Gifford Pinchot National Forest; Washington; Spirit Lake Outflow Safety Improvement Project, 79509-79511 [2024-22159]

Agencies

• DEPARTMENT OF AGRICULTURE
• Forest Service

[Federal Register Volume 89, Number 189 (Monday, September 30, 2024)]
[Notices]
[Pages 79509-79511]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2024-22159]


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DEPARTMENT OF AGRICULTURE

Forest Service


Gifford Pinchot National Forest; Washington; Spirit Lake Outflow 
Safety Improvement Project

AGENCY: Forest Service, Agriculture (USDA).

ACTION: Notice of intent to prepare an environmental impact statement.

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SUMMARY: The USDA Forest Service is preparing an environmental impact 
statement for the Spirit Lake Outflow Safety Improvement Project 
(Project). Spirit Lake is within the Mount St. Helens National Volcanic 
Monument within the Gifford Pinchot National Forest, about 52 miles 
northeast of Portland, Oregon. The purpose of the Project is to provide 
for the safety of downstream communities by reducing the risk of 
flooding and mudflows from a failure of the Spirit Lake debris 
blockage. The Spirit Lake tunnel is at risk of failure due to its 
construction under emergency conditions and location in an area of 
volcanic, geologic, hydrologic, and seismic hazards. Downstream 
communities of nearly 50,000 people are at risk of catastrophic mudflow 
and flooding following a full lake breach. The Planning, Appeals, and 
Litigation System identification number for the Project is 66482.

DATES: Comments concerning the scope of the analysis must be received 
by November 14, 2024. The draft environmental impact statement is 
expected May 2025, and the final environmental impact statement is 
expected October 2025.

ADDRESSES: Send written scoping comments via U.S. Mail to Kelsey 
Jolley, Spirit Lake NEPA Coordinator, 987 McClellan Road, Vancouver, WA 
98661. Comments may also be submitted electronically through the 
Comment and Analysis Response Application (CARA) at https://cara.fs2c.usda.gov/Public//CommentInput?Project=66482. An in-person 
public scoping meeting will be held at the Cowlitz County Event Center 
located at 1900 7th Avenue, Longview, Washington from 4 to 8 p.m. on 
Wednesday October 23, 2024.

FOR FURTHER INFORMATION CONTACT: Kelsey Jolley, NEPA Coordinator, 
Phone: 360-891-5021, Email: [email protected]. Individuals who 
use telecommunication devices for the deaf (TDD) may call the Federal 
Information Relay Service (FIRS) at 800-877-8339, 24 hours a day, every 
day of the year, including holidays.

SUPPLEMENTARY INFORMATION:

Purpose and Need for Action

    The purpose of the Spirit Lake Outflow Safety Improvement Project 
is to provide for the safety of downstream communities by reducing the 
risk of flooding and mudflows from a failure of the Spirit Lake debris 
blockage. Following the 1980 eruption of Mount St. Helens, Spirit 
Lake's natural outlet to the Toutle River system was blocked by the 
landslide and debris flow from the eruption. The Spirit Lake tunnel was 
constructed under emergency conditions to address the imminent public 
safety threat posed by rising water levels in Spirit Lake. The tunnel 
is in an area with volcanic, geologic, hydrologic, and seismic hazards. 
The geological pressures on the tunnel have caused rock heave, 
compression, cracking, and support failures, necessitating periodic 
repairs. As the tunnel ages, it will require more frequent and longer 
closures for repair to prevent failure. It is not expected to remain 
serviceable without significant repair and/or upgrade. A failure would 
result in rising lake levels that could exceed the maximum safe 
operating level, at which point pressure from rising water levels could 
force the breaching of the natural debris blockage, putting the 
downstream population of approximately 50,000 people at risk of 
catastrophic flooding and mudflows.
    The actions proposed for this project are needed to:
     Accommodate lake level rise from a flood event without 
exceeding a designated maximum safe level. The current average 
operating level is 3,440 feet  4 feet, with a maximum safe 
level of 3,460 feet elevation. Reduced tunnel diameter from shear led 
to a reduction in the maximum design discharge of the tunnel. Reduction 
in design discharge leads to faster lake level rise during storm 
events. For this reason, the tunnel is no longer functioning at optimal 
capacity, which increases the risk of debris blockage failure as lake 
levels approach the maximum safe level of 3,460 feet elevation.
     Improve access reliability to outflow infrastructure. 
Current travel to the existing intake infrastructure takes an average 
of 4.5 hours and requires a combination of travel modes including high-
clearance passenger vehicle, utility terrain vehicle, and boat. This 
access does not allow for mobilization of heavy equipment to the inlet 
for necessary repair. A moving, floating, 40-acre log debris mat can 
prevent boat access depending on weather conditions. The site is under 
snow a significant portion of the year, which precludes year-round 
access to the inlet. Helicopter access is

[[Page 79510]]

often not viable throughout the year due to poor weather conditions.
     Provide outflow redundancy. There is currently only one 
outflow configuration with the existing tunnel, and any reduction in 
outflow capacity increases the risk of debris blockage failure. Two 
previous tunnel repairs that required tunnel closure have led to lake 
levels approaching the maximum safe level of 3,460 feet elevation. A 
redundant outflow that accommodates design discharge will allow for 
extended closure of the primary outflow for repair, while maintaining a 
safe operating level.
     Reduce long-term outflow operation and maintenance burden. 
The existing outflow infrastructure needs significant repair to operate 
at optimal design capacity. The existing tunnel has not been a long-
term, resilient outflow solution over the last 30 years as repeated 
necessary repairs have been a significant maintenance burden.

Proposed Action and Alternatives

    In 2016, the Gifford Pinchot National Forest commissioned the 
National Academies of Science, Engineering and Medicine (NASEM) to 
develop Decision Making Framework for Managing the Spirit Lake and 
Toutle River System. NASEM recommended a multi-criteria decision-making 
approach that considers a range of alternatives. Based on a preliminary 
study conducted by the Forest Service and Army Corps of Engineers, 
extensive working group coordination, and subsequent engineering 
feasibility analyses, the Forest Service has identified six potential 
outflow improvement, as follows, that the environmental impact 
statement will consider:
     constructing an open outlet channel, which maintains 
Spirit Lake at its current elevation, with the redundant measure of 
rehabilitating the existing outlet tunnel;
     constructing an open outlet channel that drains Spirit 
Lake, with the redundant measure of upgrading the existing outlet 
tunnel and modifying its intake depth;
     rehabilitating the existing outlet tunnel in shear zones 
(areas in volcanic tuffs decomposed to weak rock and swelling clays) 
with the redundant measure of a permanent pumping station;
     constructing a new pressure tunnel parallel to the 
existing tunnel, with a redundant measure of rehabilitating the 
existing outlet tunnel in shear zones;
     rehabilitating the existing outlet tunnel in shear zones, 
with a redundant measure of a buried conduit within the debris blockage 
that releases water during storm events or during maintenance of the 
primary outlet; and
     converting the existing tunnel into a pressure tunnel, 
with the redundant measure of lake storage with an updated maximum safe 
lake level.
    To align with NASEM guidance this NOI does not specify a preferred 
alternative.
    As required under the National Environmental Policy Act (NEPA), the 
Forest Service will also evaluate a no action alternative in which no 
changes to current Spirit Lake outflow tunnel or lake level management 
strategies would be made.

Expected Effects

    The draft environmental impact statement will identify and describe 
the potential effects of the alternatives on the human environment. 
Those potential effects must be reasonably foreseeable and must have a 
reasonably close causal relationship to the alternatives. Such effects 
include those that occur at the same time and place as the alternatives 
and those that are later in time or occur in a different place. The 
Project is expected to result in potential impacts to the following 
resources: air quality; aquatic, plant, and terrestrial biological 
resources; cultural resources; fire and fuels; floodplains; hydrology, 
and water quality; forestry and land use; geology and soils; heritage 
resources; public safety; recreation; roads and access; and scenic and 
visual resources. The level of review of the identified resources for 
the environmental impact statement will be commensurate with the 
anticipated effects to each resource and will be governed by the 
statutory or regulatory requirements protecting those resources.

Lead and Cooperating Agencies

    The U.S. Department of Agriculture's Forest Service is the lead 
agency. U.S. Army Corps of Engineers and U.S. Geological Survey will 
likely be cooperating agencies; work is ongoing to complete cooperating 
agency agreements.

Responsible Official

    The Responsible Official is the Gifford Pinchot National Forest 
Supervisor.

Scoping Comments and the Objection Process

    This notice of intent initiates the scoping process, which guides 
the development of the environmental impact statement. The Agency is 
requesting comments on potential alternatives and impacts, and 
identification of any relevant information, studies, or analyses of any 
kind concerning impacts affecting the quality of the human environment. 
A public scoping meeting will be held at the Cowlitz County Event 
Center located at 1900 7th Avenue, Longview, Washington from 4 to 8 
p.m. on Wednesday October 23, 2024. The Forest Service will accept 
written comments at the scoping meeting.
    Reviewers should provide their comments at such times and in such 
manner that they are useful to the agency's preparation of the final 
environmental impact statement; therefore, comments should be provided 
prior to the close of the comment period and should clearly articulate 
the reviewer's concerns and contentions. Commenting during scoping and 
any other designated opportunity to comment provided by the Responsible 
Official as prescribed by the applicable regulations will also govern 
eligibility to object once the final environmental impact statement and 
draft record of decision has been published. Comments received in 
response to this solicitation, including names and addresses of those 
who comment, will be part of the public record for this proposed 
action. Comments submitted anonymously will be accepted and considered; 
however, they will not be used to establish eligibility for the 
objection process.
    Objections will be accepted only from those who have previously 
submitted specific written comments regarding the proposed Project 
during scoping or other designated opportunity for public comment in 
accordance with 36 CFR 218.5(a). Issues raised in objections must be 
based on previously submitted timely, specific written comments 
regarding the proposed Project unless based on new information arising 
after designated opportunities.

Permits, Licenses or Other Authorizations Required

    A U.S. Army Corps of Engineers Section 408 review and permission 
for any project activities that may cause downstream sedimentation or 
have the potential to affect a U.S. Army Corps of Engineers Civil Works 
project such as the Sediment Retention Structure or levees will be 
required. Depending on project details for the chosen alternative 
Section 401 and Section 404 permits through the U.S. Army Corps of 
Engineers may also be required.

Nature of Decision To Be Made

    Given the purpose and need, the Responsible Official will determine 
whether the proposed actions comply with all applicable laws governing 
Forest Service actions and with the applicable standards and guidelines

[[Page 79511]]

found in the Forest Plan; whether the EIS has sufficient environmental 
analysis to make an informed decision; and whether the proposed action 
meets the purpose and need for action. With this information, the 
Responsible Official must decide whether to select the proposed action 
and what, if any, additional actions should be required.

Substantive Provisions

    Guidance for management of the Monument comes from the 1985 Mount 
St. Helens National Volcanic Monument's Comprehensive Management Plan, 
which is fully incorporated into the 1990 Gifford Pinchot National 
Forest Land and Resource Management Plan (Forest Plan), as amended by 
the 1994 Record of Decision for Amendments to Forest Service and Bureau 
of Land Management Planning Documents within the Range of the Northern 
Spotted Owl.
    All actions authorized by the Forest Service on National Forest 
System lands must be consistent with the Forest Plan. If a proposed 
project-specific action is not consistent with the Forest Plan, the 
Responsible Official may modify the proposed action to make it 
consistent with the plan, reject the proposed action, or amend the plan 
such that the action will be consistent with the plan, as amended. When 
proposing a forest plan amendment, the planning regulations require the 
Responsible Official to identify in this notice which specific 
substantive requirements (36 CFR 219.8 through 219.11) are directly 
related to the plan direction being modified by the amendment based on 
the purpose of the amendment or the effects of the amendment (36 CFR 
219.13(b)(5)).
    The substantive requirements that are likely directly related to 
the purpose of the forest plan amendments are 36 CFR 219.8(a)(3)(i)(B), 
219.8(a)(3)(i)(G), and 219.8(b)(1).
    An amendment to Management Area A Recreation--Planning and 
Inventory standard and guideline 2 may be needed to allow project 
activities within the Monument and for potential road upgrades along 
the road corridors of FS-99 and FR-25 to exceed the Retention VQO 
during project implementation. The substantive requirements that are 
likely directly related to the effects of this forest plan amendment 
are 36 CFR 219.8(b)(2), 219.10(a)(1), and 219.10(b)(1)(i).
    An amendment to Management Area A Recreation--Use Administration 
standard and guideline 2 may be needed to allow for off-road vehicle 
during the summer during project implementation. The substantive 
requirements that are likely directly related to the effects of this 
forest plan amendment are 36 CFR 219.8(a)(2)(ii), 219.10(a)(1), and 
219.10(a)(5).
    An amendment to Management Area A Facilities--Road Operations 
standard and guideline 1 may be needed to add National Forest System 
road(s) in the area. The substantive requirement that is likely 
directly related to the effects of this forest plan amendment is 36 CFR 
219.10(a)(3).
    An amendment to Management Area A Facilities--Road Operations 
standards and guidelines 2 and 3 may be needed to allow for road and 
off-road vehicle use on Deer and Elk Winter Range from December 1 to 
April 1 during project implementation. The substantive requirements 
that are likely directly related to the effects of this forest plan 
amendment are 36 CFR 219.9(a)(1), 219.10(a)(1), and 219.10(a)(5).

Keith Lannom,
Associate Deputy Chief, National Forest System.
[FR Doc. 2024-22159 Filed 9-27-24; 8:45 am]
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