[Federal Register Volume 90, Number 37 (Wednesday, February 26, 2025)]
[Notices]
[Pages 10717-10721]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2025-03126]
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DEPARTMENT OF ENERGY
Federal Energy Regulatory Commission
[Docket Nos. RD25-1-000; RD25-2-000; RD25-3-000 (not consolidated)]
In Reply Refer To: North American Electric Reliability
Corporation
North American Electric Reliability Corporation
1401 H Street NW
Suite 410
Washington, DC 20005
Attention: Lauren Perotti
Alain Rigaud
Sarah P. Crawford
Dear Ms. Perotti, Mr. Rigaud, and Ms. Crawford:
1. On November 4, 2024, the North American Electric Reliability
Corporation (NERC), the Commission-certified Electric Reliability
Organization, submitted three petitions seeking approval of: (1) a
proposed definition of an inverter-based resource (IBR) for inclusion
in the NERC Glossary of Terms Used in NERC Reliability Standards (NERC
Glossary); \1\ (2) proposed Reliability Standards PRC-028-1
(Disturbance Monitoring and Reporting Requirements for Inverter-Based
Resources) and PRC-002-5 (Disturbance Monitoring and Reporting
Requirements); \2\ and (3) proposed Reliability Standard PRC-030-1
(Unexpected Inverter-Based Resource Event Mitigation).\3\ NERC also
requested approval of the associated implementation plans, violation
risk factors, and violation severity levels, as well as the retirement
of currently effective Reliability Standard PRC-002-4. For the reasons
discussed below, pursuant to section 215(d)(2) of the Federal Power Act
(FPA),\4\ we grant the requested approvals.
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\1\ NERC Petition, Docket No. RD25-1-000 (NERC IBR Definition
Petition).
\2\ NERC Petition, Docket No. RD25-2-000 (NERC PRC-028-1
Petition).
\3\ NERC Petition, Docket No. RD25-3-000 (NERC PRC-030-1
Petition).
\4\ 16 U.S.C. 824o.
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2. In Order No. 901, pursuant to section 215(d)(5) of the FPA, the
Commission directed NERC to submit new or modified Reliability
Standards to, among other things, address disturbance monitoring data
sharing, performance requirements, and post-event performance
validation for registered IBRs.\5\ The Commission directed NERC to
consider the burden on IBR owners to collect and provide data collected
by disturbance monitoring equipment while assuring that Bulk-Power
System operators and planners have the data they need for accurate
disturbance monitoring and analysis.\6\ The Commission also directed
NERC to submit new or modified Reliability Standards that ``require
generator owners to communicate to the relevant planning coordinators,
transmission planners, reliability coordinators, transmission
operators, and balancing authorities the actual post-disturbance ramp
rates.'' \7\ The Commission directed NERC to submit new or modified
Reliability Standards addressing these directives to the Commission no
later than November 4, 2024.\8\
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\5\ Reliability Standards to Address Inverter-Based Res., Order
No. 901, 185 FERC ] 61,042, at P 229 (2023).
\6\ Id. P 86.
\7\ Id. P 208.
\8\ Id. P 229.
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3. In the IBR Definition Petition, NERC proposes to define an IBR
as ``[a] plant/facility consisting of individual devices that are
capable of exporting Real Power through a power electronic interface(s)
such as an inverter or converter, and that are operated together as a
single resource at a common point of interconnection to the electric
system.'' \9\ NERC explains that while developing its proposed IBR
definition, it considered the Institute of Electrical and Electronics
Engineers (IEEE) 2800-2022 IBR definition, as well as other IBR
definitions identified in various NERC and Commission documents.\10\
According to NERC, the ``capable of exporting real power'' phrase in
the proposed IBR definition clarifies that IBRs are considered
generation resources that provide real power to load.\11\ NERC states
that the proposed IBR definition will promote consistency in the
application of Reliability Standards, help avoid confusion, and
facilitate efficiency for future standards drafting teams when
addressing outstanding IBR issues. NERC's proposed implementation plan
states that the proposed IBR definition would become effective on the
first day of the first calendar quarter after Commission approval.\12\
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\9\ NERC IBR Definition Petition at 9 (``Examples include, but
are not limited to plants/facilities with solar photovoltaic (PV),
Type 3 and Type 4 wind, battery energy storage system (BESS), and
fuel cell devices.'').
\10\ Id. at 9-10.
\11\ Id. at 11. In its petition, NERC appears to use the terms
``generating resource'' and ``generation resource'' interchangeably.
See id. at 10-11.
\12\ Id. at 14.
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4. In the NERC PRC-028-1 Petition, NERC explains that proposed
Reliability Standards PRC-028-1 and PRC-002-5 comply in part with the
Commission's directives in Order No. 901 regarding disturbance
monitoring requirements for IBRs \13\ and would improve reliability by
ensuring the availability of data from synchronous generating resources
and IBRs necessary to facilitate the analysis of disturbances on the
Bulk-Power System.\14\ NERC states that although Reliability Standard
PRC-002-4 generally serves the purpose of capturing event data to
analyze system disturbances, the disturbance monitoring requirements of
the existing Standard do not apply to many IBRs, given their technical
and operational characteristics.\15\ NERC explains that proposed
Reliability Standard PRC-028-1 would address this reliability gap by
extending disturbance monitoring and reporting requirements to all IBRs
that are or will be subject to the Reliability Standards.\16\
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\13\ NERC states that proposed Reliability Standard PRC-028-1
does not address the Commission's Order No. 901 directive regarding
the validation of registered IBR models using disturbance monitoring
data, which NERC intends to address during Milestone 3 of its Order
No. 901 Work Plan. See NERC PRC-028-1 Petition at 35-36.
\14\ Id. at 19.
\15\ Id. at 21-22.
\16\ Id. at 2.
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[[Page 10718]]
5. Proposed Reliability Standard PRC-028-1 applies to generator
owners that own bulk-electric system IBRs, as well as generator owners
that own non-bulk electric system IBRs that NERC will register under
NERC's registry criteria for IBR generator owners and generator
operators.\17\ The proposed Standard would require applicable entities
to install disturbance monitoring equipment on their IBRs in order to
collect sequence of event recording, fault recording, and dynamic
disturbance recording data.\18\ NERC explains that data collected under
the proposed Standard would be used to evaluate IBR ride-through
performance during system disturbances and provide data for IBR model
validation to assist operators and planners in better accounting for
IBR performance in the future.\19\ Additionally, the proposed Standard
would require IBR generator owners to address failures of disturbance
monitoring recording capabilities by either restoring function within
specified timeframes or submitting corrective action plans indicating
how and when recording capabilities would be restored.\20\
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\17\ Id. at 22; see also NERC, Rules of Procedure, App. 5B
(Statement of Compliance Registry Criteria) (June 27, 2024), https://www.nerc.com/AboutNERC/Pages/Rules-of-Procedure.aspx.
\18\ NERC PRC-028-1 Petition at 23-31.
\19\ Id. at 2.
\20\ Id. at 34-35.
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6. Proposed Reliability Standard PRC-002-5 would replace
Reliability Standard PRC-002-4 and clarify its applicability to non-IBR
bulk electric system elements.\21\ Further, proposed Reliability
Standard PRC-002-5 adds data collection and sharing requirements, as
well as data formatting requirements, similar to those in proposed
Reliability Standard PRC-028-1.\22\
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\21\ Id. at 38.
\22\ See id.
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7. NERC describes its proposed implementation plan for Reliability
Standards PRC-028-1 and PRC-002-5 as ``a risk-based, phased-in
compliance approach'' that would require generator owners to implement
disturbance monitoring equipment by no later than 2030.\23\ NERC
further proposes a process by which generator owners may request an
extension to implementation deadlines because of potential constraints
outside of a generator owner's control, such as supply chain
delays.\24\
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\23\ Id. at 39.
\24\ Id.
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8. The NERC PRC-030-1 Petition explains that proposed Reliability
Standard PRC-030-1 was developed as part of a set of Reliability
Standards in response to directives in Order No. 901 to develop
requirements that address IBR ride-through settings and performance,
data recording, and analysis and mitigation of unexpected IBR
performance.\25\ The purpose of proposed Reliability Standard PRC-030-1
is to ``[i]dentify, analyze, and mitigate unexpected [IBR] change of
power output.'' \26\ The proposed Reliability Standard covers both bulk
electric system IBRs and non-bulk electric system IBRs \27\ and is
applicable to generator owners that own: (1) IBRs that meet the bulk
electric system definition criteria, and (2) non-bulk electric system
IBRs that NERC will register in accordance with its Rules of
Procedure.\28\
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\25\ See NERC PRC-030-1 Petition at 1; see also Order No. 901,
185 FERC ] 61,042 at P 208.
\26\ NERC PRC-030-1 Petition at 16.
\27\ Applicable non-bulk electric system IBRs include those non-
bulk electric system IBRs that either have or contribute to an
aggregate nameplate capacity of greater than or equal to 20 MVA,
connected through a system designed primarily for delivering such
capacity to a common point of connection at a voltage greater than
or equal to 60 kV. See id. at 17, 32.
\28\ See N. Am. Elec. Reliability Corp., 183 FERC ] 61,116, at P
52 (2023) (citing Registration of Inverter-based Res., 181 FERC ]
61,124, at P 33 (2022) (directing NERC to ensure IBR owners and
operators are registered and required to comply with applicable
Reliability Standards within 36 months of Commission approval of the
NERC Registration Work Plan (May 18, 2026))).
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9. Proposed Reliability Standard PRC-030-1 requires applicable
entities to implement a documented process for the identification of
any ``complete facility loss of output or certain changes of real power
output'' and contains both thresholds \29\ for identification and
exclusions from identification measures.\30\ Further, the Standard
requires applicable entities in certain circumstances to conduct and
report, if requested, an analysis of a real power change event.\31\
When identified as necessary by the required analysis, a generator
owner must develop and implement a corrective action plan to address
performance issues or provide a technical justification \32\ as to why
corrective actions will not be implemented.\33\ Proposed PRC-030-1
further requires generator owners to update corrective action plans if
corrective actions or schedules change, and notify associated
reliability coordinators of completion of or changes to the corrective
action plan. According to NERC, proposed PRC-030-1 is responsive to the
Commission's directive in Order No. 901 requiring NERC to develop
Reliability Standards that require generator owners to communicate
actual post-disturbance ramp rates to relevant planning coordinators,
transmission planners, reliability coordinators, transmission
operators, and balancing authorities.\34\
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\29\ Proposed Reliability Standard PRC-030-1 establishes a
minimum threshold of at least 20 MW and at least 10% of the plant's
gross nameplate rating, occurring within a four second period, that
NERC states would make the self-identification of events manageable
for both small and large facilities. See NERC PRC-030-1 Petition at
19.
\30\ Id. at 18, 21 (describing those slower changes in Real
Power that are excluded from the identification requirements in
Requirement R1 because they are anticipated with normal operations
or expected responses).
\31\ Id. at 22-24.
\32\ Primary characteristics of an acceptable technical
justification for not performing corrective actions include
``interconnection requirements on IBR performance extending beyond
those in place at the time of interconnection'' and corrective
actions would require significant material modifications or a
qualified change. See id. at 26.
\33\ Id. at 24.
\34\ See Order No. 901, 185 FERC ] 61,042 at P 208.
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10. NERC's proposed implementation plan states that proposed
Reliability Standard PRC-030-1 will become effective on the later of
the first day of the first calendar quarter that is 12 months after the
effective date of the Commission's order approving (1) Reliability
Standard PRC-030-1 or (2) Reliability Standard PRC-029-1 (Frequency and
Voltage Ride-through Requirements for Inverter-Based Generating
Resources).\35\ NERC's proposed implementation plan further provides a
phased-in compliance approach where bulk electric system IBRs must
comply with all four requirements of Reliability Standard PRC-030-1 no
later than the effective date of the Standard. Applicable non-bulk
electric system IBRs must comply with all four requirements by the
later of January 1, 2027, or the effective date of Reliability Standard
PRC-030-1. NERC asserts that this phased-in implementation approach
satisfies the Commission's directive in Order No. 901 for all directed
Reliability Standards to be effective and enforceable prior to
2030.\36\
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\35\ See NERC PRC-030-1 Petition at 32.
\36\ See Order No. 901, 185 FERC ] 61,042 at P 226.
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11. Notice of NERC's three November 4, 2024, petitions were
published in the Federal Register, 89 FR 88993 (Nov. 12, 2024), with
interventions and protests due on or before December 4, 2024. Calpine
Corporation, North Carolina Electric Membership Corporation, Solar
Energy Industries Association, American Clean Power Association, Orsted
Wind Power North America LLC, Invenergy Renewables, LLC, Dominion
Energy Virginia, Eversource Energy Service Company, and RENEW
Northeast, Inc. all filed timely motions to intervene in all or one of
the dockets
[[Page 10719]]
addressed in this order. Pursuant to Rule 214 of the Commission's Rules
of Practice and Procedure, 18 CFR 385.214 (2024), the timely, unopposed
motions to intervene serve to make the entities that filed them parties
to the proceedings in which they were filed. No comments or protests
were submitted in any of the three dockets.
12. Pursuant to section 215(d)(2) of the FPA, we approve the
proposed IBR definition for inclusion in the NERC Glossary, as well as
proposed Reliability Standards PRC-028-1, PRC-002-5, and PRC-030-1, as
just and reasonable and not unduly discriminatory or preferential and
in the public interest.\37\ We also approve the proposed Reliability
Standards' associated violation risk factors and violation severity
levels, as well as the proposed implementation plans. Finally, we
approve the retirement of Reliability Standard PRC-002-4 immediately
prior to the effective date of proposed Reliability Standard PRC-002-5.
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\37\ 16 U.S.C. 824o(d)(2).
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13. We determine that the proposed IBR definition and proposed
Reliability Standards PRC-028-1, PRC-002-5, and PRC-030-1 satisfy many
of the Commission's relevant directives from Order No. 901 to establish
performance requirements and requirements for sharing disturbance
monitoring data and post-disturbance ramp rates for registered
IBRs.\38\ Given the increase in the amount of IBRs connecting to the
Bulk-Power System, as well as the importance of the new IBR definition
and Reliability Standards PRC-028-1 and PRC-030-1 to maintaining the
reliable operation of the Bulk-Power System, we strongly encourage
entities that are capable of complying earlier than the mandatory and
enforceable date to do so.
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\38\ See Order No. 901, 185 FERC ] 61,042 at PP 1-8.
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Information Collection Statement
14. The FERC-725G information collection requirements are subject
to review by the Office of Management and Budget (OMB) under section
3507(d) of the Paperwork Reduction Act of 1995. OMB's regulations
require approval of certain information collection requirements imposed
by agency rules. Upon approval of a collection of information, OMB will
assign an OMB control number and expiration date. Respondents subject
to the filing requirements will not be penalized for failing to respond
to these collections of information unless the collections of
information display a valid OMB control number. The Commission solicits
comments on the need for this information, whether the information will
have practical utility, the accuracy of the burden estimates, ways to
enhance the quality, utility, and clarity of the information to be
collected or retained, and any suggested methods for minimizing
respondents' burden, including the use of automated information
techniques.
15. The Commission bases its paperwork burden estimates on the
additional paperwork burden presented by the proposed revisions to
Reliability Standard PRC-002-5 and new Reliability Standards PRC-028-1
and PRC-030-1. The new glossary term Inverter-Based Resource (IBR) is
not expected to generate any new burden as it is a definition used
within the body of Reliability Standards. Reliability Standards are
objective-based and allow entities to choose compliance approaches best
tailored to their systems. As of November 20, 2024, the NERC Compliance
Registry identified 12 reliability coordinators, 325 transmission
owners, and 1,238 generator owners as unique U.S. entities that are
subject to mandatory compliance with Reliability Standard PRC-002-5.
Additionally, these entities will have additional burdens given that
the revisions to Reliability Standard PRC-002-5 will focus on
synchronous generation and updates to SER, FR, and DDR data being
supplied to the reliability coordinator, regional entity, or NERC.
Burden estimates for the unique U.S. entities for new PRC-028-1 and
PRC-030-1 are taken from numbers supplied by NERC, with 591 registered
generator owners that own bulk electric system solar and wind
facilities and a median 755 generator owners that own non bulk electric
system facilities. Based on these assumptions, we estimate the
following reporting burden:
[[Page 10720]]
Proposed Changes in Burden PRC-002-5 Docket No. RD25-2
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Number of
Type and number of annual Total number of Average number of burden
Reliability standard entity \39\ responses responses hours per response \40\ Total burden hours
per entity
(1)................... (2) (1) * (2) = (3) (4)..................... (3) * (4) = (5)
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Annual Collection PRC-002-5 FERC-725G
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Annual review and record 12 (RC)............... 1 12 8 hrs. $70.67/hr........ 96 hrs $6,784.32
retention. 325 (TO).............. 1 325 8 hrs. $70.67/hr........ 2,600 hrs. $183,742.00.
1,238 (GO)............ 1 1,238 8 hrs. $70.67/hr........ 9.904 hrs. $699,915.68.
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Total for PRC-002-5....... ...................... ........... 1,575 ........................ 12,600 hrs. $890,442.00.
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Proposed Burden PRC-028-1 Docket No. RD25-2
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Number of
Type and number of annual Total number of Average number of burden
Reliability standard entity \41\ responses responses hours per response \42\ Total burden hours
per entity
(1)................... (2) (1) * (2) = (3) (4)..................... (3) * (4) = (5)
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Annual Collection PRC-028-1 FERC-725G
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Annual review and record 591 (BES IBR GO)...... 1 591 80 hrs. $70.67/hr....... 47,280 hrs. $3,341,277.60.
retention. 755 (Non-BES IBR GO).. 1 755 80 hrs. $70.67/hr....... 60,400 hrs. $4,268,468.00.
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Total for PRC-028-1....... ...................... ........... 1,346 ........................ 107,680 hrs. $7,609,745.60.
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Proposed Burden PRC-030-1 Docket No. RD25-3
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Number of
Type and number of annual Total number of Average number of burden
Reliability standard entity \43\ responses responses hours per response \44\ Total burden hours
per entity
(1)................... (2) (1) * (2) = (3) (4)..................... (3) * (4) = (5)
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Annual Collection PRC-030-1 FERC-725G
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Annual review and record 591 (BES IBR GO)...... 0.5 296 40 hrs. $70.67/hr....... 11,840 hrs. $836,732.80.
retention. 755 (Non-BES IBR GO).. 0.5 378 40 hrs. $70.67/hr....... 15,120 hrs. $1,068,530.40.
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Total for PRC-030-1....... ...................... ........... 674 ........................ 26,960 hrs. $1,905,263.20.
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16. The responses and burden hours for Years 1-3 will total
respectively as follows:
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\39\ The ``Number of Entity'' data is compiled from the November
20, 2024, edition of the NERC Compliance Registry.
\40\ The estimated hourly cost (salary plus benefits) is a
combination of the following categories from the Bureau of Labor
Statistics (BLS) website, http://www.bls.gov/oes/current/naics2_22.htm: 75% of the average of an Electrical Engineer (17-
2071) $79.31/hr., $79.31 x 0.75 = $59.4825 ($59.48/hour); and 25% of
an Information and Record Clerk (43-4199) $44.74/hr., $44.74 x 0.25
= 11.185 ($11.19/hour); for a total of ($59.48 + $11.19 = $70.67/
hour).
\41\ The ``Number of Entity'' data is compiled from the November
20, 2024, edition of the NERC Compliance Registry.
\42\ The estimated hourly cost (salary plus benefits) is a
combination of the following categories from the Bureau of Labor
Statistics (BLS) website, http://www.bls.gov/oes/current/naics2_22.htm: 75% of the average of an Electrical Engineer (17-
2071) $79.31/hr., $79.31 x 0.75 = $59.4825 ($59.48/hour); and 25% of
an Information and Record Clerk (43-4199) $44.74/hr., $44.74 x 0.25
= $11.185 ($11.19/hour); for a total of ($59.48 + $11.19 = $70.67/
hour).
\43\ The ``Number of Entity'' data is compiled from the November
20, 2024, edition of the NERC Compliance Registry.
\44\ The estimated hourly cost (salary plus benefits) is a
combination of the following categories from the Bureau of Labor
Statistics (BLS) website, http://www.bls.gov/oes/current/naics2_22.htm: 75% of the average of an Electrical Engineer (17-
2071) $79.31/hr., 79.31 x 0.75 = 59.4825 ($59.48/hour); and 25% of
an Information and Record Clerk (43-4199) $44.74/hr., $44.74 x 0.25%
= 11.185 ($11.19/hour); for a total of ($59.48 + $11.19 = $70.67/
hour).
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Year 1-3 each: for proposed Reliability standard PRC-002-5
will be 1,575 responses; 12,600 hours;
Year 1-3 each: for proposed Reliability Standard PRC-028-1
will be 1,346 responses; 107,680 hours; and
Year 1-3 each: for proposed Reliability Standard PRC-030-1
will be 674 responses; 26,960 hours.
The annual cost burden for each Year 1-3 is $890,442.00
for proposed Reliability Standard PRC-002-5; $7,609,745.60 for Proposed
Reliability Standard PRC-028-1; and $1,905,263.20 for proposed
Reliability Standard PRC-030-1.
17. Title: Mandatory Reliability Standards, Revised Protection and
Control Reliability Standards.
18. Action: Revision to FERC-725G information collection.
19. OMB Control No.: 1902-0252.
20. Respondents: Businesses or other for-profit institutions; not-
for-profit institutions.
21. Frequency of Responses: On Occasion.
22. Necessity of the Information: This order approves the
Reliability Standards pertaining to disturbance monitoring and
reporting requirements for IBRs and unexpected IBR event mitigation as
well as the IBR definition. As discussed above, the Commission approves
the proposed IBR definition and Reliability Standards PRC-028-1, PRC-
002-5, and PRC-030-1 pursuant to section 215(d)(2) of the FPA because
the definition and the Standards help ensure the availability of data
from synchronous generating resources and IBRs; the Standards also
create requirements for a documented process to identify unexpected IBR
events and to develop corrective action plans, as needed.
23. Internal Review: The Commission has reviewed the proposed
Reliability
[[Page 10721]]
Standards and made a determination that its action is necessary to
implement section 215 of the FPA.
24. Interested persons may obtain information on the reporting
requirements by contacting the following: Federal Energy Regulatory
Commission, 888 First Street NE, Washington, DC 20426 [Attention: Kayla
Williams, Office of the Executive Director, email:
[email protected], phone: (202) 502-8663, fax: (202) 273-0873].
25. For submitting comments concerning the collection(s) of
information and the associated burden estimate(s), please send your
comments to the Commission, and to the Office of Management and Budget,
Office of Information and Regulatory Affairs, Washington, DC 20503
[Attention: Desk Officer for the Federal Energy Regulatory Commission,
phone: (202) 395-4638, fax: (202) 395-7285]. For security reasons,
comments to OMB should be submitted by email to:
[email protected]. Comments submitted to OMB should include
Docket Number RM25-3-000 and OMB Control Number 1902-0252.
26. In addition to publishing the full text of this document in the
Federal Register, the Commission provides all interested persons an
opportunity to view and/or print the contents of this document via the
internet through the Commission's Home Page (http://www.ferc.gov).
27. From the Commission's Home Page on the internet, this
information is available on eLibrary. The full text of this document is
available on eLibrary in PDF and Microsoft Word format for viewing,
printing, and/or downloading. To access this document in eLibrary, type
the docket number excluding the last three digits of this document in
the docket number field.
28. User assistance is available for eLibrary and the Commission's
website during normal business hours from the Commission's Online
Support at (202) 502-6652 (toll free at 1-866-208-3676) or email at
[email protected], or the Public Reference Room at (202) 502-
8371, or (202) 502-8659 for TTY. Email the Public Reference Room at
[email protected].
29. All submissions must be formatted and filed in accordance with
submission guidelines at: http://www.ferc.gov/help/submission-guide.asp. For user assistance, contact FERC Online Support by email at
[email protected], or by phone at: (866) 208-3676 (toll-free),
or (202) 502-8659 for TTY.
By direction of the Commission.
Dated: February 20, 2025.
Debbie-Anne A. Reese,
Secretary.
[FR Doc. 2025-03126 Filed 2-25-25; 8:45 am]
BILLING CODE 6717-01-P