AD-A274 608

WEST DESERT PUMPING PROJECTov 001 Final

Environmental impact Statement0 ~Bureau of Land management 13

US Minff

3 Salt Lake District office 0 ELECTESalt Lake City, Utah JA 0 6 1994

July, 1986 A

document ens n appofor ublic relleeasse cand ssa1 its

V4 awn% Ita MI II

United States Department of the InteriorBUREAU OF LAND MANAGEMENT

SALT LAKE DISTRICT OFFICE2370 Sot 23 West 1792Salt L~e City. Utah $4119 (U-022)

Dear Reader:

Enclosed is the Final Environmental Impact Statement (EIS) for the West DesertPumping Project. The Salt Lake District, Bureau of Land Management, incooperation with the United States Air Force and the United State Aruy Corpsof Engineers has prepared this document in conformance with the requirementsof the National Environmental Policy Act of 1969.

This Final EIS is designed to be used in conjunction with the Draft EIS whichwas publ i shed in February, 1986. This document contains the revisions andcorrections pertaining to the Draft EIS, public comments received, and BLM'sresponses to those comments.

Thank you for your participation in this process.

Sincerely yours,

Deane H. ZellerDistrict Manager

EnclosureFinal Pumping Project EIS

DISCLAIMER NOTICE

THIS DOCUMENT IS BEST

QUALITY AVAILABLE. THE COPY

FURNISHED TO DTIC CONTAINEDA SIGNIFICANT NUMBER OF

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DEPARTMENT OF THE INTERIOR

FINAL ENVIRONMENTAL IMPACT STATEMENT

FOR THE

WEST DESERT PUMPING PROJECTAcce3;on ForNTIS CRA&ID1IC TAB 0

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BUREAU OF LAND MANAGEMENTDEPARTMENT OF THE INTERIOR

DTK•••D Q'AJATY INSPECTED 8

UTAH STATE DIRECTOR

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TABLE OF CONTENTS Public Alew of Draft EIS ..... 42com.ts and .. ........ 42Co•mmits ILetter's . .. .. .. . .. 48

S..t es.. .... . . . 2

NE)= ....................... 92

United States Department of theAlternatives, Inclu•ing the Interior Biological opinion

Proposed Action ........... .... 7 for the West Desert PumpingAlternative 1 - No Action . . 7 Project .............. ...... 93Alternative 2 - West Desert

Pmping Project ..... ........ 8Alternative 3 - Diking to Protect

Critical Facilities .... ....... 8 LIST OCl TAB[Evironmntal c ... . 9Alternative 1 - No Action . . . 9 Table 1. Agencies and OrganizationsAlternative 2 - West Desert Contacted for Coordination,

Pumping Project .......... ... 9 Consultation, and Review ..... .... 43Alternative 3 - Diking to Protect

Critical Facilities ......... 9LIST OF FIGJHI

CHAPT' 1 - CQMIS THAT MWLSSIN•E THE DRAFT KIS. . 11 Figure 1. Contour Map of the

West Desert Area ........... .... 15Changes in the Level of the Great

Salt Lake ........ ............ 13 Figure 2. Couponents of theChanges in the West Desert Pimping Modified West Desert Pumping

Project Due to Final Design . . . 13 Project .... ............. .... 17Changes in the West Desert Pumping

Project Due to Modified Design. 13 Figure 3. Artist's Rendering ofChanges in the Diking Alternative 21 the Coqpocnets for the ModifiedChanges in Flood Damage ........ ... 24 West Desert Pumping Project . . . 19

CHAPT 2 - IWACTS DUE TO Figure 4. Great Salt Lalae 4215S............. 26 Scenario and est Desert Puping

Options .... ............. .... 22Introduction . ..... ............ 27No Action .... ............. .... 27 Figure 5. Great Salt Lak'e 4217West Desert Pumping Project . . . 29 Scenario and West Desert PumpingDiking to Protect Critical Options ..... ............ ... 23

Facilities .............. .... 31Mitigation Summary ........... .... 31

CHP1TE 3 - E• =J SUmS ..... ..... 34

CULPTE 4 - CWOJLTATION ANDn M nKJI ....N ............ ... 40

Introduction............ . . . 41Scopi-g Process...............41Methoids of Soping .. .. ...... ..... 41Draft EIS Consultation and

Coordination. . ............ .... 41

PREFACE

PREFACE

The purpmo of this final environ- during the 60-day review period. Allmental impact statement (EIS) is to comment letters have been reprintedsupplement the draft EIS which was verbatim and responses to Individualpiblished February 10, 1986. Together, commnts are adjacent to the comment.the draft and final EISs incorporate the 1he receipt of an application fromanalyses of the environmental conueqiwn- the State of Utah, Division of Stateces resulting from construction and Lans and Forestry, for the use of aboutoperation of the West Desert Pumping 200,000 acres of public land administeredProject or Diking to Protect Critical by the Bureau of Land Manaemnt anFacilities. about 15, 000 acres of lad controlled by

This final EIS, in conjunction with the U.S. Air Force for the west Desertthe draft EIS, forms the complete EIS for Pumping Project Initiated the preparationthe project. This final EIS contains a of the draft and final EISe. The projectrevised Summary and a variety of now Includes canals, a puaping plant, Ai ,material, as well as public comments on and evaporation ponds and requiresthe draft EIS and responses to thoee approval of the right-of-way requestcomments. Chapter I contains analyses of (BLM), license for ccntrolled use requestthe changes that have occurred to the (USAF) and 404 permit request from theGreat Salt Lake due to the very wat Corps of Engineers before federal landsspring of 1986; changes to the West can be used.Desert Pumping Project due to finali- The Council of Environuental Qualityzation of engineering design, changes to (CEQ) granted the State's request forthe west Desert Pumping Project due to emergency authorization on May 27, 1986implementation of a major motdificatAon allowing BLM to grant a right-of-wmyreferred to as "Bare Bones", impacts that permit allowing construction on the Westhave already occurred due to high lake Desert Pumping Project before co:pletionlevels, and protective diking that has of this final HIS and the BLM Record ofalready been constructed. In essenc, Decision. This authorization madeChapter 1 updates the reader to present with the State's commitment to mitigate(June, 1986) conditionr. imacts of the project as identified in

Chapter 2 discusses impacts that this final EIS.would occur, or have changed substanti- As noted above, several changes haveally, due to the changes in the project been me in the design of the proposedor alternatives as noted in Chapter 1. West Desert Pumping Project. TheseChapter 2 is a shortened version of changes are discussed in this final EISChapter 4, Environ••ntal Corseqnacexs, of and changes to Impacts are also discus-the draft EIS and updates the impact sed. Met impacts, however, would be theanalysis to present conditi•c•. Chapter same as analysed in the draft EIS.2 also contains more discussion of how The Biological Opinion from the Fishthe West Desert Pumping Project would be and Wildlife Service is included asoperated and how various lake rise AIpeplx A.scenarios affect its operation.

Chapter 3 is an Errata summary thatindicates text changes and additionr tothe EIS resulting from the commentsreceived during the review period.

Chapter 4, Consultation ad Coordin-ation, contains ackground information,consultation and coordination processes,and copies of commt letters received

3

SUMMARY

SUMMARY

ALTERNATIVES, INCLUDING THE muZrs were investigated by the State,but after evaluation it vi- determind

PROPOSED ACTION that they would be either ineffective inprevmting flooding, would take too longto build, or would be too eensive. The

The State of UtLh has filed for a only other reasonable alternative was toright-of-way to use public and U. S. Air dike critical facilities aroun the lakeForce I for what is called the Mst to protect human health and safety.Desert Pumping Project. The major Therefore, a diking alternative waspurpose of the project is to prevent developed for this EIS from feasibilityflooding around the Great Salt Lake (GSL) studies on diking contracted by thedue to rising lake levels. The project State.would utilize federal lards to construct In addition, a No Action alternativea pumping plant and associated canals, was analyzed as required by the Nationaland dikes to create an -vaporation pod Environmental Policy Act (NE'A).In orderin the west desert. Water would be to compare the three alternatives, thepumped from the GSL to the west desert 4215 lake rise scenario w developed.pond fo2. evaporatio. The West Desert The 4215 scenario was developed as aPup~ing Project discussed in this final realistic, yet high, lake rise scenario.EIS is a modified version of the project It assumed that inflow to the lake wmuldas discussed in the draft EIS. be at about 170 percent of average frum

The GSL has historically experienced 1986 to 2000. This rate of inflow Wouldwide fluctuations in lake level. During make the GSL rise to elevation 4213 by1983-84 the lake rose an unprecedented 1989, and to 4215 by 2000, as coaparednine feet, causing an estimated $176 to the peak 1986 level of 4212. Lamillion in property damage and mitigation elevation would then drop to 4205 by thecosts. The lake peaked at about 4210 in year 2010. A 4217 scenario - also1985. Addlitional rises during the spring developed as a worst case situation. Inof 1986 raised the lake to about 4212, this scenario, the lake would rise atsurpassing the historic lake peak of about 200 percent of normal and peak at4211.6 and causing additional damage. 4217 in the year 2000, before droppIng toFuture lake rises could cause even 4205 by 2010.greater amounts of damage. Some floodcontrol measures have been implemented Alternative I - No Actionby the State, as well as local govern-ments and private concerns. TheSouthern Pacific Railroad Causeway was The No Action Alternative assumesbreached in 1984, which lowered the that permits for the West Desert Puspingsouth arm of the lake about one foot. Project would not be issued by the BureauDiking has been initiated in several of Land Management (BLA) and the Airareas to protect critical facilities. Force. For analysis purposes, it alsoAditional lake mag t options have assumes that rn additional flood controlbeen studied by the State at a feasi- measures would be inplemented, and thatbility level. These studies have unchecked flooding around the GSL wouldprompted the State to propose con- occur. Any existing flood controlstruction and operation of the West structures would be overtopped ratherDesert Pumping Project as the most rapidly. For exauple, the Union Pacificreasonable alternative to meet the Railroad grade along the south shore ofimmdiate need for flood control. the GSL would protect 1-80 aid other

A nmider of other flood control facilities until elevation 4213-4214,

7

SUMMARY

when it would be overtopped. the lake. This wuld result in scattered

ponding in low areas between the N-

Alternative 2 - West Desert foundland Mountains and the North Arm.

Pumping Project The water would flow under the SouthernPacific Railroad grade via a trestle tobe built for the project near Lakeside.

This is the Proposed Action and Several figures and diagrams showing theinvolves construction of several struct- project layout can be found in Chapter Iures in the area west of the GSL. The of this document and also in the draftproject has been modified since the EIS.publication of the draft EIS and the Most of the material for the dikesmodified version ("Bare Bones") is would come from material sites. Materialdiscussed here. Same portions of the for the Newfoundland Dike would cane frommodified project are still being de- rne material sites at the southern end ofsigned. A pumping station would be the Newfoundland Mountains. Materiallocated adjacent to, and on the south sites for the Bonneville Dike would beside of, the Southern Pacific Railroad located near either end of that dike andgrade on Hogup Ridge. Water would be may include existing pits used by thepumped directly fram the north arm of the Utah Department of Transportation. Thelake, although canals may need to be project would cost about $55 million todredged as the lake recedes. A trestle build and construction would takewould be constructed so the water could approximately one year. The work forceflcw under the railroad grade from north would not exceed about 200 persons.to south to the pimping station. The Under the 421b scenario, the Westpumping station would utilize three Desert Pumping Project would hold the GSLpumps designed to pump up to 3500 cubic at elevation 4212 , so no additionalfeet of water per second up about 23 feet flood control measures would be re-to a discharge channel. The pumps were quired. Under the 4217 scenario the .ahceoriginally planned to be diesel powered, would still rise to 421b and additionalhowever present plans are for the pumps flood control measures along the eastto be powered by natural gas. The shore would probably be needed.discharge channel would transport the During the design studies for thewater to the north side of the railroad Project, costs and designs to controlgrade near the northern end of the potential seismic (earthquake) concernsNewfoundland Mountains. The water would were included, as were costs to repairthen spread out and move south under the any local roads used to haul material torailroad grade and along the west side of the dikes. Another proposed mitigationthe Newfoundland Mountains. Two dikes, measure would be to have a qualifiedthe Bonneville Dike and the Newfoundland archaeologist conduct surveys in areasDike would contain the pond. The proposed for surface disturbance, and toBonneville Dike would keep the pond, conduct random surveys of the inundatedcalled the West Pond, from covering 1-80 areas in the west desert.and from flooding the Bonneville SaltFlats. The Newfoundland Dike, would Alternative 3 - Diking to Protectextend from the southern end of the Critical FacilitiesNewfoundland Mountains southeasterly tohigh ground across the mud flats. It is This alternative involves buildingcalled the Newfoundland Dike. A control and/or raising dikes along the GSL toweir in the Newfoundland Dike would protect critical facilities, primarilymaintain the maximum level of the West sewage treatment plants, to elevationPond at about 4217, and at a size of 4215 or 4217, depending on the lake riseabout 320,000 acres. scenario. This alternative assumes that

Water would flow over the weir in seven dikes would be built to protectthe Newfoundland Dike and then by the these facilities. The Union Pacificlay-of-the-land back to the north arm of Railroad grade along the south shore of

8

SUM44ARY

the GSL would protect 1-80 and other would increase as the lake became larger,facilities until elevation 4213-4214, so affecting weather along the Wasatch Frontit is considered as another existing and in the west desert but only duringdike. Therefore, the eight dikes being the winter months. This poor weatherconsidered in this EIS include the would also reduce the amount of time theCorinne Waste Water Treatment Plant Air Force could use the Utah Test and(MRIP) Dike, Perry WWfP Dike, Plain City Training Range (WTrR).WWTP Dike, Little Mountain WWIP Dike, It is likely that some flood controlSouth Davis Dike, Rose Park Dike, South measures would oe undertaken, but forShore Dike and UPRR/I-80 Dike. The South analysis purposes, none were included inDavis Dike protects sewage treatment this alternative.plants and refuse disposal sites west ofBountiful. The Rose Park Dike protects Alternative 2 - West Desertareas around the mouth of the Jordan Pumping ProjectRiver near the Rose Park residentialarea. The South Shore Dike protects 1-80 Impacts of this alternative to thenear the Saltair resort. Material for iest desert would be fairly minor sinceconstruction of these dikes would come most of the area impacted is mud flat.from Wasatch Front sources. The ULnion Kaiser Chemical may be benefited byPacific railroad grade along the south increased brine flow caused by ground-shore of the GSL would protect 1-80 and water recharge from the West Pond.other facilities until elevation 4213- Grazing access to the Newfoundland4214 after which it would be abandoned Mountains and southern Hogup Ridge wouldand the freeway and railroad would be be restricted by the discharge channel.rerouted to higher ground. Dikes built Under the 4215 scenario, the lakeby AMAX Magnesium and American Salt would essentially not rise from presentCompany also protect portions of the levels, creating significant floodUnion Pacific grade, 1-80 and Timpie control benefits to shoreline areas. AllWaterfowl Management Area north and west sectors would be benefited, especiallyof Grantsville. This alternative would the transportation sector. Under theprotect the areas inmmediately behind the 4217 scenario, most of the No Actiondikes, but no other areas. flooding impacts would still occur and

few benefits would occur.The major negative impact of the

ENVIRONMIENTAL CONSEQUENCES Project would be an increase in winterfog around the GSL, and an increase in

Alternative 1 - No Action precipitation along the Wasatch Front.This would impact the Air Force oper-

This alternative would allow the GSL ations on the UTTR, but for only a fewto rise unchecked. Numerous areas along days. Also, both the West Pond andthe east shore would be flooded, af- scattered ponding in the East Pond areafecting farmlands, wetlands, wildlife resulting from flow back to the lakehabitat, recreation, economic aniJ would restrict flight operations becausecultural resources. 1-80 along the south Air Force regulations do not allow lowshore of the GSL would be inundated, as level flights over open water, and theywould the Uniion Pacific Railroad grade would endanger pilots that eject fromand the Southern Pacific Railroad their aircraft in this area.Causewy, creating major transportationproblems. All the remaming evaporative Alternative 3 - Diking to Protectindustries around the lake would be Critical Facilitiesflooded, as well as much of the Rose Parkresidential area and several waste water This alternative would have santreatment plants and refuse sites. Costs negative impacts, but like the Proposedof the damages could exceed $1 billion. Action, primarily provides flood control

In addition, fog and low clouds benefits. However, benefits of diking

9

would be considerably less than WestDesert Pwuping under the 4215 scenario.Major flood damage to mineral industries,transportation corridors and farmilandwould still occur under this alternative.The major negative impact would be theloss of deer winter range due to borrowmaterial removal from sites alcrg theWsatch Front. udr the 4217 scenario,even more extensive flooding impactswould still occur.

10

C-'HAPTER 1

UHAkNGES THAT~ HAVE OCCURED.

&I~NCE THE DRAFT EIS

CHAPTER 1CHANGES THAT HAVE OCCURRED

SINCE THE DRAFT EIS

CHANGES IN THE LEVEL OF THE the West Pond was c gd from 4218 toGREAT SALT LAKE 4217, or from a surface area of about

375,000 acres to 320,000 acres.

Since the release of the draft EIS,

several Important changes have occurred. Bonneville Dike - The Boneville Dike wasThe spring of 1986 say a large amount of originally to be built from nativeprecipitation that caused the Great Salt lakebed materials. Due to poor materialLake (GSL) to rise rapidly. The lake conditions, much of the dike willrose frOm an elevation of about 4208.3 in probably have to be built of granularOctober, 1985, to a new historic peak material trauported from nearby materialelevation of 4211.85 in June, 1986. The sites. Proposed material sites are shoamprevious historic record level was in Figure 2. The actual sites to be4211.6, set in June, 1873. During April, used, or the size of each site, would be1986 the lake rose almost 10 inches, developed as part of the constructionwhich was two inches more rise than management contracts for the project.occurred in April 1984, the previous Site-specific envirormntal documentationrecord April rise. of impacts would be required when the

The rise as noted above is greater sites to be used are knutn.than projected by either the 4215 or 4217scenarios used in the draft EIS for East Pond - The normal operating level ofanalysis purposes. These scenarios have the East Pond me changed from 4214 tobeen updated to reflect a lake level of 4213, with a correspxxling change frcmabout 4212 in 1986 and are discussed in 114,000 acres to about 75,000 acres.more detail in Chapter 2.

The Utah Division of Water Resources Puwpizg Rate - A variable rate pumpingrecently completed aerial mapping of the schme was developed that would pump 2800west desert area and produced a map with cfs during the seven summer mmmths andone foot contour intervals. This map 933 cfs during the five winter zmoths.(Figure 1) allows for a better interpre- This variable rate wa developed to savetation of West and East Pond elevations operational costs and still maintain highand sizes, as well as natural avenues of swrumr evaporation.water flow. The study indicates that thethreshold into the area west of the Project Cost - Project costs increasedNewfoundland Mountains is just a few fraw $75 million to $90 million.inches above 4215. A level of 4215 s CHANGES IN THE WEST DESERTused in the draft EIS.

PUMPING PROJECT DUE TOCHANGES IN THE WEST DESERT MODIFIED DESIGNPUMPING PROJECT DUE TO in alitiom to the completion of theFINAL DESIGN final design, other modifications ware

As noted in the draft EIS, final also made in the project. Due to thedesign of the West Desert Pumping Project rapidly rising lake level, considerablewas ongoing during the EIS analysis. attention was focused on the pumpingTherefore, several project features project and other alternatives to controldescribed in the draft EIS were altered the GSL flooding. Interest in the Westwhen the final design ws completed (West Desert Pumping Project increased dramat-Desert Group 1986a). Major changes ically In Utah with almost daily featuresinclude the following: in local newspapers. Local, county and

state officials became heavily involvedWest Pond - The normal operating level of in the discussion of what flood control

13

CWTRu I - CMNWS SINCE HE ERAFt ZIS

measure to use. The very high cost of the fresher south arm brine toward thethe West Desert Pumping Project wms a pumps.major concern, and the design consultantswere asked by the State whether a Pumpin Plant - The pumping plant wouldfeasible pumping project could be built be bIilt in the same location as ted inf or less. This resulted in a design the draft EIS. A small dike wouldmodification that provided for pumping to separate the plant from the water in thethe west desert at a cost of $55 million East Pond area. A decision was made in(West Desert Group 1986b) rather than $90 June, 1986 to use natural gas to powermillion. Funding for this modification, the pumps since the Southern Pacificreferred to as "Bare Bones" or "Phase I", grade had been washed out, making thewas authorized by a special session of future availability of diesel fuelthe Utah Legislature in May, 1986, and questionable. This change in power sourcebecame the State's Proposed Action. The would not effect pumping capacity butState then requested emergency authoriz- could reduce operational costs. Theation fran the Council on Envirornmental proposed natural gas pipeline route andQuality to start construction before this any other related changes in proposed usefinal EIS wa capleted and that request of federal land will be analyzed in anwa granted on May 27, 1986. additional site-specific environmental

The following discussion indicates documentation.the changes in design that would occurwith che Modified West Desert Pumping Discharge Channel - The discharge channelProject. most features of the project would remain the sane as discussed in thewould remain unchanged. Figures 2 and 3 draft EIS.show the features of the new design. Allof these changes were made to reduce Railroad Dikes - The original designcosts yet maintain a viable flood control called for dikes to protect the Southernproject. Pacific Railroad grade in the West Pond.

The modified plan would eliminate theseIntake System - The original design dikes and instead raise the level of theincluded a new breach in the Southern grade and increase riprap for wavePacific causeway, an isolation dike in protection.the north arm, and a canal to the pumpstation formed by an East Pond barrier West Pond - The Nest Pond elevation woulddike. These features were all designed remain at 4217.to assure that relatively fresh south armbrine reached the pump station. The Bonneville Dike - The Bonneville Dikemodified design would alleviate all of would be redumd in height by 3 feet tothese intake features, although they elevation 4223, thereby increasing thecould be built at a later date. Water chance of overtopping by waves. In-for the pumping plant would be taken creased amiunts of riprap would be useddirectly from the western portion of the to prevent erosion of the dike.north arm adjacent to Hogup Ridge(Figures 2 and 3). The pumping plant East Pond - The East Pond would bewould cause the water to flow from the eliminated under the modified design;north arm under a trestle to be built in however, scattered pondng could resultthe Southern Pacific grade to the pumping in low areas between the Newfoundlandplant. Since the use of heavier north arm Weir and the north arn. water would flowbrine would create potential problems directly back to the north arm throughwith evaporation rate and salt precipi- the Southern Pacific grade via a trestletation in the West Pond, the State's near Lakeside (Figures 2 and 3), whichdesign consultant is investigating the was planned as part of the originalfeasibility of dredging a canal from the intake design. The elevation of theexisting czmwy breach to the pumping water in the East Pond area would be atplant and using a floating boom to divert about the elevation of the north arm.

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The Southern Pacific Railroad grade reduced to 800,000 to 900,000 acre feetbetween Lakaside and Hogup Ridge wmuld be per year rather than the 1.1 million acreraised and the access road beside it feet for the original design due to theenlarged to permit use by construction loss of the East Pond and smuequent losstraffic to gain access to the pumping of evaporative surface area.station and discharge canal.

Construction Schedulirl - Construction

Return Siphon - The return siphon would scheduling would be similar to thatalso be eliminated under the modified discussed in the draft EIS as far as thedesign. A trestle for the railroad grade progression of the work, bat the overallthat had been planned for the return timing would be altered considerablysiphon would still be built and would since pumps were not ordered until lateserve as the intake route for the north May, 1986. Also, recent proposals havearm brines to reach the pumping station. decreased the time needed to have the

pumps operational, and pumping may startSystem Operation - The general operation- as early as February, 1987.al scheme would be the same for the In summary, the overall concept ofmodified design as ins discussed for the the West Desert Pumping Project remainsoriginal design. Water would still be intact with the modified design.pumed out of the GSL and into the west Ccostruction costs have been reduced; butdesert, and it would then flow back into at the expense of lower overall evapora-the north arm. However, under the tion and increased chance of saltmodified design, the brine would be precipitation in the West Pond, irnreasedconuiderably more saline since it would chance of damage to 1-80 in the westbe cauing from the north arm rather than desert, and increased operation costs duethe south arm. The increased brine to larger pumping requiremennts.concentration would therefore increase These latter factors have reduced thethe likelihood of salt precipitation in effectiveness of the project. Using athe West Pond since less evaporation figure of 820,000 acre feet of evapora-•old be needed to reach saturation and tion per year for the modified design,subsequent precipitation. To prevent Figure 4 showv the effectiveness of thesalt precipitation in the Mst Pond, more modified design in comparison with thewater, up to 3500 cfs, would need to be original West Pond and Bomneville Pondpumped to reduce the travel time in the for the updated 4215 scenario. Thepond. This would require either using modified design would initially take themore or larger pumps, or running the lake level down, but it would then slowlydesigned pumps at a higher rate. The rise back up to 4212. A similar coapar-State's design consultant is investi- ison for the 4217 scenario would have thegating these problems, as well as ways to GSL rising to 4215 or slightly beyondget south arm brine to the pumps from the (Figure 5) In the year 2000 with theexisting camelwmy breach as noted above, modified design. Therefore, the reduc-Yearly operational costs would undoubt- tion in cost and s±ubequent reduction inedly rise from the $3.5 million used in evaporation reduces the effectiveness ofthe draft EIS. the project, especially under conditicns

The modified design could be such as the 4217 scenario.operated until the lake reached about4216 feet, when it wauld drain directly CHANGES IN THE DIKINGinto the west desert over te Newfound- ALTERNATIVEland Weir, as in the original design.The modified design could only take the The alternative to West Desertlake da•o to 4208, rather than 4205 as in Pumping analyzed in the draft EIS me thethe original design, unles the inlet Diking of Critical Facilities. Thisarea ws dredged to allow north arm water alternative has not chaged except thatto flow to the pump station at lower more of the diking has been initiated andlevels. Overall evaporation wmld be existing dikes have been raised. There-

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fore, costs of dikirg further have been 2.5 feet and has had to repair wavereduced since some of the dikes noted in damaged areas. The Southern Pacificthe draft EIS have already been Wuilt. causeway is presently shut dow inceThe State Legislature also appropriated late April cue to waes splashing over,$10 million to the Ciununaity Impact Board and piling debris on the track in severalfor additional emergency diking in the locations. Dikes protecting AMAXMay, 1986 Special Session. Magnesium's evaporation ponds broke

during a major wind storm in early JuneCHANGES IN FLOOD DAMAGE and most of their ponds were flooded.

The same storm closed the SouthernDamages due to the No Action Pacific grade between Lakeside and Ho1gp

Alternative discussed in the draft EIS Ridge for major repairs.have partially occurred, at least those Numerous reports of flooded base-damages that would occur up to 4212. In ments and minor flood damage to resi-addition, high wave damage and flooding dences and industry in the Rose Park areahas occurred to some facilities that were and other east shore areas has occurredthought to be protected up to 4213 or as predicted in the draft EIS. Addi-higher. For example, 1-80 along the tional tarmilans have also been floodedsouth shore of the GSL was damaged by or damaged by grounxboter. Therefore,waves due to a strong south wind, and some of the impacts noted under No Actionrepairs have had to be made. Union in the draft EIS have already occurred,Pacific Railroad, with financial assis- so benefits of any flood control plantance from the State, has raised their would be reduced somewhat from thosegrade along the south shore of the GSL by discussed in that document.

24

CHAPTER 2

IMPACTS DUE TO CHANGES

CHAPTER 2IMPACTS DUE TO CHANGES

INTRODUCTION convenient vehicles for comparison offlood control alternatives. In alllikelihood, the lake would not rise at a

This chapter discusses impacts that constant rate for 14 years but ratherwould occur due to the changes in lake would rise at different rates each year.elevation, design, or existing flood Some years would be over 200 percent ofdamage discussed in Chapter 2 that were normal, such as 1986, while other yearsnot discussed in the draft EIS or have would be closer to rnrmal. The actualchanged from those discussed in the rate of rise would have little effectdraft. The basis of the analysis is the except in the west desert ihere No Action4215 scenario, with the 4217 scenario impacts would vary from year to yearalso being discussed. Figure 4 sham the rather than being fairly constant. Large4215 scenario and Figure 5 sh the amounts of ponded water in the west4217 scenario. Both scenarios have been desert would only occur during highupdated to start at a lake elevation of runoff years, and then only during springabout 4212 in 1986. Therefore, the 4215 and early summer unless simmer precipi-scenario used in this final EIS assumes tation was also much higher than normal.the lake would rise three additional feet These situations are discussed in thein 14 years to peak at 4215 in the year following sections where apropriate.2000. This same scenario in the draftEIS assumed a rise of four feet in 14years, since it assumed the 1986 ele- NO ACTIONvation would only be 4211. Therefore,the total rise is one foot less for the Impacts under the 4215 and 42174215 scenario in this final EIS, which scenarios would be very similar to thosemeans the total inflow to the GSL must be discussed in the draft EIS for mostlower than the 185 percent of normal used disciplines. Slightly more water wouldin the draft EIS. An inflow of about 170 probably flow into the west desert at thepercent of normal would produce the 4215 peak of the 4215 scenario than discussedscenario used in this final EIS. in the draft EIS based on the new contour

Likewise, the 4217 scenario is map (Figure 1), but not substantiallyslightly altered by starting at 4212 more. No additional impacts would occurrather than 4211. Similar to the 4215 due to this extra water. As notedscenario discussed above, the higher earlier in this document, a number ofinitial lake elevation reduces the amount impacts predicted In the draft EIS haveof inflow needed to reach 4217 by the already occurred. These impacts areyear 2000 from 225 percent to about 200 summaxized below by discipline.percent of normal.

Therefore, the peaks of the lake Mineral Resources - Brine concentrationrise scenarios used for comparison in the (SL has continued to be reduced,purposes in this EIS are the same in both affecting the evaporative Industries.the draft and final EISs, but the rate of Diking around evaporation ponds and otherincrease is slightly different. This facilities has continued, but AMAXmakes very little difference in the Magnesium's main dike to Stansbury Islandimpacts or benef its of the three altern- was ruptured in a major wind storm andatives since lake elevation was the main most of their evaporation ponds werefactor used to assess impacts. As noted flooded.in the draft EIS, the lake rise scenariosused were not meant to be projections of Soils - Over 1000 acres of additionalkiw the GSL would actually rise, but were prime or important farmland soils have

been inundated by the rising lake and

27

CHAPTE 2 - IMPACTS DUE TO CHANE

additional acres have been affected byrising groundwater. Social Conditions - Additional social

impacts due to residential flooding andClimate - Long periods of fog continued the uncertainty of the lake rise con-to affect northern Utah in the winter of tinued to effect some east shore resi-1985-86, primarily during December and dents.early January. This poor weather reducedthe use of the Utah Test and Training Economics - Additional flooding ofRange (UTTR) by the Air Force. industrial and residential areas along

the east shore occurred and diking wasSurface Water - The portion of the west initiated or continued to protect thesedesert flooded by the north ann of the areas. 1-80 and both the Union PacificGSL continued to expand in the area and Southern Pacific grades were impactedbetween the Lakeside and Newfoundland by wave damage but all still remainedMountains. Standing water occurred operable. Local public utilities con-throughout much of the west desert in the tinued to dike or move facilities inspring of 1986. response to the rising lake. Grouwater

pumping at the Salt Lake City Inter-Veoetation - Increased amounts of national Airport continued on a constantcropland were affected by the rising basis. Loss of many renaining wetlandswaters, as noted under Soils. Remaining may well affect waterfowl hunting in thewetland areas were also lost, primarily fall of 1986. Additional losses toalong the east shore of the lake and at farmland occurred with resultant loss ofLocomotive Springs, as predicted by Table income and capital damages.4.6 of the draft EIS.

In addition to the damages thatAquatic Biology - The aquatic community occurred due to the rising lake as notedof the lake continued to move towards above, the draft EIS predicted that themore freshwter species and lower numbers west desert would have large amounts ofof "brine species". standing water in it for much of each

year. This did occur in the spring andWildlife - Wildlife using wetlands were early summer of 1986. Major impacts offurther affected by the continued loss of this ponding were predicted by the draftwetland habitat along the east shore of EIS to occur to the use of the Bonnevillethe lake. Salt Flats and to the use of the UTTR.

Depending on the type of spring northernUtah Test and Traininr Range - The North Utah has, much of this water may evap-Range of the UTTR was affected by the orate by early suumr and allow use ofincreased amounts of standing and ponded the Bonneville Salt Flats for racing andwater in the west desert during the other recreation. Use of the Salt Flatsspring of 1986 and fog and low clouds generally only occurs in late summer andduring December and January of the fall, therefore no real restrictions may1985-86 winter. Numbers of Air Force occur. Likewise, tne use of the UT7R maymissions using the range were reduced not be that much affected by standingfrom historical use patterns. water. Figure 1, the new contour map of

the west desert, indicates that two majorRecreation - Problems at the Saltair ponded areas would occur just east of theMarina continued, especially from the Newfoundland Mountains. These poniedimpact of waves during windy periods, areas may contain water all summer andMany boats were removed from the marina, therefore affect low level flights over

this area, or they may dry up. There-fore, No Action impacts to the use

Cultural Resources - Additional archaeo- of the Bonneville Salt Flats and thelogical sites were inundated by the UTTR may not be as serious in 1986, or inrising lake. future years, as described in the draft

28

CHAPTIE 2 - I4PACTS D OCHAN1S

EIS. The major reason for this is that in the draft EIS generally holds for thein 1986 the high amounts of precipitation new scenarios, except that 4217 impactsand inflow to the lake occurred early in would be even greater. The followingthe year rather than extending through discussion primarily adresses changes inthe summer period as was the case in impacts due to the modified design of the1983. Therefore, No Action impacts to project since benefits are very similarthe Salt Flats and the UTTR may be to those discussed in the draft EIS.overestimated in the draft EIS usingeither of the lake rise scenarios. Mineral Resources - Under the 4215

No Action impacts of GSL levels scenario, the modified design of the Westgreater than 4212 would be the same as Desert Pumping Project would stilldiscussed in Chapter 4 of the draft EIS, protect the remaining evaporativewith the possible exceptions of the industries around the GSL from risingBonneville Salt Flats and UTTR as noted water levels, and brine concentrationsabove, wuuld be slightly increased due to lower

lake levels. Under the 4217 scenario,mineral industries would be flooded,

WEST DESERT PUMPING similar to the draft EIS situation.PROJECT

As noted in Figures 4 and 5, the Soils - The modified West Desert Pumpingmodified West Desert Pumping Project Project would prevent an additional 5427would keep the GSL from rising above 4212 acres of important soils from beingunder the 4215 scenario, but would allow flooded or damaged by grounwater undera rise to about 4215 under the 4217 the 4215 scenario, but only about 3500scenario. Therefore, under the 4215 acres would be protected under the 4217scenario no additional flooding impacts scenario.would occur over those that have alreadyoccurred. This was the same situation Climate - Under the 4215 scenario, winterdiscussed in the draft EIS, except not as weather in northern Utah would still bemuch damage had occurred. Under the 4217 adversely affected by the Wist Pond (Hillscenario, the project would allow the 1985), although the decreased size of thelake to continue to rise, although at a pond would reduce the effect slightly.slower rate, to a peak of about 4215, a According to the Air Force weather studyfoot higher than analysed in the draft (AFLC 1985) which does not entirely agreeEIS. Therefore, additional impacts due with the Hill (1985) weather study, theto lake flooding would occur to st number of restrictive days on the UTTRdisciplines. This is very similar to the would be reduced subtantially due to thesituation discussed in the draft EIS, but elimination of the East Pond and wouldof slightly greater magnitude, probably be no greater than five days

In addition, if the GSL south arm more than the No Action situation. Underrises to 4215, the north am would be at the 4217 scenario, weather impacts wouldor very close to the upper design limit be more similar to the No Action situa-of the pumping plant (4215). This would tion in both northern Utah and the UTTR,require some type of action to preserve as discussed in the draft EIS. Both thethe system, and this EIS assumes that Hill (1985) and the Air Force (1985)appropriate action would be taken. Also, weather studies are available uponwater from the north anm would flood over request from the BIM, Salt Lake Districtto the Newfoundland Dike, flooding Office.essentially all of the East Pond area.The pumping plan would be very close to Groundwater - Groundwater impacts to thebeing inoperable at this point. Hmwmir, Bonneville Salt Flats would be reducedthe 4217 scenario has the lake receding from those discussed in the draft EIS forbefore natural conditions cause this to both scenarios due to a lower meanhappen. operating level of the West Pond (4217

Therefore, the discussion of impacts versus 4218). Except during periods of

29

CMAPTUt 2 - IMWPATS DE UTO CRANIES

strong north winds, very little water thoe discussed in the draft EIS, withwould lay against the Bonneville Dike restrictive winter weather and tlightsince the lowest ground elevation along restrictions over open water and pilotits route would be about 4216 (Figure 1). safety following ejection the majorTherefore, little groundwater would seep impacts. Flight restrictions due toout of the West Pond due to cracks in the restrictive weather caused by the Eastclays under the dike, and the Salt Flats Pond would be nearly eliminated sincewould be as usable as under the No Action return flow from the Newfournland Weiralternative, so no significant impact would create smaller areas of pondiigwould occur. where the East Pond had been planned.

This would reduce the number of restric-Vegetation - Significant amounts of tive days with poor weather to about 5wetland and cropland would be protected days per winter beyond No. Action levels,from flooding under the 4215 scenario, since considerable ponding would alsoalthough not as much as discussed in the occur most years during the winter underdraft EIS. About 13,015 acres of wetland No Action also. Restrictions to lowand 1,681 acres of cropland would be level flight due to the West Pond wouldprotected from flooding. An additional probably be slightly greater than noted3746 acres of cropland would be spired in the draft EIS because west desertgroundwater problems, the same amount ponding under No Action may be lessnoted in the draft EIS. Benefits to frequent than predicted in that docuuent.these important vegetation types under Pilot safety following ejection wouldthe 4217 scenario include 4160 acres of also be worse than discussed in the draftwetland and about 3500 acres of cropland. EIS since the West Pond would be more

permanent than No Action ponding. BothWildlife - Prevention of loss of signifi- low level flight restrictions and pilotcant wetland acreage would benefit safety would also be impacted in the Eastwildlife under the 4215 scenario as noted Pond area. Return flows would maintainin the draft EIS. Benefits would be ponding in low areas between the New-reduced considerably with the 4217 foundland Mountains and Lakeside Moun-scenario as noted for vegetation above, tains during the summer when they wouldbut would be similar to trse discussed have evaporated under No Action.in the draft EIS for this scenario. Therefore, flight operations and pilotImpacts to wildlife, primarily raptors, safety would be more affected by the westmay occur due to material sites needed Desert Pumping Project than discussed infor the Bonneville Dike. Site-specific the draft EIS in the East Pond area, asimpacts will be determined in a separate well as the West Pond area, under theenvironmental documentation when the 4215 scenario. Under the 4217 scenario,actual sites and mining plans are know. impacts would remain as discussed in the

draft because most of the impacts of WestGrazing -Impacts to grazing in the Desert Pumping would also occur under NoNewfoundland and Basin L&L allotments Action since most of the area wuld bewould be similar to those discussed in flooded naturally.the draft EIS under both scenarios. The Impacts to flight operations andbridge mentioned in the draft EIS that pilot safety in the East Pond area couldwould be built for the discharge canal be mitigated by construction of a canalwould not be acceptable as a livestock to drain ponded water in that area,crossing since it would be too far out in rather than allowing it to flow naturallythe mud flats. Therefore, an additional back to the north arm. Mitigation wouldbridge for livestock, or other mitiga- need to be accomplished satisfactory totion, would be required to alleviate this the Air Force as part of any licenseimpact. issued to use the Air Force lands for the

project.Utah Test and Training Rane - Impactswould generally remain very similar to Recreation - Impacts to the Bonneville

30

CoINUF 2 - IDECTS DX 70 CA gW S

Salt Flats mould not occur as discussed MITIGATION SUMMARYin the draft EIS due to the lower levelof the West Pond. This section swmari the mitl-

gation required by the EIS process thatVisual Resources - Visual impacts due to will enable the State of Utah to be inthe material sites needed for the conformance with the CEQ emergencyBonneville Dike could be significant. authorization to begin construction onSite- specific analyses will be presented the project before completion of thein a separate envircnental document wen final EIS.the exact sites and mining plans areknown. UTTR - Heavy duty screens should be

installed across the opening of theCultural Resources - Inpacts and mitiga- control weir and under the railroadtion would be the same as noted in the trestle near Lakeside to catch anddraft EIS. detonate any incoming ordnance. To

prevent Inadvertant detonation ofSocial Conditions - No changes would ordance, an area arc tely 200 feetoccur over those discussed in the draft In width encompassing the eight mileEIS except the dissatisfaction over loss length of the Newfoudland Dike should beof the Bonneville Salt Flats would be cleared by the aIrforce to a depth ofeliminated since this area would not be about 15 feet during the dry summerimpacted by the project. months before ccostruction, at a cost of

about $440,000. Impacts of flightEconcmics - The economic benefits of the restrictions due to the West Pond wouldconstruction of the project would be less be difflcuLt to mitigate. The Air Forcethan noted in the draft EIS due to the may need to evaluate changes in flightlower cost. Losses of revenues due to restrictions or altered flight paths toimpacts on the Bonneville Salt Flats avoid the West Pond. A canal could bewould not occur with the lower West Pond constructed to drain low lying areas inelevation. Economic benefits to the east the East Pond area that will fill withshore would be very similar to those water draining fron the West Pond. Thisdiscussed in the draft EIS for both will mitigate impacts to low levelscenarios. Very little ad•itional flood flights and pilot safety associated withdamage would occur under the 4215 ejections over this area. The State willscenario. Most of the major impacts to need to coordinate closely with the Airtransportation, industry aid residential Force, and Tooele and Box Elder countiesareas would still occur under the 4217 on roads used for construction traffic.scenario. Any deterioration of present road quality

due to construction traffic should be

DIKING TO PROTECT CRITICAL r by t State.

FACILITIES Grazing - Livestock access across thedischarge channel to the southern part of

This alternative would change very Hogup Ridge and the Newfoundland Moun-little fron the analysis presented in the tains would require some form of mitiga-draft EIS. Several of the dikes have tion, such as a bridge.been built or were increased in height toprovide protection from the rising lake. Material Sites and Gas Line - PotentialImpacts would be very similar to those mitigation may be identified in sub-discussed in the draft. Only those areas sequent envirormental documentation fordirectly behind the dikes would be proposed material sites for the Bonne-protected and major losses to transporta- ville and Newfoundland dikes or thetion, industry and residential areas natural gas corridor.wou.1d occur under both scenarios.

31

cans 2 -NA us 70

32

CHAPTER 3

ERRATA SUMMARY

CHAPTER 3ERRATA SUMMARY

The folltirng revisionr have been wode Desert Puing Project ow other condi-based on comments receid uring the tions that have been altered sincerevi4w period for the drft ZIS. C ge publication of the draft XIS wereare listed • pg umber and idmntitted disommed in the preceding chapters andby para~ph and line. Iljor revisionm are not repeated I=re.due to changes in the design of the Not

Pe Col. Para. Line IS SOUWD BE

21 R 4 1 N/A Add: The p ng plantmild operate between laelevels of 4205 aid 4216.It oruld be shut off whenthe 14w reached 4216 andflowed to the westdesert.

22 L 3 10 .. .breach to the Intake ... breach and under achamnel. bridge to the inta•e

channel.

29 R 4 10 N/A Ad: If the lake roeabove 4212, the ZEat Pondmuld have to be pumped.

38 R 3 8 ... Willard Bay ... ... Willard Bay Reservoir..

63 Table 2. 1 N/A Add: 7he costs includeamots needed to con-struct the dikes fromground level to 4515eccept Where dikes arealready kbult.

68 Table 2.3 Wlldllfe, Most Desert

years then No Action. years than No Action.

75 R 2 3 The minerals include salt The minerals includle salt,mirabilite, Magnesium, mlrabilite, and otherlithiu , bromine, and caapozds of magesium,potmaium. sodium, lithium, bromine,

and potsium.

35

CmRPTi 3 - ATA SUNW

Pae Col. Para. Lire IS S I in

118 L 1 1 ... 3"46 acres ... ... 3761 acres...

118 Table 4.1 Box Elder and Total coluarn for 4212, 4215 and 4217.

154 1375 179 1400352 3056 387 30911458 6800 1508 6852

123 L 4 3 ArcnciMately 3056... Aircimate~ly 3091...

125 Table 4.6 Framington Bay Fammington Bay

136 R 2 7 ... 2306 acres ... ... 2341 acres...

137 R 1 16 ... (dry levels) ... ... (drY cycle)...

141 R 1 5 ... type. An ... ... type, ma~pt for 2-3acres of wetladl in thearea where the pmp sta-tion is plaumd. An...

141 R 3 3 ... 2620 acres ... ... 2341 acres...

141 R 3 7 ... 914 acres ... ... 750 acres...

144 R 3 6 ... Box Elder County and ... DBox Elder County,the Air Force... Tooele Coumty and the

Air Force...

165 L 2 2 ... grant a right-of-way ... grant a licese forpermit for use of... controlled use of...

165 L 4 1 ... .coment of the EI5 ... ... cinent on the EIS...

165 R 4 1 N/A Add: Bureau of Air QualityThe Breau of Air Qualitywill nIed to issue aPrefwntion of SignificantDeterioration (FPO) permitfor the operation ofmotors that drive the

37

asisP 3 - NUWATA S.36W

38

CHAPTER 4

CONSULTATION AND COORDINATION

CHAPTER 4

CONSULTATION AND COORDINATION

INTRODUCTION Salt Lake District BLM, Utah Division ofState Lands and Forestry (DSLF), and theUtah Division of Water Resources (UDM).

The Bureau of Land Management (BLM) In addition, an intensive public noticeand U.S. Air Force requested and received campaign in local newspapers and radioconsul tation from many organizations and and TV stations alerted the public to theindividuals, public and private, in availability of the scoping document.developing the draft an final EISs for Scoping meetings for selectedthe West Desert Pumping Project. This portions of the public were also sche-chapter reviews this consultation process duled for a more intensive review ofand identifies its major results. concerns. Three meetings were held on

March 7 and 8, 1985, in Salt Lake CitySCOPING PROCESS for federal and state agencies, local

goverments, and other involved groups.Regulations for implementing the The meetings involved a brief review of

National Environmental Policy Act (40 the planned project, followed by smllCFR, Part 1501.7) require an early and group discussions. a fourth scopingopen scoping process. During this meeting w held for BLM employees at theprocess, the scope of issues to be Salt Lake District Office on March 12.analysed related to the Proposed Action Numerous issues were identified inwere identified. Information obtained the scoping process. The most si$ni-during the scoping process was one of the ficant issues were the following:sources used to determine significantissues to be addressed in detail in the -Weather ModificationEIS. -Flood Damage

The scoping process was also used to -Grcukbater Impactsinform affected federal, state, and local -Wildlife Impactsagencies and other interested persons -Mineral and oil and Gas Leasesabout the proposal and to identify -Air Force Operationsexisting environmental reports andinformation related to the proposal. The DRAFT EIS CONSULTATION ANbasic goal of scoping was to make the EIS COORDINATIONmore concise and meaningful to those The B5M had lead agency status forin the Federal Goverrient who must preparation of the draft and final EISs,decisions on the proposal, those in with the Air Force as a major cooperatingstate and local government, and those who agency. The U.S. Army Corps of ~izeuersmay be affected by appoval or disapproval was also asked to be a cooperatingof the proposal or its alternative. agency. The EISs were prepared by

BIO/WEST, Inc. of Logan, Utah on a thirdMETHOD OF SCOPING party contract between the BLM, DSLF,

and BIO/WEST. The BIO/WEST and BLMNotice i'm published In the Federal interdisciplinary team that worked on the

Register, Volume 50, No. 18, January 28, documents was noted in the List of1985, announcing the Intent to prepare Preparers in the draft EIS. Additionalthis EIS and to hold scoping meetings, studies and analyses were conducted byTwo types of scoping methods were used Oak Ridge National Laboratory underfor the West Desert Pumping Project EIS. contract to the Air Force. Their studiesA mail-out scoping document prepared were used to develop Impacts on Airand sent out to individuals, agencies, Force property and operations in theand affected parties. The list of draft EIS. Additional studies wereconcerned parties ws developed by the contracted by the UDWR and primarily

involved engineering design, but they

41

(WTER 4 - CCNSULTATIm AND CORDIMTICN I

also were important in much of the EIS atives, and are within the scope of theaalyses. EIS process. Commwnts that were judged

Several review drafts were clrcu- to be not within the scope of the EISlated for BLM, Air Force, Corps of were identified with the statement: NoEngineers, DSLF and UDWR review and response required. Since CEQ hascomment before ccmpletion of the official authorized the State to begin con-draft EIS. Table 1 lists the federal, struction of the West Desert Pumpingstate, and local agencies, as well as Project before completion of this finallegislators and individuals, consulted EIS, comments regarding selection ofwith in preparation of the draft and/or other alternatives are not responded tofinal EIS. Mmy draft EIS copies were in detail.distributed from the Salt Lake District All comment letters have beenBLM Office and DSLF Salt Lake City reprinted verbatim except for theirOffice. All available copies (1500 were respective attachments, and all pertinentprinted) have been distributed, changes have been addressed in this final

EIS. The responses are directly adjacentPUBLIC REVIEW OF DRAFT EIS to the comments in the following section

and are referenced by number.The draft EIS wa filed with the

Environmental Protection Agency onFebruary 7, 1986, ad announced in theFederal Register on January 16, 1986(Vol. 51 No. 11, page 2439). In addition,media releases were sent to radio andtelevision stations and local newspapersin northern Utah announcing the avail-ability of the draft EIS. Approximately1500 copies of the document were distri-buted by mail or directly to individuals,organizations and governmental agencies.

COMMENTS AND RESPONSES

Twenty letters addressing the draftEIS were received by BLM during thecomment period (February 10 through April22, 1986). Additional comments werereceived from cooperating agencies. Allletters were assigned a reference nmberand reviewed. Individual substantiveccmments (those that presented new dataor questions of new issues bearingdirectly on the effects of the proposedaction --v its alternative) were identi-fied and responded to.

Comments show a tremendous range ofconcerns and ideas. The scope of the EISincluded the evaluation of alternativesfor providing immediate flood controlfor the GSL, and the impacts that thethree reasonable and feasible altern-atives would have on the human environ-ment. Responses are directed to thosecomments that deal with the threealternatives, or other reasonable altern-

42

Table 1. Agencies and organizations contacted tor coordination, cxnultation,min review.

Federal Gorernment

nvironmental Protection AgencyFEMA, Disaster Assistance Programs DivisionFish and Wildlife ServiceBurea. ot Min"Soil Coneervation ServiceBureau of RaclAmationGeological SurveyNational Park ServiceForest Service

Jim HansenDavid MonsonHoward C. NielsonJake GarnOrin Hatch

Realonal Goverraent

Upper Colorado River CimmnislonWstern States Water CoumcilWestern Area Power Administration

Utah State Governmnt

Board of Industrial and Economic DevelopmentEnergy OfficeBureau of Air QualityBurea of MizneBureau of Wter Pollution ControlL~metnt of AgricultureDepartment of HealthDepartment of Natural ResourcesDepertment of Social ServicesDivision of Ccupreenwive Damgmncy ManagemntDivision of Geological and ilneral surveyDivision of Oil, G MiningDivision of Parks and RecreationDivision of State Lad and Forestry

eFartmOn of TransportationDivision of Water ResourcesDivision of Water RightsDivision of Wildlife ReourcesPluming Ctors Office

43

"Table 1. Continued.

County and Multi-County G3overnment

Bear River Association of GCoverrmentsBear River County C43=issionBear River ReFource Conservation and Development committeeBox Elder County CmnisslonCache County C•omissionDavis County CommissionDavis County Planning CcmissionSalt Lake City-County HealthSalt Lake County CommissionSalt Lake County Flood ControlTocele County CommissionersUtah Association of CountiesUtah Association of Soil Conseration DistrictsUtah County CommissionUtah Lale and Jordan River CommissionWeber County CommissionWeber County Planning Commission

City Government

Mayor, City of BountifulMayor, Brigham CityMayor, City of CentervilleMayor, City of GrantsvilleMayor, City of LehiMayor, City of North Salt LakeMayor, City of OremMayor, City of ProvoMayor, City of Salt LaMayor, City of TooeleMayor, City of TremontcnMayor, City of WendoverMayor, City of West BountifulMayor, City of West ValleyMayor, City of Woods CrossCity of Los Angeles, Department of Water and PowerMetro. Water District of Salt Lake City

Academic Orcanizations

Brigham Young University:Center for Environmental StudiesDepartment of: Civil Egieering

GeologyZoology

Raptor Research Foundation

44

Table I. Continued

University of Utah:Department of Biology

Utah State University:Department of: Chemistry

Civil EngineeringEconmnicsForestry ResourcesWildlife Science

College of Natural Resources

Weber State College:Department of: Geology and Geography

Zoologylstminrter College

Agricultural Organizations

American Farm BureauUtah Cattlemens AssociationUtah Farm Bureau Federation

Environmental Ormnizations

Citizens Cummission to Save Our CanyonsCouncil on Utah's ResourcesDefenders of Outdoor HeritageDefenders of Our Utah Streams and EnvironmentNatural Resources Defense CouncilRocky Mountain National HeritageSave Our Rivers CommitteeSierra ClubUtah Environmental CenterUtah Heritage FoundationUtah Nature Study SocietyUtah Wilderness AssociationWasatch Mountain Club

Fish and Wildlife Oruanizaticvs

American Fisheries SocietyBridgerland Audubon SocietyNational Audabon SocietyTimpanogas Audobon SocietyUtah Audubon SocietyBOK Elder County Wildlife FederationBrldgerland Wildlife FederationDavis County Wildlife FederationDucks MnlmitedNational Wildlife Federation

45

Table 1. Continued

Stonefly SocietySalt LAke County Fish andlG~ AssociationSpringville-ftpleton Wildlife FederationTooele County Wildlife FederationTrout UnlimitedUtah Bowmen' s AssociationUtah County Wildlife FederationUtah Sportsman's AssociationUtah wildlife FederationUtah Wildlife and Outdoor Recreation FederationWildlife Society

Enem/rgI•swtrial/Mineral Organizations

MAX Magnesiu-mAmerican GilsoniteAmerican SaltAnar Exploration, Inc.AT&T Loog LineAtlantic RichfieldBrush-4*l~man, Inc.Celsius EnergyCity Services Oil & Gas CorporationCoastal States EnergyConsolidated CoalDuvall CorporationEagle ExplorationEnergy RoyaltyGetty OilGolden Spike Gem and Miner-al SocietyGreat Salt Lake MineralsH.D. Bills EplorationHorrocks Corollo EngineersHW3 OilInexco OilInterstate Brick and Ceramic TileKaiser ChemicalsKennecott CorporationMobil oilMorton SaltMountain BellMountain States ResourcesMurphy Oil USA, Inc.Northlet ExplorationPennzoil CorporationPlacid oilRaft River Electric Cooperative, Inc.Republic Oil and MineralsSolar ResourcesSouthern Pacific Land CoiparyTexaco, Inc.Union Carbide Corporation

46

Table i. Contmined.

Union Pacific .ilroadUtah Mining AssociationUtah Power and LIghtWasatch GOm Society

Outdoor Recreation Oruanizations

American Motorcycle AssociationAssociation of Four Wheel Drive ClubsBees Motorcycle ClubBonneville Nationals, Inc.Desert Foxes Motorcycle ClubE1 Nmatica Boat ClubGSSA Snowmobile ClubRecreation Vehicle Advisory CouncilSalt Lake Motorcycle ClubUtah Salt Flats Racing AssociationUtah snommobile Association

Water Resources Orgnizations

Central Utah Water Conservation DistrictIntermountain ater AllianceL~wer Jordan River C tmrissIcrarv River Water Users AssociationCitizens for a Responsible CUPSalt Lake County Water Conservation DistrictUtah Mter Pollution Control AssociationWeber Basin Water Conservation District

*ber River Water Users Association

Other Oraunizations

League of Women VotersUnited States Auto ClubUtah cngress WatchUtah Geological AssociationUtah Native Plant SocietyUtah Resources, Inc.Utah Travel Council

47

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APPENDIX

. All,

United States Department of the InteriorFISH AND WILDLIFE SERVICE

ENDANGERED SPECIES OFFICE207M ADMINISTRATION BLDG.

1745 WEST 1700 SOUTHSALT LAKE CITY, UTAH 84104

IN TOJune 17, 1986

SE/SLC: 6-5-86-F-016

MEMORANDUM

TO: District Manager, Salt Lake District, Bureau of Land Management,Salt Lake City, Utah

FROM: Field Supervisor, Endangered Species Office, U.S. Fish and WildlifeService, Salt Lake City, Utah

SUBJECT: Biological Opinion for the West Desert Pumping Project

This is in response to your letter of March 10, 1986, requesting formalconsultation for the subject project. Your office determined that a "mayeffect" situation existed for the bald eagle (Haliaeetus leucocephalus) andthe peregrine falcon (Falco peregrinus). Our comments have been prepared asprescribed in the Section 7 Interagency Cooperation Regulations, 50 CFR 402,and the Endangered Species Act (ESA), 16 U.S.C. 1531 et seq.

BIOLOGICAL OPINION

The West Desert Pumping Project is not likely to jeopardize the continuedexistence of the bald eagle and the peregrine falcon.

PROJECT DESCRIPTION (USDI 1986)

The State of Utah has filed for a right-of-way permit to use public and U.S.Air Force lands to prevent flooding arcund the Great Salt Lake due to risinglake levels. The project would utilize the Federal lands to construct apumping plant and associated canals, and dikes to create evaporation ponds inthe west desert of Utah. Water would be pumped from the Great Salt Lake (GSL)to the west desert ponds for evaporation.

93

The West Desert Pumping Alternative has been proposed by the State of Utah astheir preferred means of providing immediate flood protection from any furtherrise of the GSL. This protection would be achieved by pumping water from thesouth arm of the lake and transferring it by a system of canals and pumps totwo large evaporation ponds in the west desert. The project would be designedsuch that at least one million acre-feet of water could be evaporated on anannual basis. The brine solution remaining after evaporation would becirculated back into the lake to make it available to mineral extractionindustries and to keep from filling up the relatively shallow evaporation pondareas with precipitated salts which would reduce evaporation. It should benoted that the description of this project is based on feasibility leveldesign studies. Final design studies are in progress and will be incorporatedinto the FEIS.

In this analysis there are several options for the size, and thus location, ofthe ponds. The East Pond, which serves primarily to transfer brine back intothe lake and secondarily to permit additional evaporation, has two alternativesizes or depths. The West Pond can be constructed in a "standard" form or asthe larger Bonneville Pond, which floods a greater area and allows increasedevaporation and associated flood control.

The effectiveness of this alternative would be dependent upon existingclimatological conditions, initial lake level, and the operation of thepumping and transfer system. The Bonneville Pond alternative would result ina slightly lower lake level that would slowly decline to the year 2000.

BASIS FOR OPINION

Peregrine falcon

The peregrine falcon historically nested in nearly every State of the Union.Undoubtedly in North America its presence extended back thousands of yearsinto the Pleistocene. Threats to the peregrine's existence in North Americawere vastly increased after human population expansion in the last century.This adaptable species thrived for many decades in North American and in theOld World despite extensive persecution by man and by human trespass againstits habitat. But in the early 1950's, the breeding populations throughoutmuch of the Northern Hemisphere began an unprecedented and precipitous decline(USFWS 1984).

The marked decline in active peregrine eyries and the greatly reducedproductivity of peregrines in the Western United States since the late 1940'swas coincident with declines elsewhere throughout the Northern Hemisphere(Hickey 1969). Ratcliffe (1969) indicated that although reliable evidence oftrends in the British peregrine population is available only for the last fewdecades, it is far from certain that any great decline took place in Britainprior to the pesticide era. In the Eastern United States, Hickey (1942)reported that perhaps 10 to 18 percent of the historic sites were permanentlyabandoned by 1942.

94

In the area surrounding the Great Salt Lake, the peregrine falcon historicallynested in the Wasatch Mountains and in the isolated mountain ranges of theWest Desert. Currently, the only known peregrine falcon nesting occurs on theeast shore of the lake as a result of the reintroduction program run by theUtah Division of Wildlife Resources in cooperation with the U.S. Fish andWildlife Service. They have built seven towers around the lake as part ofthis program, two of which have been destroyed by the rising lake levels.However, three nesting pairs produced eggs in the remaining hack towers in thespring of 1986.

The population decline in Colorado has been halted by the current recoveryefforts and the number of breeding pairs have increased from 4 in 1976 to 12in 1984 (Craig in prep.). The current efforts include annual releases ofyoung at 6 hack sites and augmentation of reproduction at 8 wild sites. Craig(in prep.) has shown through computer simulations that a reduction in hackingand augmentation will reduce the peregrine's chances for survival. Thesestudies indicate that if peregrine falcon reproduction remains poor due tocontinued pesticide contamination then releases of young birds must continueto avoid extinction. Similar results would be expected to recover theperegrine falcon in Utah.

Impacts

An outbreak of botulism may occur due to the creation of ponds in the westdesert. This disease has caused more massive waterfowl losses than any other.It may also affect peregrine falcons that eat waterfowl affected by thedisease. Botulism is caused by a toxin produced by an anaerobic bacterium,Clostridium botulinum. The bacteria develop when high temperatures causespores to germinate in a suitable nutrient medium, probably animal matter, andan environment devoid of oxygen (Bellrose 1976). Hunter et al. (1970) foundthat outbreaks develop as a result of one or more of the following conditions:

1. Flooding of dry land during warm weather, resulting in the drowningof terrestrial invertebrates that then provide a nutrient medium forthe bacterium.

2. Receding water levels that expose mud flats, causing the death ofaquatic invertebrates that also provide a suitable medium.

3. Changes in water quality that result in the death of invertebratefauna.

4. Decaying animal carcasses that produce maggots.

Any one of the above conditions could occur naturally as the result of thecontinued rise of the Great Salt Lake.

95

The proposed pumping project would have no negative effect on the peregrinefalcon and may prove beneficial since control of the lake level would preventfurther loss of hack towers and destruction of wetland habitat which supportsperegrine falcon prey species. Benefits would depend upon the amount ofpumping done. If pumping only maintains the lake at 4,212 feet few benefitswould be realized. If reduced to 4,205 feet, then considerable benefits wouldaccrue.

Bald Eagle

The bald eagle (Haliaeetus leucocephalus) is a large, long-lived bird of preyrestricted in distribution to North America. Adults, with their dark brownbodies, white heads and white tails are well known as the nation's symbol.However, the adult plumage is not acquired until age four at the earliest.Bald eagles go through a series of plumages prior to attaining adultcoloration, and in some plumages the young bear a superficial resemblance tothe golden eagle (Aquila chrysaetos) (USFWS 1983).

Wintering bald eagles occur throughout the country but are most abundant inthe west and midwest. An abundant, readily available food supply inconjunction with one or more suitable night roost sites is the primarycharacteristic of winter habitat. The majority or wintering eagles are foundnear open water and they feed on fish and waterfowl, often taking those whichare dead, crippled, or otherwise vulnerable. Mammalian carrion is animportant alternate source of food at some locations. Also, many bald eaglesspend a substantial portion of the wintering period in terrestrial habitatsfar from open water, relying on prey they can catch easily or scavenge, suchas big game or livestock carrion and small mammals (USFWS 1983).

The bald eagle is a common winter resident in the State of Utah and the Statehas one of the largest populations in the nation. In the 1983 Midwinter BaldEagle Survey sponsored by the National Wildlife Federation, Utah ranked secondwith a total of 1,042 birds. This amounted to almost 9 percent of the totalU.S. count. A major bald eagle winter roost is in Willard Canyon east of thelake. Eagles concentrate there in the fall and spring, and feed on waterfowland fish in the marshes along the lake. The rising lake levels haveeliminated much of the wetlands and waterfowl habitat along the eastern shorebut may have increased use of the area by freshwater fish.

The slight chance of botulism would remain as noted for the peregrine falcon.The Bonneville subalternative would have a slight advantage to eagles over theStandard West Pond alternative because reinstatement of important wetlandscould begin sooner. Benefits would depend upon the amount of pumping done.If pumping only maintains the lake at 4,212 feet few benefits would berealized. If reduced to 4,205 feet, considerable benefits would accrue.

96

SUMMARY

The proposed project as outlined above will not jeopardize the continuedexistence of the bald eagle or the peregrine falcon. A possible negativeeffect to both species is the slight chance of an outbreak of botulismhowever, botulism may occur as a consequence of the No Action alternative aswell as the two other alternatives and therefore could occur with or withoutthe implementation of this project. A possible beneficial effect of theproposed west desert pumping project would be the protection of wetlands andhence the prey base for both the peregrine falcon and bald eagle. Inaddition, the reduction of lake levels would protect the peregrine falcon hacktowers on the east shore of the Great Salt Lake which are essential for therecovery of this species.

97

REFERENCES

Bellrose, F.C. 1976. Ducks, geese & swans of North America. Wildlife

Management Institute.

Hickey, J.J. 1942. Eastern population of the duck hawk. Auk 59: 176-204.

Hickey, J.J., ed. 1969. Peregrine falcon populations. Univ. of Wisc.Press, Madison. 596pp.

Hunter, B.F., W.E. Clark, P.J. Perkins, and P.R. Coleman. 1970. Appliedbotulism research including management recommendations. Calif. Dep. Fishand Game, Wildl. Manage. Prog. Rep. 87pp.

Ratcliffe, D.A. 1969. Population trends of the peregrine falcon in GreatBritain in Hickey, J.J. ed. Peregrine falcon populations. Univ. of Wisc.Press, Madison. 596pp.

USDI. 1986. West Desert Pumping Project Draft Environmental ImpactStatement. Bureau of Land Management, Salt Lake City, Utah.

USFWS. 1983. Northern States Bald Eagle Recovery Plan. Prepared incooperation with the Northern States Bald Eagle Recovery Team. USFWS,Twin Cities, MN.

USFWS. 1984. American Peregrine Falcon Recovery Plan (RockyMountain/Southwest Populations). Prepared in cooperation with theAmerican Peregrine Falcon Recovery Team. USFWS, Denver, CO.

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DATE:

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