ENVIRONMENTAL ASSESSMENT FOR HYDROPOWER LICENSES Tomahawk Hydroelectric Project FERC Project No. 1940-029 Grandfather Falls Hydroelectric Project FERC Project No. 1966-054 Wisconsin Federal Energy Regulatory Commission Office of Energy Projects Division of Hydropower Licensing 888 First Street, NE Washington, D.C. 20426 January 2018 TABLE OF CONTENTS TABLE OF CONTENTS .......................................................................................... I LIST OF FIGURES ................................................................................................. V LIST OF TABLES ................................................................................................. VI ACRONYMS AND ABBREVIATIONS ........................................................... VIII 1.0 INTRODUCTION ........................................................................................... 1 1.1 APPLICATION ................................................................................................ 1 1.1.1 Tomahawk Project ................................................................................ 1 1.1.2 Grandfather Falls Project ...................................................................... 1 1.2 PURPOSE OF ACTION AND NEED FOR POWER ...................................... 4 1.2.1 Purpose of Action .................................................................................. 4 1.2.2 Need for Power ..................................................................................... 4 1.3 STATUTORY AND REGULATORY REQUIREMENTS ............................. 5 1.3.1 Federal Power Act ................................................................................. 5 1.3.1.1 Section 18 Fishway Prescriptions ....................................... 5 1.3.1.2 Section 10(j) Recommendations ......................................... 5 1.3.2 Clean Water Act .................................................................................... 6 1.3.3 Endangered Species Act........................................................................ 6 1.3.4 Coastal Zone Management Act ............................................................. 7 1.3.5 National Historic Preservation Act ....................................................... 7 1.4 PUBLIC REVIEW AND COMMENT ............................................................ 8 1.4.1 Scoping .................................................................................................. 8 1.4.2 Interventions .......................................................................................... 9 i 1.4.3 Comments on the Application ............................................................ 10 2.0 PROPOSED ACTION AND ALTERNATIVES .......................................... 11 2.1 NO-ACTION ALTERNATIVE ..................................................................... 11 2.1.1 Existing Project Facilities ................................................................... 11 2.1.1.1 Tomahawk Project ............................................................ 11 2.1.1.2 Grandfather Falls Project .................................................. 11 2.1.2 Existing Project Boundary .................................................................. 12 2.1.2.1 Tomahawk Project ............................................................ 12 2.1.2.2 Grandfather Falls Project .................................................. 12 2.1.3 Project Safety ...................................................................................... 12 2.1.4 Existing Project Operation .................................................................. 13 2.1.4.1 Tomahawk Project ............................................................ 13 2.1.4.2 Grandfather Falls Project .................................................. 13 2.1.5 Existing Environmental Measures ...................................................... 14 2.1.5.1 Tomahawk Project ............................................................ 14 2.1.5.2 Grandfather Falls Project .................................................. 15 2.2 WISCONSIN PUBLIC SERVICE’S PROPOSAL ........................................ 15 2.2.1 Proposed Project Facilities .................................................................. 15 2.2.2 Proposed Project Operation ................................................................ 15 2.2.3 Proposed Environmental Measures ..................................................... 16 2.2.3.1 Tomahawk Project ............................................................ 16 2.2.3.2 Grandfather Falls Project .................................................. 17 2.3 STAFF ALTERNATIVE ............................................................................... 19 ii 2.4 ALTERNATIVES CONSIDERED BUT ELIMINATED FROM DETAILED ANALYSIS .................................................................................................... 20 2.4.1 Issuing a Non-power License .............................................................. 20 2.4.2 Federal Government Takeover of the Project ..................................... 20 2.4.3 Retiring the Project ............................................................................. 20 3.0. ENVIRONMENTAL ANALYSIS ................................................................ 22 3.1 GENERAL DESCRIPTION OF THE RIVER BASIN .................................. 22 3.2 SCOPE OF CUMULATIVE EFFECTS ANALYSIS .................................... 28 3.2.1 Geographic Scope ............................................................................... 28 3.2.2 Temporal Scope .................................................................................. 28 3.3 PROPOSED ACTION AND ACTION ALTERNATIVES ........................... 29 3.3.1 Aquatic Resources ............................................................................... 29 3.3.2 Terrestrial Resources ........................................................................... 61 3.3.3 Threatened and Endangered Species .................................................. 69 3.3.4 Recreation and Land Use .................................................................... 71 3.3.5 Cultural Resources ............................................................................ 100 3.4 NO-ACTION ALTERNATIVE ................................................................... 105 4.0 DEVELOPMENTAL ANALYSIS ............................................................. 106 4.1 POWER AND ECONOMIC BENEFITS OF THE PROJECT .................... 106 4.2 COMPARISON OF ALTERNATIVES ....................................................... 109 4.2.1 No-Action Alternative....................................................................... 111 4.2.2 Applicant’s Proposal ......................................................................... 111 4.2.2.1 Tomahawk Project .......................................................... 111 4.2.2.2 Grandfather Falls Project ................................................ 112 iii 4.2.3 Staff Alternative ................................................................................ 112 4.2.3.1 Tomahawk Project .......................................................... 112 4.2.3.2 Grandfather Falls Project ................................................ 112 4.3 COST OF ENVIRONMENTAL MEASURES ............................................ 113 5.0 CONCLUSION AND RECOMMENDATIONS ........................................ 132 5.1 COMPREHENSIVE DEVELOPMENT AND RECOMMENDED ALTERNATIVE .......................................................................................... 132 5.1.1 Measures Proposed by Wisconsin Public Service ............................ 132 5.1.1.1 Tomahawk Project .......................................................... 133 5.1.1.2 Grandfather Falls Project ................................................ 134 5.1.2 Additional Measures Recommended by Staff .................................. 135 5.1.3 Measures Not Recommended by Staff ............................................. 142 5.2 UNAVOIDABLE ADVERSE EFFECTS .................................................... 144 5.3 SUMMARY OF SECTION 10(J) RECOMMENDATIONS ....................... 144 5.4 CONSISTENCY WITH COMPREHENSIVE PLANS ............................... 146 6.0 FINDING OF NO SIGNIFICANT IMPACT ............................................. 148 7.0 LITERATURE CITED ................................................................................ 149 8.0 LIST OF PREPARERS ............................................................................... 153 APPENDIX A LICENSE CONDITIONS FOR THE TOMAHAWK PROJECT RECOMMENDED BY STAFF ........................................................................... A-1 APPENDIX B LICENSE CONDITIONS FOR THE GRANDFATHER FALLS PROJECT RECOMMENDED BY STAFF ......................................................... B-1 iv LIST OF FIGURES Figure 1. Location of project and facilities for the Tomahawk Project (Source: Google Earth, 2016; as modified by staff). .............................................................. 2 Figure 2. Location of project and facilities for the Grandfather Falls Project (Source: Google Earth, 2013; as modified by staff). ............................................... 3 Figure 3. Location of Commission-licensed projects on the Wisconsin River. The figure does not show the Wisconsin River Headwaters Project (P-2113), located between Lac View Desert and the Otter Rapids Project (P-1957). (Source: Wisconsin Valley Improvement Company, 1991). ...............................................