Feds Revoked License of Edenville Dam in 2018

USCA Case #18-1255 Document #1751813 Filed: 09/20/2018 Page 1 of 58
ORAL ARGUMENT HAS NOT BEEN SCHEDULED
In the United States Court of Appeals

for the District of Columbia Circuit
No. 18-1255
__________
IN RE: BOYCE HYDRO POWER, LLC,

Petitioner
__________
ON PETITION FOR WRIT OF MANDAMUS

__________
RESPONDENT FEDERAL ENERGY REGULATORY COMMISSION’S

OPPOSITION TO PETITION FOR WRIT OF MANDAMUS
__________
James P. Danly
General Counsel
Robert H. Solomon
Solicitor
Robert M. Kennedy
Senior Attorney
For Respondent
Federal Energy Regulatory
Commission
Washington, D.C. 20426
September 20, 2018

TABLE OF CONTENTS
PAGE
INTRODUCTION ..................................................................................................... 1
BACKGROUND ....................................................................................................... 2
A. The Edenville Project ............................................................................ 2
B. The Statutory Framework...................................................................... 4
C. Fourteen Years Of Non-Compliance .................................................... 4
D. The Compliance Order .......................................................................... 6
E. The Cease Generation Order ................................................................. 7
F. The Revocation Order ........................................................................... 8
G. The Ongoing Agency Proceedings...................................................... 11
ARGUMENT ........................................................................................................... 11
I. Boyce Hydro Has Not Shown A Likelihood

Of Success On The Merits ............................................................................. 12
A. Boyce Hydro Does Not Dispute The Findings

Underlying The Commission’s Revocation Decision ......................... 12
B. The Commission Reasonably Found That Revocation

Would Not Harm Public Safety .......................................................... 15
II. Boyce Hydro Has Not Established An Irreparable Injury............................. 18
III. The Public Interest Does Not Favor A Stay .................................................. 19
CONCLUSION ........................................................................................................ 20
i
TABLE OF AUTHORITIES
COURT CASES: PAGE
Bluestone Energy Design, Inc. v. FERC,

74 F.3d 1288 (D.C. Cir. 1996) ....................................................................... 14
City of Dothan v. FERC, 684 F.2d 159 (D.C. Cir. 1982) ........................................ 15
CMM Cable Rep., Inc. v. Ocean Coast Properties, Inc.,

48 F.3d 618 (1st Cir. 1995)............................................................................ 19
Cuomo v. NRC, 772 F.2d 972 (D.C. Cir. 1985) ....................................................... 18
Eastern Hydroelectric Corp. v. FERC, 887 F.3d 1197 (11th Cir. 2018) ................ 14
Energie Group, LLC v. FERC, 511 F.3d 161 (D.C. Cir. 2007) ............................... 15
Lichoulas v. FERC, 606 F.3d 769 (D.C. Cir. 2010) ................................................ 15
N. Atl. Westbound Freight Ass’n v. Fed. Mar. Comm’n,

397 F.2d 683 (D.C. Cir. 1968) ....................................................................... 20
Nken v. Holder, 556 U.S. 418 (2009) ...................................................................... 12
Reynolds Metals Co. v. FERC, 777 F.2d 760 (D.C. Cir. 1985) ............................... 11
Sherley v. Sebelius, 644 F.3d 388 (D.C. Cir. 2011) ................................................. 12
Udall v. FPC, 387 U.S. 428 (1967) ......................................................................... 20
Va. Petroleum Jobbers Ass’n v. FPC,

259 F.2d 921 (D.C. Cir. 1958) ....................................................................... 20
Wash. Metro. Area Transit Comm’n v. Holiday Tours, Inc.,

559 F.2d 841 (D.C. Cir. 1977) .................................................................12, 18
Winter v. Natural Res. Def. Council, Inc., 555 U.S. 7 (2008) ................................. 12
Wis. Gas Co. v. FERC, 758 F.2d 669 (D.C. Cir. 1985) ........................................... 18
ii
ADMINISTRATIVE CASES:
Boyce Hydro Power, LLC, 159 FERC ¶ 62,292 (2017) ........................................ 6, 7
Boyce Hydro Power, LLC, 162 FERC ¶ 61,116 (2018) ....................................16, 19
Boyce Hydro Power, LLC, 164 FERC ¶ 61,178 (2018) ...............................1, 2, 3, 4,

5, 6, 9, 10, 13, 15,
16, 17, 18, 19, 20
Christopher M. Anthony, 147 FERC ¶ 61,118 (2014) ............................................. 14
Minnesota Dep’t of Nat. Res., 37 FERC ¶ 62,044 (1986) ....................................... 14
Timothy R. Fallon and Fallon Hydro Inc., 63 FERC ¶ 61,338 (1993) ................... 14
Timothy R. Fallon and Fallon Hydro Inc., 63 FERC ¶ 61,053 (1993) ................... 14
Town of Cedaredge, 155 FERC ¶ 62,195 (2016) .................................................... 17
STATUTES:
Federal Power Act
Section 31, 16 U.S.C. § 823b ........................................................4, 5, 8, 9, 13
iii
GLOSSARY
Boyce Hydro Boyce Hydro Power, LLC
Cease Generation Order Boyce Hydro Power, LLC,

161 FERC ¶ 62,119 (2017)
Cease Generation Rehearing Order Boyce Hydro Power, LLC,

162 FERC ¶ 61,116 (2018)
Commission Federal Energy Regulatory Commission
Compliance Order Boyce Hydro Power, LLC,

159 FERC ¶ 62,292 (2017)
FERC Federal Energy Regulatory Commission
Lake Associations collectively, the Sanford Lake Preservation

Association and the Wixom Lake
Association
Project Edenville Project No. 10808
Proposed Revocation Order Boyce Hydro Power, LLC,

162 FERC ¶ 61,115 (2018)
Revocation Order Boyce Hydro Power, LLC,

164 FERC ¶ 61,178 (2018)
iv
In the United States Court of Appeals

for the District of Columbia Circuit
No. 18-1255
__________
IN RE: BOYCE HYDRO POWER, LLC,

Petitioner
__________
ON PETITION FOR WRIT OF MANDAMUS

__________
RESPONDENT FEDERAL ENERGY REGULATORY COMMISSION’S

OPPOSITION TO PETITION FOR WRIT OF MANDAMUS
__________
Petitioner Boyce Hydro Power, LLC (Boyce Hydro) asks this Court to
enjoin the Federal Energy Regulatory Commission from enforcing a license
revocation order issued to remedy more than a decade of non-compliance with
important dam safety requirements and other license violations, which has denied
the public the benefits to which it is entitled. The Commission based its action on
a careful review of an extensive record which established Boyce Hydro’s “history
of obfuscation and outright disregard of its obligations.” Boyce Hydro Power,
LLC, 164 FERC ¶ 61,178, P 58 (2018) (Revocation Order). (A copy of the
Revocation Order is attached.) This conduct has imperiled the public interest and
harmed the local community, “which has suffered the results of Boyce Hydro’s
malfeasance.” Id.
Boyce Hydro’s request for extraordinary relief is not based on a dispute as to
the factual basis of the Commission’s finding of numerous and prolonged license
violations, or a claim that the Commission failed to follow the revocation process
set forth in the Federal Power Act. Instead, Boyce Hydro’s petition boils down to
the contention that the Revocation Order will hurt its bottom line.1 Mere economic
loss, however, does not support injunctive relief. Moreover, granting Boyce
Hydro’s request would have the effect of permitting it to benefit from use of a
public asset without meeting its public interest obligations. As the Commission
found, “the remedy cannot be for a licensee to continue to benefit from the license
while remaining in noncompliance.” Id. P 49. Boyce Hydro’s plea to upset the
ongoing agency process, and to obtain interlocutory, extraordinary relief from this
Court, should be denied.
BACKGROUND
A. The Edenville Project

This case concerns the 4.8-megawatt Edenville Project No. 10808 (Project),
located in Gladwin and Midland Counties, Michigan. See Revocation Order, 164
FERC ¶ 61,178 at P 2. The central feature of the Project is 6,600 feet of earthen
embankments, known as the Edenville dam. The dam spans both the

1
Although captioned as an emergency motion for stay, the Court has
determined that the filing should be construed as a petition for writ of mandamus.
See Sept. 18, 2018 Order (D.C. Cir. No. 18-1255).
2
Tittabawassee and Tobacco Rivers, creating a 2,600-acre reservoir known as
Wixom Lake. Id. The Edenville dam is flanked by two concrete “spillways,”
which permit the release of surplus water from the reservoir to downstream of the
dam. Such releases prevent water from overtopping and damaging or destroying
the dam. The Tittabawassee spillway is located on the eastern side of the dam, and
the Tobacco spillway is on the western side. Id.
The Edenville dam is located in a high hazard zone, meaning that a failure of
the Project’s works would create a threat to human life or cause significant
property damage. The Commission’s Dam Safety Guidelines require project
works to be designed to withstand overtopping of the loading condition that would
occur during a flood up to the “probable maximum flood.”2 In the alternative,
project spillways must be of adequate capacity to prevent the reservoir from rising
to an elevation that would endanger the safety of project works. Id. P 3. The
spillways at the Edenville Project can only pass approximately 50 percent of the
probable maximum flood. Id.

2
The “probable maximum flood” is the flood threat that may be expected
from the most severe combination of critical meteorologic and hydrologic
conditions that is reasonably possible. See Revocation Order, 164 FERC ¶ 61,178
at P 3 n.4.
3
B. The Statutory Framework

Under section 31(a) of the Federal Power Act, 16 U.S.C. § 823b(a), the
Commission can monitor and enforce compliance with the licenses it grants, and
require compliance by order. After notice and an opportunity for hearing, the
Commission also may impose penalties against any licensee that does not comply
with Commission regulations, compliance orders, or license terms or conditions.
Id. §§ 823b(b)-(d). If the licensee has “knowingly violated” a final compliance
order, and has been given reasonable time to comply fully with that order, the
Commission may revoke the licensee’s hydropower license. Id. § 823b(b).
C. Fourteen Years Of Non-Compliance
The Commission first identified the need to increase the Project’s spillway
capacity in 1999, when the Project was licensed to Wolverine Power Corporation.
See Revocation Order, 164 FERC ¶ 61,178 at P 4. Wolverine was directed to
complete modifications to address the inadequate spillway capacity by December
31, 2006. In June 2004, while the spillway issue was still outstanding, Boyce
Hydro took over the Project license.3 Id.
Upon taking over the license, Boyce Hydro advised the Commission that it
planned to complete an auxiliary Tittabawassee spillway and was studying the

3
In addition to the Edenville Project, the licensee also owns and operates the
Sanford Project No. 2875, Secord Project No. 10809, and Smallwood Project No.
10810.
4
need for an auxiliary Tobacco spillway. Boyce Hydro was subsequently directed
to start construction of the spillways by September 2005 (Tittabawassee) and by
September 2006 (Tobacco). Id. P 5. These deadlines were not met.
Instead, in November 2004, Boyce Hydro stated that further review and
study was necessary. In response, Commission staff set a December 23, 2004
deadline for the submission of a plan and schedule for construction of the
Tittabawassee auxiliary spillway. At Boyce Hydro’s request, the deadline was
extended until January 31, 2005. In response to the licensee’s failure to meet the
extended deadline, Commission staff required that the revised probable maximum
flood study be submitted no later than March 31, 2005. Staff also provided notice
under section 31(a) of the Federal Power Act, 16 U.S.C. § 823b(a), that Boyce
Hydro’s ongoing violations could give rise to the imposition of civil penalties or
license revocation. Id. PP 6-7.
In November 2007, after further consultation with Commission staff and
outside experts, Boyce Hydro proposed a December 2008 deadline for the design
and construction of the spillway capacity upgrades. A year later, however, in
October 2008, Boyce Hydro submitted patently deficient conceptual design
drawings. Id. P 9. As a result, yet another schedule was developed for
construction to be completed no later than October 31, 2009. Id.
5
Once again, in November 2008, Boyce Hydro requested an extension. This
time, Boyce Hydro claimed that it did not have money on hand to complete
construction and that it could not borrow such funds. Id. P 10. The licensee
committed to accumulating funds from the Project’s revenues in a spillway
improvement account and stated that it would make the necessary improvements
over a three-year period beginning in June 2010. Id. P 11.
Unfortunately, no significant progress was made in the ensuing six years. In
February 2014, Commission staff accepted a new schedule that would allow Boyce
Hydro to complete construction of its proposed auxiliary spillways by the end of
2015. But the spillway designs submitted by Boyce Hydro were not sufficient to
pass the full probable maximum flood. Id. Yet another schedule was developed
that called for an initial auxiliary spillway to be constructed by November 2015 on
the Tobacco side of the Project, with a second auxiliary spillway to be constructed
by December 31, 2016, on the Tittabawassee side. Id. P 13. Boyce Hydro failed to
meet these new deadlines.
D. The Compliance Order
On June 15, 2017, Commission staff issued an order detailing Boyce
Hydro’s failure to remediate the spillway deficiencies, as well as its failure to
comply with a number of other license and regulatory requirements. Boyce Hydro
Power, LLC, 159 FERC ¶ 62,292 (2017) (Compliance Order). See id. P 1; PP 30-
6
50 (failing to report structural instability and performing unauthorized dam
repairs); PP 51-81 (performing unauthorized earth-moving activities); PP 82-87
(failing to file adequate Public Safety Plan); PP 88-114 (failing to construct
recreation facilities and restricting public access); PP 115-29 (failing to acquire all
necessary property rights); PP 130-45 (failing to comply with order approving
Water Quality Monitoring Plan). The record established that, “[t]hirteen years
after acquiring the license for the project, the licensee ha[d] still not increased
spillway capacity leaving the project in danger of a [probable maximum flood]
event. The licensee has shown a pattern of delay and indifference to the potential
consequences” of that danger, which “must be remedied in order to protect life,
limb, and property.” Id. P 16. In light of Boyce Hydro’s “pattern of non-
compliance,” the Compliance Order warned that any further failure to comply
“may lead to an order to cease generation” or to the imposition of penalties or
revocation of the license. Id. PP 147, 149.
E. The Cease Generation Order

In November 2017 – after granting further extensions of several deadlines –
the Commission found Boyce Hydro in violation of many of the directives in the
Compliance Order, as well as additional violations in the five months that had
passed since the Compliance Order. Boyce Hydro Power, LLC, 161 FERC
7
¶ 62,119 (2017) (Cease Generation Order). Therefore, the Commission determined
that further patience was not warranted:
Commission staff have worked with the licensee for over 13 years on
the spillway capacity issue alone and have sent numerous letters and
other communications directing the licensee to bring the project into
compliance. Notwithstanding multiple extensions and other
accommodations by staff, the licensee still has not made substantial
progress toward meeting its compliance obligations. Given the
licensee’s persistent pattern of non-compliance, and the unlikely
chance that the licensee will change course without further
Commission action, we are requiring the licensee to cease generation
at the project by November 27, 2017.
Id. P 13.
On February 7, 2018, the Court granted, in part, Boyce Hydro’s motion for a
stay of the Cease Generation Order. See In re Boyce Hydro Power, LLC, No. 17-
1270 (D.C. Cir. Feb. 7, 2018). As a result, Boyce Hydro was permitted to resume
generation and make energy sales.
F. The Revocation Order

On February 15, 2018, the Commission issued an order proposing
revocation of the license pursuant to section 31(a) of the Federal Power Act, 16
U.S.C. § 823b(a). Boyce Hydro Power, LLC, 162 FERC ¶ 61,115 (2018)
(Proposed Revocation Order). The order detailed Boyce Hydro’s violations of the
Compliance Order and the multiple extensions granted by the Commission. The
order concluded that there was no reason to believe that Boyce Hydro intended to
come into compliance and, therefore, proposed revoking the license. Id. P 10.
8
Consistent with the terms of the Federal Power Act, Boyce Hydro was
provided the opportunity to request an evidentiary hearing before an
Administrative Law Judge. Id. P 11; see also 16 U.S.C. § 823b(b). Boyce Hydro
did not request such a hearing. Instead, the licensee submitted a motion requesting
that the Commission withdraw its revocation proposal. Boyce Hydro argued that
(1) it had made progress in funding construction of the Tobacco auxiliary spillway,
(2) it made all reasonable efforts to respond to the requirements of the Compliance
Order, and (3) revoking the order would not be in the public interest. See
Revocation Order, 164 FERC ¶ 61,178 at P 35.
In the Revocation Order, issued September 10, 2018, the Commission found
that the “record demonstrates that Commission staff has engaged in intensive
efforts over the past 14 years to bring the licensee into compliance,” and that
“Boyce Hydro has continually failed to comply with these directives.” Id. P 39.
Boyce Hydro had failed to make significant progress toward increasing spillway
capacity. No plans and design packages had been submitted as required by the
Compliance Order. Indeed, Boyce Hydro admitted that it had stopped all design
work. Id. PP 43-44.
As for Boyce Hydro’s finances, the licensee “admit[ted] that it had not asked
any financial institution for a loan or any other funding.” Id. P 46. While Boyce
Hydro claimed that a contractor will finance construction, Boyce Hydro only
9
engaged the contractor on February 15, 2018, the day the Proposed Revocation
Order was issued. And in the ensuring months, Boyce Hydro failed to enter into a
firm financing agreement with the contractor. Finally, while Boyce Hydro again
promised to establish an escrow funding mechanism, that proposal “is essentially
the same as its previous proposal that failed to fund the needed construction.” Id.
More fundamentally, the Commission found it “inconceivable that over the last 14
years Boyce Hydro has been unable to dedicate funds to remedy its
noncompliance.” Id. P 51. If it cannot do so, then Boyce Hydro “does not have
the wherewithal to protect the public interest in the manner required of a licensee.”
Id.
The Commission rejected Boyce Hydro’s contention that revocation of the
license has the potential to harm public safety. “[T]he Michigan Department of
Environmental Quality … has regulatory authority over dams and impoundments
in the state and will have authority over the Edenville Project as a result of this
revocation.” Id. P 55. Conversely, “the public interest would not be served by
allowing Boyce Hydro’s continued noncompliance with important dam safety
requirements that have the potential to affect public safety to extend into
perpetuity.” Id. P 56.
10
G. The Ongoing Agency Proceedings

On September 17, 2018, Boyce Hydro filed with the Commission an
emergency motion to stay the Revocation Order until the Commission rules upon
its to-be-filed request for rehearing of the Revocation Order. See Motion at 5, 12;
id. Ex. E. On September 18, 2018, the Sanford Lake Preservation Association, the
Wixom Lake Association (the “Lake Associations”), and the Gladwin County,
Michigan Board of District Commissioners also filed with the Commission an
emergency motion to stay the Revocation Order for 180 days to permit further
discussions regarding the transfer of responsibility for the Edenville Project.
The Commission has not yet had an opportunity to address the recent filings
in response to the Revocation Order.
ARGUMENT
An emergency petition for mandamus must satisfy “the well-established
requirements … routinely appl[ied] to motions for stay pending appeal.” Reynolds
Metals Co. v. FERC, 777 F.2d 760, 762 (D.C. Cir. 1985). Under those
requirements, “[a] stay is not a matter of right, even if irreparable injury might
otherwise result.” Nken v. Holder, 556 U.S. 418, 433-34 (2009) (citation and
internal quotations omitted). To obtain such extraordinary relief, a movant must
establish: (1) a strong showing that it is likely to prevail on the merits of its
appeal; (2) that, without such relief, it will be irreparably injured; (3) a lack of
11
substantial harm to other interested parties; and (4) that the public interest favors a
stay. Wash. Metro. Area Transit Comm’n v. Holiday Tours, Inc., 559 F.2d 841,
843 (D.C. Cir. 1977). Courts “must balance the competing claims of injury and
must consider the effect . . . of the granting or withholding of the requested relief,”
and must “pay particular regard for the public consequences . . . .” Winter v.
Natural Res. Def. Council, Inc., 555 U.S. 7, 24 (2008) (internal quotation omitted).
Boyce Hydro has not justified its request for the extraordinary remedy of a stay.
I. Boyce Hydro Has Not Established A Likelihood Of Success On

The Merits
Boyce Hydro cannot meet the “independent, free-standing requirement” to
demonstrate a likelihood of success on the merits. Sherley v. Sebelius, 644 F.3d
388, 393 (D.C. Cir. 2011) (discussing Winter, 555 U.S. at 22). Boyce Hydro’s
motion is premised on a single claim: revocation due to the licensee’s persistent
failure to meet its public safety requirements is arbitrary and capricious because it
will, in Boyce Hydro’s view, have a negative effect on public safety. Motion at 14.
The Commission disagrees.
A. Boyce Hydro Does Not Dispute The Findings Underlying

The Commission’s Revocation Decision
Initially, it must be noted that Boyce Hydro does not contest the
Commission’s finding that, “for more than a decade,” Boyce Hydro has
“knowingly and willfully refused to comply with major aspects of its license and
12
the Commission’s regulatory regime.” Revocation Order, 164 FERC ¶ 61,178, at
P 58. Nor does it contest the Commission’s conclusion that “there is no reason to
believe that Boyce Hydro will come into compliance.” Id.
Moreover, Boyce Hydro does not argue that the Commission failed to
comply with the requirements of the Federal Power Act. In accordance with
section 31(b)(1), 16 U.S.C. § 823b(b)(1), the Commission found that Boyce Hydro
knowingly failed to comply “with numerous requirements of its license related to
dam safety, recreation, and other resources.” Revocation Order, 164 FERC
¶ 61,178 at P 39. Boyce Hydro did not “request an evidentiary hearing to
challenge the factual basis” of the Commission revocation’s proposal, and “does
not dispute that it has failed to comply with the Commission’s directives.” Id.
P 40. Consistent with section 31(b)(2), 16 U.S.C. § 823b(b)(2), the Commission
found that “Boyce Hydro was given a reasonable time to comply fully with” the
Compliance Order. Id. P 51. The Commission also considered the nature and
seriousness of the violations and Boyce Hydro’s efforts to remedy those violations.
Id. P 58. Ultimately, the Commission found that revocation was the only “way to
vindicate the public interest here.” Id.
That determination is entitled to respect. As the Court has explained with
regard to penalty assessments for license non-compliance, the Court makes a
“limited review” and “will not overturn the Commission’s choice of a sanction”
13
unless that sanction is “‘unwarranted in law or . . . without justification in fact.’”
Bluestone Energy Design, Inc. v. FERC, 74 F.3d 1288, 1294 (D.C. Cir. 1996)
(quoting Butz v. Glover Livestock Comm’n Co., 411 U.S. 182, 185-85 (1973)).
This case is much like the revocation decision recently upheld by the
Eleventh Circuit in Eastern Hydroelectric Corp. v. FERC, 887 F.3d 1197 (11th
Cir. 2018). That proceeding involved a “decade-and-a-half talkathon between
Petitioner and the Commission over the construction of a fishway.” Id. at 1198.
The Court found that the record established that (1) the licensee knowingly
violated a final order, (2) the licensee was given adequate notice and opportunity to
be heard, and (3) the Commission considered the nature and seriousness of the
licensee’s violations and compliance efforts. Id. at 1202-03. That is all that is
required by the Federal Power Act. As a result, the Eleventh Circuit upheld the
revocation decision, notwithstanding the fact that Petitioner proposed a purportedly
“common sense resolution” that did not involve revocation. Id. at 1203.4

4
The Commission’s decision is consistent with others in which it has
revoked project licenses or exemptions in view of a licensee’s failure to do what its
license required. See Christopher M. Anthony, 147 FERC ¶ 61,118, PP 41-43
(2014) (revoking exemption due to licensee’s failure, for over a year, to repair
fishways designed to safely pass endangered salmon); Timothy R. Fallon and
Fallon Hydro Inc., 63 FERC ¶ 61,338 (1993) (revoking license for failure to make
filings and to exercise reasonable diligence in construction); Timothy R. Fallon and
Fallon Hydro Inc., 63 FERC ¶ 61,053 (1993) (proposing to revoke license for
failing to file erosion control plan developed in consultation with resource
agencies); Minnesota Dep’t of Nat. Res., 37 FERC ¶ 62,044 (1986) (revoking
exemption for failure to construct project after licensee deemed project
14
B. The Commission Reasonably Found That Revocation

Would Not Harm Public Safety
Boyce Hydro argues that the Revocation Order “is self-defeating and
irrational” because it will only increase the “danger to public safety from deficient
spillway capacity.” Motion at 19. The Commission “disagree[s] that revocation of
the license has the potential to harm public safety” (Revocation Order, 164 FERC
¶ 61,178 at P 55), and Boyce Hydro has offered no reason for the Court to
substitute its judgment for that of the agency charged with ensuring the safe
operation of hydroelectric projects. See, e.g., City of Dothan v. FERC, 684 F.2d
159, 164 (D.C. Cir. 1982) (acknowledging and deferring to the Commission’s
“very considerable expertise” in hydroelectric matters).
As the Commission explained, the Michigan Department of Environmental
Quality has regulatory authority over dams and will have authority over the
Edenville Project after license revocation. The state agency has “extensive
regulatory authority to ensure that dams are constructed, operated, and maintained
safely.” Revocation Order, 164 FERC ¶ 61,178 at P 55. Accordingly, the
Commission found that revocation would not harm public safety. Id. P 56.

economically infeasible). See also Lichoulas v. FERC, 606 F.3d 769 (D.C. Cir.
2010) (implied surrender where licensee did not meet his own schedules or live up
to his commitments); Energie Group, LLC v. FERC, 511 F.3d 161, 164 (D.C. Cir.
2007) (denial of preliminary permits to individuals previously found unfit to hold
FERC licenses).
15
The Commission afforded Boyce Hydro the opportunity to request a hearing
to present evidence regarding all aspects of the proposed license revocation,
including its potential safety impacts. See Proposed Revocation Order, 162 FERC
¶ 61,115 at P 11. Boyce Hydro declined this opportunity. It is only now – well
beyond the eleventh hour – that Boyce Hydro has come forward with an affidavit
suggesting that revocation could imperil public safety. See Motion at 15-16 and
Exhibit Y. The Commission has not yet had an opportunity to formally address the
technical engineering and operational issues raised by this affidavit, as it was first
filed with the agency on September 17, 2018 – more than seven months after the
Proposed Revocation Order. See Motion at 15 n.8. For now, it suffices to say that
there are other ways to control flows at the Project beyond permitting Boyce Hydro
to continue generating. And again, the Michigan Department of Environmental
Quality has the authority and experience to ensure that the Edenville dam is
maintained safely. Revocation Order, 164 FERC ¶ 61,178 at P 55.
Boyce Hydro further argues that revocation of the license will endanger
public safety because it will prevent Boyce Hydro from earning money that could
be used for engineering consulting services. Motion at 16. The Commission has
not “take[n] the economic impacts of requiring Boyce Hydro to cease generation
lightly.” Boyce Hydro Power, LLC, 162 FERC ¶ 61,116, P 20 (2018) (Cease
Generation Rehearing Order). But Boyce Hydro has been given fourteen years to
16
resolve the spillway issue, and more than one year to comply with the requirements
of the Compliance Order. In this circumstance, permitting Boyce Hydro to
continue to operate the Project based on nothing more than the fleeting hope –
belied by a decade-and-a-half of evidence – that the license requirements may
finally be met would not serve the public interest. See Revocation Order, 164
FERC ¶ 61,178 at P 49 (“the remedy cannot be for a licensee to continue to benefit
from the license while remaining in noncompliance”).
Finally, Boyce Hydro contends that public safety will be compromised
because, “without the revenue stream from the licensed project, there is no
reasonable expectation that any entity will be willing and able to take on costly
dam safety remediation.” Motion at 17. The Revocation Order, however, does not
require the destruction or sale of any of the project works; they could be made
available to any new licensee.5 And the fact that Boyce Hydro itself took over the
Edenville Project license long after the spillway capacity issue had been identified

5
The Revocation Order directs Boyce Hydro to “permanently disable all
generating equipment in the project’s power house.” 164 FERC ¶ 61,178 at P 60.
As the Commission explained in a recent case, “[t]his could entail removing the
transmission line between the powerhouse and the electric grid, removing the
control panel or generating unit from the powerhouse, or any other method the
[licensee] chooses to ensure generation cannot be restarted without Commission
oversight.” Town of Cedaredge, 155 FERC ¶ 62,195, P 8 (2016).
17
refutes any suggestion that the need for remediation precludes the identification of
a new licensee. See Revocation Order, 164 FERC ¶ 61,178 at PP 4-5.
II. Boyce Hydro Has Not Established An Irreparable Injury

A claim of irreparable injury absent a stay must be “both certain and great; it
must be actual and not theoretical.” Wis. Gas Co. v. FERC, 758 F.2d 669, 674
(D.C. Cir. 1985). Unsupported assertions are insufficient. Cuomo v. NRC, 772
F.2d 972, 978 (D.C. Cir. 1985). The party seeking relief “must provide proof that
the harm has occurred in the past and is likely to occur again, or proof indicating
that the harm is certain to occur in the near future.” Wis. Gas Co., 758 F.2d at 674.
Here, the only allegation of harm is that Boyce Hydro will suffer economic
harm in the form of lost generating revenues, increased maintenance costs, and the
purported diminution in value of the license should a potential buyer emerge.
Motion at 12-13. It is settled, however, “that economic loss does not, in and of
itself, constitute irreparable harm.” Wis. Gas Co., 758 F.2d at 674. While the
Court has found that monetary loss may constitute irreparable harm where the loss
threatens the very existence of the movant’s business, Wash. Metro. Area Transit
Comm’n, 559 F.2d at 843 n.2, Boyce Hydro has made no such claim here.
Moreover, as to the claim of lost generating revenues and increased
maintenance costs, a licensee has no entitlement to profits. “A license’s
requirements to satisfy all license terms does not change, regardless of whether
18
revenues exceed, match, or fail to meet its costs.” Cease Generation Rehearing
Order, 162 FERC ¶ 61,116 at P 20.
Boyce Hydro also asserts that license revocation would hinder the Lake
Associations’ efforts to find a solution of the licensee’s long-running non-
compliance. Motion at 17. The Commission explained, however, that the “Lake
Associations are free to attempt to acquire the project or certain project facilities
(e.g., the dam) once this termination order becomes effective.” Revocation Order,
164 FERC ¶ 61,178 at P 37.
Moreover, any harm to the third-party Lake Associations would not justify
Boyce Hydro’s stay request. See CMM Cable Rep., Inc. v. Ocean Coast
Properties, Inc., 48 F.3d 618, 622 (1st Cir. 1995) (“the issuance of a preliminary
injunction requires a showing of irreparable harm to the movant rather than to one
or more third parties”) (emphasis in original). In addition, the recently-filed stay
request is the first time Boyce Hydro has raised the notion that it would be
amenable to transferring the license to the Lake Associations. As a result, it is
difficult to view the licensee’s protestations as anything more than yet another stall
tactic.
III. The Public Interest Does Not Favor A Stay

The public interest is a “crucial” factor in “litigation involving the
administration of regulatory statutes designed to promote the public interest.” Va.
19
Petroleum Jobbers Ass’n v. FPC, 259 F.2d 291, 925 (D.C. Cir. 1958). (The effect
of a stay on other parties is addressed in previous sections of this pleading.) The
Federal Power Act vests the Commission with a multifaceted obligation to
determine whether construction and continued operation of a hydroelectric project
is in the public interest. See, e.g., Udall v. FPC, 387 U.S. 428 (1967). Because the
Commission is the “presumptive[] guardian of the public interest,” its views
“indicate[] the direction of the public interest” for purposes of deciding a stay
request. N. Atl. Westbound Freight Ass’n v. Fed. Mar. Comm’n, 397 F.2d 683, 685
(D.C. Cir. 1968).
Here, a stay of the Revocation Order would not serve the public interest.
The Commission does “not often revoke a license,” but here “the licensee has left
[the Commission] with no other way to vindicate the public interest.” Revocation
Order, 164 FERC ¶ 61,178 at P 58. Revocation “will leave the community and the
state agencies increased authority to deal with Boyce’s Hydro’s noncompliance
with important dam safety requirements that have the potential to affect public
safety.” Id.
20
CONCLUSION
For the foregoing reasons, Boyce Hydro has not established the
extraordinary circumstances necessary to justify a stay of the Revocation Order
and, therefore, the petition for writ of mandamus should be denied.
Respectfully submitted,
James P. Danly
General Counsel
Robert H. Solomon
Solicitor
/s/ Robert M. Kennedy

Robert M. Kennedy
Senior Attorney
For Respondent
Commission
September 20, 2018 Washington, D.C.
21
CERTIFICATE OF COMPLIANCE
Pursuant to Fed. R. App. P. 32(g), I certify that this filing complies with the
type-volume limitation of Fed. R. App. P. 27(d)(2)(C) because it contains 4,594
words, excluding the parts exempted by Fed. R. App. P. 32(f).
I further certify that this filing complies with the typeface requirements of
Fed. R. App. P. 32(a)(5) and the type style requirements of Fed. R. App. P.
32(a)(6) because this filing has been prepared in Times New Roman 14-point font
using Microsoft Word 2010.

Robert M. Kennedy
Senior Attorney

Commission
Washington, D.C. 20426
Tel.: (202) 502-8904
Fax: (202) 273-0901
Email: robert.kennedy@ferc.gov
September 20, 2018

ADDENDUM
Boyce Hydro Power, LLC, 164 FERC ¶ 61,178 (2018)

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CERTIFICATE OF SERVICE
I hereby certify that, on September 20, 2018, a copy of the foregoing was
filed electronically. Notice of this filing will be sent to all parties by operation of
the Court’s electronic filing system. Parties may access this filing through the
Court’s system.

Robert M. Kennedy
Senior Attorney

Feds Revoked License of Edenville Dam in 2018

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USCA Case #18-1255 Document #1751813 Filed: 09/20/2018 Page 1 of 58

ORAL ARGUMENT HAS NOT BEEN SCHEDULED

In the United States Court of Appeals

IN RE: BOYCE HYDRO POWER, LLC,

ON PETITION FOR WRIT OF MANDAMUS

RESPONDENT FEDERAL ENERGY REGULATORY COMMISSION’S

September 20, 2018

A. The Edenville Project ............................................................................ 2

B. The Statutory Framework...................................................................... 4

C. Fourteen Years Of Non-Compliance .................................................... 4

D. The Compliance Order .......................................................................... 6

E. The Cease Generation Order ................................................................. 7

F. The Revocation Order ........................................................................... 8

G. The Ongoing Agency Proceedings...................................................... 11

I. Boyce Hydro Has Not Shown A Likelihood

A. Boyce Hydro Does Not Dispute The Findings

B. The Commission Reasonably Found That Revocation

II. Boyce Hydro Has Not Established An Irreparable Injury............................. 18

III. The Public Interest Does Not Favor A Stay .................................................. 19

COURT CASES: PAGE

Bluestone Energy Design, Inc. v. FERC,

CMM Cable Rep., Inc. v. Ocean Coast Properties, Inc.,

Cuomo v. NRC, 772 F.2d 972 (D.C. Cir. 1985) ....................................................... 18

Lichoulas v. FERC, 606 F.3d 769 (D.C. Cir. 2010) ................................................ 15

N. Atl. Westbound Freight Ass’n v. Fed. Mar. Comm’n,

Nken v. Holder, 556 U.S. 418 (2009) ...................................................................... 12

Sherley v. Sebelius, 644 F.3d 388 (D.C. Cir. 2011) ................................................. 12

Udall v. FPC, 387 U.S. 428 (1967) ......................................................................... 20

Va. Petroleum Jobbers Ass’n v. FPC,

Wash. Metro. Area Transit Comm’n v. Holiday Tours, Inc.,

Boyce Hydro Power, LLC, 161 FERC ¶ 62,119 (2017) ........................................ 7, 8

Boyce Hydro Power, LLC, 162 FERC ¶ 61,115 (2018) ........................................ 8, 9

Boyce Hydro Power, LLC, 162 FERC ¶ 61,116 (2018) ....................................16, 19

Boyce Hydro Power, LLC, 164 FERC ¶ 61,178 (2018) ...............................1, 2, 3, 4,

Christopher M. Anthony, 147 FERC ¶ 61,118 (2014) ............................................. 14

Minnesota Dep’t of Nat. Res., 37 FERC ¶ 62,044 (1986) ....................................... 14

Town of Cedaredge, 155 FERC ¶ 62,195 (2016) .................................................... 17

Section 31, 16 U.S.C. § 823b ........................................................4, 5, 8, 9, 13

Boyce Hydro Boyce Hydro Power, LLC

Cease Generation Order Boyce Hydro Power, LLC,

Cease Generation Rehearing Order Boyce Hydro Power, LLC,

Commission Federal Energy Regulatory Commission

Compliance Order Boyce Hydro Power, LLC,

FERC Federal Energy Regulatory Commission

Lake Associations collectively, the Sanford Lake Preservation

Project Edenville Project No. 10808

Proposed Revocation Order Boyce Hydro Power, LLC,

Revocation Order Boyce Hydro Power, LLC,

In the United States Court of Appeals

IN RE: BOYCE HYDRO POWER, LLC,

ON PETITION FOR WRIT OF MANDAMUS

RESPONDENT FEDERAL ENERGY REGULATORY COMMISSION’S

enjoin the Federal Energy Regulatory Commission from enforcing a license

revocation order issued to remedy more than a decade of non-compliance with

a careful review of an extensive record which established Boyce Hydro’s “history

of obfuscation and outright disregard of its obligations.” Boyce Hydro Power,

LLC, 164 FERC ¶ 61,178, P 58 (2018) (Revocation Order). (A copy of the

Boyce Hydro’s request for extraordinary relief is not based on a dispute as to

Court, should be denied.

A. The Edenville Project

Tittabawassee and Tobacco Rivers, creating a 2,600-acre reservoir known as

the Tobacco spillway is on the western side. Id.

property damage. The Commission’s Dam Safety Guidelines require project