[Federal Register Volume 82, Number 175 (Tuesday, September 12, 2017)]
[Notices]
[Pages 42872-42874]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2017-19310]
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TENNESSEE VALLEY AUTHORITY
Multiple Reservoir Land Management Plans
AGENCY: Tennessee Valley Authority.
ACTION: Issuance of Record of Decision.
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SUMMARY: The Tennessee Valley Authority (TVA) has decided to adopt
proposed reservoir land management plans (RLMPs) for the 138,321.4
acres of TVA-managed public land on eight reservoirs in Alabama,
Kentucky, and Tennessee: Chickamauga, Fort Loudoun, Great Falls,
Kentucky, Nickajack, Normandy, Wheeler and Wilson. TVA is also revising
its Comprehensive Valleywide Land Plan (CVLP) to incorporate the
information included in the eight RLMPs.
FOR FURTHER INFORMATION CONTACT: Kelly Baxter, Land Planning
Specialist, Natural Resources, Tennessee Valley Authority, 400 West
Summit Hill Drive, WT-11D, Knoxville, Tennessee 37902-1499; telephone
(865) 632-2444; or email [email protected].
SUPPLEMENTARY INFORMATION: This notice is provided in accordance with
the Council on Environmental Quality's regulations (40 CFR parts 1500
to 1508) and TVA's procedures for implementing the National
Environmental Policy Act. TVA manages public lands to protect the
integrated operation of TVA reservoir and power systems, to provide for
appropriate public use and enjoyment of the reservoir system, and to
provide for continuing economic growth in the Tennessee Valley region.
Shortly after its creation in 1933, TVA began a dam and reservoir
construction program that required the purchase of approximately 1.3
million acres of land for the creation of 46 reservoirs within the
Tennessee Valley region. Most of these lands are now located underneath
the water of the reservoir system or have since been sold by TVA or
transferred to other state or federal agencies. Today, approximately
293,000 acres of land along TVA reservoirs are managed by TVA for the
benefit of the public.
Reservoir land planning is a systematic method of identifying and
evaluating the most suitable uses of reservoir lands under TVA
stewardship and RLMPs guide future decision-making and the management
of reservoir lands in a manner consistent with TVA policies. The
updated RLMPs are needed to consider changes to land uses over time, to
make land planning decisions on these eight reservoirs consistent with
the TVA Land Policy and the CVLP, and to incorporate TVA's goals for
managing natural resources on public lands.
On July 21, 2017, TVA issued a Final Environmental Impact Statement
(EIS) that considered the eight proposed RLMPs and the associated
changes to the CVLP land use allocation target ranges. The eight RLMPs
reviewed in the Final EIS address management of approximately 138,221
acres of TVA-managed public lands surrounding Chickamauga, Fort
Loudoun, Great Falls, Kentucky, Nickajack, Normandy, Wheeler, and
Wilson Reservoirs.
On August 23, 2017, the TVA Board of Directors (TVA Board) approved
the Multiple RLMPs and updates to the CVLP, implementing the preferred
alternative (Proposed Land Use Alternative) identified in the Final
EIS. Under the RLMPs adopted by the TVA Board, TVA-managed land on the
eight reservoirs has been allocated into broad land use categories or
``zones'', including Project Operations (Zone 2), Sensitive Resource
Management (Zone 3), Natural Resource Conservation (Zone 4), Industrial
(Zone 5), Developed Recreation (Zone 6) and Shoreline Access (Zone 7).
These allocations guide the types of activities that will be considered
on each parcel of land in the future. Non-TVA Shoreland (Zone 1) is
applied to reservoir lands where TVA has land rights such as flowage
easements. In the Final EIS, TVA considered potential environmental
impacts of the eight RLMPs and the land use allocations of reservoir
parcels.
In proposing the land use zones, TVA considered previous land use
allocations and current land uses, existing land rights (easements,
leases, etc.), public needs, the presence of sensitive environmental
resources, and TVA policies and guidelines, including the TVA Land
Policy and Shoreline Management Policy. Of the eight reservoirs, seven
have land use plans that were developed using different methodology and
land use categories. Two reservoirs (Fort Loudoun and Normandy) were
planned using TVA's Forecast System in the 1960s or 1970s; four
reservoirs (Chickamauga, Kentucky, Nickajack, and Wheeler) were planned
in the 1980s and 1990s under the Multiple Use Tract Allocation
methodology. A land plan has never been developed for Great Falls
Reservoir, and only a portion of Wilson Reservoir has been planned
previously. Further, previous land planning methodologies did not
assign land use designations to all TVA-managed land on the reservoir.
In developing the eight RLMPs, TVA applied the Single Use Parcel
Allocation methodology which allocates all TVA reservoir land to the
seven allocation land use zones identified above. With the approval of
these RLMPs, all TVA land plans are now based on the same allocation
methodology, ensuring that future management policies can be
consistently applied across the Tennessee Valley region, as intended
under TVA's 2011 Natural Resource Plan.
In its Natural Resource Plan, TVA established the CVLP to guide
allowable uses of TVA-managed properties on 46 reservoirs. The CVLP
identifies target ranges for the different types of land use zone
allocations for TVA reservoir lands in the Tennessee Valley region and
helps TVA to balance competing land use demands. When establishing the
CVLP target ranges for the land use zones in 2011, TVA based the ranges
on parcel allocation conversions from existing plans as well as ``rapid
lands assessments,'' which were initial allocation designations of
reservoir parcels conducted in order to establish an initial CVLP
target range. Since 2011, TVA has conducted thorough, systematic
assessments of parcels on the eight reservoirs and found in many cases
that the initial allocation estimates did not accurately reflect actual
land uses on parcels, the presence of sensitive resources, or existing
land rights or restrictions for parcels. TVA incorporated these
allocation corrections into the proposed RLMPs, which resulted in the
need to make minor revisions to the CVLP target ranges. Thus, as part
of this planning effort, TVA considered changes to the CVLP target
ranges according to the zone allocations identified in the RLMPs. No
other decisions in the Natural Resource Plan were revised during this
planning effort.
Alternatives Considered
In the Final EIS, TVA considered the Proposed Land Use Plan
Alternative and the No Action Alternative for managing
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1,396 parcels of public land, comprising 138,221.4 acres, under its
management around the eight reservoirs. Under both alternatives, TVA
would continue to conduct environmental reviews to consider potential
site- and project-specific impacts prior to the approval of any
proposed development or activity on any parcel. About 56 percent of
reservoir lands (76,880 acres) had previous commitments specified in
land use agreements (e.g., easements, leases, etc.) or existing plans.
No changes to committed lands were proposed under either alternative.
Because of the differences with past and present land planning
methodologies, it was necessary to convert the land use designations to
one of the seven land use zones to represent the No Action Alternative
to facilitate the comparison of the two alternatives. Designations from
existing RLMPs and the Forecast System and the committed land that was
not assigned a land use designation on all reservoirs were converted to
the equivalent land use zone. The conversions are estimates of the
appropriate zone allocation based on best available information at that
time.
Under the No Action Alternative, TVA would not implement new RLMPs
for the eight reservoirs and would continue to rely on previous land
planning decisions or current management of parcels. TVA would continue
to manage TVA land on Fort Loudoun and Normandy reservoirs as
designated under the Forecast System and would continue to manage lands
on Chickamauga, Kentucky, Nickajack, and Wheeler reservoirs in
accordance with existing RLMPs for those reservoirs. Lands on Great
Falls and portions of Wilson were not previously planned and,
therefore, would be subject to management in accordance with existing
commitments and land use agreements as well as applicable TVA policies.
Reservoir lands would not be managed according to TVA's current land
use planning zones and would not be in complete alignment with current
TVA policies. The target allocation ranges of the CVLP identified in
TVA's Natural Resource Plan would not be revised.
Under the Proposed Land Use Plan Alternative, TVA would implement
the eight RLMPs detailed in the Final EIS to guide future management on
these reservoirs. The TVA managed land would be allocated to land use
zones according to current land usage, existing land rights, existing
land use agreements, existing and newly collected data, public needs,
the presence of sensitive resources, and TVA policies. Generally, land
allocations in the eight RLMPs reflect actual uses of parcels, the
presence of known sensitive resources, or existing land rights or
restrictions for parcels. As such, the changes in allocations are
minor.
The approved RLMPs result in changes of zone allocations to 25,558
acres of land, roughly 18 percent of the 138,321.4 acres of TVA-managed
reservoir lands (approximately 7 percent of the allocations were made
to reflect existing land use agreements and commitments and
approximately 11 percent were made for other reasons). Under the eight
RLMPs, the total number of acres of TVA lands allocated to Sensitive
Resource Management (Zone 3) and Natural Resource Conservation (Zone 4)
is slightly lower than previous allocations; the RLMPs reduce Zone 3
lands by 2,289.8 acres and Zone 4 lands by 3,300.3 acres. In turn, the
amount of land allocated for Project Operations (Zone 2), Industrial
(Zone 5), Developed Recreation (Zone 6), and Shoreline Access (Zone 7)
is slightly higher under the RLMPs; an additional 1,622.1 acres are
allocated for Zone 2, 1,303.3 acres for Zone 5, 1,644.0 acres for Zone
6, and 1,090.1 acres for Zone 7.
Because of new allocations in the RLMPs, the target allocation
ranges of the CVLP are revised under the Proposed Land Use Plan
Alternative as follows: The range for Project Operations (Zone 2) is
raised from 5 to 7 percent (current) to 7 to 10 percent; Sensitive
Resource Management (Zone 3) is adjusted from 16 to 18 percent to 14 to
18 percent; Natural Resource Conservation (Zone 4) is reduced from 58
to 65 percent to 56 to 63 percent; Industrial (Zone 5), is adjusted
from 1 to 2 percent to 1 to 3 percent; and Shoreline Access (Zone 7) is
adjusted from 5 percent to 5 to 6 percent. There are no changes to the
allocation range for Developed Recreation (Zone 6).
Environmental Consequences
In the Final EIS, TVA found that under the No Action Alternative,
the total number of acres of TVA land on the eight reservoirs that
would be equivalently designated to Project Operations (Zone 2),
Industrial (Zone 5) and Developed Recreation (Zone 6) is less than
under the Proposed Land Use Alternative. However, proposed land use
allocations under the Proposed Land Use Alternative primarily reflect
the existing conditions and suitable uses of land and as such, the
actual on-the-ground difference between the two alternatives is minor.
No significant direct, indirect, or cumulative effects are expected to
occur to any resource under either alternative. Under both
alternatives, TVA would conduct site-specific environmental reviews of
proposed projects on reservoir lands to identify potential impacts to
resources, including sensitive resources such as species federally
listed as endangered or threatened, cultural resources and wetlands.
In contrast to the No Action Alternative, the Proposed Land Use
Alternative was developed using a systematic and comprehensive planning
approach to the management, retention, and disposal of reservoir lands
managed by TVA. It brings consistency to the land planning process
across the eight reservoirs that enables TVA to identify the most
suitable use of TVA public lands in furtherance of TVA's
responsibilities under the TVA Act. The Proposed Land Use Plan
Alternative, then, would result in the benefits of comprehensive land
planning across the entire range of lands associated with the eight
reservoirs.
Environmentally Preferable Alternative
The Proposed Land Use Plan Alternative, approved by the TVA Board,
is the environmentally preferable alternative because the land use
allocations under this alternative are the result of thorough research
and implementation of TVA's land planning process. This alternative
best reflects existing uses and conditions of TVA-managed land and the
proposed land use allocations would result in the widest range of
beneficial uses without degrading the environment or other undesirable
and unintended consequences.
Public Involvement
TVA published a Notice of Intent to prepare the EIS in the Federal
Register on March 3, 2016. TVA sought input from Federal and state
agencies, Federally recognized Indian tribes, local organizations and
individuals during a 30-day public scoping period. The most common
concerns raised during the scoping period were related to recreation
use on Normandy Reservoir parcels (e.g., horseback riding, campground
management). Numerous individuals requested information regarding TVA
parcels, provided recommendations to TVA on how specific parcels should
be managed, or raised general concerns regarding how TVA should manage
the public lands. In July 2016, TVA published a Scoping Report that
detailed the outreach and input during this period.
The Notice of Availability of the Draft EIS was published in the
Federal Register on December 2, 2016. TVA
[[Page 42874]]
held public meetings on the Draft EIS in January 2017 in Knoxville,
Chattanooga, Manchester, and Paris, Tennessee, and in Muscle Shoals,
Alabama, and accepted comments until January 31, 2017.
TVA received 44 comment submissions on the Draft EIS and provided
responses in the Final EIS. Most comments pertained to the proposed
land use allocations of specific parcels of TVA land. In response to
numerous substantive comments, TVA made revisions and corrections to
the EIS. After considering the public's feedback on the Draft EIS and
further internal deliberation, TVA made minor modifications to its
Proposed Land Use Plan Alternative. The land use allocations were
changed for 4 parcels and parcel boundaries were changed for 41
parcels. Allocation and/or acreage changes were made to reflect new
information or changes in land use agreements or changes in back-lying
property ownership, to correct errors or omissions, or in response to
public comments.
The NOA for the Final EIS was published in the Federal Register on
July 21, 2017. In the Final EIS, TVA identified the Proposed Land Use
Plan Alternative as its preference. Prior to its August 23, 2017
meeting, the TVA Board provided opportunity to the public to comment on
the RLMPs and CVLP revision. No comments were received.
Decision
On August 23, 2017, the TVA Board approved the eight RLMPs and the
revision of the CVLP, thereby adopting the Proposed Land Use Plan
Alternative of the Final EIS. TVA believes the implementation of this
plan provides suitable opportunities for balancing competing land use
demands for natural and sensitive resource conservation while providing
public lands for recreational enjoyment as well as supporting
recreation and economic development goals. This decision incorporates
mitigation measures that would minimize the potential for adverse
impacts to the environment.
Mitigation Measures
Because this is a programmatic review, specific measures to reduce
potential environmental impacts on a site-specific level were not
identified. Prior to approving any use of land on the eight reservoirs,
TVA would conduct an appropriate level of site-specific environmental
review to determine the potential environmental effects of the proposed
use. TVA's review process for potential actions on these lands is
designed to identify ways to avoid and/or minimize potential adverse
environmental impacts. Based on the findings of any site-specific
environmental review, TVA may require the implementation of appropriate
mitigation measures, including best management practices, as conditions
of approval for land use on the TVA-managed lands.
When considering future development of reservoir lands, TVA would
also comply with other applicable environmental requirements, including
the Endangered Species Act, Clean Water Act, Clean Air Act, and
applicable Executive Orders, and ensure that proper agency coordination
and permitting requirements are met. In addition, all activities will
be conducted in accordance with the stipulations defined in the
programmatic agreement (PA) between TVA and the State Historic
Preservation Officers (SHPO) of Alabama, Kentucky, and Tennessee, the
Advisory Council of Historic Preservation, and federally recognized
Indian tribes, that was established for implementation of the Natural
Resources Plan in 2011. Under the agreement, TVA will consult with the
appropriate SHPO and consulting parties when reviewing plans submitted
to TVA.
David Bowling,
Vice President, Land and River Management.
[FR Doc. 2017-19310 Filed 9-11-17; 8:45 am]
BILLING CODE 8120-08-P