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James W. Kennedy Telephone (603) 225-8505
City Solicitor FAX (603) 225-8558
___________________
Danielle Pacik
Deputy City Solicitor
August 12, 2016
Eileen Fox, Clerk
New Hampshire Supreme Court
One Charles Doe Drive
Concord, NH 03301
RE: Appeal of the City of Concord
Docket No. 2016-0395
Dear Clerk Fox:
Enclosed please find an original and seven copies of the City of Concord’s Objection to Motion
for Summary Affirmance, together with accompanying Memorandum of Law, for filing in the above
matter.
Please feel free to contact me with any questions 225-8505.
Sincerely,
Danielle L. Pacik, Esq.
Deputy City Solicitor
DLP/vd
Enclosures
cc: Attorney General Joseph Foster
Senior Assistant Attorney General Peter Roth
Thomas Pappas, Esq.
Barry Needleman, Esq.
Thomas Getz, Esq.
Site Evaluation Committee
SEC Distribution List (by email)
City of Concord City Solicitor’s Office
41 Green Street
Concord, New Hampshire 03301
1
THE STATE OF NEW HAMPSHIRE
SUPREME COURT
Joint Application of Northern Pass Transmission, LLC and Public Service Company of New
Hampshire d/b/a Eversource Energy for a Certificate of Site and Facility for the Construction of
a New High Voltage Transmission Line in New Hampshire
Case No. 2016-0395
CITY OF CONCORD’S OBJECTION TO MOTION FOR SUMMARY AFFIRMANCE
The City of Concord, by and through its attorneys, the Office of the City Solicitor, hereby
submits the following objection to the motion for summary affirmance, stating as follows:
1. Pursuant to the Rule 25 of the Supreme Court of the State of New Hampshire, the
City of Concord objects to the motion for summary disposition.
2. For all of the reasons set forth in the accompanying memorandum of law, as well
as the supporting exhibits, the City of Concord respectfully requests the Court to deny the
request for summary affirmance.
Respectfully submitted,
CITY OF CONCORD
August 12, 2016 By: __________________________________
Danielle L. Pacik, Deputy City Solicitor
41 Green Street
Concord, New Hampshire 03301
Telephone: (603) 225-8505
Facsimile: (603) 225-8558
2
CERTIFICATE OF SERVICE
In accordance with Rule 26, I certify that I have provided notice of the foregoing by
mailing to: Barry Needleman, Esquire and Thomas Getz, Esquire, 11 South Main St., Suite 500
Concord, NH 03301, lead counsel for Northern Pass Transmission, LLC and Public Service
Company of New Hampshire d/b/a Eversource Energy; Senior Assistant Attorney General Peter
Roth, New Hampshire Department of Justice, 33 Capitol Street, Concord, NH 03301, Counsel
for the Public; Thomas Pappas, Esquire, 900 Elm Street Manchester, NH 03101, counsel for
Counsel for the Public; New Hampshire Attorney General Joseph Foster, New Hampshire
Department of Justice, 33 Capitol Street, Concord, NH 0330; and the New Hampshire Site
Evaluation Committee, 21 South Fruit Street, Suite 10, Concord, NH 03301. All other counsel
and intervenors have been notified by the distribution list per the process adopted by the New
Hampshire Site Evaluation Committee.
August 12, 2016 By: __________________________________
Danielle L. Pacik, Deputy City Solicitor
1
THE STATE OF NEW HAMPSHIRE
SUPREME COURT
Joint Application of Northern Pass Transmission, LLC and Public Service Company of New
Hampshire d/b/a Eversource Energy for a Certificate of Site and Facility for the Construction of
a New High Voltage Transmission Line in New Hampshire
Case No. 2016-0395
CITY OF CONCORD’S MEMORANDUM OF LAW IN SUPPORT OF OBJECTION TO
MOTION FOR SUMMARY AFFIRMANCE
The City of Concord, by and through its attorneys, the Office of the City Solicitor, hereby
submits the following memorandum of law in support of its objection to the motion for summary
affirmance, stating as follows:
I. BACKGROUND
This appeal arises from Concord’s intervention on the Joint Application of Northern Pass
Transmission, LLC and Public Service Company of New Hampshire d/b/a Eversource Energy
(the “Applicants”) for a Certificate of Site and Facility for the Construction of a New High
Voltage Transmission Line in New Hampshire. On March 18, 2016, the presiding officer of the
Site Evaluation Committee (“SEC”) issued an order that grouped Concord’s participation with
other municipalities and materially limited Concord’s intervention in the matter. Appendix to
Rule 10 Notice of Appeal (“App.”) at 49. The Order consolidated Concord in Municipal Group
3 which consisted of Holderness, Ashland, Bridgewater, New Hampton, Bristol, Canterbury,
Pembroke and Deerfield. Id. The Order required Concord to participate in the proceedings with
the other members of Municipal Group 3, and to “designate a single spokesperson for the
purpose of filing pleadings, conducting discovery, and for examining witnesses at evidentiary
hearings.” Id. at 49-50.
2
Concord subsequently requested the SEC to review and modify the order of the presiding
officer. Id. at 95. Concord explained that it has unique issues that are separate and distinct from
other municipalities, and that it needs to independently file pleadings and cross-examine
witnesses in order to adequately protect its unique and specific interests. Id. at 95-100.
On April 12, 2016, the SEC held a hearing on Concord’s request for review.1 During the
hearing, Concord requested to be removed from the intervenor group. Exhibit A at 91-104.
Concord also requested clarification whether, in the event it was required to remain in the
intervenor group, each of the municipalities in the group would be allowed to cross-examine
witnesses with specific questions that pertain to their community. Id. at 327-28. The presiding
officer stated that such a procedure might be permissible, but declined to issue a ruling in
advance that would allow such a procedure. Id. at 327-28, 334.
On May 20, 2016, the SEC issued an order denying Concord’s request to be provided
separate and independent intervenor status. App. at 121. The SEC, however, reconfigured
Municipal Group 3. Id. at 130-32. Concord was placed in Municipal Group 3 (South), which is
comprised of Canterbury, Concord, Pembroke (Board of Selectmen and Conservation
Commission) and Deerfield (Board of Selectmen, Planning Board and Conservation
Commission). Id. at 132. The written order did not clarify whether a municipal group would be
allowed to divide questions among various members of the group for a particular witness. Id. at
148. Rather, the order stated that in the event an individual intervenor in the group was unable to
agree with the group, it “has a right to file a motion stating its disagreement and a motion for
alternative relief.” Id.
1 A complete copy of the transcript is available at http://www.nhsec.nh.gov/projects/2015-06/transcripts/2015-
06_2016-04-12_transcript_pending_motions_lincoln.pdf. The relevant portions of that transcript discussed herein
are attached as Exhibit A.
3
Concord filed a timely motion for rehearing. Id. at 157. Concord explained that it has
distinct interests from other municipalities, and that the requirement that it participate through a
designated spokesperson is unreasonable because it prevents it from asking questions in technical
sessions, conducting its own cross-examination and filing pleadings to address issues of concern
to Concord. Id. In the alternative, Concord requested the SEC amend the intervention order to
specifically allow it to: (1) participate in technical sessions to address issues of specific concern
that are not addressed by the group’s spokesperson or by another party’s questions; (2) conduct
cross-examination during hearings to address issues of specific concern that are not addressed by
the group’s spokesperson or by another party’s cross-examination; and (3) file supplemental
pleadings on relevant issues of specific concern that are not adequately addressed in the group’s
consolidated pleading. Id.
On June 23, 2016, the SEC held a hearing and voted to deny Concord’s rehearing motion,
including the request for alternative relief.2 Exhibit B at 13-16. During that hearing, the SEC
explained that the ability of a member of an intervenor group to ask specific questions on a
particular issue would first require a motion or request to the presiding officer. Id. at 9-16. On
July 21, 2016, the SEC issued a written order confirming the denial of Concord’s rehearing
motion. App. at 1. This appeal followed.
The Applicants now argue that the appeal should be dismissed. The Applicants argue
that Concord’s interests are “virtually identical” to the interests of most municipal entities, and
they suggest that Concord has failed to identify the manner in which it is unique. Memorandum
of Law in Support of Motion for Summary Affirmance at 2, 5. The Applicants also
2 The full transcript of this hearing is located at http://www.nhsec.nh.gov/projects/2015-06/transcripts/2015-
06_2016-06-23_transcript_hearing_pending_mtns.pdf. The relevant portions of that transcript discussed herein are
attached as Exhibit B.
4
mischaracterize the designation of Concord’s Deputy City Solicitor as the “spokesperson” for the
group for purposes of all proceedings, and further argue that no injury can be established because
as the spokesperson, Concord “will have plenty of say in pleadings, cross-examination, and
discovery.” Id. at 6. Lastly, the Applicants incorrectly contend that the appeal is premature and
Concord’s rights are protected because it will be permitted to file a motion in the event it is
unable to reach agreement with the group relative to the manner in which discovery, pleadings
and cross-examination should be conducted. Id. at 2, 4, 7. As discussed below, each of those
arguments lack a factual and/or legal basis.
II. ANALYSIS
1. Concord Has Demonstrated That It Has Issues That Are Unique And Distinct
From Deerfield, Canterbury and Pembroke
The Applicants surprisingly state that the interests raised by Concord are “virtually
identical” to the interests of most municipal entities, and therefore it was appropriate to combine
Concord’s intervention with other municipalities. Memorandum of Law in Support of Motion
for Summary Affirmance at 2, 5. This argument disregards the fact that the 192 mile
transmission line travels through over thirty municipalities throughout the state, and the impacts
on each municipality varies greatly depending on a number of issues such as (1) whether the
lines will be overhead or underground; (2) the location and height of the lines and structures; (3)
the type of structures being used (i.e., monopole or lattice structures); (4) the specific
commercial and residential areas that may be impacted, and concerns for those areas such as
impacts to tax assessments and noise; (5) the natural resources impacted by the project, such as
archeological sites, native plants and wildlife; (6) the visual impact resulting from the proposed
projects depending on the scenic and cultural resources in the municipality; (7) whether a
substation is proposed to be constructed in the municipality; and (8) the master plan and other
5
regulations of the municipality. The statement that Concord is “virtually identical” to the other
municipalities, whose locations range from Pittsburg to Deerfield, grossly simplifies the impacts
that this project will have on each of the municipalities throughout the state.
The Applicants also suggest that Concord has failed to identify the manner in which it is
unique from Canterbury, Deerfield and Pembroke, because those municipalities are within “close
geographic proximity.” Memorandum of Law in Support of Motion for Summary Affirmance at
5. However, as Concord discussed in its motion for review of order on intervention and motion
for rehearing, the proposed project has significant and unique impacts on Concord. App. at 95,
157. These include:
Concord is the capital of New Hampshire, and has a population of 42,695, which equates
to 36% of the entire population along the proposed route. There are 8.1 miles of
overhead lines proposed for Concord, which is approximately 6% of the proposed 132
miles of overhead route. There are only four municipalities that will be subjected to a
greater distance of overhead lines in their communities (Dixville, Franklin, Whitefield
and Stark).
According to a September 25, 2012 study by the Appalachian Mountain Club, “Concord
experiences the highest exposure with over 9,000 acres having visibility of at least one
tower.” Concord needs to address the specific scenic and the significant visual impact of
those structures, as well as how it conflicts with Concord’s municipal goals.
According to the Northern Pass website, the most common height of the existing
structures in the right of way in Concord are 43 feet. The average height of the relocated
structures will be 88 feet, or twice the existing average height. Moreover, the application
6
shows 120 structures over 90 feet in Concord, and 60 of those structures are proposed to
be between 100-125 feet.
Unlike much of the rest of the proposed route in the State, the proposed facility is
projected to travel through heavily populated areas in Concord that include residential,
commercial and industrial zones. For example, in Concord the project will abut
McKenna’s Purchase which has 148 residential condominium units. Some of the units at
McKenna’s Purchase are immediately adjacent to the proposed route. The proposed
project includes the relocation of a large berm adjacent to McKenna’s Purchase that is
used to reduce noise from nearby commercial properties (such as audible backup alarms
on forklifts).
Two of the proposed structures will be 125 feet, and are located near Loudon Road which
is Concord’s Gateway Performance District that provides an entrance into the easterly
commercial portion of Concord. The Gateway Performance District is a growth corridor
that is actively managed and developed, and has some of Concord’s highest valued
commercial properties due to its desirable location. The Department of Energy stated
that the proposed structures at this location will have an aesthetic/visual impact that
increases current conditions in this area from “moderate” to “severe” which means that
“the visual change would be very large, and in sensitive settings is likely considered
unreasonably adverse by a casual observer.” This severe impact conflicts with the goals
of Concord’s zoning ordinance.
The project also proposes the construction of lines and structures at Turtletown Pond,
which is an important scenic and recreational area in Concord. The Department of
7
Energy stated that the lines and structures in this area will also have an aesthetic/visual
impact that increases current conditions from “moderate” to “strong.”
The proposed route bisects a lot that is owned in fee by Concord that is believed to
provide a habitat for the Karner Blue butterfly, which is a federally endangered species.
Unlike many of the municipalities, Concord has a direct ownership interest in properties
affected by the Project. The proposed route crosses through several lots that Concord
owns in fee simple, as well as other lots on which Concord owns and manages
conservation easements. Concord also owns and manages conservation easements on lots
that are located immediately adjacent to the proposed route.
App. at 96-99.
The above referenced concerns are unique from Canterbury, Pembroke and Deerfield. Id.
Moreover, those municipalities have their own concerns that need to be addressed. Id. The
application also shows that Canterbury, Pembroke and Deerfield have specific natural and
cultural resources that need to be protected, and the visual impacts in each municipality vary
depending on the location and height of the lines and structures. The project in those three
municipalities also includes different types of structures. The Applicants intend to use some
lattice structures in other municipalities, whereas all the structures in Concord will be
monopoles. Deerfield is further concerned about the project because the proposed terminal
substation is planned to be built in its town. Id. at 100. Based on the foregoing, there should be
no dispute that Concord’s concerns are not “virtually identical” to those of other municipalities.
2. Concord Has Not Been Designated As The Spokesperson In Municipal Group 3
For Purposes of All Proceedings
The Applicants also mischaracterize the designation of Concord’s Deputy City Solicitor
as the “spokesperson” for the group for purposes of all proceedings, and incorrectly argue that no
8
injury can be established because Concord “will have plenty of say in pleadings, cross-
examination, and discovery.” Memorandum of Law in Support of Motion for Summary
Affirmance at 5-6.
As the Applicants should be aware, the SEC stated that each group may choose a
different spokesperson depending on the witness. As discussed during the hearing on April 12,
2016, the spokesperson designated by a group does not need to be the spokesperson for every
witness and issue. Attorney Michael Iacopino, Counsel for the SEC, explained:
When we have groups as intervenors or intervenors that are formed into groups, it
has been the practice of the Committee to allow them to break up the work. . . .
[W]e have always allowed the work to be broken up, so that, for instance, if one
member of a particular intervenor group is -- you know, has a particular interest
or has done research or has been assigned the task of dealing with a particular
issue, that member of the group may, for instance, do the cross-examination of
that subject matter expert. . . . So when we say ‘single spokesperson,’ it doesn’t
mean that . . . only that person can speak for the group.
Transcript (April 12, 2016) at 321-23. Based on the foregoing, the Applicant’s statement that
Concord is the designated spokesperson for purposes of all pleadings, examination and discovery
is incorrect, because such a determination has not been made.
It should also be noted that, even assuming that Concord is the designated spokesperson
for a particular witness, the SEC’s order still places an undue burden on Concord. The SEC’s
approach is problematic for the group’s spokesperson because, under the current SEC order, that
person could be required to cross-examine witnesses on issues that have no impact on the
community that he or she represents. In the event that Concord is the chosen spokesperson for
technical sessions and the cross-examine of a particular witness, Concord should not be forced to
incur the expense of having its attorney prepare to address issues that are unique to Deerfield,
Pembroke and/or Canterbury, and have no impact on Concord.
9
Alternatively, in the event that Concord’s legal counsel is not the chosen spokesperson
for a particular witness, it is unfair for Concord to be deprived of the ability to question the
witness about issues of particular concern for its municipality. By way of example, Deerfield
has raised funds to hire legal counsel, and it has unique issues because it includes the proposed
terminal substation. In the event that legal counsel for Deerfield is the chosen spokesperson to
ask questions during a technical session or cross-examine a particular witness, Concord could be
forced to rely on that individual to address issues that are unique to Concord. This is patently
unfair. Concord should be allowed to have its unique interests represented by its attorney, and
should not be required to rely on a spokesperson from another community. Moreover, the
taxpayers of Deerfield should not be forced to incur the expense of having its attorney prepare
for technical sessions and cross examination on issues that are unique to Concord, Pembroke and
Canterbury, and have no bearing on Deerfield.
3. This Appeal Is Not Premature
The Applicants also assert that the appeal is premature and Concord’s rights are protected
because it will be permitted to file a motion in the event it is unable to reach agreement with the
group relative to the manner in which discovery, pleadings and cross-examination should be
conducted. Memorandum of Law in Support of Motion for Summary Affirmance at 2, 4, 7.
This argument overlooks the concerns that Concord has raised relative to the intervention order.
The SEC’s order on intervention limits the manner in which Concord is allowed to
participate in the proceedings because it does not currently allow Concord to participate in
technical sessions, conduct cross-examination and to file supplemental pleadings on the issues of
specific concern to Concord. Concord is not necessarily concerned that it will be unable to reach
an agreement with its group, and to the contrary, believes that it will be able to work
10
cooperatively with the members. This is not the reason for the appeal. Rather, Concord is
concerned because the consolidation of the Concord into Municipal Group 3 (South) imposes the
unreasonable requirement of filing pleadings, participating in technical sessions and for cross-
examination of witnesses through one spokesperson.
This unprecedented approach is not justified and not consistent with the rights afforded to
municipalities under previous SEC proceedings. The SEC’s requirement that Concord
participate in this proceeding only through a designated spokesperson and the consolidation of
filings with parties in its grouping will prevent Concord from a fair and adequate opportunity to
respond to issues in a way that fully protects the City of Concord’s procedural due process
interests. See U.S. CONST. amend. XIV; N.H. CONST., pt. I, art. 15. While on the surface, the
issues raised by municipalities may seem similar, each municipality is primarily concerned with
the project impacts within their own borders. Concord can only be effectively heard through its
own attorneys and through exclusive management of how it presents testimony and legal
arguments before the SEC. Most importantly, to the extent Concord is chosen as the designated
spokesperson for portions of the proceedings, Concord’s legal counsel should not be required to
address issues specific to other municipalities that have no relationship to Concord.
At the very least, the SEC should have amended its order to specifically allow Concord to
participate in technical sessions and conduct additional cross-examination to address issues of
specific concern to Concord. The SEC should also have also amended its order to allow
Concord to file supplemental pleadings on relevant issues of specific concern to Concord. This
is the relief that Concord expected, but did not receive in the SEC’s order.
11
Respectfully submitted,
CITY OF CONCORD
August 12, 2016 By: __________________________________
Danielle L. Pacik, Deputy City Solicitor
41 Green Street
Concord, New Hampshire 03301
Telephone: (603) 225-8505
Facsimile: (603) 225-8558
CERTIFICATE OF SERVICE
In accordance with Rule 26, I certify that I have provided notice of the foregoing by
mailing to: Barry Needleman, Esquire and Thomas Getz, Esquire, 11 South Main St., Suite 500
Concord, NH 03301, lead counsel for Northern Pass Transmission, LLC and Public Service
Company of New Hampshire d/b/a Eversource Energy; Senior Assistant Attorney General Peter
Roth, New Hampshire Department of Justice, 33 Capitol Street, Concord, NH 03301, Counsel
for the Public; Thomas Pappas, Esquire, 900 Elm Street Manchester, NH 03101, counsel for
Counsel for the Public; New Hampshire Attorney General Joseph Foster, New Hampshire
Department of Justice, 33 Capitol Street, Concord, NH 0330; and the New Hampshire Site
Evaluation Committee, 21 South Fruit Street, Suite 10, Concord, NH 03301. All other counsel
and intervenors have been notified by the distribution list per the process adopted by the New
Hampshire Site Evaluation Committee.
August 12, 2016 By: __________________________________
Danielle L. Pacik, Deputy City Solicitor
EXHIBIT A
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