Abstract
Offshore wind energy development in the U.S. is expanding. There are active wind farms and construction in the Atlantic and planned development off the Pacific coast and in the Gulf of Mexico. BOEM and BSEE are responsible for permitting and oversight of offshore wind projects. Numerous other federal agencies provide input throughout the process. As of January 2025, BOEM had granted 39 offshore wind leases to commercial developers, but on January 20, 2025, the President issued a memorandum that, among other 8things, prohibits agencies from new leasing, permits, or approvals for offshore wind projects pending a review of federal wind leasing and permitting practices. As the pace of offshore wind development has accelerated, state and local communities, Tribes, and non-government entities could experience the potential effects of offshore wind development.
GAO was asked to review offshore wind development in federal waters. This report examines (1) what is known about the potential impacts of offshore wind energy development, and (2) what mechanisms BOEM, in coordination with other agencies, has in place to oversee offshore wind energy development and to what extent they address potential impacts.
To examine potential impacts, GAO contracted with the National Academies to identify a panel of 23 experts to include diverse participant backgrounds and cover a range of potential impact categories. These include impacts to emissions, marine life and ecosystems, and maritime navigation and safety. Information obtained through expert interviews formed the basis of GAO’s findings on the potential impacts of offshore wind energy development.
GAO reviewed agency documentation related to federal management of potential offshore wind development impacts from lead agencies BOEM and BSEE, as well as coordinating agencies. These included project documents, memorandums of understanding between BOEM and federal partners, and studies. In addition, GAO reviewed studies and published research findings identified through a literature search, as well as prior GAO work, including a July 2024 Technology Assessment on approaches to address environmental effects of wind energy (GAO-24-106687).
To gather perspectives on potential impacts and federal oversight, GAO interviewed representatives from 22 Tribes and tribal organizations and multiple stakeholders from states, research institutes, fisheries, and industry, among others. GAO also interviewed officials from lead and coordinating agencies about potential impacts and their role in overseeing the offshore wind development and leasing process. To further examine mitigation of offshore wind impacts and discuss BOEM and BSEE oversight, GAO conducted two site visits to offshore projects with ongoing construction and operations activities.
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