[Federal Register Volume 69, Number 105 (Tuesday, June 1, 2004)]
[Notices]
[Pages 30975-30979]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 04-12241]


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TENNESSEE VALLEY AUTHORITY


Final Programmatic Environmental Impact Statement--Tennessee 
Valley Authority Reservoir Operations Study

AGENCY: Tennessee Valley Authority (TVA).

ACTION: Issuance of record of decision.

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SUMMARY: This notice is provided in accordance with the Council on 
Environmental Quality's regulations (40 Code of Federal Regulation 
[CFR] Parts 1500 to 1508) and TVA's procedures implementing the 
National Environmental Policy Act (NEPA). TVA has decided to adopt the 
Preferred Alternative identified in its Final Programmatic 
Environmental Impact Statement--Tennessee Valley Authority Reservoir 
Operations Study. The Final Environmental Impact Statement (FEIS) was 
made available to the public on February 19, 2004. A Notice of 
Availability of the FEIS was published in the Federal Register on 
February 27, 2004. The TVA Board of Directors decided to adopt the 
Preferred Alternative at its May 19, 2004, public meeting. In adopting 
the Preferred Alternative, TVA has decided to change the policy that 
guides the operations of the Tennessee River and reservoir system. 
Consistent with the operating priorities established by the TVA Act, 
the change will establish a balance of reservoir system operating 
objectives to produce a mix of benefits that is more responsive to the 
values expressed by the public during the Reservoir Operations Study 
(ROS). This includes enhancing recreational opportunities while 
avoiding unacceptable effects on flood risk, water quality, and TVA 
electric power system costs.

FOR FURTHER INFORMATION CONTACT: Linda B. Shipp, Senior NEPA 
Specialist, Tennessee Valley Authority, 400 West Summit Hill Drive, WT 
8C, Knoxville, TN 37902; telephone (865) 632-3440 or by e-mail 
[email protected].

SUPPLEMENTARY INFORMATION: TVA is a multipurpose federal corporation 
with a mandate to foster the social and economic well-being of the 
residents of the Tennessee Valley region through the wise use, 
conservation, and development of its natural resources. In carrying out 
this mission, TVA conducts a range of programs and activities, 
including operating the Nation's largest public power system, serving 
almost nine million people in parts of seven southeastern states, and 
operating a system of dams and reservoirs with associated facilities--
its water control system.
    As directed by the TVA Act, TVA manages the Tennessee River and 
reservoir system as an integrated water control system primarily for 
the purposes of navigation, flood control, and power production. 
Consistent with those purposes, TVA operates the system to improve 
water quality and water supply, and provide recreational opportunities, 
and a wide range of other public benefits. The water control system has 
hydroelectric generators and provides the cooling water supply for 
TVA's coal-fired and nuclear power plants and water supply for other 
industries located adjacent to the reservoirs. TVA's power system and 
its management of the integrated water control system are central 
components of the economic well-being of the Tennessee Valley region.
    TVA also manages 11,000 miles of public shoreline to maintain the 
integrity of the reservoir system. TVA has custody of and manages 
293,000 acres of land in the Valley, most of which is along the 
shorelines of TVA reservoirs. Development and management of these lands 
and activities are influenced by reservoir levels and river flows.
    TVA's reservoir operations policy guides the day-to-day management 
of the reservoir system. The reservoir operations policy sets the 
balance of trade-offs among competing uses of the water in the system. 
It determines the storage and flow of water in the reservoir system in 
response to rainfall and runoff. It affects the rise and fall of 
reservoir levels, when changes in reservoir levels occur, and the 
amount of water flowing through the reservoir system at different times 
of the year. Because TVA must respond to widely varying conditions in 
the operation of its reservoir system that are largely beyond TVA's 
control, its operations policy is basically a guideline and is 
implemented in a flexible manner.
    TVA conducted the ROS to determine whether changes in how it 
operates the reservoir system would produce greater overall public 
value for the people of the Tennessee Valley. TVA initiated the study 
in response to recommendations by public groups, individuals, and other 
entities while at the same time recognizing that the needs and values 
of the region and its people change over time. The scope of the study 
included 35 projects in the Tennessee River and Cumberland River 
watersheds. The study included a long-range planning horizon to the 
year 2030. The study area included most of Tennessee and parts of 
Alabama, Kentucky, Georgia, Mississippi, North Carolina, and Virginia.
    On February 25, 2002, TVA published a notice in the Federal 
Register announcing that it would prepare a programmatic EIS on its 
reservoir operations policy and inviting comments on its scope and 
contents. TVA, the U.S. Army Corps of Engineers (USACE), and the U.S. 
Fish and Wildlife Service (Service) cooperated to prepare the EIS. TVA 
also established two groups--a 17-member Interagency Team and a 13-
member Public Review Group (IAT/PRG)--to ensure that agencies and 
members of the public were actively and continuously involved 
throughout the study.
    During scoping, TVA received over 6,000 individual comments, about 
4,200 form letters and petitions signed by more than 5,400 members of 
the public. In addition, 3,600 residents in the TVA Power Service Area 
commented as part of a random telephone survey conducted by an 
independent research firm. TVA staff used this input to identify a 
broad range of issues and values to be addressed in the ROS. Overall, 
the public placed a high value on recreation, a healthy environment, 
production of electricity, and flood control.
    Based on issues and values identified during the scoping process, 
TVA staff along with input from members of the IAT/PRG developed a set 
of objectives that TVA used to define, evaluate, and compare a range of 
eight policy alternatives in the DEIS. The eight alternatives were 
examined in detail through a combination of data collection, 
statistical analysis, computer modeling, and qualitative assessment. As 
part of the analysis process, TVA worked with national experts from 
various disciplines. TVA staff developed advanced technologies for 
modeling water quality impacts and new analytical tools for modeling 
flood risk on an unprecedented scale--encompassing 35 dams and 
reservoirs and 99 years of hydrologic data.
    The Notice of Availability of the DEIS was published in the Federal 
Register on July 3, 2003. During the comment period on the DEIS, TVA 
received input from almost 7,000 individuals, including form letters 
and petitions with over 4,500 signatures. Volume II,

[[Page 30976]]

Appendix F of the FEIS contains responses to the over 3,200 separate 
comments TVA received during the DEIS review process. Most individuals 
expressed support for those alternatives in the DEIS that increased 
reservoir and tailwater recreation opportunities. However, state and 
federal agencies were concerned about the adverse water quality effects 
associated with most of the alternatives, particularly those enhancing 
recreation opportunities. Generally, the agencies preferred that TVA 
retain its existing operations policy (the No Action Alternative or 
Base Case). The Environmental Protection Agency (EPA) suggested the 
development of a hybrid or blended alternative that would avoid or 
reduce the environmental impacts associated with the identified action 
alternatives.
    The Department of the Interior, other agencies, and some members of 
the public strongly encouraged TVA to employ an adaptive management 
approach to implementing whatever changes might result from ROS. 
Adaptive management involves monitoring and modifying system operations 
as appropriate to respond to future conditions, such as changes in 
water quality. TVA currently practices adaptive management through the 
flexibility built into its operations policy and extensive monitoring 
of the reservoir system. TVA will continue to use such adaptive 
management practices as it implements the Preferred Alternative.
    As suggested by EPA, TVA developed an alternative that blends 
elements of the action alternatives supported by the public while 
avoiding or reducing associated adverse environmental impacts. 
Specifically, TVA used a series of simulations to combine and adjust 
elements of alternatives included in the DEIS that supported increased 
recreation opportunities, navigation, and other system benefits. 
Adjustments were made to avoid or reduce adverse impacts to other 
objectives including flood risk, water quality, power costs, aquatic 
resources, wetlands, migratory waterfowl and shorebirds, and shoreline 
erosion. The end result of the blending process is TVA's Preferred 
Alternative.
    The FEIS was released to the public on February 19, 2004, with a 
request for comment on the Preferred Alternative. The Notice of 
Availability of the FEIS with 45 days for the public to comment was 
published in the Federal Register on February 27, 2004.

Comments on the Final EIS

    Although not required, TVA provided a 45-day comment period on the 
FEIS and the Preferred Alternative. To facilitate the review process, 
TVA distributed approximately 1,200 copies of the FEIS and posted a 
copy on the official agency Internet Web site, where comments could be 
made. In addition, TVA accepted comments by surface or electronic mail, 
telephone, and facsimile. TVA staff met with and briefed over 1,100 
interested stakeholders. Approximately 50 scheduled briefings were 
conducted for federal, state, and local officials, TVA power 
distributors, reservoir user groups, and Valley media. TVA continued to 
meet with its cooperating agencies and with members of the IAT/PRG to 
brief them on the FEIS and the Preferred Alternative and to receive 
their input.
    During the FEIS review process, TVA received comments from almost 
2,000 individuals, 4 federal agencies, and 10 state agencies. The 
comments included over 500 form letters and petitions signed by more 
than 800 individuals. Most of the comments were similar to those TVA 
received on the DEIS, except for those comments specifically on the 
Preferred Alternative. In general, the public and agencies supported 
the Preferred Alternative and viewed it as a substantial improvement 
over the Base Case. However, about 800 individuals expressed concerns 
regarding the delayed fill component on the upper mainstem projects, 
especially Watts Bar and Fort Loudoun/Tellico, and the potential 
adverse recreation and economic impact this could have on marina 
operators on these reservoirs. Concerns were also expressed about the 
lack of changes in the operations of Tims Ford and Kentucky Reservoirs.
    The delayed fill component of the Preferred Alternative was 
included to enhance flood risk protection at locations on the mainstem 
reservoirs, including Chattanooga. Although there is some uncertainty 
in this regard, TVA expects the delayed fill to have minimal effects on 
the recreation opportunities (dock accessibility) on the upper mainstem 
reservoirs and fish spawning. Impacts to fish spawning would be 
minimized because much of the prime nesting habitat would be covered 
during the first week of April when half the summer pool is filled and 
before spawning begins. Additionally, starting on April 8, a slow fill 
into the remainder of the shallows may benefit the growth and survival 
of both fry and young-of-year fish. TVA's analysis of median reservoir 
levels projected under the Preferred Alternative indicate that boat 
ramps, commercial marinas, and most private docks will be functional 
from April 15 through the period of slowed fill. Assuming average 
rainfall and runoff, water levels would be within the summer operating 
zone by the first week of May. More importantly, TVA's adaptive 
management approach to implementing the Preferred Alternative will 
enable the agency to determine if unacceptable or unexpected adverse 
impacts result on these reservoirs and to adjust operations 
appropriately. No changes were made on Tims Ford and Kentucky 
reservoirs to avoid unacceptable impacts on flood risk, wetlands, and 
wildfowl. None of the comments on the FEIS identified material 
weaknesses in TVA's analyses.

Alternatives Considered

    TVA considered eight reservoir operations policy alternatives in 
the DEIS: Base Case (the No Action Alternative), Reservoir Recreation 
A, Reservoir Recreation B, Tailwater Recreation, Tailwater Habitat, 
Summer Hydropower, Equalized Summer/Winter Flood Risk, and Commercial 
Navigation. A ninth alternative, the Preferred Alternative was 
addressed in the FEIS. Each policy alternative establishes a balance of 
reservoir system operating objectives. Except for the Base Case, each 
alternative would change, to various degrees, reservoir levels and flow 
releases and their seasonal timing to produce a different mix of 
benefits. Under all of the alternatives, including the Preferred 
Alternative, TVA would continue to use water stored in the reservoirs 
to preserve the reliability of the TVA power system during Power System 
Alerts or other critical power system situations.
    As required by NEPA, TVA used the Base Case Alternative to document 
the existing reservoir operations policy and to serve as a baseline 
against which the action alternatives are compared. Under the Base 
Case, TVA would continue to operate its integrated water control system 
in accordance with the existing balance of operating objectives, 
reservoir levels and water release guidelines, and project commitments 
and constraints.
    The Base Case also involves a number of other actions that would 
occur regardless of changes in the reservoir operations policy. These 
actions include: existing water-use patterns, taking into account 
increasing water supply demand in the future (through 2030), 
modernization and automation of TVA's hydro plants, operation of Browns 
Ferry Nuclear Plant Unit 1 and continued operation and uprate of Units 
2 and 3, and operation of the Tennessee-Tombigbee Waterway at full 
capacity.
    TVA considered three alternatives (Reservoir Recreation A, 
Reservoir Recreation B, and Tailwater Recreation)

[[Page 30977]]

designed primarily to shift the balance of operating objectives to 
enhance recreation opportunities while maintaining other system 
benefits. These alternatives would extend summer pools and limit water 
releases between June 1 and Labor Day, provide higher winter pools, and 
modify winter operating ranges of mainstem reservoirs to allow a one-
foot fluctuation. Under the Tailwater Recreation Alternative, an 
increase in tailwater flows at five additional projects would have 
priority over reservoir levels to support tailwater-related recreation 
activities.
    The Tailwater Habitat Alternative was designed primarily to improve 
conditions in tailwater aquatic habitats. Under this alternative, TVA 
would release water to try to mimic natural variations in runoff 
through the year. Tailwater habitat would also be improved by 
decreasing the rate of river fluctuations associated with rapid changes 
in the number of turbines operated.
    Two alternatives (Summer Hydropower and Equalized Summer/Winter 
Flood Risk) were designed to increase summer hydropower production and 
reduce summer flood risk, respectively. These alternatives would 
generally reduce summer pool levels and increase winter pool levels, 
establish weekly average water releases during summer, and modify 
winter operating ranges of mainstem reservoirs to allow a one-foot 
fluctuation.
    The Commercial Navigation alternative was designed to increase the 
reliability and reduce the cost of commercial navigation by increasing 
the depth of the main channel in order to accommodate heavier barges. 
This alternative would raise the winter flood guides on mainstem 
reservoirs by two feet, modify their winter operating range to allow a 
one-foot fluctuation, and increase minimum flows at several key 
projects with major navigation locks.
    The Preferred Alternative was designed to provide increased 
recreation opportunities while avoiding or reducing adverse impacts on 
other operating objectives and resource areas. Under the Preferred 
Alternative, TVA will no longer target specific summer pool elevations. 
Instead, TVA intends to manage the flow of water through the system to 
meet operating objectives. TVA will use weekly average system flow 
requirements to limit the drawdown of 10 tributary reservoirs (Blue 
Ridge, Chatuge, Cherokee, Douglas, Fontana, Nottely, Hiwassee, Norris, 
South Holston, and Watauga) June 1 through Labor Day to increase 
recreation opportunities. For four mainstem reservoirs (Chickamauga, 
Guntersville, Wheeler, and Pickwick), summer operating zones will be 
maintained through Labor Day. For Watts Bar Reservoir, the summer 
operating zone will be maintained through November 1. Great Falls 
Reservoir will be filled on a schedule to achieve summer pool elevation 
by Memorial Day.
    Weekly average system minimum flow requirements from June 1 through 
Labor Day, measured at Chickamauga Dam, will be determined by the 
volume of water in storage at the 10 tributary reservoirs compared to 
the total storage available. A system minimum operating guide (MOG), 
which is a seasonal system storage guide curve as opposed to the 
project storage guide curve under existing operations, will be used to 
define the combined storage volume for those 10 tributary reservoirs. 
If the volume of water in storage is above the system MOG, the weekly 
average system minimum flow requirement will be increased each week 
from 14,000 cfs the first week of June to 25,000 cfs the last week of 
July. Beginning August 1 and continuing through Labor Day, the weekly 
average flow requirement will be 29,000 cfs. If the volume of water in 
storage is below the system MOG curve, only 13,000 cfs weekly average 
minimum flows will be released from Chickamauga Dam between June 1 and 
July 31, and only 25,000 cfs weekly average minimum flows will be 
released from August 1 through Labor Day.
    TVA has established reservoir balancing guides for each tributary 
storage reservoir to ensure that water releases for downstream system 
needs will be withdrawn more equitably from tributary reservoirs. The 
balancing guide is a seasonal reservoir pool elevation that defines the 
relative drawdown at each tributary reservoir when water must be 
released to meet downstream flow requirements. Under this operating 
principle, water would be drawn from each tributary reservoir so that 
the elevation of each reservoir is similar relative to its position 
between the flood guide and the balancing guide. Balancing pool 
elevations will be accomplished to the extent practicable, depending on 
hydrology and power system economic and reliability considerations. To 
reduce impacts to power cost, TVA will ensure minimal hydropower 
capacity at each tributary reservoir by generating up to a volume of 
water equivalent of 17 hours of use per week at best turbine efficiency 
from July 1 through Labor Day.
    Based on the results of the flood risk analysis, TVA has decided to 
raise winter flood guides and winter operating ranges on Blue Ridge, 
Boone, Chatuge, Cherokee, Douglas, Fontana, Hiwassee, Norris, Nottely, 
South Holston, and Watauga. Additionally to better protect against the 
risk of flooding for all main river projects (with the most benefits 
realized at Chattanooga), TVA will slow the filling of the three upper 
mainstem projects (Fort Loudoun/Tellico, Watts Bar, and Chickamauga) to 
reach the summer operating zone by early May. In addition, minimum 
winter pool elevation would be raised by 0.5 feet at Wheeler to better 
ensure minimum navigable channel depth.
    Based on input from affected stakeholders, TVA will formally 
schedule water releases to increase tailwater recreational 
opportunities below Apalachia, Norris, Ocoee 1, South Holston, 
and Watauga/Wilbur. With variation in the amounts of flow and days of 
release, water releases will be provided from Apalachia, May 1 through 
October 31; from Norris, May 1 through October 31; from Ocoee 
1 on Tuesdays and Wednesdays from June 1 through August 31; 
from South Holston April 1 through October 31; and from Watauga for 
recreation flows below Wilbur Memorial Day through October 31. This 
will allow people recreating on these tailwaters and recreation service 
providers to better plan their activities. The specified flows with the 
Preferred Alternative will be met depending on the volume of water in 
the upstream reservoirs. TVA will provide continuous minimum flows in 
the area between the Apalachia Dam and downstream powerhouse from June 
1 through November 1 to enhance aquatic habitat. TVA will also provide 
continuous minimum flows up to 25,000 cfs at Kentucky, as needed, to 
maintain a minimum tailwater elevation of 301 for navigation.

Basis for Decision

    The TVA Board has decided to adopt the Preferred Alternative. This 
alternative will establish a balance of reservoir system operating 
objectives that is more responsive to values expressed by the public 
during the ROS while remaining consistent with the operating priorities 
established by the TVA Act. It also reduces or avoids the unacceptable 
environmental impacts associated with most of the other action 
alternatives.
    The Preferred Alternative will provide greater value for reservoir 
and tailwater recreation users, increase revenue for recreation service 
providers, enhance the scenic beauty of the reservoirs, and result in 
some benefits to commercial navigation and aquatic habitat. It will 
provide more equitable pool levels among tributary reservoirs. It 
avoids and

[[Page 30978]]

reduces impacts to the primary system operating objectives of flood 
control, navigation, and power generation associated with the other 
action alternatives.
    Based on computer simulations, the Preferred Alternative is not 
expected to increase flood damage associated with flood events up to a 
500-year magnitude at any critical location within the Tennessee 
Valley, including Chattanooga. Rather, with the slowed filling of the 
three upper mainstem reservoirs, flood risk protection should be 
increased for locations on all of TVA's mainstem reservoirs, including 
Chattanooga. The Preferred Alternative will increase the minimum depth 
of the Tennessee River navigation channel at two important locations 
and will maintain power system reliability while lessening impacts on 
the delivered cost of power compared to other alternatives. 
Additionally, the Preferred Alternative will lessen impacts on 
reservoir water quality, as well as shoreline erosion and its 
associated adverse effects on cultural resources and some shoreline 
habitats compared to Reservoir Recreation Alternative A, Reservoir 
Recreation Alternative B, the Tailwater Recreation Alternative, and the 
Tailwater Habitat Alternative. To the extent practicable, impacts on 
wetlands, water quality, and aquatic resources will be mitigated 
thereby reducing the potential for long-term cumulative impacts. TVA 
will maintain tailwater minimum flows and dissolved oxygen (DO) targets 
established by the Lake Improvement Plan to help reduce the risk of 
adverse water quality impacts.
    Responding to flood control, wetland, and wildlife concerns 
expressed by USACE, the Service, state agencies, and some members of 
the public, no changes in seasonal water levels on Kentucky Reservoir 
and Tims Ford were included in the Preferred Alternative. Current 
operating conditions will be retained for these reservoirs.
    In strictly economic terms, the overall public value of the 
Preferred Alternative will be similar to the Base Case, which 
represents TVA's current operations policy. Revenues from recreation of 
approximately $9 million and shipper savings of approximately $2.5 
million will be largely offset by the increase in power costs of 
approximately $14 million annually. Additionally, the Preferred 
Alternative is expected to reduce flood damages along mainstem 
reservoirs, including such locations as Chattanooga and South 
Pittsburg, Tennessee, and Decatur, Alabama (e.g., for the last two 
major flood events in early May 1984 and 2003, flood damages would have 
been reduced in the Chattanooga area by a total of $12 million to $15 
million, respectively). Further, TVA will make a capital investment of 
about $17 million over three years to address DO issues with an annual 
operation and maintenance cost of about $800,000. TVA will also spend 
over $500,000 annually in monitoring mosquito breeding habitat, 
shoreline erosion, water quality, aquatic resource, threatened and 
endangered species, and changes in certain wetland types; and based on 
monitoring results, could provide additional funding to address 
resource improvement opportunities.
    TVA closely coordinated the formulation of the Preferred 
Alternative with USACE and the Service. USACE concurs that the 
Preferred Alternative addresses its primary concerns with flood 
control, water quality, and environmental conditions on the lower 
Tennessee, Cumberland, Ohio, and Mississippi Rivers and satisfies their 
concerns about Section 404 and navigation on the Tennessee River. USACE 
and TVA cooperated to conduct additional analyses for high-flow periods 
and increased navigation problems during low-flow periods for areas 
downstream from Kentucky Reservoir along the lower Ohio and Mississippi 
River. Both agencies concluded that the Preferred Alternative will not 
adversely impact the risk of flooding during high-flow periods and that 
under the Preferred Alternative there are potential benefits to 
navigation on the lower river during extreme low water periods. As a 
result of these analyses, USACE recommended a more rigorous management 
of flood control storage at Kentucky and Barkley reservoirs and that 
TVA closely adhere to the reservoir guide curves at these reservoirs to 
ensure their continued effective operation over a wide range of flow 
conditions. TVA is committed to continuing the close cooperative 
relationship with USACE in managing low-flow and emergency situations 
that may arise on the lower Ohio and Mississippi rivers.
    The Service agreed with TVA's determination that implementation of 
the Preferred Alternative will not jeopardize the continued existence 
of any listed threatened and endangered species. The Service issued a 
Biological Opinion which identified two reasonable and prudent 
measures, with terms and conditions that TVA must take to minimize the 
impacts of incidental take of the snail darter (a fish) and pink mucket 
(a mussel) that might otherwise result from the Preferred Alternative. 
As requested by the Service, TVA has entered into discussion with the 
Service over possible effects to endangered and threatened species 
associated with those components of TVA's reservoir operations that are 
not being changed through implementation of the Preferred Alternative.
    In cooperation with the State Historic Preservation Officers (SHPO) 
of Alabama, Georgia, Mississippi, North Carolina, Tennessee, and 
Virginia, and the Eastern Band of Cherokee Indians, TVA developed a 
Programmatic Agreement that addresses the identification and protection 
or mitigation of historic resources that could be affected by adoption 
of the Preferred Alternative. Kentucky SHPO concurs with TVA's opinion 
that there will be no effect on historic properties in Kentucky under 
the Preferred Alternative. This fulfills TVA's responsibilities under 
the National Historic Preservation Act.

Environmentally Preferable Alternative

    In general, the extent of potential environmental effects of the 
reservoir operations policy alternatives is related to the amount and 
timing of water held in storage and flow through the system. TVA has 
concluded that the Commercial Navigation Alternative, with its minor 
changes in water availability limited primarily to mainstem reservoirs, 
has slightly better environmental consequences than the Base Case and 
Preferred Alternative and is the environmentally preferable 
alternative. The Commercial Navigation Alternative would not have any 
adverse effects on protected species and would result in slightly 
beneficial effects for critical habitats of some protected species. It 
would provide beneficial effects on greenhouse gas emissions, aquatic 
resources, summer water temperature, mainstem water levels, and 
increased stability of wetland habitats. However, the Commercial 
Navigation Alternative would result in slightly adverse impacts on 
wetland plant communities, terrestrial ecology (use of mud flats and 
some bottomland hardwood wetlands), recreation spending, and private 
site access. It also would incrementally increase flood risk at key 
locations and would do little to enhance recreation opportunities.
    Impacts of the Base Case and Preferred Alternative, with the added 
mitigation measures, would be basically the same as those for the 
Commercial Navigation Alternative except for flood risk as noted above. 
The Preferred Alternative was formulated purposefully to reduce or 
avoid the adverse impacts associated with all of the other action 
alternatives, especially the substantially adverse impacts

[[Page 30979]]

related to flood damages, water quality, power costs, aquatic 
resources, wetlands, and migratory waterfowl and shorebirds.
    The Commercial Navigation Alternative was not selected as TVA's 
preferred alternative primarily because it would increase flood risk 
and would produce little or no changes in recreational opportunities 
and other system benefits except for reduced cost for waterborne 
transportation. As such, it is not as responsive to expressed public 
values as TVA's Preferred Alternative.

Potential Mitigation Measures

    All identified practicable means to mitigate potential 
environmental impacts associated with this decision will be 
implemented. Primarily, TVA has chosen to do this in the way the 
Preferred Alternative was formulated, as discussed above. However, TVA 
was unable to avoid all potential impacts. In particular, 
implementation of the Preferred Alternative could result in slightly 
adverse to adverse impacts on certain wetland types and locations, 
water quality and aquatic resources in some reservoirs, and other 
resource areas. In some cases, the extent of the impacts may vary from 
year to year--depending on the reservoir, annual rainfall and runoff 
conditions, and other factors. TVA will use a mix of monitoring and 
adaptive response as a component of its programmatic approach to 
mitigating these impacts.
    TVA will continue its existing monitoring activities under its 
Reservoir Release Improvement and Vital Signs Reservoir Ecological 
Health Monitoring Programs to look for water quality and ecological 
changes. Additional DO and temperature sampling will be conducted at 
selected tailwater locations as determined by Vital Signs monitoring. A 
Wetlands Monitoring Program will be established to determine whether 
shifts of wetland plant communities occur as a result of extended water 
levels. TVA commits to conducting wetland monitoring activities on a 3- 
to 5-year basis for 15 years to establish effects. If substantial 
shifts of wetland plant communities occur, TVA will take appropriate 
action to mitigate adverse effects.
    TVA also will extend the existing Vector Monitoring Program to 
identify any increase in the number of days that reservoir mosquito 
breeding habitat exists due to the extended time the mainstem 
reservoirs are held up. If the number of days of reservoir mosquito 
breeding habitat increases, TVA will extend the duration of reservoir 
level fluctuations on Chickamauga, Guntersville, Pickwick, and Wheeler 
for mosquito control. If extending the duration of the fluctuations 
does not offset the increase in reservoir mosquitoes, TVA will 
investigate other mitigation methods.
    Based on results of DO monitoring, TVA will upgrade aeration 
equipment and operations at appropriate locations as necessary to 
continue to meet the DO target levels established by the 1991 Lake 
Improvement Plan. This could include increased oxygenation, upgrading 
existing equipment, or installing additional equipment. Such measures 
will be initiated and completed within 1 year after implementation at 
Watts Bar and within 3 years at other locations where established 
targets are not being met. The estimated cost of these changes is $17 
million over three years with an annual operation and maintenance cost 
of $800,000. TVA will share information about the enhanced aeration 
efforts with interested agencies and will continue monitoring to 
determine whether efforts are successful. If DO targets cannot be 
maintained, TVA will investigate additional mitigation approaches with 
interested agencies. TVA will also spend over $500,000 annually on 
other measures to reduce or avoid potential environmental and cultural 
resource impacts associated with the Preferred Alternative.
    TVA will continue monitoring sensitive cultural resource sites 
along the reservoir shoreline to determine if the rate of shoreline 
erosion increases, affecting those sites. If the rate of erosion 
increases and affects those sites, TVA will increase its stabilization 
efforts to protect sensitive cultural resources. Further, TVA will 
ensure that the measures identified in its programmatic agreement with 
State Historic Preservation Officers for the states of Alabama, 
Georgia, Mississippi, North Carolina, Tennessee and Virginia, and the 
Eastern Band of Cherokee Indians will be implemented in accordance with 
the stipulations of that agreement.
    TVA will implement the reasonable and prudent measures, including 
the terms and conditions, identified in the Service's Biological 
Opinion to minimize the impacts of incidental take of the snail darter 
and pink mucket. Relative to the population of the endangered green 
pitcher plant on Chatuge Reservoir that could be affected by changes in 
reservoir levels, TVA will work with the Service, the landowner, and 
other interested agencies to conduct a hydrologic study to determine 
what effects, if any, implementation of the Preferred Alternative will 
have on the plants and their habitat. The study and results will be 
completed within 1 year after implementation. TVA will monitor on an 
annual basis the status of green pitcher plant populations around 
Chatuge Reservoir and share data with interested agencies. If results 
of the study and monitoring indicate that changes resulting from 
implementation of the Preferred Alternative are likely to adversely 
affect the green pitcher plant, TVA will take appropriate action to 
avoid or mitigate those adverse effects.
    Additionally, the results of the ROS indicate that there is a need 
for TVA and state and other federal agencies to work together in a more 
cooperative manner to develop a Drought Management Plan for the 
Tennessee River system and to determine habitat requirements and 
opportunities for potential enhancements for shorebirds and important 
sports fish. TVA will work with state and other federal agencies to 
develop a Drought Management Plan within a reasonable period of time. 
This plan will be implemented during extreme drought conditions when 
TVA must suspend normal reservoir operating guidelines. Efforts to 
determine habitat requirements and potential enhancements for 
shorebirds and important sports fish will include better identification 
of information gaps, cataloguing federal and state programs that 
address these habitats and species, sharing data with other interested 
agencies, and investigating actions that could be taken to enhance 
these habitats and species.

Implementation of Policy Guidelines

    TVA will begin implementing the described changes to TVA's 
reservoir operations policy on the date of release of this Record of 
Decision. TVA will use these guidelines to make determinations of 
changes in pool levels and flows through the system during normal 
operations. Operations of the reservoir system during a power supply 
alert will depend on the level of alert. Water stored in the reservoir 
system will be released as needed to preserve the integrity and 
stability of the TVA Power System.

    Dated: May 21, 2004.
Kathryn J. Jackson,
Executive Vice President, River System Operations & Environment.
[FR Doc. 04-12241 Filed 5-28-04; 8:45 am]
BILLING CODE 8120-08-P