81_FR_22148 81 FR 22076 - Southline Transmission Line Project Environmental Impact Statement

81 FR 22076 - Southline Transmission Line Project Environmental Impact Statement

DEPARTMENT OF ENERGY
Western Area Power Administration

Federal Register Volume 81, Issue 72 (April 14, 2016)

Page Range22076-22078
FR Document2016-08620

The Western Area Power Administration (Western) and the U.S. Bureau of Land Management (BLM), acting as joint lead agencies, issued the Proposed Southline Transmission Line Project (Project) Final Environmental Impact Statement (EIS) (DOE/EIS-0474) on November 6, 2015. The Agency Preferred Alternative developed by Western and the BLM through the National Environmental Policy Act (NEPA) process and described in the Final EIS is summarized in this Record of Decision (ROD). This alternative is also the Environmentally Preferred Alternative for most of the Project. One segment in the New Build Section and some local alternatives in the Upgrade Section were selected that reduce substantial existing resource conflicts while creating only minor new impacts. All practicable means to avoid or minimize environmental harm have been adopted. Since the BLM and Western were joint lead agencies in the preparation of the EIS, each agency will issue its own ROD(s) addressing the overall Project and the specific matters within its jurisdiction and authority. This ROD constitutes Western's decision with respect to the alternatives considered in the Final EIS. Western has selected the Agency Preferred Alternative identified in the Final EIS as the route for the Project. This decision on the route will enable design and engineering activities to proceed. This ROD also commits Western and Southline Transmission, LLC (Southline) to implement the proponent-committed environmental measures (PCEMs) identified in table 2-8, Project PCEMs by Resource, of the Final EIS. Selection of the Agency Preferred Alternative will also allow detailed Project costs to be developed, which are necessary for future participation and financing decisions. This ROD does not make decisions about Western's participation in the Project or financing. Those decisions are contingent on the successful development of participation agreements and financial underwriting, and would be recorded in a second ROD.

Federal Register, Volume 81 Issue 72 (Thursday, April 14, 2016)
[Federal Register Volume 81, Number 72 (Thursday, April 14, 2016)]
[Notices]
[Pages 22076-22078]
From the Federal Register Online  [www.thefederalregister.org]
[FR Doc No: 2016-08620]



[[Page 22076]]

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DEPARTMENT OF ENERGY

Western Area Power Administration

[DOE/EIS-0474]


Southline Transmission Line Project Environmental Impact 
Statement

AGENCY: Western Area Power Administration, DOE.

ACTION: Record of decision.

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SUMMARY: The Western Area Power Administration (Western) and the U.S. 
Bureau of Land Management (BLM), acting as joint lead agencies, issued 
the Proposed Southline Transmission Line Project (Project) Final 
Environmental Impact Statement (EIS) (DOE/EIS-0474) on November 6, 
2015. The Agency Preferred Alternative developed by Western and the BLM 
through the National Environmental Policy Act (NEPA) process and 
described in the Final EIS is summarized in this Record of Decision 
(ROD). This alternative is also the Environmentally Preferred 
Alternative for most of the Project. One segment in the New Build 
Section and some local alternatives in the Upgrade Section were 
selected that reduce substantial existing resource conflicts while 
creating only minor new impacts. All practicable means to avoid or 
minimize environmental harm have been adopted.
    Since the BLM and Western were joint lead agencies in the 
preparation of the EIS, each agency will issue its own ROD(s) 
addressing the overall Project and the specific matters within its 
jurisdiction and authority. This ROD constitutes Western's decision 
with respect to the alternatives considered in the Final EIS.
    Western has selected the Agency Preferred Alternative identified in 
the Final EIS as the route for the Project. This decision on the route 
will enable design and engineering activities to proceed. This ROD also 
commits Western and Southline Transmission, LLC (Southline) to 
implement the proponent-committed environmental measures (PCEMs) 
identified in table 2-8, Project PCEMs by Resource, of the Final EIS. 
Selection of the Agency Preferred Alternative will also allow detailed 
Project costs to be developed, which are necessary for future 
participation and financing decisions. This ROD does not make decisions 
about Western's participation in the Project or financing. Those 
decisions are contingent on the successful development of participation 
agreements and financial underwriting, and would be recorded in a 
second ROD.

FOR FURTHER INFORMATION CONTACT: For information on Western's 
participation in the Project contact Stacey Harris, Public Utilities 
Specialist, Transmission Infrastructure Program (TIP) Office A0700, 
Headquarters Office, Western Area Power Administration, P.O. Box 
281213, Lakewood, CO 80228-8213, telephone (720) 962-7714, facsimile 
(720) 962-7083, email [email protected]. For information about the 
Project EIS process or to request a CD of the document, contact Mark J. 
Wieringa, NEPA Document Manager, Natural Resources Office A7400, 
Headquarters Office, Western Area Power Administration, P.O. Box 
281213, Lakewood, CO 80228-8213, telephone (720) 962-7448, facsimile 
(720) 962-7263, email [email protected]. The Final EIS, this ROD, and 
other Project documents are also available on the Project Web site at 
http://www.blm.gov/nm/southline.
    For general information on the Department of Energy (DOE) NEPA 
process, please contact Carol M. Borgstrom, Director, Office of NEPA 
Policy and Compliance (GC-54), U.S. Department of Energy, 1000 
Independence Avenue SW., Washington, DC 20585, telephone (202) 586-4600 
or (800) 472-2756.

SUPPLEMENTARY INFORMATION: Southline, a subsidiary of Hunt Power, LP, 
is the Project proponent. Black Forest Partners, LP, is the manager for 
the Project. In March 2011, Southline submitted a Statement of Interest 
to Western for consideration of its Project. As part of their Project, 
Southline proposed the upgrade of approximately 120 miles of Western's 
existing Saguaro-Tucson and Tucson-Apache 115-kilovolt (kV) single-
circuit transmission lines to a double-circuit 230-kV transmission line 
(Upgrade Section) using existing rights-of-way (ROWs). The New Build 
Section of the Project would include 240 miles of new 345-kV double-
circuit transmission line on new ROWs between Afton Substation in New 
Mexico and Apache Substation in Arizona. In addition, Southline 
requested that Western consider providing financing for the Project 
using the borrowing authority provided to Western under the American 
Recovery and Reinvestment Act of 2009 amendment of the Hoover Power 
Plant Act of 1984. Southline's proposal prompted Western to initiate an 
EIS process to determine the environmental impacts of the Project and 
alternatives to inform Western's decisions regarding the Project.
    Southline also filed a ROW application with the BLM pursuant to 
Title V of the Federal Land Policy and Management Act of 1976, as 
amended, proposing to construct, operate, maintain, and eventually 
decommission a high-voltage electric transmission line on land managed 
by the BLM. The BLM initiated its own NEPA process to address whether 
to grant a ROW permit. Because both agencies had NEPA decisions to 
consider, Western and the BLM agreed to be joint lead agencies in 
accordance with NEPA, 40 CFR 1501.5(b), for the purpose of preparing 
the EIS for the Project. The agencies issued the Final EIS for the 
Project on November 6, 2015. Each agency will issue its own ROD(s) 
addressing the overall Project and the specific matters within its 
jurisdiction and authority. This ROD constitutes Western's decision 
with respect to the alternatives considered in the Final EIS.

Project Description

    The Project includes:
    The New Build Section (Afton-Apache), which includes construction 
and operation of:
     Approximately 205 miles of 345-kV double-circuit electric 
transmission line in New Mexico and Arizona with a planned 
bidirectional capacity of up to 1,000 MW. This section is defined by 
endpoints at the existing Afton Substation, south of Las Cruces in 
Do[ntilde]a Ana County, New Mexico, and the existing Apache Substation, 
south of Willcox in Cochise County, Arizona;
     Approximately 5 miles of 345-kV single-circuit electric 
transmission line between the existing Afton Substation and the 
existing Luna-Diablo 345-kV transmission line. This segment of the 
Project is included in the analysis, but development of this segment 
would be determined at a later date;
     Approximately 30 miles of 345-kV double-circuit electric 
transmission line between New Mexico State Route 9 and Interstate 10 
east of Deming in Luna County, New Mexico, to provide access for 
potential renewable energy generation sources in southern New Mexico. 
This segment of the Project is included in the analysis, but 
development of this segment would be determined at a later date;
     A new substation in Luna County, New Mexico (proposed 
Midpoint Substation), to provide an intermediate connection point for 
future interconnection requests; and
     Substation expansion for installation of new 
communications equipment at, and connection to, two existing 
substations in New Mexico and one in Arizona.
    The Upgrade Section (Apache-Saguaro), which would replace and

[[Page 22077]]

upgrade a portion of Western's transmission system and includes:
     Replacing 120 miles of Western's existing Saguaro-Tucson 
and Tucson-Apache 115-kV single-circuit wood-pole H-frame electric 
transmission lines with a 230-kV double-circuit electric steel-pole 
transmission line. This section is defined by endpoints at the existing 
Apache Substation, south of Willcox in Cochise County, Arizona, to the 
existing Saguaro Substation, northwest of Tucson in Pima County, 
Arizona;
     Approximately 2 miles of new-build double-circuit 230-kV 
electric transmission line to interconnect with the existing Tucson 
Electric Power Company Vail Substation located southeast of Tucson and 
just north of the existing 115-kV Tucson-Apache line; and
     Connection to and upgrading, modification, and expansion 
of 12 existing substations in southern Arizona, including installation 
of new bays, transformers, breakers, switches, communications 
equipment, and related facilities associated with the voltage increase 
and compatibility with existing substations. Depending on design and 
engineering considerations, some substation expansions may require 
separate yards.

Alternatives

    Based on a series of public meetings, routing workshops and 
meetings with local, State, and other Federal agencies prior to 
developing their Project, Southline published a Project routing study 
(April 2012). Many different route segments were identified and 
analyzed during this process. The route segments were designed to 
maximize the paralleling of existing linear infrastructure, maximize 
use of existing access roads, and identify and reject route segments 
with substantial environmental conflicts. This process resulted in a 
`Proponent Preferred' or northern route, and a `Proponent Alternative' 
or southern route, for the New Build Section. Although other options 
were considered, rebuilding the existing Western lines was the only 
option that preserved connectivity with the 12 existing substations in 
southern Arizona, an important feature of the Project.
    Southline presented the Proponent Preferred and Proponent 
Alternative routes to the BLM with their application for a ROW grant 
and these alternatives were analyzed in the NEPA process. Because 
Western and BLM participated in Southline's routing study and public 
outreach, they each understood why various route segments were selected 
and rejected. Both agencies analyzed both of the Southline proponent 
alternatives and the No Action Alternative, and used the NEPA process 
to identify other potentially reasonable, viable alternatives. Due to 
Southline's thorough routing process, extensive stakeholder outreach, 
and early route screening with Western and the BLM, agency alternatives 
developed through the NEPA process resulted in only small route 
variations which could potentially reduce or avoid local resource 
conflicts.
    The 360-mile-long Project was divided into four `route groups', two 
in the New Build Section and two in the Upgrade Section, with Apache 
Substation in Arizona being the point separating the two sections and 
route groups 1 and 2 from route groups 3 and 4. Within the four route 
groups various sub-routes including segments of the Proponent Preferred 
and Proponent Alternative were identified. Some of the sub-routes also 
include local alternatives that were departures from the proponent 
alternatives due to potential resource conflicts or opportunities 
identified during the NEPA process. The agencies' alternatives analyses 
did not result in major new alternatives but did identify local 
alternatives and route variations that avoided or reduced localized 
resource conflicts. The division of the Project into smaller sections 
provided a framework for a more meaningful and localized comparison of 
resource impacts and provided the agencies with the ability to `mix and 
match' route segments to create multiple full-length alternatives.

Agency Preferred Alternative

    The Agency Preferred Alternative developed in the Final EIS varies 
somewhat from the one described in the Draft EIS due to consideration 
and incorporation of comments from the public, interested parties and 
the agencies. In the New Build Section, the Agency Preferred 
Alternative consists of a combination of the Proponent Preferred, 
Proponent Alternative, and local alternative segments. Draft EIS local 
alternative LD4 would have included the shared use of approximately 50 
miles of ROW with the proposed SunZia Project to consolidate linear 
facility impacts into one utility corridor, an important BLM management 
objective. However, a Western Electricity Coordinating Council Regional 
Business Practice standard requires separation between large, main 
system transmission lines, which could largely negate the environmental 
benefits of constructing transmission lines in adjacent ROWs. 
Additionally, if one line were not constructed, the remaining line 
would traverse previously undeveloped land and create a new utility 
corridor of its own, precisely the situation the BLM is trying to 
prevent by consolidating development. Accordingly, the Agency Preferred 
Alternative in the Final EIS was shifted south to another route segment 
that parallels an existing natural gas pipeline ROW.
    Both the Department of Defense and the Arizona Game and Fish 
Department (AZGFD) expressed concerns about alternatives in the area 
near Willcox Playa and north and east of Apache Substation. The route 
selected in the Draft EIS that runs parallel to an existing 
transmission line east of the playa presented conflicts with wintering 
sandhill cranes and waterfowl, and routes to Apache Substation on the 
west side of the playa conflicted with activities on the Buffalo 
Soldier Electronic Testing Range. Options east of developed 
agricultural areas near the playa that turned directly west to enter 
Apache Substation were prepared and analyzed, but were found to 
conflict with agricultural interests. Ultimately, mitigation of 
potential effects on sandhill cranes and waterfowl acceptable to the 
AZGFD was agreed upon and the route on the east side of the Willcox 
Playa that was originally included as part of the Agency Preferred 
Alternative was retained.
    The Agency Preferred Alternative for the Upgrade Section consists 
of a combination of the Proponent Preferred, a route variation south of 
the Tucson International Airport, and local alternatives at Tumamoc 
Hill and near the Marana Airport. The Agency Preferred Alternative 
maximizes the use of existing Western ROWs for the Saguaro-Tucson and 
Tucson-Apache transmission lines while also addressing existing impacts 
and opportunities where appropriate. The route skirts the edge of the 
culturally and visually sensitive Tumamoc Hill property and allows the 
removal of the section of existing line that crosses through the middle 
of the property, relocates a portion of the existing line to facilitate 
Pima County future development plans south of Tucson International 
Airport, relocates a segment of existing line out of the Summit 
community where development is encroaching on the ROW, and relocates a 
segment of existing line near the Marana Airport to reduce conflicts 
with military training operations.

Environmentally Preferred Alternative

    Except for one segment the Environmentally Preferred Alternative 
for the New Build Section is the same

[[Page 22078]]

as the Agency Preferred Alternative. This is due to the emphasis placed 
on routing the Project to parallel existing linear infrastructure and 
consolidating development to the maximum extent possible. Consolidation 
also maximizes the opportunity to use existing access roads for the 
Project. This approach minimizes new disturbance and, in turn, 
environmental impacts.
    The Environmentally Preferred Alternative for the Upgrade Section 
involves an upgrade of the existing single-circuit 115-kV wood pole 
lines and use of the existing Western ROWs for the entire length of the 
section from Apache Substation to Saguaro Substation. The existing 
lines have been operated and maintained for over 60 years and have 
well-established access roads. New construction disturbance would be 
minimal and little or no new impacts to environmental resources would 
occur except that new monopole steel structures would be taller and 
have an incrementally larger visual impact. Any existing impacts on the 
human environment are already included in the baseline condition.
    Responsible transmission planning also looks for opportunities to 
reduce existing impacts or address changing attitudes about the values 
and weights of impacts. Each of the three local alternatives included 
in the Agency Preferred Alternative would have associated new 
environmental impacts, but in each case it was determined that the 
reduction in present or future conflicts more than offset the new 
impacts.
    Minimization of environmental impacts was an integral part of 
Project routing and planning, and all practicable means have been 
adopted to avoid or minimize environmental harm. Table 2-8 in section 
2.4.6, Typical Design Features and Agency Mitigation Measures, of the 
Final EIS is a compilation of PCEMs that would be implemented to 
minimize impacts. If the Project moves into the construction phase, 
this table will be incorporated into the construction contract to 
ensure the PCEMs are an integral part of the construction process. The 
PCEMs include design features that minimize impacts, agency identified 
best management practices, known regulatory and permit requirements, 
and other project-specific measures developed during the EIS process. 
As described in section 2.4.1 of the Final EIS, Site Preparation and 
Preconstruction Activities, Southline and the BLM have developed an 
extensive Plan of Development (Appendix N to the Final EIS). Numerous 
framework plans (appendices to the Plan of Development) are being 
developed that include specific best management practices and resource 
protection measures that condition the ROW grant. The Plan of 
Development only applies to activities on BLM-managed public lands. 
Western may implement applicable provisions of the Plan of Development 
and its attached framework plans on State and private lands as 
appropriate.

Changes to Final EIS

    The Town of Marana, Arizona, in consultation with the AZGFD, 
requested that a clarification be made to PCEM in table 2-8 concerning 
a bat colony under the Ina Road bridge. The agencies are incorporating 
the requested clarification in the BLM Plan of Development and table 2-
8. The revised language will read as follows: ``To avoid impacting 
roosting bats at the Ina Road bridge, blasting activities will be 
restricted to less than 130 decibels (dB) at the project site if 
possible, and if that is not possible, then blasting activities will 
occur at night after most bats have left their roost. No blasting will 
occur in April or May when the maternity colony is present.''
    The Benson/San Pedro Valley Chamber of Commerce and J-6/Mescal 
Community Development Organization also raised questions after the 
Final EIS was published. Both parties indicated a preference for Local 
Alternative H, a route developed for analysis based on public comment. 
Local Alternative H departs from the existing alignment and bypasses 
Benson and the Mescal residential development on the north before 
rejoining the existing alignment east of Benson and the Mescal 
residential development. The parties raised concerns about visual 
impacts, EMF, and future development in the area, which were all 
analyzed in the EIS. Local Alternative H was not selected as part of 
the Agency Preferred Alternative. The existing transmission line has 
been in place since the early 1950s, and development has been planned 
around the existing ROW. Moving to Local Alternative H would only shift 
impacts from one set of landowners to a new set of landowners. 
Additionally, staying on the existing ROW would use the existing 
crossing of the San Pedro River, a sensitive environmental resource. 
The issues expressed by the parties do not present any significant new 
circumstances or information relevant to environmental concerns.

Section 7 and Section 106 Consultation

    The BLM, as the main affected Federal land management agency, 
retained the lead role for Section 7 and Section 106 consultation. 
Consultation with the U.S. Fish and Wildlife Service resulted in the 
issuance of a final Biological Opinion on November 10, 2015. The 
requirements of the Biological Opinion will apply to the entire 
Project, whether on BLM managed land or not. The Biological Opinion is 
provided as Appendix M of the Final EIS and can also be found on the 
Project Web site. Western also participated as an invited signatory in 
the Section 106 process, which led to a Programmatic Agreement that 
will govern Section 106 actions as they apply to the Project. The 
Programmatic Agreement, Appendix L of the Final EIS, is also posted on 
the Project Web site.

Western's Decision

    Informed by the analyses and environmental impacts documented in 
the Final EIS, Western has selected \1\ the Agency Preferred 
Alternative identified in the Final EIS as the route for the Project. 
The Agency Preferred Alternative route will be the basis for design and 
engineering activities that will finalize the centerline, ROW, and 
access road locations, particularly in the New Build Section. 
Additionally, this ROD commits Western and Southline to implement the 
PCEMs identified in the Final EIS in table 2-8 to minimize 
environmental impacts. Selection of the Agency Preferred Alternative 
will also allow detailed Project costs to be developed, which are 
necessary for future participation and financing decisions. These 
decisions are contingent on the successful development of participation 
agreements and financial underwriting, and would be recorded in a 
second ROD. Participation and financing agreements will address Project 
details such as interconnections, ownership, operations, maintenance, 
marketing, financing, and land acquisition.
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    \1\ On November 16, 2011, DOE's Acting General Counsel restated 
the delegation to Western's Administrator all the authorities of the 
General Counsel respecting environmental impact statements.
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    This ROD was prepared in accordance with the requirements of the 
Council on Environmental Quality regulations for implementing NEPA (40 
CFR parts 1500 through 1508) and U.S. Department of Energy NEPA 
regulations (10 CFR part 1021).

    Dated: April 5, 2016.
Mark A. Gabriel,
Administrator.
[FR Doc. 2016-08620 Filed 4-13-16; 8:45 am]
 BILLING CODE 6450-01-P



                                                  22076                         Federal Register / Vol. 81, No. 72 / Thursday, April 14, 2016 / Notices

                                                  DEPARTMENT OF ENERGY                                    FOR FURTHER INFORMATION CONTACT:      For             Title V of the Federal Land Policy and
                                                                                                          information on Western’s participation                Management Act of 1976, as amended,
                                                  Western Area Power Administration                       in the Project contact Stacey Harris,                 proposing to construct, operate,
                                                  [DOE/EIS–0474]                                          Public Utilities Specialist, Transmission             maintain, and eventually decommission
                                                                                                          Infrastructure Program (TIP) Office                   a high-voltage electric transmission line
                                                  Southline Transmission Line Project                     A0700, Headquarters Office, Western                   on land managed by the BLM. The BLM
                                                  Environmental Impact Statement                          Area Power Administration, P.O. Box                   initiated its own NEPA process to
                                                                                                          281213, Lakewood, CO 80228–8213,                      address whether to grant a ROW permit.
                                                  AGENCY:  Western Area Power                             telephone (720) 962–7714, facsimile                   Because both agencies had NEPA
                                                  Administration, DOE.                                    (720) 962–7083, email sharris@                        decisions to consider, Western and the
                                                  ACTION: Record of decision.                             wapa.gov. For information about the                   BLM agreed to be joint lead agencies in
                                                  SUMMARY:   The Western Area Power                       Project EIS process or to request a CD                accordance with NEPA, 40 CFR
                                                  Administration (Western) and the U.S.                   of the document, contact Mark J.                      1501.5(b), for the purpose of preparing
                                                  Bureau of Land Management (BLM),                        Wieringa, NEPA Document Manager,                      the EIS for the Project. The agencies
                                                  acting as joint lead agencies, issued the               Natural Resources Office A7400,                       issued the Final EIS for the Project on
                                                  Proposed Southline Transmission Line                    Headquarters Office, Western Area                     November 6, 2015. Each agency will
                                                  Project (Project) Final Environmental                   Power Administration, P.O. Box 281213,                issue its own ROD(s) addressing the
                                                  Impact Statement (EIS) (DOE/EIS–0474)                   Lakewood, CO 80228–8213, telephone                    overall Project and the specific matters
                                                  on November 6, 2015. The Agency                         (720) 962–7448, facsimile (720) 962–                  within its jurisdiction and authority.
                                                  Preferred Alternative developed by                      7263, email wieringa@wapa.gov. The                    This ROD constitutes Western’s
                                                  Western and the BLM through the                         Final EIS, this ROD, and other Project                decision with respect to the alternatives
                                                  National Environmental Policy Act                       documents are also available on the                   considered in the Final EIS.
                                                  (NEPA) process and described in the                     Project Web site at http://www.blm.gov/               Project Description
                                                  Final EIS is summarized in this Record                  nm/southline.
                                                                                                             For general information on the                        The Project includes:
                                                  of Decision (ROD). This alternative is                                                                           The New Build Section (Afton-
                                                  also the Environmentally Preferred                      Department of Energy (DOE) NEPA
                                                                                                          process, please contact Carol M.                      Apache), which includes construction
                                                  Alternative for most of the Project. One                                                                      and operation of:
                                                                                                          Borgstrom, Director, Office of NEPA
                                                  segment in the New Build Section and
                                                                                                          Policy and Compliance (GC–54), U.S.                      • Approximately 205 miles of 345-kV
                                                  some local alternatives in the Upgrade                                                                        double-circuit electric transmission line
                                                  Section were selected that reduce                       Department of Energy, 1000
                                                                                                          Independence Avenue SW.,                              in New Mexico and Arizona with a
                                                  substantial existing resource conflicts                                                                       planned bidirectional capacity of up to
                                                  while creating only minor new impacts.                  Washington, DC 20585, telephone (202)
                                                                                                          586–4600 or (800) 472–2756.                           1,000 MW. This section is defined by
                                                  All practicable means to avoid or                                                                             endpoints at the existing Afton
                                                  minimize environmental harm have                        SUPPLEMENTARY INFORMATION: Southline,
                                                                                                                                                                Substation, south of Las Cruces in Doña
                                                  been adopted.                                           a subsidiary of Hunt Power, LP, is the                Ana County, New Mexico, and the
                                                     Since the BLM and Western were                       Project proponent. Black Forest                       existing Apache Substation, south of
                                                  joint lead agencies in the preparation of               Partners, LP, is the manager for the                  Willcox in Cochise County, Arizona;
                                                  the EIS, each agency will issue its own                 Project. In March 2011, Southline                        • Approximately 5 miles of 345-kV
                                                  ROD(s) addressing the overall Project                   submitted a Statement of Interest to                  single-circuit electric transmission line
                                                  and the specific matters within its                     Western for consideration of its Project.             between the existing Afton Substation
                                                  jurisdiction and authority. This ROD                    As part of their Project, Southline                   and the existing Luna-Diablo 345-kV
                                                  constitutes Western’s decision with                     proposed the upgrade of approximately                 transmission line. This segment of the
                                                  respect to the alternatives considered in               120 miles of Western’s existing Saguaro-              Project is included in the analysis, but
                                                  the Final EIS.                                          Tucson and Tucson-Apache 115-                         development of this segment would be
                                                     Western has selected the Agency                      kilovolt (kV) single-circuit transmission             determined at a later date;
                                                  Preferred Alternative identified in the                 lines to a double-circuit 230-kV                         • Approximately 30 miles of 345-kV
                                                  Final EIS as the route for the Project.                 transmission line (Upgrade Section)                   double-circuit electric transmission line
                                                  This decision on the route will enable                  using existing rights-of-way (ROWs).                  between New Mexico State Route 9 and
                                                  design and engineering activities to                    The New Build Section of the Project                  Interstate 10 east of Deming in Luna
                                                  proceed. This ROD also commits                          would include 240 miles of new 345-kV                 County, New Mexico, to provide access
                                                  Western and Southline Transmission,                     double-circuit transmission line on new               for potential renewable energy
                                                  LLC (Southline) to implement the                        ROWs between Afton Substation in New                  generation sources in southern New
                                                  proponent-committed environmental                       Mexico and Apache Substation in                       Mexico. This segment of the Project is
                                                  measures (PCEMs) identified in table 2–                 Arizona. In addition, Southline                       included in the analysis, but
                                                  8, Project PCEMs by Resource, of the                    requested that Western consider                       development of this segment would be
                                                  Final EIS. Selection of the Agency                      providing financing for the Project using             determined at a later date;
                                                  Preferred Alternative will also allow                   the borrowing authority provided to                      • A new substation in Luna County,
                                                  detailed Project costs to be developed,                 Western under the American Recovery                   New Mexico (proposed Midpoint
                                                  which are necessary for future                          and Reinvestment Act of 2009                          Substation), to provide an intermediate
                                                  participation and financing decisions.                  amendment of the Hoover Power Plant                   connection point for future
mstockstill on DSK4VPTVN1PROD with NOTICES




                                                  This ROD does not make decisions                        Act of 1984. Southline’s proposal                     interconnection requests; and
                                                  about Western’s participation in the                    prompted Western to initiate an EIS                      • Substation expansion for
                                                  Project or financing. Those decisions are               process to determine the environmental                installation of new communications
                                                  contingent on the successful                            impacts of the Project and alternatives               equipment at, and connection to, two
                                                  development of participation                            to inform Western’s decisions regarding               existing substations in New Mexico and
                                                  agreements and financial underwriting,                  the Project.                                          one in Arizona.
                                                  and would be recorded in a second                          Southline also filed a ROW                            The Upgrade Section (Apache-
                                                  ROD.                                                    application with the BLM pursuant to                  Saguaro), which would replace and


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                                                                                Federal Register / Vol. 81, No. 72 / Thursday, April 14, 2016 / Notices                                           22077

                                                  upgrade a portion of Western’s                          both of the Southline proponent                       constructed, the remaining line would
                                                  transmission system and includes:                       alternatives and the No Action                        traverse previously undeveloped land
                                                     • Replacing 120 miles of Western’s                   Alternative, and used the NEPA process                and create a new utility corridor of its
                                                  existing Saguaro-Tucson and Tucson-                     to identify other potentially reasonable,             own, precisely the situation the BLM is
                                                  Apache 115-kV single-circuit wood-pole                  viable alternatives. Due to Southline’s               trying to prevent by consolidating
                                                  H-frame electric transmission lines with                thorough routing process, extensive                   development. Accordingly, the Agency
                                                  a 230-kV double-circuit electric steel-                 stakeholder outreach, and early route                 Preferred Alternative in the Final EIS
                                                  pole transmission line. This section is                 screening with Western and the BLM,                   was shifted south to another route
                                                  defined by endpoints at the existing                    agency alternatives developed through                 segment that parallels an existing
                                                  Apache Substation, south of Willcox in                  the NEPA process resulted in only small               natural gas pipeline ROW.
                                                  Cochise County, Arizona, to the existing                route variations which could potentially                 Both the Department of Defense and
                                                  Saguaro Substation, northwest of                        reduce or avoid local resource conflicts.             the Arizona Game and Fish Department
                                                  Tucson in Pima County, Arizona;                            The 360-mile-long Project was                      (AZGFD) expressed concerns about
                                                     • Approximately 2 miles of new-                      divided into four ‘route groups’, two in              alternatives in the area near Willcox
                                                  build double-circuit 230-kV electric                    the New Build Section and two in the                  Playa and north and east of Apache
                                                  transmission line to interconnect with                  Upgrade Section, with Apache                          Substation. The route selected in the
                                                  the existing Tucson Electric Power                      Substation in Arizona being the point                 Draft EIS that runs parallel to an
                                                  Company Vail Substation located                         separating the two sections and route                 existing transmission line east of the
                                                  southeast of Tucson and just north of                   groups 1 and 2 from route groups 3 and                playa presented conflicts with wintering
                                                  the existing 115-kV Tucson-Apache                       4. Within the four route groups various               sandhill cranes and waterfowl, and
                                                  line; and                                               sub-routes including segments of the                  routes to Apache Substation on the west
                                                     • Connection to and upgrading,                       Proponent Preferred and Proponent                     side of the playa conflicted with
                                                  modification, and expansion of 12                       Alternative were identified. Some of the              activities on the Buffalo Soldier
                                                  existing substations in southern                        sub-routes also include local                         Electronic Testing Range. Options east
                                                  Arizona, including installation of new                  alternatives that were departures from                of developed agricultural areas near the
                                                  bays, transformers, breakers, switches,                 the proponent alternatives due to                     playa that turned directly west to enter
                                                  communications equipment, and related                   potential resource conflicts or                       Apache Substation were prepared and
                                                  facilities associated with the voltage                  opportunities identified during the                   analyzed, but were found to conflict
                                                  increase and compatibility with existing                NEPA process. The agencies’                           with agricultural interests. Ultimately,
                                                  substations. Depending on design and                    alternatives analyses did not result in               mitigation of potential effects on
                                                  engineering considerations, some                        major new alternatives but did identify               sandhill cranes and waterfowl
                                                  substation expansions may require                       local alternatives and route variations               acceptable to the AZGFD was agreed
                                                  separate yards.                                         that avoided or reduced localized                     upon and the route on the east side of
                                                  Alternatives                                            resource conflicts. The division of the               the Willcox Playa that was originally
                                                                                                          Project into smaller sections provided a              included as part of the Agency Preferred
                                                    Based on a series of public meetings,                 framework for a more meaningful and                   Alternative was retained.
                                                  routing workshops and meetings with                     localized comparison of resource                         The Agency Preferred Alternative for
                                                  local, State, and other Federal agencies                impacts and provided the agencies with                the Upgrade Section consists of a
                                                  prior to developing their Project,                      the ability to ‘mix and match’ route                  combination of the Proponent Preferred,
                                                  Southline published a Project routing                   segments to create multiple full-length               a route variation south of the Tucson
                                                  study (April 2012). Many different route                alternatives.                                         International Airport, and local
                                                  segments were identified and analyzed                                                                         alternatives at Tumamoc Hill and near
                                                  during this process. The route segments                 Agency Preferred Alternative                          the Marana Airport. The Agency
                                                  were designed to maximize the                              The Agency Preferred Alternative                   Preferred Alternative maximizes the use
                                                  paralleling of existing linear                          developed in the Final EIS varies                     of existing Western ROWs for the
                                                  infrastructure, maximize use of existing                somewhat from the one described in the                Saguaro-Tucson and Tucson-Apache
                                                  access roads, and identify and reject                   Draft EIS due to consideration and                    transmission lines while also addressing
                                                  route segments with substantial                         incorporation of comments from the                    existing impacts and opportunities
                                                  environmental conflicts. This process                   public, interested parties and the                    where appropriate. The route skirts the
                                                  resulted in a ‘Proponent Preferred’ or                  agencies. In the New Build Section, the               edge of the culturally and visually
                                                  northern route, and a ‘Proponent                        Agency Preferred Alternative consists of              sensitive Tumamoc Hill property and
                                                  Alternative’ or southern route, for the                 a combination of the Proponent                        allows the removal of the section of
                                                  New Build Section. Although other                       Preferred, Proponent Alternative, and                 existing line that crosses through the
                                                  options were considered, rebuilding the                 local alternative segments. Draft EIS                 middle of the property, relocates a
                                                  existing Western lines was the only                     local alternative LD4 would have                      portion of the existing line to facilitate
                                                  option that preserved connectivity with                 included the shared use of                            Pima County future development plans
                                                  the 12 existing substations in southern                 approximately 50 miles of ROW with                    south of Tucson International Airport,
                                                  Arizona, an important feature of the                    the proposed SunZia Project to                        relocates a segment of existing line out
                                                  Project.                                                consolidate linear facility impacts into              of the Summit community where
                                                    Southline presented the Proponent                     one utility corridor, an important BLM                development is encroaching on the
                                                  Preferred and Proponent Alternative                     management objective. However, a                      ROW, and relocates a segment of
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                                                  routes to the BLM with their application                Western Electricity Coordinating                      existing line near the Marana Airport to
                                                  for a ROW grant and these alternatives                  Council Regional Business Practice                    reduce conflicts with military training
                                                  were analyzed in the NEPA process.                      standard requires separation between                  operations.
                                                  Because Western and BLM participated                    large, main system transmission lines,
                                                  in Southline’s routing study and public                 which could largely negate the                        Environmentally Preferred Alternative
                                                  outreach, they each understood why                      environmental benefits of constructing                  Except for one segment the
                                                  various route segments were selected                    transmission lines in adjacent ROWs.                  Environmentally Preferred Alternative
                                                  and rejected. Both agencies analyzed                    Additionally, if one line were not                    for the New Build Section is the same


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                                                  22078                         Federal Register / Vol. 81, No. 72 / Thursday, April 14, 2016 / Notices

                                                  as the Agency Preferred Alternative.                    to the Plan of Development) are being                 retained the lead role for Section 7 and
                                                  This is due to the emphasis placed on                   developed that include specific best                  Section 106 consultation. Consultation
                                                  routing the Project to parallel existing                management practices and resource                     with the U.S. Fish and Wildlife Service
                                                  linear infrastructure and consolidating                 protection measures that condition the                resulted in the issuance of a final
                                                  development to the maximum extent                       ROW grant. The Plan of Development                    Biological Opinion on November 10,
                                                  possible. Consolidation also maximizes                  only applies to activities on BLM-                    2015. The requirements of the Biological
                                                  the opportunity to use existing access                  managed public lands. Western may                     Opinion will apply to the entire Project,
                                                  roads for the Project. This approach                    implement applicable provisions of the                whether on BLM managed land or not.
                                                  minimizes new disturbance and, in                       Plan of Development and its attached                  The Biological Opinion is provided as
                                                  turn, environmental impacts.                            framework plans on State and private                  Appendix M of the Final EIS and can
                                                     The Environmentally Preferred                        lands as appropriate.                                 also be found on the Project Web site.
                                                  Alternative for the Upgrade Section                                                                           Western also participated as an invited
                                                  involves an upgrade of the existing                     Changes to Final EIS
                                                                                                                                                                signatory in the Section 106 process,
                                                  single-circuit 115-kV wood pole lines                      The Town of Marana, Arizona, in                    which led to a Programmatic Agreement
                                                  and use of the existing Western ROWs                    consultation with the AZGFD, requested                that will govern Section 106 actions as
                                                  for the entire length of the section from               that a clarification be made to PCEM in               they apply to the Project. The
                                                  Apache Substation to Saguaro                            table 2–8 concerning a bat colony under               Programmatic Agreement, Appendix L
                                                  Substation. The existing lines have been                the Ina Road bridge. The agencies are                 of the Final EIS, is also posted on the
                                                  operated and maintained for over 60                     incorporating the requested clarification             Project Web site.
                                                  years and have well-established access                  in the BLM Plan of Development and
                                                  roads. New construction disturbance                     table 2–8. The revised language will                  Western’s Decision
                                                  would be minimal and little or no new                   read as follows: ‘‘To avoid impacting                    Informed by the analyses and
                                                  impacts to environmental resources                      roosting bats at the Ina Road bridge,                 environmental impacts documented in
                                                  would occur except that new monopole                    blasting activities will be restricted to             the Final EIS, Western has selected 1 the
                                                  steel structures would be taller and have               less than 130 decibels (dB) at the project
                                                                                                                                                                Agency Preferred Alternative identified
                                                  an incrementally larger visual impact.                  site if possible, and if that is not
                                                                                                                                                                in the Final EIS as the route for the
                                                  Any existing impacts on the human                       possible, then blasting activities will
                                                                                                                                                                Project. The Agency Preferred
                                                  environment are already included in the                 occur at night after most bats have left
                                                                                                                                                                Alternative route will be the basis for
                                                  baseline condition.                                     their roost. No blasting will occur in
                                                                                                                                                                design and engineering activities that
                                                     Responsible transmission planning                    April or May when the maternity colony
                                                                                                                                                                will finalize the centerline, ROW, and
                                                  also looks for opportunities to reduce                  is present.’’
                                                                                                             The Benson/San Pedro Valley                        access road locations, particularly in the
                                                  existing impacts or address changing
                                                                                                          Chamber of Commerce and J–6/Mescal                    New Build Section. Additionally, this
                                                  attitudes about the values and weights
                                                                                                          Community Development Organization                    ROD commits Western and Southline to
                                                  of impacts. Each of the three local
                                                                                                          also raised questions after the Final EIS             implement the PCEMs identified in the
                                                  alternatives included in the Agency
                                                                                                          was published. Both parties indicated a               Final EIS in table 2–8 to minimize
                                                  Preferred Alternative would have
                                                                                                          preference for Local Alternative H, a                 environmental impacts. Selection of the
                                                  associated new environmental impacts,
                                                  but in each case it was determined that                 route developed for analysis based on                 Agency Preferred Alternative will also
                                                  the reduction in present or future                      public comment. Local Alternative H                   allow detailed Project costs to be
                                                  conflicts more than offset the new                      departs from the existing alignment and               developed, which are necessary for
                                                  impacts.                                                bypasses Benson and the Mescal                        future participation and financing
                                                     Minimization of environmental                        residential development on the north                  decisions. These decisions are
                                                  impacts was an integral part of Project                 before rejoining the existing alignment               contingent on the successful
                                                  routing and planning, and all                           east of Benson and the Mescal                         development of participation
                                                  practicable means have been adopted to                  residential development. The parties                  agreements and financial underwriting,
                                                  avoid or minimize environmental harm.                   raised concerns about visual impacts,                 and would be recorded in a second
                                                  Table 2–8 in section 2.4.6, Typical                     EMF, and future development in the                    ROD. Participation and financing
                                                  Design Features and Agency Mitigation                   area, which were all analyzed in the                  agreements will address Project details
                                                  Measures, of the Final EIS is a                         EIS. Local Alternative H was not                      such as interconnections, ownership,
                                                  compilation of PCEMs that would be                      selected as part of the Agency Preferred              operations, maintenance, marketing,
                                                  implemented to minimize impacts. If                     Alternative. The existing transmission                financing, and land acquisition.
                                                  the Project moves into the construction                 line has been in place since the early                   This ROD was prepared in accordance
                                                  phase, this table will be incorporated                  1950s, and development has been                       with the requirements of the Council on
                                                  into the construction contract to ensure                planned around the existing ROW.                      Environmental Quality regulations for
                                                  the PCEMs are an integral part of the                   Moving to Local Alternative H would                   implementing NEPA (40 CFR parts 1500
                                                  construction process. The PCEMs                         only shift impacts from one set of                    through 1508) and U.S. Department of
                                                  include design features that minimize                   landowners to a new set of landowners.                Energy NEPA regulations (10 CFR part
                                                  impacts, agency identified best                         Additionally, staying on the existing                 1021).
                                                  management practices, known                             ROW would use the existing crossing of                 Dated: April 5, 2016.
                                                  regulatory and permit requirements, and                 the San Pedro River, a sensitive                      Mark A. Gabriel,
                                                  other project-specific measures                         environmental resource. The issues                    Administrator.
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                                                  developed during the EIS process. As                    expressed by the parties do not present               [FR Doc. 2016–08620 Filed 4–13–16; 8:45 am]
                                                  described in section 2.4.1 of the Final                 any significant new circumstances or
                                                  EIS, Site Preparation and                                                                                     BILLING CODE 6450–01–P
                                                                                                          information relevant to environmental
                                                  Preconstruction Activities, Southline                   concerns.                                               1 On November 16, 2011, DOE’s Acting General
                                                  and the BLM have developed an
                                                  extensive Plan of Development                           Section 7 and Section 106 Consultation                Counsel restated the delegation to Western’s
                                                                                                                                                                Administrator all the authorities of the General
                                                  (Appendix N to the Final EIS).                            The BLM, as the main affected                       Counsel respecting environmental impact
                                                  Numerous framework plans (appendices                    Federal land management agency,                       statements.



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Document Created: 2018-02-07 13:48:17
Document Modified: 2018-02-07 13:48:17
CategoryRegulatory Information
CollectionFederal Register
sudoc ClassAE 2.7:
GS 4.107:
AE 2.106:
PublisherOffice of the Federal Register, National Archives and Records Administration
SectionNotices
ActionRecord of decision.
ContactFor information on Western's participation in the Project contact Stacey Harris, Public Utilities Specialist, Transmission Infrastructure Program (TIP) Office A0700, Headquarters Office, Western Area Power Administration, P.O. Box 281213, Lakewood, CO 80228-8213, telephone (720) 962-7714, facsimile (720) 962-7083, email [email protected] For information about the Project EIS process or to request a CD of the document, contact Mark J. Wieringa, NEPA Document Manager, Natural Resources Office A7400, Headquarters Office, Western Area Power Administration, P.O. Box 281213, Lakewood, CO 80228-8213, telephone (720) 962-7448, facsimile (720) 962-7263, email [email protected] The Final EIS, this ROD, and other Project documents are also available on the Project Web site at http://www.blm.gov/nm/southline.
FR Citation81 FR 22076 

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