# Okanogan Public Utility District No. 1 of Okanogan County, WA; Notice of Availability of Draft Environmental Assessment > Briefs, arguments, decisions, and more. URL: https://www.frixlaw.com/law-library/documents/fr%3A2011-11757 ## Record - **Collection:** Federal Register - **Document type:** Notice - **Published:** May 17, 2011 - **Citation:** 76 FR 28506 ## Text DEPARTMENT OF ENERGY Federal Energy Regulatory Commission [Project No. 12569-001] Okanogan Public Utility District No. 1 of Okanogan County, WA; Notice of Availability of Draft Environmental Assessment In accordance with the National Environmental Policy Act of 1969 and the Federal Energy Regulatory Commission's (Commission or FERC's) regulations, 18 Code of Federal Regulations (CFR) Part 380 (Order No. 486, 52 Federal Register [FR] 47897), the Office of Energy Projects has reviewed Okanogan Public Utility District No. 1 of Okanogan County's (Okanogan PUD) application for license for the Enloe Hydroelectric Project (FERC Project No. 12569), located on the Similkameen River near the city of Oroville in Okanogan County, Washington. Part of the project would occupy a total of 35.47 acres of federal lands administered by the U.S. Bureau of Land Management. Staff prepared this draft environmental assessment (EA), which analyzes the potential environmental effects of relicensing the project, and concludes that licensing the project, with appropriate environmental protective measures, would not constitute a major federal action that would significantly affect the quality of the human environment. A copy of the draft EA is available for review at the Commission in the Public Reference Room or may be viewed on the Commission's Web site at http://www.ferc.gov using the “eLibrary” link. Enter the docket number excluding the last three digits in the docket number field to access the document. For assistance, contact FERC Online Support at FERCOnlineSupport@ferc.gov or toll-free at 1-866-208-3676, or for TTY, 202-502-8659. You may also register online at http://www.ferc.gov/docs-filing/esubscription.asp to be notified via e-mail of new filings and issuances related to this or other pending projects. For assistance, contact FERC Online Support. Any comments should be filed within 30 days from the date of this notice. Comments may be filed electronically via the Internet. See 18 CFR 385.2001(a)(1)(iii) and the instructions on the Commission's Web site http://www.ferc.gov/docs-filing/efiling.asp. Commenters can submit brief comments up to 6,000 characters, without prior registration, using the eComment system at http://www.ferc.gov/docs-filing/ecomment.asp. You must include your name and contact information at the end of your comments. For assistance, please contact FERC Online Support. Although the Commission strongly encourages electronic filing, documents may also be paper-filed. To paper-file, mail an original and seven copies to: Kimberly D. Bose, Secretary, Federal Energy Regulatory Commission, 888 First Street, NE., Washington, DC 20426. For further information, contact Kim Nguyen by telephone at (202) 502-6105, or by e-mail at kim.nguyen@ferc.gov. Dated: May 9, 2011. Kimberly D. Bose, Secretary. Environmental Assessment for Hydropower License Enloe Hydroelectric Project—FERC Project No. 12569—Washington Federal Energy Regulatory Commission, Office of Energy Projects, Division of Hydropower Licensing, 888 First Street, NE., Washington, DC 20426 [May 2011] Table of Contents List of Figures List of Tables Acronyms and Abbreviations Executive Summary 1.0 Introduction 1.1 Application 1.2 Purpose of Action and Need for Power 1.2.1 Purpose of Action 1.2.2 Need for Power 1.3 Statutory and Regulatory Requirements 1.3.1 Federal Power Act 1.3.1.1 Section 18 Fishway Prescriptions 1.3.1.2 Section 4(e) Conditions 1.3.1.3 Section 10(j) Recommendations 1.3.2 Clean Water Act 1.3.3 Endangered Species Act 1.3.4 Coastal Zone Management Act 1.3.5 National Historic Preservation Act 1.3.6 Pacific Northwest Power Planning and Conservation Act 1.3.7 Magnuson-Stevens Fishery Conservation and Management Act 1.4 Public Review and Consultation 1.4.1 Scoping 1.4.2 Interventions 1.4.3 Comments on the License Application 2.0 Proposed Action and Alternatives 2.1 No-Action Alternative 2.2 Applicant's Proposal 2.2.1 Proposed Project Facilities 2.2.2 Project Safety 2.2.3 Proposed Project Operation 2.2.4 Proposed Environmental Measures 2.2.5 Modifications to Applicant's Proposal—Mandatory Conditions 2.3 Staff Alternative 2.4 Staff Alternative With Mandatory Conditions 2.5 Removal of Existing Hydroelectric Facilities Including Enloe Dam 3.0 Environmental Analysis 3.1 General Description of the River Basin 3.2 Scope of Cumulative Effects Analysis 3.2.1 Geographic Scope 3.2.2 Temporal Scope 3.3 Proposed Action and Action Alternatives 3.3.1 Geologic and Soil Resources 3.3.1.1 Affected Environment 3.3.1.2 Environmental Effects 3.3.2 Water Quantity and Quality 3.3.2.1 Affected Environment 3.3.2.2 Environmental Effects 3.3.2.3 Cumulative Effects 3.3.3 Aquatic Resources 3.3.3.1 Affected Environment 3.3.3.2 Environmental Effects 3.3.3.3 Cumulative Effects 3.3.4 Terrestrial Resources 3.3.4.1 Affected Environment 3.3.4.2 Environmental Effects 3.3.5 Threatened and Endangered Species 3.3.5.1 Affected Environment 3.3.5.2 Environmental Effects 3.3.6 Recreation and Land Use 3.3.6.1 Affected Environment 3.3.6.2 Environmental Effects 3.3.7 Aesthetic Resources 3.3.7.1 Affected Environment 3.3.7.2 Environmental Effects 3.3.8 Cultural Resources 3.3.8.1 Affected Environment 3.3.8.2 Environmental Effects 3.3.9 Socioeconomics 3.3.9.1 Affected Environment 3.3.9.2 Environmental Effects 3.4 No-Action Alternative 4.0 Developmental Analysis 4.1 Power and Economic Benefits of the Project 4.2 Comparison of Alternatives 4.2.1 No-Action Alternative 4.2.2 Okanogan PUD's Proposal 4.2.3 Staff Alternative 4.3 Cost of Environmental Measures 5.0 Conclusions and Recommendations 5.1 Comparison of Alternatives 5.2 Comprehensive Development and Recommended Alternative 5.3 Unavoidable Adverse Effects 5.4 Fish and Wildlife Agency Recommendations 5.5 Consistency With Comprehensive Plans 6.0 Finding of No Significant Impact 7.0 Literature Cited 8.0 List of Preparers List of Figures Figure 1. Location of the Enloe Hydroelectric Project Figure 2. Daily maximum temperatures at the 2006 monitoring locations Figure 3. 7-DADMax temperatures in the lower end of the Enloe reservoir (RM 9.1) and at the upper end of the reservoir (RM 10.3) Figure 4. Plunge pool below Similkameen Falls Figure 5. Recreation facilities in the Enloe Project area Figure 6. Land ownership in the Enloe Project area Figure 7. Roads, gates, and spurs in the project area Figure 8. Location of proposed fencing downstream of Enloe dam Figure 9. Enloe Project recreation site schematic Figure 10. Enloe Project area KOPs Figure 11. KOP 1, Loomis-Oroville Road Figure 12. KOP 2, overlook from Loomis-Oroville Road approximately 3 miles north of Oroville Figure 13. KOP 3, rocks below Enloe dam on the Similkameen River Figure 14. KOP 4, overlook near Enloe dam Figure 15. KOP 5, overlook east of Enloe dam, looking south Figure 16. KOP 6, view from proposed interpretive panel #1, looking north Figure 17. KOP 7, view from interpretive panel #2, looking north List of Tables Table 1. Major Statutory and Regulatory Requirements for the Enloe Hydroelectric Project Table 2. Summary of Similkameen River Flows at the USGS Nighthawk Gage No. 12442500, 1929-2005 Table 3. Similkameen River Water Rights Table 4. Enloe Reservoir Characteristics at Existing and Proposed Operations and Spills Table 5. Summary of Total Dissolved Gas Measurements Near Enloe Dam From May 26-30, 2006 Table 6. Summary of Preliminary Enloe Dam Sediment Trace Metals Results Table 7. Summary of Preliminary Enloe Dam Sediment Elutriate Results Table 8. Simulated Average Annual Tailrace Flow for Three Normal and Three Wet Water Years Table 9. Native and Non-Native Fishes in the Similkameen River Based on Snorkel Surveys Table 10. Numbers and Percent Composition of Native and Non-Native Fishes in the River Downstream of Enloe Dam Based on Snorkel Surveys Table 11. Numbers and Percent Composition of Native and Non-Native Fishes in the Reservoir Upstream of Enloe Dam Table 12. Aquatic Benthic Macroinvertebrate Taxa Found in the Similkameen River above Enloe Reservoir Table 13. Proposed Ramping Rates Table 14. Estimate of User Days by Month for the Project Area Table 15. Estimate of User Days by Type of Day for the Project Area Table 17. Land Ownership Within the Proposed Enloe Project Boundary Table 18. Archaeological and Historic Resources Within or Directly Adjacent to the Enloe Project Boundary APE Table 19. Population Characteristics of the City of Oroville, Okanogan County, and Washington Table 20. Parameters for the Economic Analysis of the Enloe Hydroelectric Project Table 21. Summary of Annual Cost of Alternative Power and Annual Project Cost for the Alternatives for the Enloe Hydroelectric Project Table 22. Cost of Environmental Mitigation and Enhancement Measures Considered in Assessing the Environmental Effects of Constructing and Operating the Proposed Enloe Hydroelectric Project Table 23. Summary of Key Differences in the Potential Effects of Okanogan PUD's Proposal and the Staff Alternative Table 24. Fish and Wildlife Agency Recommendations for the Enloe Hydroelectric Project Acronyms and Abbreviations µg microgram AHS Archaeological and Historical Services APE area of potential effect BLM U.S. Bureau of Land Management BMP best management practice °C degrees Celsius cfs cubic feet per second Colville Confederated Tribes of the Colville Reservation Commission Federal Energy Regulatory Commission CSMP Construction Sediment Management Program Corps U.S. Army Corps of Engineers CRITFC Columbia River Inter-tribal Fish Commission CRWG Cultural Resources Working Group CWA Clean Water Act dB decibel DO dissolved oxygen EA environmental assessment EFH essential fish habitat Enloe Project or project Enloe Hydroelectric Project ESCP Erosion and Sediment Control Plan ESA  Endangered Species Act FERC Federal Energy Regulatory Commission FPA Federal Power Act FTE full-time equivalent FWS U.S. Department of the Interior, Fish and Wildlife Service g the acceleration due to gravity (32.2 feet per second 2 ) GWh gigawatt-hour HAER Historic American Engineering Record HPMP Historic Properties Management Plan Interior U.S. Department of the Interior kg kilogram kV kilovolt KOP key observation point L liter mg milligram mm millimeter Ministry of Environment British Columbia Ministry of Environment msl mean sea level MW megawatt MWh megawatt-hour National Register National Register of Historic Places NERC North American Electric Reliability Council NHPA National Historic Preservation Act of 1966 NMFS National Marine Fisheries Service Okanogan PUD Public Utility District No. 1 of Okanogan County Okanogan Shoreline Program Okanogan County's Shoreline Master Program OTID Oroville-Tonasket Irrigation District PA Programmatic Agreement Park Service National Park Service Reclamation U.S. Bureau of Reclamation RM river mile SCORP State Comprehensive Outdoor Recreation Plan SD1 Scoping Document 1 SD2 Scoping Document 2 Scenic Trail Pacific Northwest National Scenic Trail State Parks Commission Washington State Parks and Recreation Commission TCP traditional cultural property TDG total dissolved gas TMDL total maximum daily load UCR Upper Columbia River USGS U.S. Geological Survey Vegetation Plan Vegetation Mitigation and Monitoring Plan Washington DFW Washington Department of Fish and Wildlife Washington DNR Washington Department of Natural Resources Washington DOE Washington Department of Ecology Washington PC Washington Parks Commission Washington RCO Washington Recreation and Conservation Office Washington SHPO State Historic Preservation Office Water Trail Committee Greater Columbia Water Trail Steering Committee WSMA Washington State's Shoreline Management Act of 1971 Executive Summary Proposed Action On August 22, 2008, the Public Utility District No. 1 of Okanogan County, Washington (Okanogan PUD) filed an application seeking a license with the Federal Energy Regulatory Commission (Commission or FERC) for the proposed 9.0-megawatt (MW) Enloe Hydroelectric Project (Enloe Project or project) to be located on the Similkameen River near Oroville in Okanogan County, Washington. The project would occupy 35.47 acres of federal lands administered by U.S. Bureau of Land Management (BLM). Project Description and Proposed Facilities The Enloe dam and development was originally constructed for hydroelectric generation between 1919 and 1923. The project operated from 1923 to 1958 when it was decommissioned. The original project included an intake, penstock, and powerhouse located 850 feet downstream of the dam on the west bank of the Similkameen River. On September 13, 1996, the Commission issued an order to Okanogan PUD to redevelop the Enloe Project using the existing dam and rehabilitating the original intake, penstock, and powerhouse. However, on February 23, 2000, that order was rescinded. Okanogan PUD proposes again to redevelop the Enloe Project by using the existing concrete gravity arch dam impounding a 76.6-acre reservoir, and constructing a new penstock intake structure and above-ground steel penstocks carrying flows from the intake to the new powerhouse located 370 feet downstream of the dam on the east bank of the Similkameen River. The existing dam crest elevation of 1,044.3 feet would be increased by installing new 5-foot-high crest gates which would increase the reservoir to 1,049.3 feet elevation and the surface area to 88.3 acres. The powerhouse would contain two vertical Kaplan turbine/generator units with a total installed capacity of 9.0 MW. The project would also include a substation adjacent to the powerhouse, and a 100-foot-long, 13.2-kilovolt primary transmission line connecting the substation to an existing distribution line. The project would also include about 1.5 miles of new and upgraded access roads. The Enloe Project would operate automatically in a run-of-river mode, with a normal operating water level of the reservoir between 1,048.3 and 1,049.3 feet mean sea level. Proposed Environmental Measures Okanogan PUD proposes the following environmental measures to protect, mitigate, and enhance water quality, aquatic, terrestrial, recreation, aesthetic, and cultural resources during construction and operation of the project. During construction: • Implement a Construction Sediment Management Program (CSMP), an Erosion and Sediment Control Plan (ESCP), and a Spill Plan; • Implement a Blasting Plan; • Employ best management practices (BMPs) including flagging and fencing wetland areas; • Provide biological monitoring; • Implement a Noxious Weed Control Program; • Survey disposal sites and control noxious weeds prior to spoil disposal; • Revegetate spoil disposal sites; • Schedule construction activities in the summer and early fall to minimize effects on overwintering birds and bald eagles; • Conduct pre-disposal site surveys for wildlife and schedule vegetation clearing to avoid wildlife conflicts; • Survey for Ute ladies-tresses prior to, during, and postconstruction to identify locations and avoid effects; • Monitor and avoid known archaeological sites listed in the National Register of Historic Places (National Register) during construction of project facilities; and • Develop and implement a Safety During Construction Plan and limit public access. During project operation: • For water quality: ○ Design and place the intake structure and channel to minimize sediment transport; ○ Place the powerhouse tailrace below Similkameen Falls so that it discharges to and circulates water in the plunge pool downstream of the falls, preventing stagnation and consequently water quality degradation of the pool habitat; ○ Provide aeration in the powerhouse draft tubes to maintain dissolved oxygen (DO) levels; and ○ Monitor water quality, including water temperatures, DO, and total dissolved gases (TDG) in the tailrace for a five-year period. • For aquatic resources: ○ Ensure that logs and woody debris can pass over the dam and transporting large debris off-site if needed; ○ Place two clusters of boulders in the Similkameen River upstream of the reservoir to improve mountain whitefish habitat and recreational fisheries; ○ Include trashracks with 1-inch bar spacing on the project intake(s) so that smaller fish would be able to pass safely through the trashrack and larger fish would be discouraged or prevented from passing through the trashracks and turbines; ○ Design and place the tailrace to avoid effects on fish; ○ Install and monitor entrainment and mortality of fish at the tailrace barrier nets; ○ Operate run-of-river and implementing agency-recommended ramping rates downstream of the project during project start-up and shut-down; ○ Improve spawning, rearing, and summer thermal refugia downstream of the powerhouse tailrace in an existing side channel; ○ Supplement gravel in the river reach downstream of the tailrace to increase the amount of gravel in the river downstream of Enloe dam and improve spawning habitat; ○ Develop and implement a biological review process including the establishment of a Technical Review Group (TRG) comprising agencies and the Confederated Tribes of the Colville Reservation (Colville); and ○ Develop a fish monitoring database for organizing and storing monitoring data related to aquatic resources for all proposed studies. • For terrestrial resources, design the project transmission line to minimize effects on raptors and other birds and implement a Vegetation Plan that includes: ○ Returning the abandoned shoreline road to natural conditions; ○ Planting riparian vegetation along the abandoned road and along and upstream of the east and west banks of the reservoir; ○ Installing grazing control measures; ○ Monitoring restored areas and planting additional willows if needed; and ○ Developing an environmental training program to inform employees about sensitive habitats. • For recreation resources, implement a Recreation Management Plan that includes: ○ Installing barricades, fencing, and a stock watering tank as part of the Fence Plan; ○ Providing public access downstream of Enloe dam on the east bank; ○ Transferring ownership rights of the trestle bridge to Okanogan County for the development of a future public, non-motorized, recreational use trail; ○ Improving the existing informal boat ramp upstream of Enloe dam; ○ Restoring the wooded area on the east bank and conducting annual cleanup activities of the wooded area and along the Ditch Road; ○ Developing an interpretive publication, including a map illustrating public access and recreation sites; ○ Developing interpretive displays by placing an information board near Enloe dam; and interpretive signage near the parking, picnic area, and near the access bridge to the abandoned powerhouse; ○ Removing existing trash and conducting annual cleanup; ○ Providing parking, picnic tables, primitive campsites, and a vault toilet on the east bank upstream of Enloe dam; ○ Maintaining existing signage, safety cables, and grab ropes upstream of the dam; ○ Installing safety and warning signs and a log boom across the channel to protect boaters; and ○ Coordinating with BLM and other landowners on how to prevent public access to the old powerhouse. • For aesthetic resources, implement an Aesthetics Management Plan that includes: ○ Using visually-compatible colors and building materials for facilities along the east bank; ○ Consulting with the Colville and other stakeholders regarding restoration; ○ Using non-reflective surfaces where possible during construction; and ○ Grading and repairing slopes with native plants following removal of buildings. • For cultural resources, finalize a draft May 2009 Historic Properties Management Plan (HPMP) that includes: ○ Soliciting for a new owner of the historic Enloe powerhouse, and failing that, demolishing the structure and providing interpretive signage using visually-compatible colors and building materials for facilities along the east bank; ○ Reviewing and reaching agreement on the HPMP and incorporating information into a Programmatic Agreement (PA); ○ Monitoring effects of shoreline fluctuation on archaeological sites in shoreline areas and mitigating, as needed; ○ Determining if there would be effects on archaeological sites around project recreation areas; and ○ Developing an inadvertent discovery plan. On October 28, 2010, Okanogan PUD filed additional information regarding ongoing consultations with Washington Department of Ecology (Washington DOE) and Washington Department of Fish and Wildlife (Washington DFW) for the 401 Water Quality Certification process. In this filing, Okanogan and Washington DFW and DOE have developed the following understanding with regards to the bypassed reach: • Providing 30 cubic feet per second (cfs) minimum flows from mid-July to mid-September, and 10 cfs rest of the year to the pool in the bypassed reach; • Monitoring DO and water temperature in the bypassed reach; • Initiating an adaptive management program to enhance DO and monitor water temperature in the bypassed reach if water quality standards are not met; • Providing downramping rates in the bypassed reach; and • Determining means and withdrawal location for minimum flows released to the bypassed reach. Alternatives Considered This draft environmental assessment (EA) considers the following alternatives: (1) No-action—the project would not be constructed and there would be no changes or enhancements at the site; (2) Okanogan PUD's proposal—as outlined above; and (3) a staff alternative—Okanogan PUD's proposal with staff's additions and modifications. Under the staff alternative, the project would include Okanogan PUD's proposed measures, as outlined above, with the exception of placing boulder clusters in the project forebay and entrainment and resident fish monitoring. In addition, the staff alternative would include: (1) A Spoil Disposal Plan; (2) a water quality monitoring plan that includes: Selecting water quality monitoring locations, filing of reports at the end of year 5, and conducting additional temperature, DO, and TGD monitoring beyond the 5-year period, if needed; (3) consultation with the TRG prior to implementation of the Blasting Plan, the woody debris plan, the proposed side-channel enhancement plan, the proposed gravel supplementation program, and the Spill Plan; (4) consultation with Interior and Washington DFW during final design of the intake structure and trashracks; (5) a project compliance monitoring plan; (6) revision of the Vegetation Plan to include filing monitoring reports annually for first 5 years and in year 8 and providing the Commission, FWS, BLM, and Washington DFW with these reports and filing for Commission approval, any proposals for further restoration measures; (7) incorporation of the land occupied by the side-channel enhancement and length of the project access road from the Loomis-Oroville Road to the powerhouse into the project boundary; (8) retention of dead trees along the reservoir and provisions for 10 artificial perch poles; (9) preparation of an Ute ladies'-tresses survey plan after consultation with FWS, BLM, and Washington DFW and an additional plan to avoid or minimize adverse effects on the Ute ladies'-tresses if they are identified in the project areas; (10) consultation with stakeholders on the final Recreation Management Plan; (11) a plowing schedule for winter months; (12) a recreation use monitoring plan developed in consultation with BLM; (13) a fire suppression program; (14) removal of the one small, deteriorated building on Okanogan PUD land at the north end of the proposed Enloe dam recreation area; (15) consultation with BLM and local emergency response agencies on the Safety During Construction Plan; (16) creation of a river access point at Miner's Flat; (17) consultation with BLM and the Colville to develop details on how the facilities and laydown or construction areas would blend into the existing landscape; and (18) a revised HPMP to include provisions for: Further consideration of the potential effects of capping site 45OK532, a description of the proposed side-channel enhancement site, two separate defined APEs that delineate the proposed Enloe project and the proposed side-channel enhancement site, consultation with the Cultural Resources Working Group regarding the resolution of adverse effects on the historic Enloe powerhouse, re-evaluating the Oroville-Tonasket Irrigation Canal for National Register-eligibility, completing determinations of eligibility for unidentified cultural resources on BLM lands, periodic review of the HPMP, a site monitoring program, cultural interpretative and education measures, and revising the APEs to accommodate modifications to the project boundary. Public Involvement and Areas of Concern Before filing its license application, Okanogan PUD conducted pre-filing consultation under the traditional licensing process. The intent of the Commission's pre-filing process is to initiate public involvement early in the project planning process and encourage citizens, governmental entities, tribes, and other interested parties to identify and resolve issues prior to an application being formally filed with the Commission. After the license application was filed, we conducted scoping to determine what issues and alternatives should be addressed. On December 16, 2008, we distributed Scoping Document 1 (SD1) to interested parties, soliciting comments, recommendations, and information on the project. An environmental site review of the project was held on January 15, 2009. Two scoping meetings were held in Oroville, Washington, on January 14 and 15, 2009, to receive oral comments on the project. Based on discussions during the environmental site review and scoping meetings and written comments filed with the Commission, we issued a revised scoping document (SD2) on May 7, 2009. On December 28, 2009, we issued a notice that the application was ready for environmental analysis and requested conditions and recommendations. The primary issues associated with licensing the project are the effects of project construction and operation on geology and soils; water quality; aquatic, terrestrial, and cultural resources; threatened and endangered species; and recreation, land use, and aesthetic resources. Staff Alternative Aquatic Resources Measures proposed in the ESCP, CSMP, Spill Plan, Blasting Plan, and Safety During Construction Plan would help prevent adverse effects from erosion and sedimentation that may result from construction and operation of the project, and would help prevent adverse effects on geology and soils and water quality. Run-of-river operation would minimize effects on aquatic resources. Locating the tailrace downstream of Similkameen Falls would reduce TDG and enhance conditions for aquatic resources in the Similkameen downstream of the falls. In addition, designing the tailrace in a manner to provide circulation in the pool and aerating the draft tubes would ensure adequate DO for aquatic resources downstream of Similkameen Falls. Providing minimum flows in the bypassed reach would provide some refuge for resident fish in the plunge pool downstream of Enloe dam. The 1-inch trash rack spacing on the intake trashrack, and installation and monitoring of a tailrace net barrier would minimize adverse affects on aquatic resources. The construction of the side channel, gravel enhancement, riparian planting projects, and improved water quality due to reductions in TDG and enhanced DO levels are expected to have long-term benefits for holding, spawning, and rearing fish, particularly anadromous salmonids, and should increase anadromous salmonid productivity in the Similkameen River downstream of the project. Terrestrial Resources Measures in the Vegetation Plan, including grazing controls, noxious weed control, vegetation monitoring, employing BMPs, providing biological monitor during construction, retaining dead trees and installing artificial perch poles for bald eagle perching habitat, and employee training would prevent adverse effects on riparian and wetland areas which provide habitat for wildlife, as well as mitigate for adverse effects during construction of the project. Threatened and Endangered Species The Similkameen River below Similkameen Falls is designated critical habitat for the threatened UCR steelhead, the only fish species known to occur in project affected waters that is listed under the Endangered Species Act (ESA). Proposed measures to reduce TDG, increase DO through draft tube aeration, supplement spawning gravel, transport large woody debris, and construct the side-channel enhancements would improve spawning and rearing habitat in the river downstream of the falls and increase productivity. The biological review process, fisheries monitoring, and ongoing refinement would provide long-term benefits for UCR steelhead and UCR steelhead designated critical habitat. Additional surveys for the threatened Ute ladies'-tresses prior to, during, and postconstruction would either confirm that the species does not occur in areas affected by the project or guide the development of avoidance or mitigative measures. The survey results and filing, with the Commission for approval, proposed measures to avoid or mitigate impacts to listed species; implementation of the Vegetation Plan, including noxious weed control, employing BMPs during construction, employee training, and provision of a biological monitor during construction would protect potential Ute ladies'-tresses habitat in areas affected by the project and at the proposed side channel enhancement site. Recreation and Land Use Implementation of the Recreation Management Plan would improve existing recreational facilities and opportunities. The Safety During Construction Plan, as well as the Fence Plan, would help keep visitors to the project away from the construction activities and reduce user conflicts between recreationists and cattle grazing activities. Inclusion of the entire Oroville-Tonasket Irrigation District Ditch Road as a project feature and bringing it into the project boundary would ensure maintenance of the entire road for the purpose of providing public access to the campground, boat launch, picnic areas, and access trail to the river below the dam. Aesthetic Resources Okanogan PUD's proposal to use visually-compatible colors and building materials, use non-reflective surfaces where possible, and consult with the Colville during restoration activities, would provide some protection for visual resources. The staff alternative with additional recommendations including coordination with stakeholders to include specific approaches for blending existing and proposed Enloe Project facilities into the existing landscape character; revegetating, stabilizing, and landscaping the new construction areas and areas immediately adjacent; grading, planting native vegetation, repairing slopes damaged by erosion, and preventing future erosion; monitoring restored areas; and conducting maintenance activities would provide additional protection. Cultural Resources Revising and implementing the May 2009 HPMP, with staff's additional measures, would ensure protection of historic properties over the license term. No-Action Alternative Under the no-action alternative, environmental conditions would remain the same, and no enhancement of environmental resources would occur. BLM stated that it would require Okanogan PUD to remove the dam and all associated facilities from the public lands under the existing right-of-way permit if a license is be issued. We discussed dam removal under cumulative effects in section 3.5. Conclusions Based on our analysis, we recommend licensing the project as proposed by Okanogan PUD with some staff modifications and additional measures. In section 4.2 of the EA, we estimate the likely cost of alternative power for each of the alternatives identified above. Our analysis shows that during the first year of operation under Okanogan PUD's proposed alternative, the project would cost $106,470, or $2.40/megawatt-hours (MWh), less than the likely alternative cost of power. Under the staff alternative, the project power would cost $83,920, or $1.89/MWh, less than the likely cost of alternative power. We chose the staff alternative as the preferred alternative because: (1) The project would provide a dependable source of electrical energy for the region (44.4 gigawatt-hours annually); (2) the project could save an equivalent amount of fossil fuel-fired electric generation and capacity, which may help conserve non-renewable energy resources and reduce atmospheric pollution, including greenhouses gases; and (3) the recommended environmental resources proposed by Okanogan PUD, as modified by staff, would adequately protect and enhance environmental resources affected by the project. The overall benefits of the staff alternative would be worth the cost of proposed and recommended environmental measures. We conclude that issuing a new license for the project, with the environmental measures we recommend, would not be a major federal action significantly affecting the quality of the human environment. Draft Environmental Assessment Federal Energy Regulatory Commission, Office of Energy Projects, Division of Hydropower Licensing, Washington, DC Enloe Hydroelectric Project Project No. 12569-001—Washington 1.0 Introduction 1.1 Application On August 22, 2008, the Public Utility District No. 1 of Okanogan County, Washington (Okanogan PUD) filed an application seeking a license with the Federal Energy Regulatory Commission (Commission or FERC) for the 9.0-megawatt (MW) Enloe Hydroelectric Project (Enloe Project or project) located on the Similkameen River at river mile (RM) 8.8 near the city of Oroville, Okanogan County, Washington (figure 1). The project would occupy 35.47 acres of federal lands administered by U.S. Bureau of Land Management (BLM). The project would generate an average of 45 gigawatt-hours (GWh) of energy annually. Enloe dam was originally constructed for hydroelectric generation between 1919 and 1923. The project operated from 1923 to 1958 when it was decommissioned. The original project included an intake, penstock, and powerhouse located 850 feet downstream of the dam on the west bank of the Similkameen River. On September 13, 1996, the Commission issued an order to Okanogan PUD to redevelop the Enloe Project using the existing dam and rehabilitating the original intake, penstock, and powerhouse. However, on February 23, 2000, that order was rescinded. Okanogan PUD proposes to again redevelop the Enloe Project by using the existing concrete gravity arch dam impounding a 76.6-acre reservoir; and constructing new penstock intake structure, and above-ground steel penstocks carrying flows from the intake to the new powerhouse located 370 feet downstream of the dam on the east bank of the Similkameen River. 1.2 Purpose of Action and Need for Power 1.2.1 Purpose of Action The Commission must decide whether to issue a license to Okanogan PUD for the Enloe Project and what conditions should be placed on any license issued. In deciding whether to issue a license for a hydroelectric project, the Commission must determine that the project will be best adapted to a comprehensive plan for improving or developing a waterway. In addition to the power and developmental purposes for which licenses are issued (such as flood control, irrigation, or water supply), the Commission must give equal consideration to the purposes of (1) energy conservation; (2) the protection of, mitigation of damage to, and enhancement of fish and wildlife resources; (3) the protection of recreational opportunities; and (4) the preservation of other aspects of environmental quality. BILLING CODE 6717-01-P EN17MY11.000 BILLING CODE 6717-01-C Issuing a license for the Enloe Project would allow the Okanogan PUD to generate electricity for the term of the license, making electrical power from a renewable resource available to its customers. This draft environmental assessment (EA) assesses the effects associated with construction and operation of the project and alternatives to the proposed project. It also includes recommendations to the Commission on whether to issue a license, and if so, includes the recommended terms and conditions to become a part of any license issued. In this draft EA, we assess the environmental and economic effects of construction and operation of the project as proposed by Okanogan PUD, and with our recommended measures. We also consider the effects of the no-action alternative. Important issues that are addressed include the protection of geology and soils, water quantity and quality, cultural resources, aesthetics resources, and recreation and land use during project construction and operation. 1.2.2 Need for Power The Enloe Project would provide hydroelectric generation to meet part of Okanogan PUD's power requirements, resource diversity, and capacity needs. The project would have an installed capacity of 9.0 MW and generate approximately 44.4 GWh per year. The North American Electric Reliability Council (NERC) annually forecasts electrical supply and demand nationally and regionally for a 10-year period. The Enloe Project is located in the Northwest subregion of the Western Electricity Coordinating Council region of the NERC. According to NERC's 2010 forecast, winter peak demands and annual energy requirements for the Northwest subregion are projected to grow at rates of 1.1 percent and 1.2 percent, respectively, from 2010 through 2019 (NERC, 2010). NERC projects resource capacity margins (generating capacity in excess of demand) will remain above the target reserve margins of 18.6 percent for summer and 20.0 percent for winter throughout the 2010-2019 period. Over the next 10 years, WECC estimates that about 6,285 MW of additional capacity will be brought on line. We conclude that power from the Enloe Project would help meet a need for power in the Northwest subregion in both the short and long term. The project would provide power that displaces non-renewable, fossil-fired generation and contributes to a diversified generation mix. Displacing the operation of fossil-fueled facilities may avoid some power plant emissions and creates an environmental benefit. 1.3 Statutory and Regulatory Requirements A license for the Enloe Project would be subject to numerous requirements under the Federal Power Act (FPA) and other applicable statutes. We summarize the major regulatory requirements in table 1 and describe them below. Table 1—Major Statutory and Regulatory Requirements for the Enloe Hydroelectric Project [Source: Staff] Requirement Agency Status Section 18 of the FPA (fishway prescriptions) NMFS, FWS NMFS and FWS filed reservations of authority on February 26, 2010. Section 4(e) of the FPA (land management conditions) Interior No section 4(e) conditions have been filed. Section 10(j) of the FPA Washington DFW, FWS, NMFS Washington DFW, FWS, and NMFS all filed section 10(j) recommendations on February 26, 2010. Clean Water Act—Water Quality Certification Washington DOE Application for certification was received on February 25, 2011; action on the application due by February 25, 2012. Endangered Species Act Consultation NMFS, FWS Commission staff is initiating formal consultation with both agencies. Coastal Zone Management Act Consistency Washington DOE By letter dated September 25, 2009, Washington DOE waived its requirement for compliance with its Coastal Zone Management Program for the project. National Historic Preservation Act Advisory Council on Historic Preservation; Washington Department of Archaeology and Historic Preservation The Commission designated Okanogan PUD as a non-federal representative for conducting section 106 consultation on September 26, 2005. Okanogan PUD filed a Historic Properties Management Plan on June 16, 2009. Pacific Northwest Power Planning and Conservation Act The project is not located within the designated protected area of the Columbia River Basin and would be in compliance with specific provisions to be considered in the licensing or relicensing of non-federal hydropower projects. Magnuson-Stevens Fishery Conservation and Management Act NMFS Licensing the project could adversely affect Chinook salmon essential fish habitat. Commission staff is initiating formal consultation with NMFS. Notes: 401 WQC—401 Water Quality Certificate BLM—U.S. Bureau of Land Management Commission—Federal Energy Regulatory Commission FPA—Federal Power Act FWS—U.S. Department of the Interior, Fish and Wildlife Service Interior—U.S. Department of the Interior NMFS—National Marine Fisheries Service Okanogan PUD—Public Utility District No. 1 of Okanogan County Washington DFW—Washington Department of Fish and Wildlife Washington DOE—Washington Department of Ecology 1.3.1 Federal Power Act 1.3.1.1 Section 18 Fishway Prescriptions Section 18 of the FPA states that the Commission is to require construction, operation, and maintenance by a licensee of such fishways as may be prescribed by the Secretaries of Commerce or the U.S. Department of the Interior (Interior). The National Marine Fisheries Service (NMFS) by letter dated February 26, 2010, and the U.S. Department of the Interior, Fish and Wildlife Service (FWS) by letter dated February 26, 2010, request that a reservation of authority to prescribe fishways under section 18 be included in any license issued for the project. 1.3.1.2 Section 4(e) Conditions Section 4(e) of the FPA provides that any license issued by the Commission for a project within a federal reservation shall be subject to and contain such conditions as the Secretary of the responsible federal land management agency deems necessary for the adequate protection and use of the reservation. Interior, on behalf of the U.S. Bureau of Land Management (BLM), filed recommended terms and conditions by letter dated February 26, 2010, and did not prescribe any conditions pursuant to section 4(e) of the FPA. 1.3.1.3 Section 10(j) Recommendations Under section 10(j) of the FPA, each hydroelectric license issued by the Commission must include conditions based on recommendations provided by federal and state fish and wildlife agencies for the protection, mitigation, or enhancement of fish and wildlife resources affected by the project. The Commission is required to include these conditions unless it determines that they are inconsistent with the purposes and requirements of the FPA or other applicable law. Before rejecting or modifying an agency recommendation, the Commission is required to attempt to resolve any such inconsistency with the agency, giving due weight to the recommendations, expertise, and statutory responsibilities of such agency. NMFS, FWS, and Washington Department of Fish and Wildlife (Washington DFW) all timely filed, on February 26, 2010, recommendations under section 10(j), as summarized in table 23, in section 5.4, Recommendations of Fish and Wildlife Agencies. In section 5.4, we also discuss how we address the agency recommendations and comply with section 10(j). 1.3.2 Clean Water Act Under section 401 of the Clean Water Act (CWA), a license applicant must obtain certification from the appropriate state pollution control agency verifying compliance with the CWA. On February 24, 2010, Okanogan PUD applied to the Washington Department of Ecology (Washington DOE) for a 401 Water Quality Certificate (WQC) for the Enloe Project. Washington DOE received this request on February 25, 2010. Washington DOE has not yet acted on the request. Washington DOE action is due by February 25, 2011. On October 28, 2010, Okanogan PUD filed a status report on its negotiations with Washington DOE and Washington DFW regarding possible conditions for the WQC for the Enloe Project, and on November 10, 2010, it filed supplemental information regarding the basis for the potential conditions. In this filing, measures for aquatic resources would include: • A minimum flows of 30 cfs from mid-July to mid-September, and 10 cfs rest of the year to the pool below Enloe dam. • Monitoring water temperature in the bypassed reach for a period of time postconstruction; and adopting an adaptive management program to enhance DO and water temperatures should monitoring indicate that water quality standards are not being met. • Determining appropriate thresholds for downramping rates immediately downstream of Enloe dam based on monitoring and field observations prior to operations. • Selecting an appropriate minimum flow release location in consultation with fisheries resource agencies (Washington DOE, Washington DFW, Interior, NMFS, BLM, and the Colville), and making appropriate project modifications to provide minimum flow releases. 1.3.3 Endangered Species Act Section 7 of the Endangered Species Act (ESA) requires federal agencies to ensure that their actions are not likely to jeopardize the continued existence of endangered or threatened species or result in the destruction or adverse modification of the critical habitat of such species. NMFS notified the Commission in its February 26, 2010, filing that one ESA-listed threatened species of anadromous fish is known to occur in the Similkameen River below Enloe dam: The upper Columbia River (UCR) steelhead distinct population segment. Designated critical habitat includes the Similkameen River below Similkameen Falls (the falls). There is no critical habitat designation upstream of Similkameen Falls. FWS lists five additional ESA-listed species of fish, wildlife, and plants that occur in Okanogan County, Washington, including the bull trout (threatened), Canada lynx (threatened), grizzly bear (threatened), northern spotted owl (threatened), and Ute ladies'-tresses (threatened). There is no designated critical habitat for any of these species within the Enloe Project boundary. Our analyses of project impacts on threatened and endangered species are presented in section 3.3.5, Threatened and Endangered Species, and our recommendations in section 5.2, Comprehensive Development and Recommended Alternative. We conclude that licensing the project would have no effect on bull trout, Canada lynx, grizzly bear, and northern spotted owl. We conclude that licensing the project would adversely affect federally listed UCR steelhead because proposed project construction and habitat enhancement projects could result in short-term increases in turbidity and sedimentation and the risk of injury or mortality to eggs, fry, juveniles, or adults by instream use of equipment. Construction of the tailrace could result in injury or mortality to eggs, fry, juveniles, or adults caused by capture and transport, relocation, and blasting. UCR steelhead injury or mortality could result from fish swimming into draft tubes and hitting the turbine runner during project operation. We conclude, however, that the proposed project would not appreciably diminish the value of designated UCR steelhead critical habitat for both survival and recovery of this species and the proposed enhancement measures would provide some long-term beneficial effects. Consequently, we will request formal consultation with NMFS pursuant to section 7 of the ESA. Potential habitat for Ute ladies'-tresses exists along the reservoir and in the side channel enhancement area. No populations of this species were discovered during Okanogan PUD's rare plant surveys, but there are agency concerns about the adequacy of the surveys. If Ute ladies'-tresses grows in the habitat identified at the edge of the reservoir, operation of the proposed crest gates would inundate the population. If this species occurs at the side-channel enhancement site, construction, operation, and maintenance of the proposed facility could adversely affect the plants, but it may be possible to adjust the facility's footprint so that the plants are not affected. In response to agency recommendations for additional surveys, Okanogan PUD proposes to survey areas that could potentially provide habitat for Ute ladies'-tresses for an additional 3 years as part of its proposed Vegetation Mitigation and Monitoring Plan (Vegetation Plan). Thereafter, potential habitat for Ute ladies'-tresses would be resurveyed only if site management changes occur that could affect that habitat. Okanogan PUD's proposed surveys would either confirm that Ute ladies'-tresses does not occur in areas that would be affected by the project or would guide the development of avoidance or mitigative measures for this species. Therefore, licensing the project with the recommended protection, mitigation, and enhancement measures would not be likely to adversely affect Ute ladies'-tresses. 1.3.4 Coastal Zone Management Act Under section 307(c)(3)(A) of the Coastal Zone Management Act (CZMA), 1 the Commission cannot issue a license for a project within or affecting a state's coastal zone unless the state CZMA agency concurs with the license applicant's certification of consistency with the state's CZMA program, or the agency's concurrence is conclusively presumed by its failure to act within 180 days of its receipt of Okanogan PUD's certification. 1 16 U.S.C. 1456(c)(3)(A) (2006). By letter dated September 25, 2009, the Washington DOE waived its requirement for compliance with its Coastal Zone Management Program for the project. Therefore, no consistency certification is required. 1.3.5 National Historic Preservation Act Section 106 of the National Historic Preservation Act of 1966 (NHPA) 2 and its implementing regulations, 3 requires that every federal agency “take into account” how each of its undertakings could affect historic properties. Historic properties are districts, sites, buildings, structures, traditional cultural properties, and objects significant in American history, architecture, engineering, and culture that are eligible for inclusion in the National Register of Historic Places (National Register). To meet the requirements of section 106, the Commission intends to execute a Programmatic Agreement (PA) for the protection of historic properties from the effects of the construction, operation, and maintenance of the Enloe Project. The terms of the PA would ensure that Okanogan PUD addresses and treats all historic properties identified within the project's areas of potential effects (APEs) for the proposed project and the side-channel enhancement site through implementation of a revised Historic Properties Management Plan (HPMP). 2 16 U.S.C. 470 et seq. (2006). 3 36 CFR Part 800 (2009). 1.3.6 Pacific Northwest Power Planning and Conservation Act Under section 4(h) of the Pacific Northwest Power Planning and Conservation Act, the Northwest Power and Conservation Council developed the Columbia River Basin Fish and Wildlife Program to protect, mitigate, and enhance the operation of the hydroelectric projects within the Columbia River Basin. Section 4(h) states that responsible federal and state agencies should provide equitable treatment for fish and wildlife resources, in addition to other purposes for which hydropower is developed, and that these agencies should take into account, to the fullest extent practicable, the program adopted under the Pacific Northwest Power Planning and Conservation Act. The program directs agencies to consult with federal and state fish and wildlife agencies, appropriate Indian tribes, and the Council during the study, design, construction, and operation of any hydroelectric development in the basin. To mitigate harm to fish and wildlife resources, the Council has adopted specific provisions to be considered in the licensing or relicensing of non-federal hydropower projects (appendix B of the Program). The specific provisions that apply to the proposed project call for: (1) Specific plans for fish facilities prior to construction; (2) assurance that the project would not degrade fish habitat or reduce numbers of fish; (3) assurance all fish protection measures are fully operational at the time the project begins operation; (4) timing construction activities, insofar as practical, to reduce adverse effects on wintering grounds; and (5) replacing vegetation if natural vegetation is disturbed. Our recommendations in this EA (sections 2.2 and 2.3) are consistent with the applicable provisions of the program, listed above. Further, a condition of any license issued would reserve the Commission's authority to require future alterations in project structures and operations to take into account, to the fullest extent practicable, the applicable provisions of the program. As part of the Program, the Council has designated more than 40,000 miles of river (protected area) in the Pacific Northwest region as not being suitable for hydroelectric development. The project is not located within a protected area. 1.3.7 Magnuson-Stevens Fishery Conservation and Management Act The Magnuson-Stevens Fishery Conservation and Management Act requires federal agencies to consult with NMFS on all actions that may adversely affect essential fish habitat (EFH). The Pacific Fishery Management Council manages the fisheries for coho, Chinook, and Puget Sound pink salmon and has defined EFH for these three species. Salmon EFH includes all those streams, lakes, ponds, wetlands, and other water bodies currently or historically accessible to salmon in Washington, except areas upstream of certain impassable human-made barriers (Pacific Fisheries Management Council, 2010), and longstanding, naturally impassable barriers (i.e., natural waterfalls in existence for several hundred years). The historically accessible reaches of the Similkameen River (RM 0 to the falls) are EFH for Chinook salmon. Based on our analysis in this EA of the proposed action as specified in the license application, we conclude that licensing the project would be likely to adversely affect EFH for the UCR Chinook salmon for the same reasons we conclude that licensing the project would adversely affect the UCR steelhead and its designated critical habitats (see section 1.3.3, Endangered Species Act ). Consequently, we will request that NMFS provide any EFH recommendation along with its biological opinion regarding listed anadromous fish. 1.4 Public Review and Consultation The Commission's regulations (18 CFR, section 4.38) require that applicants consult with appropriate resource agencies, tribes, and other entities before filing an application for a license. This consultation is the first step in complying with the Fish and Wildlife Coordination Act, ESA, NHPA, and other federal statutes. Pre-filing consultation must be complete and documented according to the Commission's regulations. 1.4.1 Scoping Before preparing this EA, we conducted scoping to determine what issues and alternatives should be addressed. Scoping Document 1 (SD1) was issued on December 16, 2008. Two scoping meetings were noticed on December 16, 2008, and held on January 14 and 15, 2009, in Oroville, Washington. A court reporter recorded all comments and statements made at the scoping meetings, and these are part of the Commission's public record for the project. In addition to comments provided at the scoping meetings, the following entities provided written comments: Commenting entity Date filed Washington DFW February 6, 2009. National Park Service (Park Service) February 9, 2009. Richard Terbasket February 12, 2009. FWS February 13, 2009. BLM February 17, 2009. Columbia River Inter-Tribal Fish Commission (CRITFC) February 17, 2009. NMFS February 17, 2009. Washington DOE February 17, 2009. U.S. Bureau of Indian Affairs (BIA) February 17, 2009. U.S. Environmental Protection Agency (EPA) February 17, 2009. Lower Similkameen Indian Band February 20, 2009. Confederated Tribes of the Colville Reservation (Colville) February 23, 2009. Arnold N. Merchand February 23, 2009. A revised scoping document 2 (SD2), addressing these comments, was issued on May 7, 2009. 1.4.2 Interventions On October 29, 2008, the Commission issued a notice that Okanogan PUD had filed an application for a license for the Enloe Project. This notice set December 29, 2008, as the deadline for filing protests and motions to intervene. In response to the notice, the following entities filed motions to intervene, none in opposition: 4 Late intervention; no action has been taken on this petition. Intervenor Date filed Greater Columbia Water Trail Coalition (Water Trail Committee) October 31, 2008. American Whitewater November 4, 2008. Washington Department of Natural Resources (Washington DNR) November 26, 2008. Washington DFW November 26, 2008. American Rivers December 8, 2008. Washington DOE December 11, 2008. CRITFC December 29, 2008. Interior December 29, 2008. NMFS December 30, 2008. Colville 4 April 10, 2009. 1.4.3 Comments on the License Application A notice requesting conditions and recommendations was issued on December 28, 2009. The following entities commented: Commenting agency and other entity Date filed British Columbia Ministry of Environment (Ministry of Environment) February 18, 2010. Chloe O'Loughlin, Canadian Parks and Wilderness Society—British Columbia Chapter February 24, 2010. Colville February 26, 2010. Interior (including FWS and BLM) February 26, 2010. NMFS February 26, 2010. Washington DFW February 26, 2010. American Rivers, American Whitewater, the Center for Environmental Law and Policy, the North Cascades Conservation Council (Cascade Chapter), Water and Salmon Committee of the Sierra Club, and the Columbia River Bioregional Education Project (American River et al. ) February 26, 2010. U.S. Department of Agriculture, Forest Service (Forest Service) February 27, 2010. CRITFC March 1, 2010. Okanogan PUD filed reply comments on April 9, 2010. 2.0 Proposed Action and Alternatives 2.1 No-Action Alternative The no-action alternative is license denial. Under the no-action alternative, the project would not be built, and the environmental resources in the project area would not be affected. 2.2 Applicant's Proposal 2.2.1 Proposed Project Facilities The proposed Enloe Project would consist of: (1) An existing 315-foot-long, 54-foot-high concrete gravity arch dam with an integrated 276-foot-long central overflow spillway; (2) three 5-foot-high automated steel flap crest gates; (3) an existing 76.6-acre reservoir (narrow channel of the Similkameen River) with a storage capacity of 775 acre-feet at a surface elevation of 1,049.3 feet above mean sea level (msl); (4) a 190-foot-long intake canal on the east abutment of the dam diverting flows into the penstock intake structure; (5) a 35-foot-long by 30-foot-wide penstock intake structure; (6) two above-ground 8.5-foot-diameter, 150-foot-long steel penstocks carrying flows from the intake to the powerhouse; (7) a powerhouse containing two vertical Kaplan turbine/generator units with a total installed capacity of 9.0 MW; (8) a 180-foot-long tailrace channel, downstream of the falls; (9) a substation adjacent to the powerhouse; (10) a 100-foot-long, 13.2-kilovolt (kV) primary transmission line connecting the substation to an existing distribution line; (11) about 1.5 miles of new and upgraded access roads; and (12) appurtenant facilities. The project would generate an average of 45 GWh of electricity annually. 2.2.2 Project Safety As part of the licensing process, the Commission would review the adequacy of the proposed project facilities. Special articles would be included in any license issued, as appropriate. Commission staff would inspect the licensed project both during and after construction. Inspection during construction would concentrate on adherence to Commission-approved plans and specifications, special license articles relating to construction, and accepted engineering practices and procedures. Operational inspections would focus on the continued safety of the structures, identification of unauthorized modifications, efficiency and safety of operations, compliance with the terms of the license, and proper maintenance. In addition, any license issued would require an inspection and evaluation every 5 years by an independent consultant and submittal of the consultant's safety report for Commission review. 2.2.3 Proposed Project Operation The Enloe Project would operate automatically in a run-of-river mode, regardless of water year (wet, dry, or average). Under a run-of-river mode of operation, all project outflows would approximate all project inflows at any point in time, such that there would be minimal fluctuation of the reservoir surface elevation. 5 The existing dam crest elevation of 1,044.3 feet would be increased by re-installation of 5-foot-high crest gates which would increase the reservoir to 1,049.3 feet elevation. Automated crest gates would be installed that would automatically adjust to regulate spills and maintain a nearly constant reservoir elevation relative to reservoir inflow. Okanogan PUD plans to maintain reservoir levels between elevation 1,048.3 feet and elevation 1,049.3 feet (top of crest gates) when inflows are equal to, or less than, the maximum hydraulic capacity of the units (1,600 cfs). This is estimated to occur approximately 70 percent of the time. Discharge through the units would be approximately equal to inflow based on the maintenance of reservoir levels. When inflows are between 1,600 and 16,500 cfs, which is estimated to occur approximately 29 percent of the time, the reservoir elevation would be maintained between elevation 1,049.3 feet and elevation 1,050.3 feet. When inflows exceed 16,500 cfs, which is only estimated to occur approximately 1 percent of the time, the crest gates would be fully lowered and the water level would be controlled at the spillway. During low flow conditions, less than 500 cfs, the project would operate in run-of-river mode with one unit running. In this operational mode, a stable water level of the reservoir and stable flow in the downstream reach would be maintained. Under these conditions, the rate of change in the outflow from the reservoir would follow the natural rate of change on the inflow to the reservoir. 5 A perfectly constant water level would be difficult to achieve because natural events, such as wave action, would likely cause slight fluctuations in the reservoir surface elevation regardless of operational controls. 2.2.4 Proposed Environmental Measures Okanogan PUD proposes the following environmental measures. 6 6 We used Okanogan PUD's classification of their environmental measures presented in the license application, and they are indicated in parentheses after each measure. Geology and Soil Resources • Develop and implement the Erosion and Sediment Control Plan (ESCP) to minimize the effects of construction, repair, and operation of the dam and intake, penstocks, powerhouse, tailrace, impoundment, access roads, powerline, and construction camp (WQ-06). • Develop and implement a Construction Sediment Management Program (CSMP) to minimize sediment disturbance and maximize sediment containment during construction (WQ-08). Water Quality • Monitor water temperatures at three locations for a period of 5 years to determine if the operation of crest gates causes an increase in the water temperatures in the reservoir when compared with upstream of the reservoir (WQ-01). • Locate the powerhouse tailrace so that it discharges to and circulates water in the plunge pool downstream of Similkameen Falls, preventing stagnation and consequently water quality degradation of the pool habitat (WQ-02 and FISH-09). • Provide aeration in the powerhouse draft tubes during low flow summer months and monitor for the first 5 years to determine the optimum time to provide aeration (WQ-03). • Monitor total dissolved gas (TDG) and DO at the project intake and in the pool below Similkameen Falls for a period of 5 years to assess TDG and DO under project operations (WQ-04). • Design a broad, shallow intake structure and channel to minimize sediment disturbance in the reservoir near the intake (WQ-05). • Develop and implement at project initiation a Spill Plan to reduce potential effects from accidental spills when heavy machinery is operating near the river and reservoir (WQ-07). Aquatic Resources • Implement the Blasting Plan and use best management practices (BMPs) to avoid and minimize the potential effects on aquatic resources, including federally listed or sensitive species (FISH-01). • Place two clusters of boulders in riffles or in plane-bed sections of the Similkameen River upstream of the reservoir to improve mountain whitefish habitat and recreational fisheries (FISH-02). • Ensure that logs and other large woody debris can pass over the dam spillway during the annual flood and, if needed, transport some large woody debris around the dam and place it in the river downstream of the dam to provide fish habitat (FISH-03). • Design the intake trashrack with 1-inch bar spacing so that smaller fish would be able pass safely through the trashrack and larger fish would be discouraged or prevented from passing through the trashracks and turbines (FISH-04). • Monitor seasonal variation in entrainment susceptibility; observe trauma and mortality caused by entrainment, and monitor reservoir fish populations to relate the entrainment observations with the fish distribution and abundance in the reservoir (FISH-05). • Install tailrace barrier nets in the powerhouse draft tubes to prevent fish in the tailrace from swimming upstream into the draft tubes during low flows and an inspection and maintenance plan to ensure that the tailrace barrier operates effectively (FISH-06). • Monitor barrier nets with video cameras to observe if adult salmonids are able to enter the draft tubes past the barrier nets (FISH-07). Develop and implement a written operation plan, a post construction evaluation and monitoring plan, and an inspection and maintenance plan. 7 7 Okanogan PUD proposes to develop and implement the recommended-written operation plan for the tailrace barrier (April 19, 2010) from NMFS, Interior, and Washington DFW (February, 26, 2010). • Operate the project in a run-of-river mode so that there are no detectable changes in flows below Similkameen Falls (FISH-08). Avoid flow fluctuations that might affect downstream resources by complying with ramping rate restrictions as recommended by resource agencies. 8 Monitor ramping rate compliance utilizing an existing Washington DOE gage on the Similkameen River. 8 Okanogan PUD proposes to comply with recommended ramping rates (April 9, 2010) from NMFS, Department of Interior, and Washington DFW recommendations (February 26, 2010). • Design and place the tailrace to avoid effects on fish that use the plunge pool below Similkameen Falls (FISH-09 and WQ-02). • Enhance an existing side channel to improve spawning, rearing, and summer thermal refugia downstream of the powerhouse tailrace (FISH-10). • Implement a gravel supplementation program to increase the amount of gravel in the river downstream of Enloe dam and improve spawning habitat (FISH-11). • Develop a biological review process, including a Biological Resource Program, and consultation with the Technical Review Group (TRG) comprising the Colville, BLM, Washington DOE, Washington DNR, NMFS, FWS, and Washington DFW (FISH-12). • Develop a fisheries monitoring database for organizing and storing monitoring data related to aquatic resources (FISH-13). Terrestrial Resources • Implement the Vegetation Plan to minimize effects on riparian and wetland vegetation, including goals, the species to be used, methods, and benchmarks of success for botanical resources (BOTA-01). 9 9 The Vegetation Plan (BOTA-01) contains the measures BOTA-2 through BOTA-7, BOTA-11, REC-01, and AES-04. • Plant riparian vegetation along the west and east banks of the reservoir shoreline to mitigate the temporary loss of habitat while fringe riparian vegetation establishes along the new water line (BOTA-02). • Return the existing shoreline road to natural conditions to improve wildlife habitat along the reservoir and eliminate the current interruption between the shoreline and upland habitat (BOTA-03, also analyzed as part of REC-13). • Plant woody riparian species in the riparian area along the abandoned road corridor (BOTA-04). • Plant woody riparian vegetation along the east and west banks of the reservoir downstream of Shanker's Bend and upstream of the reservoir (BOTA-05). • Install grazing control measures, including fencing, to protect riparian plantings and sensitive areas from cattle grazing (BOTA-06, also analyzed as part of REC-1). • Monitor restored areas annually for 5 years and then once again at year 8, and plant additional willows if performance criteria are not met; provide annual reports of the monitoring results to the U.S. Army Corps of Engineers (Corps) and Washington DOE (BOTA-07). • Employ BMPs during construction to protect riparian and wetland vegetation, including measures such as flagging and temporarily fencing any wetland and riparian vegetation in the vicinity of the project that would reduce or avoid accidental impacts, and limiting construction and maintenance-related disturbance of sensitive habitats to the extent possible to protect these resources (BOTA-08). • Develop and implement an environmental training program to inform employees and contractor employees who work on the project site or related facilities during construction and operation about the sensitive biological resources associated with the project area (BOTA-09). • Provide a biological monitor to check construction sites on a weekly schedule to ensure that protected areas are not disturbed and that fencing and other control measures are intact (BOTA-10). • Implement the Noxious Weed Control Program to control weeds along roads and construction sites (BOTA-11). • Survey disposal sites and control noxious weeds by implementing control measures prior to spoil disposal (BOTA-12). • Hydroseed disposal sites using native upland species, following completion of spoil disposal (BOTA-13). • Strategically place and install the project transmission line to reduce the adverse effects on raptors and other birds (WILD-01). • Concentrate construction activities to occur in summer and early fall to minimize effects on overwintering birds and bald eagles (WILD-02). • Conduct pre-disposal site survey for wildlife and time the clearing of vegetation at spoil disposal sites to minimize wildlife impacts (WILD-03). Threatened and Endangered Species • Conduct surveys for Ute ladies'-tresses prior to, during, and postconstruction to either confirm that the species does not occur in the areas affected by the project or guide the development of avoidance or mitigative measures (BOTA-14). Recreation and Land Use • Implement the Recreation Management Plan, which includes measures for recreation and safety of and access to the project areas (REC-13). • Revise and implement the Fence Plan in coordination with the Recreation Management Plan to include: (a) Installation of barricades and fencing on the east side of the dam and the area below the dam; (b) use of non-barbed wire at the recreation area; and (c) installation of a stock watering tank north of the proposed recreation site as an alternative source of drinking water for all grazing cattle with rights to this area (REC-01). • Provide public access downstream of Enloe dam on the east bank by developing a trail to the river below the dam (REC-02). • Transfer to Okanogan County ownership rights to the trestle bridge that is located on the west side of the river downstream of the dam with certain conditions (REC-03). 10 10 Land ownership rights were transferred to Okanogan County in 2007. • Improve the existing informal boat ramp located on the east bank upstream of the dam (REC-04). • Clean up and restore wooded area on east bank of the reservoir (REC-05). • Develop an interpretive publication, in collaboration with Okanogan County, the Greater Columbia Water Trail Steering Committee (Water Trail Committee), and other interested parties, that would include a map illustrating public access and recreation sites (REC-06). • Remove existing trash and conduct annual cleanup activities within the wooded area on the east bank of the reservoir and along the Oroville-Tonasket Irrigation District (OTID) Ditch Road leading from the Loomis-Oroville Road to the dam site (REC-07). • Develop a parking area and install a vault toilet, accessible to persons with disabilities, on the east bank and upstream of Enloe dam included in (Okanogan PUD, 2009b) (REC-08). • Install picnic tables, at least one of which should incorporate universal design principles, near the parking area taking advantage of existing trees for shading (REC-09). • Develop primitive campsites near the parking and picnic area (REC-10). • At a minimum, install one interpretive sign near the parking and picnic area and one sign near the abutment of the old powerhouse access bridge, below Similkameen Falls (REC-11). • Place an information board near Enloe dam to depict public access areas and information concerning visitor use of the project area (REC-12). • Maintain the existing signs and system of safety cables and grab ropes above the dam, install dam safety/warning signs for boaters, and install a log boom across the powerhouse intake channel to protect boaters (SAFETY-01). 11 11 All SAFETY measures were proposed by Okanogan PUD in the response to additional information request filed on February 27, 2009. • Coordinate with BLM and other land owners, as appropriate, to identify options for preventing public access to the old powerhouse (SAFETY-03). • Develop and implement a Safety During Construction Plan and allow limited public access to the project during construction (SAFETY-02). Aesthetic Resources • Use visually-compatible colors and building materials for construction occurring on the east bank (AES-01). • Consult with the Colville and other stakeholders during restoration activities (AES-02). • Use non-reflective surfaces where possible during construction (AES-03). • Grade and repair all slopes where buildings are removed and plant native grasses and other riparian vegetation (AES-04). Cultural Resources • Solicit a new owner for the existing historic powerhouse (HIST-01). • If a qualified owner is not identified for the existing historic powerhouse, demolish the existing historic powerhouse (HIST-02). • Install interpretive panels about the existing historic powerhouse (HIST-03). • Review and reach agreement on the HPMP and incorporate information into a PA (HIST-04). • Monitor shoreline areas to prevent effects on archaeological sites due to reservoir fluctuations (ARCH-01). • Avoid known National Register-eligible archaeological sites to prevent effects during construction (ARCH-02). • Monitor eligible sites during construction activities to avoid effects on these sites (ARCH-03). • Develop and implement an inadvertent discovery plan, specifying required actions and procedures if a site is discovered during construction and including training staff and construction workers about the potential for discovery of archaeological deposits (ARCH-04). • Determine if there would be effects on archaeological sites in the vicinity of recreational facilities (ARCH-05). As we've said, on October 28, 2010, Okanogan PUD filed additional information regarding ongoing consultations with Washington DOE and Washington DFW for the 401 Water Quality Certification process (letter from Dan Boetter, Director, Regulatory and Environmental Affairs, Okanogan PUD, Okanogan, Washington, to Kimberly Bose, Secretary, FERC, Washington, DC, October 28, 2010). In this filing and for the bypassed reach, Okanogan PUD proposes to: • Provide minimum flows of 30 cfs from mid-July to mid-September, and 10 cfs rest of the year to the pool below Enloe dam. • Monitor DO and water temperature in the bypassed reach for a period of time postconstruction; and adopt an adaptive management program to enhance DO and water temperatures should monitoring indicate that water quality standards are not being met. • Determine appropriate thresholds for downramping rates immediately downstream of Enloe dam based on monitoring and field observations prior to operations. • Select an appropriate minimum flow release location in consultation with fisheries resource agencies (Washington DOE, Washington DFW, Interior, NMFS, BLM, and the Colville), and make appropriate project modifications to provide minimum flow releases. In this draft EA, staff will consider measures in this filing as Okanogan PUD's minimum flow proposals, and will analyze their effects on environmental resources. 2.2.5 Modifications to Applicant's Proposal—Mandatory Conditions To date, no mandatory conditions were submitted under sections 4(e) or 18 of the FPA, or section 401 of the CWA. 2.3 Staff Alternative Under the staff alternative, the project would include the majority of Okanogan PUD's proposed measures, with the exception of placement of boulder clusters in the plane bed section of the Similkameen River upstream of Shanker's Bend and entrainment and resident fish monitoring, along with the following modifications and additions: Geology and Soil Resources • Develop and implement a Spoil Disposal Plan after consultation with BLM and other interested parties. Water Quality • Develop and file with the Commission, in consultation with the TRG, a water quality monitoring plan including: Selecting the monitoring locations; filing a report at the end of year 5 documenting the results of monitoring and recommendations for the need for continued monitoring development; and conducting water temperature, TDG, and DO monitoring for a period longer than 5 years if needed. Aquatic Resources • Revise Okanogan PUD's preliminary Blasting Plan to include preparing a final Blasting Plan after consultation with the TRG. • Revise Okanogan PUD's proposed large woody debris transport plan to include consultation with the TRG to determine when such transport would be required, the methods to be used for collection and transport of the wood, and the best locations for release of the woody debris downstream of the dam. • Revise Okanogan PUD's proposed side-channel enhancement plan to include consultation with the TRG to develop the side-channel enhancement plan and file the plan with the Commission, with copies to the agencies, at least 180 days prior to implementation. Implement the plan and incorporate the lands associated with the side channel enhancements in the project boundary (approximately 0.75 acre 5 miles downstream of the dam). • Revise Okanogan PUD's proposed gravel supplementation program to include consulting with the TRG to develop the gravel enhancement plan. • Revise Okanogan PUD's Spill Plan to include consultation with BLM and Washington DOE. • Revise and file with the Commission Okanogan PUD's proposal to design a narrow-spaced intake trashrack to include consulting with Interior and Washington DFW during the final design of the intake structure and trashracks to ensure that fish protection features are included in the final design. • Develop a project operations compliance and monitoring plan, in consultation with the TRG, to be filed for Commission approval. Terrestrial Resources • Revise the Vegetation Plan to file monitoring reports annually for 5 years and in year 8, and provide these reports to the Commission, FWS, BLM, and Washington DFW, and filing for Commission approval, any proposals for further restoration measures. • Retain dead trees along the reservoir unless they become a hazard and provide 10 artificial perch poles. Threatened and Endangered Species • Prepare a Ute ladies'-tresses survey plan after consultation with FWS, BLM, and Washington DFW, and if plant surveys identify the threatened Ute ladies'-tresses in areas that would be affected by the project, file for Commission approval, an additional plan developed, after consultation with FWS, BLM, and Washington DFW, to avoid or minimize adverse effects. Recreation and Land Use • Revise the proposed Recreation Management Plan (REC-13) in coordination with the Aesthetics Management Plan and the HPMP, and include consultation with stakeholders. Finalize and implement the interpretive publication as part of the Recreation Management Plan. • Add to the Recreation Plan an established plow schedule to allow visitors winter access to project lands and waters. • Develop and implement a recreation use monitoring plan to include consultation with BLM. • Develop and implement a Fire Suppression Program in consultation with BLM. • Revise the Safety during Construction Plan to include consultation with BLM and local emergency response agencies. • Add approximately 5.0 acres to the project boundary incorporating the entire length of the public access road from the Loomis-Oroville Road to Enloe dam to ensure public access throughout the length of any license issued for the project. • Develop a river access point at Miner's Flat and incorporate approximately 1 acre into the project boundary. • Remove the one small, deteriorated building on Okanogan PUD land at the north end of the proposed Enloe dam recreation area. 12 12 Measures were proposed by Okanogan PUD in the response to additional information request filed on February 27, 2009. Aesthetics • Revise the proposed Aesthetics Management Plan in coordination with the Recreation Management Plan and the HPMP to include consultation with the Colville, BLM, and other stakeholders. • Develop specific approaches concerning the blending of the existing and proposed Enloe Project facilities into the existing landscape character. • Include these measures at the laydown or construction material storage areas that have yet to be determined. Cultural Resources • Revise Okanogan PUD's May 2009 HPMP to include provisions for: (1) Further consideration of the potential effects of capping site 45OK532; (2) a description of the proposed side-channel enhancement site; (3) two separate defined APEs that delineate the proposed Enloe project and the proposed side-channel enhancement site; (4) consultation with the Cultural Resources Working Group (CRWG) regarding the resolution of adverse effects on the historic Enloe powerhouse; (5) re-evaluating the Oroville-Tonasket Irrigation Canal for National Register-eligibility; (6) completing determinations of eligibility for unidentified cultural resources on BLM lands; (7) periodic review of the HPMP; (8) a site monitoring program; (9) cultural interpretative and education measures; and (10) revising the APEs to accommodate modifications to the project boundary, if any. 2.4 Staff Alternative With Mandatory Conditions To date, no mandatory conditions were submitted under section 4(e) or section 18 of the FPA, or section 401 of the CWA. NMFS and Interior, however, request reservation of authority under section 18. 2.5 Removal of Existing Hydroelectric Facilities Including Enloe Dam BLM stated that it would require Okanogan PUD to remove the dam and all associated facilities from the public lands under the existing right-of-way permit if a license is not be issued. Removing Enloe dam would affect many resources. We discuss the effects on these resources in section 3.2. 3.0 Environmental Analysis In this section, we present: (1) A general description of the project vicinity; (2) an explanation of the scope of our cumulative effects analysis; and (3) our analysis of the proposed action and other recommended environmental measures. Sections are organized by resource area (aquatic, recreation, etc.). Under each resource area, historic and current conditions are first described. The existing condition is the baseline against which the environmental effects of the proposed action and alternatives are compared, including an assessment of the effects of proposed mitigation, protection, and enhancement measures, and any potential cumulative effects of the proposed action and alternatives. Staff conclusions and recommended measures are discussed in section 5.2, Comprehensive Development and Recommended Alternative of the EA. 13 13 Unless otherwise indicated, our information is taken from the application for license for this project (Okanogan PUD, 2008a) and additional information filed by Okanogan PUD (2009a-d). 3.1 General Description of The River Basin Located in north-central Washington about 2 miles south of the Canadian border, the Enloe Project is situated in a narrow constriction of the Similkameen River Valley, about 3.5 miles northwest of the city of Oroville (figure 1). The project is located predominantly on land administered by the BLM. The Similkameen River is tributary to the Okanogan River just south of Oroville, Washington; the Okanogan in turn flows into the Columbia River east of Brewster, Washington. The Similkameen River drains the east slopes of the Cascade Mountains in northern Washington and southern British Columbia, Canada. The majority (79 percent) of the drainage basin lies within Canada. Similkameen Falls is located about 370 feet below Enloe dam, and forms a 33-foot-long and 20-foot-high barrier impassible to anadromous fish. Above the dam lies a shallow reservoir with a mean depth of 8.4 feet at the existing dam crest elevation of 1,044.3 feet msl and a maximum depth of 55.6 feet (MaxDepth, 2006); the reservoir is filled with an accumulated sediment volume of approximately 2.43 million cubic yards (MaxDepth, 2006). The existing reservoir is approximately 2 miles long and averages about 250 feet in width. Topography in the project vicinity has been significantly affected by glaciations and is moderately steep and rugged. In the lower part of the river canyon, steep slopes adjacent to the river are interspersed with relatively flat benches of alluvial or glacial origin. The upper portions of the river canyon are steep and rocky. The mountains of the Okanogan Highlands lie to the east and the North Cascades to the west. Elevations range from 1,000 feet at the mouth of the Similkameen River at Oroville to greater than 3,600 feet at the summits of surrounding mountains. The climate in the lower Similkameen River Basin is typical of eastern Washington, with cool, moist winters and hot dry summers. The Cascade Mountains act as a barrier to the movement of maritime and continental air masses, creating the generally dry conditions observed in the project vicinity. Average annual precipitation is approximately 11 inches. River flows peak in late spring to early summer when warm temperatures melt the extensive winter snowpacks at the higher elevations in the basin. Low flows occur in late-fall/mid-winter when cold temperatures minimize runoff. 3.2 Scope of Cumulative Effects Analysis According to the Council on Environmental Quality's regulations for implementing the National Environmental Policy Act (40 CFR, section 1508.7), cumulative effect is the impact on the environment which results from the incremental impact of the action when added to other past, present, and reasonably foreseeable future actions regardless of what agency (federal or non-federal) or person undertakes such other actions. Cumulative impacts can result from individually minor but collectively significant actions taking place over a period of time, including hydropower and other land and water development activities. Based on our review of the license application, written and oral comments from scoping, other filings related to the project, and preliminary staff analyses, we have identified water quantity and water quality, aquatic resources including federally listed threatened and endangered fish species, as resources that could be cumulatively affected by the proposed project in combination with other actions and other hydroelectric development on the Similkameen River. 3.2.1 Geographic Scope The geographic scope of the analysis defines the physical limits or boundaries of the proposed action's effects on the resources. Because the proposed action would affect the resources differently, the geographic scope for each resource may vary. For water resources and aquatic resources, including federally listed threatened and endangered fish species, we have identified the Similkameen River Basin as our geographic scope of analysis. 3.2.2 Temporal Scope The temporal scope of our cumulative effects analysis in the EA includes a discussion of past, present, and future actions and their effects on these resources. Based on the potential term of a license, we will look 30 to 50 years into the future, concentrating on the effect on the resources from reasonably foreseeable future actions. The historical discussion is limited, by necessity, to the amount of available information. We identified the present resource conditions based on the license application, agency comments, and comprehensive plans. During scoping, Washington DFW, FWS, EPA, BLM, Park Service, U.S. Bureau of Indian Affairs, and CRITFC requested the Commission to consider the effects of the proposed Shanker's Bend Project (Project Number P-12804) in our cumulative effects analysis because it would be located upstream of the Enloe Project. Washington DFW stated that the Shanker's Bend Project is not a run-of-river project; therefore, the Enloe Project would not be a run-of-river project either, and would benefit from the analysis of the Shanker's Bend Project. FWS requested that proposed project operations of the Enloe Project include an analysis of how the proposed Shanker's Bend Project would alter the project operations as defined in the final license application. BLM understands that the Shanker's Bend Project is currently under consideration/study and may be operated in conjunction with Enloe dam; it recommended that the cumulative effects on resources and recreation uses be analyzed. BLM also recommended that the Commission analyze the cumulative effects of other dams operated down-river. CRITFC stated that the Shanker's Bend Project is a “reasonably foreseeable action” and that the Commission must consider a cumulative effects analysis of the Shanker's Bend Project with the Enloe Project. The Commission issued a preliminary permit to the Okanogan PUD for the Shanker's Bend Project in 2008. The purpose of a preliminary permit is to preserve the right of the permit holder for a period of three years to have the first priority in applying for a license for the project that is being studied. Because a permit is issued only to allow the permit holder to investigate the feasibility of a project while the permittee conducts investigations and secures necessary data to determine the feasibility of the proposed project and to prepare a license application, it grants no land-disturbing or other property rights. Until such time as an application for license is filed with the Commission, there is no project proposal to consider. Whether Okanogan PUD decides to file a development application in the future and whether the Commission would issue a license for this project is speculation and not a reasonably foreseeable action at this time. Dam Removal Alternative BLM stated that it would require Okanogan PUD to remove the dam and all associated facilities from the public lands under the existing right-of-way permit if a license is not issued. Removing Enloe dam would affect many resources. Effects on Water Quality Approximately 2.43 million cubic yards of sediment are stored behind Enloe dam (MaxDepth, 2006). Much of this sediment is contaminated with high levels of arsenic, cadmium, copper, and other metals. Removal of the dam would release these contaminated sediments to the Similkameen and Okanogan rivers and eventually the Columbia River. Dredging and disposing of the sediments from the reservoir prior to dam removal risks resuspension and transport of some of these sediments to downstream areas. Even if the sediments were dredged prior to dam removal, significant amounts of sediment could remain on the reservoir bottom and would eventually reach the river and be transported downstream. Effects on Aquatic Resources The release of the contaminated sediments currently stored behind Enloe dam could have substantial effects on spawning habitat, eggs, fry, juvenile and adult anadromous and resident fish. This effect could seriously damage Chinook salmon essential fish habitat (EFH) and UCR steelhead critical habitat. The duration of the effects of this release of sediments would depend largely on flow and volume of material captured in the channel as bedload. Equilibrium would eventually be achieved, and removing Enloe dam would eventually provide for the free flow of gravel, large woody debris, and sediments downstream of the current dam location. Increased gravel input below Similkameen Falls would improve the spawning habitat for anadromous fish. Increased input of large woody debris downstream of the falls would also benefit anadromous and resident fish by providing habitat structure. Dam removal would also affect the nature of the current reservoir by returning it to a riverine state. Water velocity in the reservoir area would increase, while water temperature may be slightly cooler. Slower water habitats along the edges of the reservoir would disappear as the water recedes into a more defined channel. Fish species composition would shift, as the available habitat may select for fish that prefer faster moving, cooler water. Dam removal would have no effect on anadromous fish passage in the Similkameen River. There are no anadromous fish found directly downstream of the dam due to the presence of Similkameen Falls, which acts as a natural barrier to anadromous fish passage. If the dam were removed, resident fish would be able to move freely from the current reservoir reach, downstream to the rest of the river. Effects on Terrestrial Resources The change in water surface elevation with dam removal would result in the loss of existing wetland and riparian habitat along the reservoir. The death of large trees in the existing riparian forest community would provide cavities and snags that would be valuable wildlife habitat components. Over time, riparian and wetland vegetation would re-colonize the edge of the river, replacing the lost habitat. The decrease in the water surface elevation would likely make the existing potential Ute ladies'-tresses habitat along the reservoir too dry to support the plant. New potential habitat for this species would likely be created, but the extent of the new habitat is unknown. Effects on Recreation Removing Enloe dam would change the recreational opportunities associated with the site. Returning the reservoir above the dam into a free-flowing river would affect a variety of recreation opportunities including: Fishing, boating, hiking, camping, and wildlife watching. Dam removal will change angling opportunities by changing fisheries habitat from reservoir to riverine and the associated fish species available to anglers. Similarly, some boaters seek flat water experiences (motor or paddle) while others prefer whitewater. Opportunities to engage in flat water experiences are available at nearby Lakes Wannacut, Palmer, and Osoyoos. Hiking and camping experiences are influenced by nearby water bodies through the sounds of rushing water or the opportunity to swim in a reservoir. Additionally, the flora and fauna associated with the site would change, thus modifying the species available for nature study. Effects on Aesthetics Resources Removal of Enloe dam would change the aesthetic character associated with the site. The current reservoir lakebed would be dewatered, changing the character of the former lakebed to a vegetative environment with a free-flowing river. Fall flows would remain at the falls. This new view would be seen from the Loomis-Oroville road and the Pacific Northwest National Scenic Trail (Scenic Trail). Effects on Cultural Resources Removing the National Register-listed Enloe dam would result in an adverse effect on this historic property. Additionally, removal of the dam could result in the exposure of currently inundated and as yet unidentified cultural sites, including properties of traditional religious and cultural importance to the Colville. This action could expose these resources to the public, resulting in illicit artifact collection and site vandalism. Effects on Socioeconomics Dam removal would likely result in a negligible effect on the recreation and tourism industry in Okanogan County. Currently, fishing occurs primarily in the lower reaches of the Similkameen River, below the Enloe dam. Creation of aesthetic and recreation resources due to a shift from a reservoir to a riverine environment would indirectly affect recreational use of the project resources and associated expenditures (such as, a fee for a fishing license) and therefore, the local economy should continue to benefit from these expenditures. With dam removal, there would be no loss of property value to residents because the majority of land ownership within the Enloe Project boundary is administered by federal or State agencies and there are no residents that border the Enloe dam. 3.3 Proposed Action and Action Alternatives In this section, we discuss the effect of the project alternatives on environmental resources. For each resource, we first describe the affected environment, which is the existing condition and baseline against which we measure effects. We then discuss and analyze the site-specific and cumulative environmental issues. Only the resources that would be affected, or about which comments have been received, are addressed in detail in this EA. We present our recommendations in section 5.2, Comprehensive Development and Recommended Alternative . 3.3.1 Geologic and Soil Resources 3.3.1.1 Affected Environment The complex structure and lithology along the Similkameen River above and below Enloe dam reflect its position at the boundary of several distinct physiographic and lithological regions. The dam is located within the Cordilleran fold and thrust belt (Bayer, 1983) of northwestern North America. In this region, successive episodes of accretion, volcanic-arc mountain building, and back-arc deposition have created a complex physiography. Enloe dam is situated on the Similkameen River near the boundary of the Cascade Range and Columbia mountains physiographic provinces where they converge around the 49th parallel, separating the Canadian Interior plateaus from the Lava plateaus of eastern Washington and Oregon, western Idaho, and northern California. Geology Along the narrow valley section of the Similkameen River downstream of Palmer Lake and upstream of Enloe dam, the uplands are composed primarily of Triassic-Permian metasedimentary and metavolcanic rocks of the Kobau Formation, interspersed with Jurassic metavolcanic, intrusive, and sedimentary rocks, Eocene conglomerate and Eocene intrusive dacite. Much of the valley and sideslopes are mantled in Quaternary glacial drift. The complicated structure is the result of late Triassic or early Jurassic accretion of Paleozoic and Mesozoic volcanic archipelagos accompanied by regional metamorphism and plutonism, subsequent overlayering of late Cretaceous and early Tertiary volcanic and sedimentary rocks, and Quarternary erosion and deposition resulting from continental glaciation. In the immediate vicinity of the impoundment, highly deformed Triassic/Permian metamorphic rocks of the Kobau and Spectacle formations are unconformably overlain by Jurassic/Cretaceous metaconglomerate and metavolcanic rocks of the Ellemeham Formation. These are in turn again unconformably overlain by Eocene sandstone and conglomerate, and the latter are again unconformably overlain by Quaternary glacial drift, colluvium, and alluvial deposits. Within the impoundment itself, from Shanker's Bend downstream to approximately 1,600 feet above the dam, the Similkameen River lies at the boundary of the Kobau and Ellemeham formations (between 1,600 feet above and 1,000 feet below the dam). The stretch of the river flows over Eocene sandstone and conglomerate. Enloe dam is located above the falls on resistant Eocene granitic-clast conglomerate. Downstream of the dam and falls, the river again flows over Triassic/Permian metamorphic rocks of the Kobau and Spectacle Formations. Soils Most of the soils present within or adjacent to the proposed project boundary are classified as Nighthawk loam or Nighthawk extremely stony loam. Ewall loamy fine sand and Lithic Xerochrepts-Nighthawk complex soils and riverwash and rock outcrop areas are also present within or adjacent to the project boundary. Nighthawk loam soils are formed in glacial till deposited over shale and are present just upstream of the dam and upstream of Shanker's Bend. These soils are deep and well drained. Nighthawk loam soils with 3 to 8 percent slopes are characterized by slow runoff and present a slight erosion hazard. Nighthawk loam soils with 8 to 15 percent slopes are characterized by medium runoff and present a high to very high erosion hazard. Nighthawk extremely stony loam soils are generally formed in glacial till and are located adjacent to the dam and powerhouse and a portion of Shanker's Bend. These soils are deep and well drained. Nighthawk extremely stony loam soils with 8 to 25 percent slopes are characterized by medium runoff and present a high to very high erosion hazard. When slopes reach 25 to 65 percent, these soils are characterized by rapid to very rapid runoff and present a high to very high erosion hazard. Ewall loamy fine sand soils are formed in glacial outwash sand and are located in a small area immediately downstream of Shanker's Bend. These soils are deep and excessively drained. Ewall loamy fine sand soils with 0 to 15 percent slopes are characterized by slow runoff, and present a slight erosion hazard and a high soil-blowing hazard. Lithic Xerochrepts soils are generally shallow and well drained and are located downstream of the dam. Lithic Xerochrepts-Nighthawk complex soils with 15 to 45 percent slopes are characterized by medium runoff and present a moderate erosion hazard. Areas classified as riverwash and rock outcrops are also present within or adjacent to the project boundary. Riverwash consists of coarse sand and gravelly alluvium. Rock outcrop areas contain little or no shallow soil material. Geologic Hazards Enloe dam is located in an area of historically low seismicity. Peak ground acceleration with a 2 percent probability of occurrence in 50 years is approximately 0.16 times the force of gravity (g) and peak ground acceleration with a 10 percent probability of occurrence in 50 years is approximately 0.07 g (U.S. Geological Survey (USGS), 2002). Localized faults have been mapped in upland areas adjacent to Similkameen Valley. An active fault is present in the conglomerate bedrock approximately 100 feet downstream of the proposed tailrace outlet. The fault does not displace overlying glacial drift, which indicates that it has not been active in more than 10,000 years. No significant historical earthquakes (magnitude 5.5 or intensity VI or larger) have been recorded within 50 miles of the dam since 1568 (USGS-NEIC, 2007 a, b). During geological field mapping conducted in December 2006, some seepage was detected along joints and bedding planes in the conglomerate and sandstone that form the east abutment of the dam (Christensen Associates, 2007). Okanogan PUD proposes to grout and stabilize these areas during the construction of proposed facilities. Some of the soils adjacent to the Similkameen River present high to very high erosion potential. Nighthawk extremely stony loam soils that occur on slopes in excess of 8 percent have a high to very high erosion hazard. Nighthawk extremely stony loam soils are present upstream of Shanker's Bend, adjacent to portions of Shanker's Bend, and on either side of the river adjacent to the dam, and proposed intake location. Landslide or mass wasting hazards are most likely to occur in these areas; however, no signs of recent instability were noted during the December 2006 geological field investigations (Christensen Associates, 2007). 3.3.1.2 Environmental Effects Okanogan PUD's proposed land-disturbing activities associated with the construction of project facilities (new crest gates on Enloe dam, new east-bank approach channel, new intake structure, new intake canal, new penstock intake, new penstocks, new powerhouse, new tailrace channel, a short section of new road, modifications to existing project roads, and improvements to existing recreation areas) could cause erosion and sedimentation. Okanogan PUD proposes to develop and implement the ESCP (WQ-06) to minimize the effects of land-disturbing activities associated with construction of new facilities, as well as modifications and improvements to existing facilities. The plan would also be implemented during project operation and maintenance. Okanogan PUD also proposes to develop and implement the CSMP (WQ-08) to minimize sediment disturbance and maximize sediment containment during construction. In response to agencies' comments and recommendations, Okanogan PUD developed a Spill Response Plan and a Storm Water Pollution Prevention Plan (see section 3.3.2.2, Water Quality ). The resource agencies recommend that the sediment excavated for project construction be tested for arsenic, copper, cadmium, zinc, and lead; and that the sediments be stored on site until test results are known so that sediments can be disposed of properly. BLM recommends that Okanogan PUD develop and implement a Spoil Disposal Plan prior to any construction activities that may affect the BLM-administered public lands. The plan would address disposal and/or storage of waste soil and/or rock materials (spoils) generated by road maintenance, slope failures, and construction projects. A Spoil Disposal Plan would include provisions for the following: (1) Identifying and characterizing the nature of the spoils in accordance with applicable BLM regulations; (2) identifying sites, including locations of the public lands, for the disposal and/or storage of spoils so contamination of water by leachate and surface water runoff can be prevented; and (3) developing and implementing stabilization, slope reconfiguration, erosion control, reclamation, and rehabilitation measures. Our Analysis As we've said, land-disturbing activities associated with project construction, operation and maintenance, and soils within the project area are susceptible to soil erosion and sedimentation. Excavated materials could possibly contain higher levels of arsenic, copper, cadmium, zinc, and lead than is acceptable under the criteria of the U.S. EPA's Maximum Contaminant Level. Okanogan PUD's proposal to finalize and implement the ESCP (WQ-06) and the CSMP (WQ-08) would lessen the potential effects associated with land-disturbing activities during project construction, modifications, and improvements of project facilities, as well as during project operation and maintenance. Our analysis of the Spill Response and Storm Water Pollution Prevention Plans are discussed in section 3.3.2.2, Water Quality . BLM recommends that Okanogan PUD consult with BLM for the development and implementation of a Spoil Disposal Plan prior to any construction activities that may affect the BLM-administered public lands. This plan would ensure that there would be little or no effects from excavated materials on water quality or the surrounding environment within the project boundary. 3.3.2 Water Quantity and Quality 3.3.2.1 Affected Environment The drainage area of the Similkameen River above Enloe dam is approximately 3,575 square miles most of which is in British Columbia. The headwaters of the Similkameen River Basin occur in rugged terrain along the international boarder and to the north. Much of the upper basin is used for timber harvest, mining, and grazing. The river valley widens near Princeton, British Columbia. Irrigation of agricultural land is a primary water use upstream of Nighthawk, Washington, located about 9 miles upstream of the project. Existing uses in Canada include aquatic and wildlife habitat, stock watering, domestic water supply, agriculture and mining. Water Quantity On average approximately 78 percent of the annual flow on the Similkameen River occurs from April through July (table 2). Minimum flows occur between late summer (August) and stay low through early spring (March) until the snowmelt season begins in April, peaking in late May or early June. The maximum average monthly flow was 24,900 cfs in June 1972, while the minimum average monthly flow was 191 cfs in September 2003. Table 2—Summary of Similkameen River Flows at the USGS Nighthawk Gage No. 12442500, 1929-2005 (Source: Okanogan PUD, 2008a) Month Mean Median Maximum daily Minimum daily October 697 576 8,430 161 November 938 681 14,400 160 December 798 576 12,400 120 January 659 540 5,270 120 February 682 551 7,790 120 March 746 600 5,260 290 April 2,086 1,390 26,400 297 May 2,086 1,390 26,400 539 June 8,597 7,580 44,800 1,160 July 2,965 2,220 15,800 408 August 916 764 3,770 195 September 596 514 2,430 164 Note: The Nighthawk gage is located about 7 miles upstream of the project with a drainage area of about 3,550 square miles. The maximum recorded average daily flow was 44,800 cfs on June 1, 1972, when the peak instantaneous flow was estimated to be 45,800 cfs at a stage height of 18.0 feet above the approximate channel bottom. The minimum recorded daily flow was 65 cfs on January 3, 1974; this abnormally low flow was attributed to ice effects. The mean annual flood (at the Nighthawk gage), between 1929 and 2005, was 16,100 cfs. Annual maximum mean daily discharges range from a low of 4,590 cfs (June 8, 1941) to a high of 44,800 (June 1, 1972). The water level recorded was 13 feet above the spillway crest at Enloe dam during the 1972 flood. The calculated return period of the 1972 flood is approximately 180 years. Annual instantaneous peak flows at the Nighthawk gage have occurred almost exclusively (except on October 21, 2003) during spring and early summer for the period of record. The earliest recorded peak event occurred on April 26, 1934, while the latest occurred on June 23, 1967. The mean/median peak flow day for the period of record was May 28, although for the last 20 years (1987-2006), the mean/median peak flow day occurred about one week earlier (May 22). However, winter floods associated with the inland penetration of coastal storms have occasionally been of similar magnitude to these spring and early summer freshets. The winter floods, although less common, are usually associated with ice flows and snowmelt runoff. Certified water rights on the Similkameen River are listed in table 3. Okanogan PUD holds senior water rights on the river, a 1,000-cfs water right with a priority date of 1912 for power generation purposes. The proposed project maximum hydraulic capacity is 1,600 cfs. Thus, Okanogan PUD would need to obtain an additional 600-cfs water right for non-consumptive use in order to divert the maximum hydraulic capacity for the project. Table 3—Similkameen River Water Rights (Source, Okanogan PUD, 2008a) Document No. Status Priority (year) Flow (cfs) Acre-feet/year Purpose Acres irrigated Owner CCVOL1P243 Certificate (Change) 1912 1,000 PO Okanogan PUD S3-22053C Certificate 1973 1.5 372 IR, SW 80 Private S4-26618C Certificate 1980 1 202 IR, SW 50 Private SWC00723 Certificate 1930 0.5 — IR 12 Private SWC03557 Certificate 1948 0.05 — IR 7.5 Private SWC06242 Certificate 1955 0.05 — DS, IR 3 Private SWC09018 Certificate 1955 2 400 IR 100 Private SWC09834 Certificate 1966 1.4 280 IR 70 Kernan Farms Total of all Certificates: 6.5 1,254 322.5 Notes: DS—Domestic IR—Irrigation SW—Stock water PO—Power Enloe reservoir occupies a narrow, channelized basin and has a very high inflow/volume ratio; therefore, the reservoir is more river-like than lake-like in character. The mean hydraulic residence time is estimated to be about 2.4 hours for the mean annual flow of 2,290 cfs, 45 minutes for the mean annual peak flow of 16,100 cfs, 7.3 hours for the mean September flow of 596 cfs, and more than 20 hours for flows less than 200 cfs (table 4). Table 4—Enloe Reservoir Characteristics at Existing and Proposed Operations and Spills (Source: Okanogan PUD, 2008a) Location Reservoir elevation (feet msl) Reservoir length (miles) Reservoir shoreline length (miles) Reservoir surface area (acres) Reservoir mean depth (feet) Reservoir maximum depth (feet) Reservoir volume (acre-feet) At existing dam crest elevation 1,044.3 2.0 4.1 60.1 8.4 54.3 507 At mean annual flow of 2,290 cfs 1,046 2.1 4.2 67.1 9.1 56.0 613 During proposed low-flow project operations 1,048.3 2.2 4.8 76.6 10.1 58.3 775 During spill periods 1,050.3 2.3 4.9 88.3 10.6 60.3 938 Most of the bed-surface substrate is medium sand, with a typical (median) diameter of 0.4 millimeter (mm); gravel is present at the upstream end of the reservoir near Shanker's Bend and at depth within the accumulated sediment. The volume of stored sediment is estimated to be around 2.4 million cubic yards. Groundwater in this sub-basin is primarily supplied from glacial and alluvial deposits in the lower valley areas. The Similkameen River once flowed southward through the valley now occupied by Palmer Lake and Sinlahekin Creek. During the last glaciation, the river was rerouted through several temporary channels until it finally settled into its current channel as the glacier retreated. Glacial and alluvial deposits in the original channel and the temporary channels are several hundred feet thick with moderate to high yield aquifers. The alluvial and glacial deposits are composed largely of fine sand, silt, and clay, with some thin lenses of coarse sand and gravel. Permeability and yields can be quite high. In places where there is a lack of glacial or alluvial deposits, groundwater is scarce. Subsurface rock consists of metamorphic, granitic, and consolidated sedimentary rock with low permeability and porosity. During low flow periods, very little flow is added to the river between the USGS Nighthawk gage (RM 15.8) and the Washington DOE flow gage at RM 5.0, indicating that groundwater discharge is not a significant contributor to flow in the lower Similkameen River. The City of Oroville withdraws its municipal water supply from a well field located at the confluence of the Similkameen and Okanogan rivers. The wells are considered to be in continuity with the Similkameen River. Groundwater would not be affected by the project regardless of its location relative to the river or degree of continuity because the project would operate in a run-of-river mode and would not affect flows or recharge. Water Quality This section describes existing water quality in the lower Similkameen River and focuses on water quality characteristics that could be influenced by project construction and operation: Temperature, DO concentration, total dissolved gas concentration, and contaminants associated with river sediments. Water Temperature Water temperatures in the Similkameen River upstream of the project can exceed freshwater aquatic life criteria during the summer months, and water temperatures generally increase from upstream to downstream. Okanogan PUD conducted water temperature monitoring in the project area from late spring through early fall of 2006 to characterize potential project effects on the water temperature regime. The monitoring study was designed to measure changes in water temperatures in the Similkameen River as it flowed through the project area. One of the designated uses for the Similkameen River is salmonid spawning, rearing, and migration. The aquatic life maximum water temperature criterion set by Washington DOE to protect this use is 17.5 degrees Celsius (°C), measured by the 7-day average of the daily maximum temperatures (7-DADMax). When a water body's temperature is warmer than the criterion and that condition is due to natural conditions, human actions (considered cumulatively) may not cause the 7-DADMax temperature of that water body to increase more than 0.3 °C. In applying this standard to hydroelectric projects, Washington DOE has interpreted natural conditions to be the water temperature regime before construction of any dams or other human influences. Washington DOE has identified the Similkameen River below Enloe dam as a water body requiring special protection for salmonid spawning and incubation (Okanogan PUD, 2008a). This special criterion identifies a maximum 7-DADMax temperature of 13 °C at the initiation of spawning for salmon and at fry emergence for salmon and trout. A maximum 0.3 °C increase also applies to the seasonal criteria for spawning and incubation. This requirement is applied to the Similkameen River from February 15 through June 15. The 2006 monitoring results showed that the Similkameen River exceeded the 17.5 °C criterion both upstream and downstream from Enloe dam from late June through mid-September, with additional exceedances in late-September (figure 2). The highest temperature of 26.9 °C was recorded both at China Rock (RM 12.2) upstream from the project site, and at the bridge in Oroville (RM 5.3) downstream from the project site. BILLING CODE 6717-01-P EN17MY11.001 Comparisons of 7-DADMax temperatures at different monitoring stations indicate that water temperatures did not increase through the project area by more than 0.3 °C at any time during the 2006 monitoring season, and all stations showed a similar trend in temperatures. The 7-DADMax temperatures decreased after August 4, although remained above the 17.5 °C criterion for most of the remainder of the monitoring period. Figure 3 plots the 7-DADMax temperatures at the upper end of the reservoir (RM 10.3) and the lower end of reservoir (RM 9.1). EN17MY11.002 BILLING CODE 6717-01-C Dissolved Oxygen The Water Quality Standards for Surface Waters for Washington state that the 1-day minimum DO concentration for salmonid spawning, rearing, and migration is 8.0 milligram per liter (mg/L) (Chapter 173-201A Washington Administrative Code). When a water body's DO concentration is lower that this criterion and that condition is due to natural conditions, human actions considered cumulatively may not cause the concentration to decrease more than 0.2 mg/L. Okanogan PUD measured DO profiles on September 14 and 15, 2006, in the vicinity of Enloe dam. All measurements were above the 8.0 mg/L minimum water quality standard. As expected, the DO concentrations were higher where colder water was encountered in the morning hours below the dam and at China Rock upstream of the reservoir. Warmer water and lower DO concentrations were measured in the afternoon hours in the reservoir pool above the dam. Total Dissolved Gases The Water Quality S [Text truncated at 120,000 characters. The full text is on the page linked above.] --- Source: Frix Law Library, https://www.frixlaw.com/law-library/documents/fr%3A2011-11757. Public record. Not legal advice.