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The Revelstoke Dam: a Case Study of the Selection, Licensing and Implementation of a Large Scale Hydroelectric Project in British Columbia

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The Revelstoke Dam: a Case Study of the Selection, Licensing and Implementation of a Large Scale Hydroelectric Project in British Columbia THE REVELSTOKE DAM: A CASE STUDY OF THE SELECTION, LICENSING AND IMPLEMENTATION OF A LARGE SCALE HYDROELECTRIC PROJECT IN BRITISH COLUMBIA By HEIDI ERIKA MISSLER B.A., The University of British Columbia, 1984 A THESIS SUBMITTED IN PARTIAL FULFILLMENT OF THE REQUIREMENT FOR THE DEGREE OF MASTER OF ARTS i n THE FACULTY OF GRADUATE STUDIES (Department of Geography) We accept this thesis as conforming to the required standard THE UNIVERSITY OF BRITISH COLUMBIA September 1988 QHeidi Erika Missler, 1988 In presenting this thesis in partial fulfilment of the requirements for an advanced degree at the University of British Columbia, I agree that the Library shall make it freely available for reference and study. I further agree that permission for extensive copying of this thesis for scholarly purposes may be granted by the head of my department or by his or her representatives. It is understood that copying or publication of this thesis for financial gain shall not be allowed without my written permission. Department The University of British Columbia 1956 Main Mall Vancouver, Canada V6T 1Y3 Date DE-6G/81) ABSTRACT Procedures for the selection, licensing and implementation of large scale energy projects must evolve with the escalating complexity of such projects and. the changing public value system. Government appeared unresponsive to rapidly changing conditions in the 1960s and 1970s. Consequently, approval of major hydroelectric development projects in British Columbia under the Water Act became increasingly more contentious. This led, in 1980, to the introduction of new procedures—the Energy Project Review Process (EPRP)— under the B.C. Utilities Commission Act. This study documents and evaluates the selection, licensing and implementation of the Revelstoke Hydroelectric Dam under the Water Act and assesses to what extent the current EPRP selection and licensing procedure overcame the shortcomings of the Revelstoke experience. The methodological approach used is that of a post-development analysis. The Revelstoke Project case study revealed that the Water Act only addressed project design, safety, and impacts, but not selection and justification. Project implementation proceeded under a conditional water licence. The two-part administrative framework, established under the licence and by B.C. Hydro, lacked integration and failed to provide effective management. A strong commitment to the preservation of environmental quality was lacking. The licensee's monitoring of construction practices in general and of compliance with environmental guidelines, a set of nonspecific commonly accepted construction activities, were inadequate. Governmental surveillance and enforcement were rendered unsatisfactory by staff shortages and a laissez faire attitude. The case study concluded with a post-development environmental analysis, which determined the effectiveness of the Environmental Impact Statement in predicting impacts to be only twenty-five percent. Evaluation of the EPRP and its application in the Site C Dam proposal demonstrated that it is a significant improvement over its predecessor. If applied efficiently and in its entirety, it would provide an adequate structure and procedural sequence for project selection and licensing. However, some of the inadequacies noted in the Revelstoke case study, such the lack of provisions for early public and government participation, an adequate data base, an administrative structure, and a post-development analysis, have not been or only partially corrected. To conclude, this thesis offers some recommendations to further improve this continually evolving process. iv TABLE OF CONTENTS ABSTRACT ii TABLE OF CONTENTS iv LIST OF TABLES vi LIST OF FIGURES vii ACKNOWLEDGMENTS viii GLOSSARY ix CHAPTER 1. THE SELECTION AND LICENSING OF LARGE SCALE ENERGY PROJECTS 1 1.1 Hydroelectric Development in B.C. 4 1.1.1 B.C. Hydro's Role and Operations 4 1.1.2 The Revelstoke Project 8 1.2 Objectives and Methodology of the Study 11 1.3 Outline of the Study 12 CHAPTER 2. SELECTION AND LICENSING OF THE REVELSTOKE PROJECT 17 2.1 Prevailing Policies and Procedures 17 2.2 Project Justification and Selection 21 2.3 The Water Licence Application 23 2.3.1 Criticisms of the Water Licence Application Process 27 2.3.1.1 The Hearing Process 27 2.3.1.2 Mandate and Expertise of the Water Management Branch 29 2.3.1.3 Project Justification 30 2.4 The Water Licence 31 2.4.1 The Water Licence Appeal 36 2.4.2 The Amended Water Licence 38 CHAPTER 3. THE ADMINISTRATIVE FRAMEWORK 42 3.1 The Unofficial Program 43 3.1.1 The Components of the Program 44 3.1.2 The Operation of the Program 47 3.1.3 Interaction of the Components 50 3.2 The Official Program 51 3.2.1 The Components of the Program 51 3.2.2 The Operation of the Program 58 3.2.2.1 The Community Impact Committee 59 3.2.2.2 The Revelstoke Project Coordinating Committee 67 3.2.2.3 The Claims Officer 78 3.2.2.4 The Site Biologists 80 3.2.3 Interaction of the Components 83 3.3 The Relations between the Two Programs 83 3.4 Major Shortcomings of the. Administrative Framework 87 V CHAPTER 4. THE ENVIRONMENT - GUIDELINES AND CONSTRUCTION IMPACTS 94 4.1 Contractual Requirements and Environmental Guidelines 95 4.1.1 Compliance Monitoring of Requirements and Guidelines 100 4.2 Construction Activities and Environmental Impacts 102 CHAPTER 5. ENVIRONMENTAL PREDICTIONS AND OUTCOMES 121 5.1 The Aquatic Environment and Fish Resource 122 5.1.1 Physical Limnological System 122 5.1.1.1 Reservoir 125 5.1.1.2 Downstream of the Dam 127 5.1.2 Chemical and Biological Systems 128 5.1.2.1 Reservoir 130 5.1.2.2 Downstream of the Dam 132 5.2 The Terrestrial Environment and Wildlife Resource 134 5.2.1 The Land Surface 134 5.2.2 The Wildlife Resource 135 5.3 The Atmospheric Environment 143 5.4 Conclusion 144 CHAPTER 6. THE CURRENT ENERGY PROJECT REVIEW PROCESS IN BRITISH COLUMBIA..148 6.1 The Energy Project Review Process 150 6.2 The Site C Experience 157 6.2.1 The Hearing Process 158 6.2.2 Mandate and Expertise of the BCUC Review Panel 160 6.2.3 Project Selection 161 6.2.3 Project Justification 162 6.2.5 The Proposed Monitoring Program ; 164 CHAPTER 7. THE REVELSTOKE EXPERIENCE AND THE CURRENT ENERGY PROJECT REVIEW PROCESS IN BRITISH COLUMBIA 168 7.1 Review of the Revelstoke Experience... 168 7.1.1 Pre-Application .168 7.1.2 Application 169 7.1.3 Licence 170 7.1.4 Environmental Guidelines 174 7.1.5 Compliance Monitoring 175 7.1.6 Post-Development Environmental Analysis 176 7.2 Assessment of the Energy Project Review Process in Light of the Revelstoke Exper ience 177 7.3 Further Development of the Energy Project Review Process 184 BIBLIOGRAPHY 188 APPENDIX 199 vi LIST OF TABLES 1.1 Operating Schedule of the Revelstoke Dam 10 2.1 B.C. Legislation, Agencies and Procedures in Relationship to the Licensing of Selected Hydroelectric Projects 19 2.2 Studies for Project Selection 22 2.3 Intervenors at the Revelstoke Public Hearing 26 2.4 Summary of Content of Selected Clauses in Water Licence 33 3.1 Water Licence Clauses Administered by the RPCC 55 3.2 Sussex Study - Assessment of Outstanding Issues 64 3.3 B.C. Hydro Funding of Some of the Administrative Framework of the Revelstoke Project 88 4.1 Summary of Selected Contract Requirements and Guidelines 97 4.2 Construction Activities Monitored and Environmental Impacts Reported by Site Biologists ..104 4.3 Construction Activities Monitored by Site Fisheries Biologist in 1978 106 5.1 Comparison of Predicted and Actual Impacts on the Aquatic Environment and Fish Resource • ..123 5.2 Comparison of Predicted and Actual Impacts on the Wildlife Resource ....137 5.3 Post-Development Environmental Analysis Results 146 vii LIST OF FIGURES 1.1 The Columbia River Treaty Dams and Other Dams of the Area 5 2.1 B.C. Hydro's Perception of the Procedure and Schedule for Project Licensing 24 3.1 The Unofficial Program 45 3.2 The Official Program 52 3.3 The Regional District of Columbia-Shuswap - Local Communities Affected by the Revelstoke Project 61 3.4 Administrative Framework for the Revelstoke Project: Relationship to Public, Industrial and Governmental Sectors.. .....85 6.1 The B.C. Energy Project Review Process: Certification Procedures 151 6.2 The Energy Project Review Process: Pre-Application and Application Phases 152 6.3 The Energy Project Coordinating Committee and its Three Working Committees.. 154 6.4 General Framework for Managing Environmental and Socio-Economic Impacts 156 viii ACKNOWLEDGMENTS Very special thanks go to my supervisor, Dr. J. D. Chapman, for his guidance and enthusiastic support, and to Mrs. M. E. North for her constructive advice and review of this study. I would like to express ray appreciation to the many people at the various Branches of the Ministry of Environment in Victoria and Nelson, in particular to Dr. J. O'Riordan, Mr. G. F. Cox, Mr. R. Round, Mr. J. H. Walker, Dr. R. Nordin, and Mr. G. Woods. For their kind help I thank also Dr. R. Bradley, Mr. H. Smith, Mr. R. Roddick, and many other employees of B.C. Hydro and Power Authority. Finally, thanks to my family who never lost faith in my ability to finish this thesis. ix GLOSSARY adjunct committees - part of the unofficial administrative framework for the Revelstoke Project - a set of five committees concerned with problems arising from the construction of the Project. BCUC - British Columbia Utilities Commission - regulatory body for public utilities in B.C. CIC - Revelstoke Community Impact Committee - part of the official administrative program for the Revelstoke Project. Claims Officer - part of the official administrative program for the Revelstoke Project - responsible for the resolution of claims <$10,000 arising from the Revelstoke Project.
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