407 1 . The Project would provide additional clean and reliable

4451energy, additional jobs durin g construction, an increased

4459property tax base, and increased economic activity in the form of

4470purchases of goods and services.

44757 2 . Local revenues from property taxes levied on the new

4487plant facilities would primarily benefit Polk County. The

4495estimated additional property tax revenue is between $6 million

4504and $6.5 million annually.

45087 3 . Significant revenues are also expected from sales taxes

4519on goods purchased directly for the plant or indirectly from

4529purchases of goods and services by the construction w orkers.

4539Sales taxes are estimated to be $105,000 per year.

45497 4 . Construction of the Project would employ an average of

4561250 workers, with a peak projected in 2015 of about 500 workers.

4573Most of the construction workers would be drawn from an area

4584within a commuting distance from the Project site. The

4593construction payroll for the overall Project is expected to be

4603$88 million and much of this would likely be spent in Polk County

4616and the region.

4619Site Boundaries

46217 5 . TEC requests that the boundaries of the P olk Power

4634Station site be reduced from 4,348 acres to 2,837 acres to

4647reflect that the original certification required a donation of

46561,511 acres to the Board of Trustees of the Internal Improvement

4668Trust Fund as a wildlife management area and recreation are a.

4679The donation was completed in 2012.

4685Construction Schedule

46877 6 . Construction of the project is anticipated to begin in

4699January 2014 and be completed in time to allow commercial

4709operation in January 2017.

4713Public Notice and Participation

47177 7 . TEC enga ged in extensive public outreach for the

4729Project, using direct mail, a survey, public meetings, newspaper

4738advertisements, a project webpage, a toll - free telephone number

4748for information, and communications with agencies and public

4756officials.

47577 8 . TEC used two direct mailings, totaling over 10,000

4769letters in both English and Spanish. The letters were mailed to

4780landowners and residents within one - quarter mile of the proposed

4791transmission line corridors, all homeowners' associations within

4798one mile, and all landowners and residents within three miles of

4809the plant site boundaries.

481379 . Three public meetings were held regarding the Project.

4823The first meeting was held on April 10, 2012 , at the Little Union

4836Baptist Church. The second was on April 12, 2012 , at the

4847Fishhawk Fellowship Church. The third was on April 19, 2012 , at

4858the Wimauma Senior Center.

48628 0 . TEC held meetings with county commissioners, mayors,

4872state senators, and state representatives to inform them of the

4882Project and the certification process . TEC representatives also

4891met with developers in Hillsborough County who could be affected

4901by the corridors to provide information and answer questions.

49108 1 . Copies of the Application were available for inspection

4921at the Polk County Library in Bartow an d the John Germany Public

4934Library in Tampa. A copy was also available for public review at

4946TECÓs offices in Tampa.

49508 2 . On October 24, 2012, public notice of the filing of the

4964Application was published in The Tampa Tribune and The Ledger .

4975On April 18, 2 013, notice of the Certification Hearing was

4986published in The Tampa Tribune and The Ledger and on April 19,

49982013 , in the Tampa Bay Times . When the certification hearing was

5010rescheduled, TEC published notice of the rescheduling in The

5019Tampa Tribune , The Le dger , and the Tampa Bay Times on June 16,

50322013.

50338 3 . The Department published notices of the Application,

5043the certification hearing, the public testimony hearing, and

5051rescheduling the certification hearing in the Florida

5058Administrative Register . Hillsbor ough County published notice of

5067the public testimony portion of the proceeding in The Tampa

5077Tribune on June 19, 2013.

5082Public Testimony

50848 4 . A hearing was held in Lithia, Florida , on June 25,

50972013, in the Fishhawk Community to provide members of the public

5108who are not parties to the certification proceeding an

5117opportunity to present sworn testimony concerning the

5124transmission line portion of the Project. Twelve members of the

5134public testified. Eight comment letters were received into the

5143record as Public Testimony Composite Exhibit 1.

51508 5 . A number of the residents expressed anger about what

5162they perceived as the failure of the developer who sold them

5173their homes, and TEC, to disclose to them that a transmission

5184line might be constructed near their homes. As previously

5193stated, the corridor is on property owned or controlled by TEC

5204for the installation of transmission lines. The record evidence

5213does not indicate any duty to disclose, any misrepresentation, or

5223any obfuscation by TEC in this regard. If ther e was a failure to

5237disclose or a misrepresentation by the developer, those are

5246matters between the homeowners and the developer and beyond the

5256scope of this proceeding.

52608 6 . Several residents expressed concern about possible

5269adverse health effects from ex posure to electric and magnetic

5279fields associated with the transmission lines. However, no

5287speaker referred to personal knowledge or to any study results to

5298support their comments on this subject. It is likely, therefore,

5308that their concerns are based on rumors or speculation. As

5318discussed above, independent scientists have not been able to

5327substantiate the occurrence of adverse health effects from

5335exposure to the electric and magnetic fields associated with

5344transmission lines.

53468 7 . There is a tennis cou rt and there are nature trails

5360underneath existing transmission lines located in another part of

5369the Fishhawk Community, indicating that the fear of electrical

5378and magnetic fields is not universal.

53848 8 . Some residents urged that TEC be required to install

5396the portion of the transmission line in the Fishhawk Community

5406underground. There are substantial engineering difficulties

5412associated with underground installation of high voltage

5419transmission lines. TEC has never installed this type of

5428transmission lin e underground. The cost for underground

5436installation could be as much as 15 times greater than for

5447overhead installation.

5449Agency Reports

545189 . Agency reports with proposed conditions of

5459certification were submitted to the Department by SWFWMD, FWC,

5468Florid a Department of Transportation, Hillsborough County, and

5476Hillsborough County Environmental Protection Commission.

54819 0 . Agency Reports without recommended conditions of

5490certification were submitted by the Florida Department of

5498Economic Opportunity, Central Florida Regional Planning Council,

5505Tampa Bay Regional Planning Council, and Polk County.

55139 1 . The Department of State, Division of Historical

5523Resources did not file an agency report, but recommended

5532conditions in its Completeness Review.

55379 2 . On January 28, 2013, The Department issued its Project

5549Analysis Report for the transmission line portion of the Project,

5559incorporating the reports of the reviewing agencies and proposing

5568Conditions of Certification.

55719 3 . On April 26, 2013, the Department issued its Project

5583Analysis Report on the power plant and proposed Conditions of

5593Certification. The Report was modified on May 21, 2013.

56029 4 . No agency opposes certification of the Project.

5612Conditions of Certification

56159 5 . The Department recommends certification of the Project

5625subject to the revised Conditions of Certification set forth in

5635Department Exhibit 8, which supersedes all prior statement s of

5645conditions. The Conditions of Certification address numerous

5652subjects and are designed to e nsure that the construct ion and

5664operation of the Project is protective of the public and the

5675environment.

56769 6 . The Conditions of Certification provide for post -

5687certification reviews and investigations to confirm, for example,

5695that sensitive areas will be avoided and that transmis sion lines

5706structures will avoid or have minimal adverse impacts.

57149 7 . TEC has agreed to construct, operate, and maintain the

5726Project in compliance with the Conditions of Certification. No

5735variances or exemptions from applicable state, regional, or local

5744standards or ordinances have been requested or are needed for the

5755construction, operation, and maintenance of the Project.

5762Certification Considerations

576498 . In determining whether TEC's application for the

5773Project should be approved, approved with conditi ons, or denied,

5783the Siting Board must determine whether, and the extent to which,

5794the location, construction, and operation of the Project would:

5803(a) Provide reasonable assurance that the

5809operational safeguards are technically

5813sufficient for the public we lfare and

5820protection.

5821(b) Comply with applicable nonprocedural

5826requirements of agencies.

5829(c) Be consistent with applicable local

5835government comprehensive plans and land

5840development regulations.

5842(d) Meet the electrical energy needs of the

5850state in an orderly, reliable, and timely

5857fashion.

5858(e) Effect a reasonable balance between the

5865need for the facility as established pursuant

5872to s. 403.519 and the impacts upon air and

5881water quality, fish and wildlife, water

5887resources, and other natural resources of the

5894state resulting from the construction and

5900operation of the facility.

5904(f) Minimize, through the use of reasonable

5911and available methods, the adverse affects on

5918human health, the environment, and the

5924ecology of the land and its wildlife and the

5933ecology of state waters and their aquatic

5940life.

5941(g) Serve and protect the broad interests of

5949the public.

5951§ 403.509(3), Fla. Stat.

595599 . The evidence presented demonstrates that the location,

5964construction, and operation of the Project would provide

5972reasonable as surance that the operational safeguards are

5980technically sufficient for the public welfare and protection.

598810 0 . The evidence presented demonstrates that the location,

5998construction, and operation of the Project would comply with

6007applicable nonprocedural req uirements of agencies.

601310 1 . The evidence presented demonstrates that the location,

6023construction, and operation of the Project would be consistent

6032with applicable local comprehensive plans and land development

6040regulations.

604110 2 . The evidence presented de monstrates that the location,

6052construction, and operation of the Project would meet the

6061electric energy needs of the state in an orderly, reliable, and

6072timely fashion.

607410 3 . The evidence presented demonstrates that the location,

6084construction, and operatio n of the Project would effect a

6094reasonable balance between the need for the facility as

6103established pursuant to section 403.519 and the impacts upon air

6113and water quality, fish and wildlife, water resources, and other

6123natural resources of the state.

612810 4 . The evidence presented demonstrates that the location,

6138construction, and operation of the Project would minimize,

6146through the use of reasonable and available methods, the adverse

6156effects on human health, the environment, and the ecology of the

6167land and it s wildlife and the ecology of state waters and their

6180aquatic life.

618210 5 . The evidence presented demonstrates that the location,

6192construction, and operation of the Project would serve and

6201protect the broad interests of the public.

6208CONCLUSIONS OF LAW

621110 6 . The parties stipulated that there are no disputed

6222issues of law.

622510 7 . This certification proceeding is governed by the

6235Florida Electrical Power Plant Siting Act, chapter 403, Part II,

6245Florida Statutes, and Florida Administrative Code Chapter 62 - 17.

6255108 . TEC, the Department, Hillsborough County, SWFWMD, and

6264FWC have standing to participate as parties.

62711 09 . Public notice was provided in compliance with the

6282requirements of section 403.515 and other applicable law.

62901 10 . The evidence presented in this pr oceeding demonstrates

6301that the Project favorably satisfies all of the factors in

6311section 403.509(3) that the Siting Board must consider in

6320determining whether to certify the Project.

6326RECOMMENDATION

6327Based upon the foregoing Findings of Fact and Conclusions of

6337Law, it is

6340RECOMMENDED that the Siting Board enter a final order:

6349a. approving TEC's application for certification to

6356construct, operate, and maintain the Polk 2 - 5 Combined Cycle

6367Conversion Project, including its associated transmission lines,

6374subjec t to the Conditions of Certification set forth in

6384Department Exhibit 8;

6387b. approving the increase in ultimate site capacity for the

6397Polk Power Station site from the previously approved 1150

6406megawatts to 1420 megawatts; and

6411c. modifying the Polk Power St ation site boundaries from

64214 , 348 acres to 2 , 837 acres, as depicted in TEC Exhibit 5.

6434DONE AND ENTERED this 23rd day of August , 2013 , in

6444Tallahassee, Leon County, Florida.

6448S

6449BRAM D. E. CANTER

6453Administrative Law Judge

6456Divis ion of Administrative Hearings

6461The DeSoto Building

64641230 Apalachee Parkway

6467Tallahassee, Florida 32399 - 3060

6472(850) 488 - 9675

6476Fax Filing (850) 921 - 6847

6482www.doah.state.fl.us

6483Filed with the Clerk of the

6489Division of Administrative Hearings

6493this 23rd day of Augus t , 2013 .

6501COPIES FURNISHED:

6503Lawrence N. Curtin, Esquire

6507Holland and Knight LLP

6511Suite 600

6513315 South Calhoun Street

6517Tallahassee, Florida 3230 1

6521Toni Sturtevant, Esquire

6524Department of Environmental Protection

6528Douglas Building, Mail Station 35

65333900 Comm onwealth Boulevard

6537Tallahassee, Florida 32399 - 3000

6542Kimberly Clark Menchion, Esquire

6546Department of Transportation

6549Mail Station 58

6552605 Suwannee Street

6555Tallahassee, Florida 32399

6558Anthony Justin Pinzino, Esquire

6562Florida Fish and Wildlife

6566Conservation C ommission

6569620 South Meridian Street

6573Tallahassee, Florida 32399

6576Adam Teitzman, Esquire

6579Florida Public Service Commission

65832450 Shumard oak Boulevard

6587Tallahassee, Florida 32399 - 0850

6592Michael S. Craig, Esquire

6596Polk County Attorney ' s Office

6602330 West Church Street, Drawer AT01

6608Post Office Box 9005

6612Bartow, Florida 33831 - 9005

6617Marva M. Taylor, Esquire

6621Hillsborough County Attorney`s Office

662527th Floor

6627601 East Kennedy Boulevard

6631Tampa, Florida 33602 - 4156

6636Richard Tschantz, Esquire

6639Environmental Protection Comm ission

6643of Hillsborough County

66463629 Queen Palm Drive

6650Tampa, Florida 33619

6653Patricia Anderson

6655Department of Health

6658Environmental Engineering

66604042 Bald Cypress Way

6664Tallahassee, Florida 32399 - 1742

6669Laura Kammerer

6671Bureau of Historic Preservation

6675R. A. Gray Building

6679500 South Bronough

6682Tallahassee, Florida 32399

6685Manny L. Pumariega

6688Tampa Bay Regional Planning Council

6693Suite 100

66954000 Gateway Center Boulevard

6699Pinellas Park, Florida 33782

6703Patricia M. Steed

6706Central Florida Regional

6709Planning Council

6711555 East Ch urch Street

6716Bartow, Florida 33830 - 3931

6721Forrest Watson

6723Department of Agriculture and

6727Consumer Services

6729Division of Forestry

67323125 Conner Boulevard

6735Tallahassee, Florida 32399 - 1650

6740Martha A. Moore, Esquire

6744Southwest Florida Water Management District

67497601 Highway 301 North

6753Tampa, Florida 33637

6756Herschel T. Vinyard, Jr., Secretary

6761Department of Environmental Protection

6765Douglas Building, Mail Station 35

67703900 Commonwealth Boulevard

6773Tallahassee, Florida 32399 - 3000

6778Matthew Z. Leopold, General Counsel

6783Depar tment of Environmental Protection

6788Douglas Building, Mail Station 35

67933900 Commonwealth Boulevard

6796Tallahassee, Florida 32399 - 3000

6801Lea Crandall, Agency Clerk

6805Department of Environmental Protection

6809Douglas Building, Mail Station 35

68143900 Commonwealth Boulevar d

6818Tallahassee, Florida 32399 - 3000

6823NOTICE OF RIGHT TO SUBMIT EXCEPTIONS

6829All parties have the right to submit written exceptions within

683915 days from the date of this Recommended Order. Any exceptions

6850to this Recommended Order should be filed with the ag ency that

6862will issue the Final Order in this case.

Select the PDF icon to view the document.
PDF
Date
Proceedings
PDF:
Date: 12/12/2013
Proceedings: Tampa Electric Company's and Florida Department of Environmental Protection's Joint Exceptions to Recommended Order filed.
PDF:
Date: 12/11/2013
Proceedings: Agency Final Order
PDF:
Date: 12/11/2013
Proceedings: Conditions of Certification filed.
PDF:
Date: 12/11/2013
Proceedings: Agency Final Order filed.
PDF:
Date: 09/09/2013
Proceedings: Tampa Electric Company's and Florida Department of Environmental Protection's Joint Exception to Recommended Order filed.
PDF:
Date: 08/23/2013
Proceedings: Recommended Order
PDF:
Date: 08/23/2013
Proceedings: Recommended Order On Certification (hearing held June 25-26, 2013). CASE CLOSED.
PDF:
Date: 08/23/2013
Proceedings: Recommended Order cover letter identifying the hearing record referred to the Agency.
PDF:
Date: 08/07/2013
Proceedings: Order Granting Motion.
PDF:
Date: 08/06/2013
Proceedings: Motion to Supplement TEC/FDEP Exhibit 4 filed.
PDF:
Date: 08/06/2013
Proceedings: Notice of Filing Tampa Electric Company's and Florida Department of Environmental Protection's Joint Proposed Recommended Order on Certification filed.
PDF:
Date: 08/05/2013
Proceedings: Order (granting request for authorization to exceed page limit).
PDF:
Date: 08/02/2013
Proceedings: Request for Authorization to Exceed Page Limitation filed.
Date: 07/12/2013
Proceedings: Transcript of Proceedings (not available for viewing) filed.
Date: 07/12/2013
Proceedings: Transcript (not available for viewing) filed.
PDF:
Date: 07/12/2013
Proceedings: Notice of Filing Transcripts of Certification Hearing filed.
Date: 06/28/2013
Proceedings: Petitioner's Proposed Exhibits filed (exhibits not available for viewing).
Date: 06/25/2013
Proceedings: CASE STATUS: Hearing Held.
PDF:
Date: 06/24/2013
Proceedings: Notice of Filing Revised Proposed Conditions of Certification filed.
PDF:
Date: 06/19/2013
Proceedings: Notice of Availability and Distribution of Pre-filed Direct Testimony and Exhibits (exhibits not available for viewing) filed.
PDF:
Date: 06/19/2013
Proceedings: Notice of Availability and Distribution of Pre-filed Direct Testimony and Exhibits filed.
PDF:
Date: 06/10/2013
Proceedings: Order.
PDF:
Date: 06/07/2013
Proceedings: Prehearing Stipulation filed.
PDF:
Date: 06/05/2013
Proceedings: Amended Notice of Hearing (hearing set for June 26, 2013; 10:00 a.m.; Bartow, FL; amended as to dates and hearing locations).
PDF:
Date: 06/04/2013
Proceedings: Stipulation and Joint Motion to Adjust Hearing Schedule filed.
PDF:
Date: 05/21/2013
Proceedings: Notice of Filing Revised Project Analysis Report for Plant Portion of Project filed.
PDF:
Date: 04/26/2013
Proceedings: Notice of Filing Project Analysis Report for Plant Portion of Project filed.
PDF:
Date: 03/25/2013
Proceedings: Southwest Florida Water Management District's Notice of Filing District Agency's Report filed.
PDF:
Date: 03/25/2013
Proceedings: Florida Fish and Wildlife Conservation Commission Notice of Intent to be Party filed.
PDF:
Date: 03/11/2013
Proceedings: Southwest Florida Management District's Notice of Intent to be Party filed.
PDF:
Date: 01/28/2013
Proceedings: Notice of Filing Project Analysis Report for Transmission Line Portion of Project filed.
PDF:
Date: 12/26/2012
Proceedings: Order Amending Certification Proceeding Schedule.
PDF:
Date: 12/21/2012
Proceedings: Amended Stipulation and Joint Motion to Alter Schedule [amended to correct scriveners error in proposed schedule] filed.
PDF:
Date: 12/21/2012
Proceedings: Stipulation and Joint Motion to Alter Schedule (proposed schedule attached) filed.
PDF:
Date: 12/21/2012
Proceedings: Stipulation and Joint Moton to Alter Schedule filed.
PDF:
Date: 12/17/2012
Proceedings: Department of Environmental Protection's Determination that Power Plant and Transmission Line Portions of Application are Complete filed.
PDF:
Date: 12/07/2012
Proceedings: Order (granting Hillsborough County's request to become a party).
PDF:
Date: 12/07/2012
Proceedings: Hillsborough County's Request to Become a Party to Tampa Electric Company's Polk Power Station 2-5 Combined Cycle Conversion Project Site Certification Hearing filed.
PDF:
Date: 12/03/2012
Proceedings: Polk Power Station 2-5 Combined Cycle Conversion Project Completeness Submittal-Power Plant and Transmission Lines filed.
PDF:
Date: 11/29/2012
Proceedings: Notice of Public Hearing.
PDF:
Date: 11/26/2012
Proceedings: Tampa Electric Company's Response to Department of Environmental Protection's Determination that Power Plant and Transmission Line Portions of Site Certification Application are Incomplete filed.
PDF:
Date: 11/26/2012
Proceedings: Hillsborough County's Request for a Public Hearing Supplementing the Certification Hearing filed.
PDF:
Date: 11/13/2012
Proceedings: Department of Environmental Protection's Determination that Power Plant and Transmission Line Portions of Application are Incomplete filed.
PDF:
Date: 10/23/2012
Proceedings: Order of Pre-hearing Instructions.
PDF:
Date: 10/23/2012
Proceedings: Notice of Hearing (hearing set for June 24 through 28, 2013; 9:00 a.m.; Bartow, FL).
PDF:
Date: 10/23/2012
Proceedings: Order Establishing Certification Proceeding Schedule.
PDF:
Date: 10/19/2012
Proceedings: Response to Initial Order filed.
PDF:
Date: 10/16/2012
Proceedings: Initial Order.
PDF:
Date: 10/15/2012
Proceedings: Notice of Filing Site Certification Application for Power Plant Certification filed.
PDF:
Date: 10/11/2012
Proceedings: Polk 2-5 Combined Cycle Conversion Project, Polk Power Station Site Certification Application Volumes 1 and 2, filed.
PDF:
Date: 10/11/2012
Proceedings: Department of Environmental Protection's Request for Assignment of Administrative Law Judge filed.
PDF:
Date: 10/11/2012
Proceedings: Proposed Initial Schedule filed.
PDF:
Date: 10/11/2012
Proceedings: Notice of Additional Agencies Entitled to Copies of the Application and Amendments filed.

Case Information

Judge:
BRAM D. E. CANTER
Date Filed:
10/11/2012
Date Assignment:
10/15/2012
Last Docket Entry:
12/12/2013
Location:
Bartow, Florida
District:
Middle
Agency:
ADOPTED IN PART OR MODIFIED
Suffix:
EPP
 

Counsels

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