81_FR_60015 81 FR 59846 - When Obstructions on Certain Tributaries of the Tennessee River Do Not Require a Section 26a Permit from the Tennessee Valley Authority

81 FR 59846 - When Obstructions on Certain Tributaries of the Tennessee River Do Not Require a Section 26a Permit from the Tennessee Valley Authority

TENNESSEE VALLEY AUTHORITY

Federal Register Volume 81, Issue 169 (August 31, 2016)

Page Range59846-59849
FR Document2016-20093

The Tennessee Valley Authority (TVA) is issuing guidance stating that certain structures, while obstructions across, along, or in certain tributaries of the Tennessee River, do not need a Section 26a permit from TVA, because they have an indiscernible effect on navigation, flood control or public lands or reservations.

Federal Register, Volume 81 Issue 169 (Wednesday, August 31, 2016)
[Federal Register Volume 81, Number 169 (Wednesday, August 31, 2016)]
[Rules and Regulations]
[Pages 59846-59849]
From the Federal Register Online  [www.thefederalregister.org]
[FR Doc No: 2016-20093]


=======================================================================
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TENNESSEE VALLEY AUTHORITY

18 CFR Part 1304


When Obstructions on Certain Tributaries of the Tennessee River 
Do Not Require a Section 26a Permit from the Tennessee Valley Authority

AGENCY: Tennessee Valley Authority.

ACTION: Interpretive Rule.

-----------------------------------------------------------------------

SUMMARY: The Tennessee Valley Authority (TVA) is issuing guidance 
stating that certain structures, while obstructions across, along, or 
in certain tributaries of the Tennessee River, do not need a Section 
26a permit from TVA, because they have an indiscernible effect on 
navigation, flood control or public lands or reservations.

DATES: Effective August 31, 2016.

FOR FURTHER INFORMATION CONTACT: Rebecca C. Tolene, Vice President, 
Natural Resources, Tennessee Valley Authority, Knoxville, Tennessee 
(865-632-4433).

SUPPLEMENTARY INFORMATION: 

I. Legal Authority

    This interpretive rule is promulgated under the authority of the 
TVA Act, as amended, 16 U.S.C. 831-831ee.

II. Background

    Section 26a of the TVA Act requires that TVA's approval be obtained 
prior to the construction, operation, or maintenance of any dam, 
appurtenant works, or other obstruction affecting navigation, flood 
control, or public lands or reservations across, along, or in the 
Tennessee River or any of its tributaries. 16 U.S.C. 831y-1 (2012). 
TVA's rules governing such approval are codified at 18 CFR part 1304. 
The rules include a permitting process whereby applicants may request 
from TVA a permit for various structures such as boat docks, piers, 
shoreline stabilization projects, dams, and bridges, all of which 
qualify as ``obstructions'' under TVA's regulations. An obstruction is 
generally any man-made physical condition that during its continuance 
after completion impounds, checks, hinders, restricts, retards, 
diverts, or otherwise interferes with the movement of water or of 
objects on or in the water. Over the years, TVA has found that certain 
obstructions because of their location, the nature of their 
construction, or both have not discernibly interfered with the 
operation or management of the TVA reservoir system. In particular, 
this has occurred at locations across, along, or in certain tributary 
reaches that are upstream of the control or influence of TVA's 
reservoir system operations. For the purpose of this rule, these are 
called upstream tributary reaches. At these locations, certain 
obstructions have an indiscernible impact on water surface elevations 
in the reservoir system or the flow or volume of water entering the 
reservoir system and thereby do not materially interfere with TVA's 
flood control or navigation responsibilities. Furthermore, at these 
locations, TVA does not typically own property and therefore 
construction does not affect or interfere with the management of TVA's 
property. These obstructions include, but are not limited to, stream 
bank stabilization, bridges and culverts, stream crossings, fences, 
launching ramps, boat docks, piers, and certain fills and intakes. For 
these reasons, TVA has determined that certain obstructions do not 
require approval pursuant to Section 26a of the TVA Act when located 
across, along, or in an upstream tributary reach of the Tennessee 
River.
    Conversely, based on years of permitting experience, TVA has found 
that other obstructions across, along, or in upstream tributary reaches 
do potentially interfere with the management of TVA's reservoir system. 
These include, but are not limited to, structures such as dams, 
impoundments, interbasin transfers and certain water intakes. TVA will 
continue to require approval of these and other obstructions not set 
forth in Section III of this Interpretive Rule, when located across, 
along, or in an upstream tributary reach.
    The Tennessee River has a 41,000-square-mile drainage basin. 
Thousands of miles of upstream tributary reaches ultimately flow into 
the Tennessee River, making it impractical to identify each upstream 
tributary reach in this rule. For the purpose of this rule, upstream 
tributary reaches do not include the following:
    (1) The Tennessee River;
    (2) TVA reservoirs, (TVA reservoirs are listed in Table 1);
    (3) stream reaches within a TVA reservoir, the 500-year floodplain 
of the Tennessee River, or both;
    (4) stream reaches downstream of a TVA dam (these reaches are 
listed in Table 2); and
    (5) stream reaches where TVA owns property (whether fee-owned 
property or other property right, such as a right to flood) in or 
adjacent to the reach (including property adjacent to a TVA reservoir 
or downstream of a TVA dam).
    TVA will continue to review the proposed construction of 
obstructions located across, along, or in the above-listed five 
categories of reservoirs and reaches. These reservoirs and stream 
reaches are controlled or influenced by the operation of TVA's 
reservoir system. As discussed in more detail below, individual members 
of the public are encouraged to contact a TVA representative for help 
in determining whether their location is across, along, or in a 
reservoir or stream reach in the above-listed five categories or 
across, along, or in an upstream tributary reach.

III. Scope of Interpretive Rule

    TVA hereby clarifies that, going forward, the construction of the 
following obstructions across, along, or in an upstream tributary reach 
of the Tennessee River, does not require a Section 26a permit from TVA:
    (a) Stream bank, bed, or channel stabilization structures--Natural 
or man-made obstructions to stabilize and protect banks, beds, or 
channels of streams or excavated channels (e.g., vegetation, riprap, 
gabions, fiber rolls, stacked rock, retaining walls, etc.);
    (b) Stream restoration, enhancement, relocation, or treatment 
structures--Natural or man-made obstructions for relocating a stream or 
for restoring or improving the stream's function (e.g., weirs or sills, 
boulders, wing deflectors, log, brush, rock, trees, fill, etc.);

[[Page 59847]]

    (c) Bridges and culverts including riprap or other stabilization 
necessary for their construction;
    (d) Stream crossings--A stabilized area or a structure (culvert, 
bridge, or fill) constructed across a stream to provide a travel-way 
for people, livestock, equipment, or vehicles, including riprap or 
other stabilization necessary for their construction;
    (e) Fences, playgrounds, picnic tables, benches, grills, and other 
recreational structures;
    (f) Launching ramps and marine railways;
    (g) Buoys;
    (h) Docks, piers, and other water-use facilities;
    (i) Decks, gazebos, patios, and other open structures;
    (j) Enclosed land-based structures;
    (k) Water intakes with a combined peak withdrawal of less than 
50,000 gallons per day (0.08 cubic feet per second) and having a pipe 
diameter less than 6 inches;
    (l) Towers, poles, electrical panels, satellite antennas, service 
lights, signs, and their anchors and foundations;
    (m) Outfall structures;
    (n) Underground, submarine, or aerial utility pipes and lines and 
their support structures, anchors or foundations;
    (o) Causeways, roads, driveways, and parking lots;
    (p) Grading and fill not involving the construction of a dam or 
impoundment.
    Those considering construction of one or more of the above-listed 
obstructions across, along, or in an upstream tributary reach as 
defined in this rule are not required to submit an application or 
design drawings to TVA for approval of a Section 26a permit.
    Members of the public are responsible for knowing whether their 
proposed construction project is located across, along, or in an 
upstream tributary reach or on TVA property. If your proposed 
obstruction is located on TVA property, in addition to a Section 26a 
permit for the obstruction, approval from TVA to use the property may 
be required. TVA encourages members of the public to seek TVA's help in 
identifying whether a Section 26a permit or TVA approval to use its 
property is necessary. For more information or assistance in 
determining whether your project requires a Section 26a permit, contact 
TVA at 1-800-882-5263 or visit TVA's Web site at tva.com.
    Except as it applies to TVA's regulations implementing Section 26a, 
this interpretive rule is not a substitute for the requirements of any 
federal, state, or local statute, regulation, ordinance, or code, 
including, but not limited to, applicable building codes, now in effect 
or hereafter enacted.
    This guidance reflects TVA's current judgment on the types of 
obstructions that either individually or cumulatively do not affect 
navigation, flood control, or public lands or reservations across, 
along, or in an upstream tributary reach of the Tennessee River. TVA 
may refine this guidance, if circumstances warrant, in a future Federal 
Register notice. This guidance has no effect on whether a permit is 
required by other federal or state agencies.

IV. Definitions

Fee-owned property--Real property owned in fee by the United States 
of America in the custody and control of TVA.
Property--Fee-owned property or other property right, such as a 
right to flood.
Property right--Any legal right acquired or reserved by TVA that 
concerns property, such as a right to flood private property.
Reach--A segment of stream between two locations.
Tennessee River--The river reach from its mouth at the Ohio River to 
its beginning at mile 652, at the confluence of the Holston and 
French Broad Rivers.
Tributary--Any watercourse the contents of which, if not obstructed, 
diverted or consumed, will ultimately flow into the Tennessee River.
TVA reservoir--The impoundment created by a TVA dam constructed 
across the Tennessee River or one of its tributaries (including all 
streams reaches impounded by the dam). One dam may impound reaches 
of more than one stream. The impounded stream reaches together form 
the body of water (i.e., the reservoir) created by the construction 
of the dam. For example, the construction of Douglas Dam impounded a 
portion of the French Broad River as well as many other stream 
reaches, including, but not limited to, portions of Pigeon River, 
Nolichucky River, Flat Creek, Muddy Creek, and Seahorn Creek. All of 
the stream reaches impounded by Douglas Dam comprise Douglas 
Reservoir.
TVA reservoir system--The series of interconnected dams and 
reservoirs, with associated facilities, on the Tennessee River and 
its tributaries, that, with the adjacent TVA property, are managed 
by TVA for purposes of navigation, flood control, and power 
production; and consistent with those purposes, for a wide range of 
other public benefits.
Upstream tributary reach--Stream reaches located upstream of the 
control or influence of the operation of the TVA reservoir system.

    Dated: August 17, 2016.
Rebecca C. Tolene,
Deputy General Counsel and Vice President, Natural Resources.

                         Table 1--TVA Reservoirs
------------------------------------------------------------------------
 
------------------------------------------------------------------------
                       Tennessee River Reservoirs
------------------------------------------------------------------------
Kentucky...............................
Pickwick...............................
Wilson.................................
Wheeler................................
Guntersville...........................
Nickajack..............................
Chickamauga............................
Watts Bar..............................
Fort Loudoun...........................
------------------------------------------------------------------------
                          Tributary Reservoirs
------------------------------------------------------------------------
Apalachia.                               Bear Creek Projects (Alabama):
Beaver Creek (tributary to South Fork       Bear Creek.
 Holston River).                         Cedar Creek.
Blue Ridge.                                 Little Bear Creek.
Boone.                                      Upper Bear Creek.
Chatuge.                                 Beech River Projects (West
                                          Tennessee):
Cherokee.                                   Beech.
Clear Creek (tributary to Beaver Creek,     Cedar.
 tributary to South Fork Holston         Dogwood.
 River).
Doakes Creek (Norris Reservoir).            Lost Creek.

[[Page 59848]]

 
Douglas.                                    Pine.
Fontana.                                    Pin Oak.
Fort Patrick Henry.                         Redbud.
Hiwassee.                                   Sycamore.
John Sevier Detention Dam (just
 upstream of Cherokee Reservoir).
Melton Hill............................
Nolichucky.............................
Normandy...............................
Norris.................................
Nottely................................
Ocoee No. 1............................
Ocoee No. 2............................
Ocoee No. 3............................
South Holston..........................
Tellico................................
Tims Ford..............................
Watauga................................
Wilbur.................................
------------------------------------------------------------------------


             Table 2--Stream Reaches Downstream of TVA dams
------------------------------------------------------------------------
        River or stream            Reach (mile)         Description
------------------------------------------------------------------------
Tennessee River...............  0 to 652.........  Mouth to confluence
                                                    of the Holston and
                                                    French Broad Rivers.
Beaver Creek (tributary to      0 to 22.5........  Mouth to Beaver Creek
 South Fork Holston River).                         Dam.
Clear Creek (tributary to       0 to 2.8.........  Mouth to Clear Creek
 Beaver Creek tributary to                          Dam.
 South Fork Holston River).
Clinch River..................  0 to 79.8........  Mouth to Norris Dam.
Duck River....................  0 to 248.6.......  Mouth to Normandy
                                                    Dam.
Elk River (tributary to         0 to 133.3.......  Mouth to Tims Ford
 Tennessee River).                                  Dam.
French Broad River............  0 to 32.3........  Mouth to Douglas Dam.
Hiwassee River................  0 to 121.0.......  Mouth to Chatuge Dam.
Holston River.................  0 to 142.2.......  Mouth to confluence
                                                    of the North and
                                                    South Fork Holston
                                                    Rivers.
Little Tennessee River \1\....  0 to 61.0........  Mouth to Fontana Dam.
Nolichucky River..............  0 to 45.6........  Mouth to Nolichucky
                                                    Dam.
Nottely River.................  0 to 21.0........  Mouth to Nottely Dam.
Ocoee River...................  0 to 37.8........  Mouth to the Georgia/
                                                    Tennessee State
                                                    Line.
South Fork Holston River......  0 to 49.8........  Mouth to South
                                                    Holston Dam.
Toccoa River..................  0 to 53.0........  The Georgia/Tennessee
                                                    State Line to Blue
                                                    Ridge Dam.
Watauga River.................  0 to 36.7........  Mouth to Watauga Dam.
Bear Creek Projects (Alabama):  .................  .....................
    Bear Creek................  0 to 114.7.......  Mouth to Upper Bear
                                                    Creek Dam.
    Cedar Creek...............  0 to 23.1........  Mouth to Cedar Creek
                                                    Dam.
    Little Bear Creek.........  0 to 11.6........  Mouth to Little Bear
                                                    Creek Dam.
Beech River Projects (West      .................  .....................
 Tennessee):
    Beech River...............  0 to 35.0........  Mouth to Beech Dam.
    Big Creek.................  0 to 6.7.........  Mouth to Dogwood Dam.
    Browns Creek..............  0 to 5.1.........  Mouth to Pin Oak Dam.
    Dry Branch................  0 to 1.1.........  Mouth to Sycamore
                                                    Dam.
    Dry Creek.................  0 to 1.0.........  Mouth to Redbud Dam.
    Haley Creek...............  0 to 4.0.........  Mouth to Cedar Dam.
    Lost Creek................  0 to 1.3.........  Mouth to Lost Creek
                                                    Dam.
    Piney Creek...............  0 to 4.8.........  Mouth to Pine Dam.
------------------------------------------------------------------------
\1\ Brookfield Smoky Mountain Hydro manages Little Tennessee River Miles
  33.6 to 59.1.


[[Page 59849]]

[FR Doc. 2016-20093 Filed 8-30-16; 8:45 am]
 BILLING CODE 8120-08-P



                                           59846            Federal Register / Vol. 81, No. 169 / Wednesday, August 31, 2016 / Rules and Regulations

                                           annual fee, and each person excepted                    II. Background                                        impoundments, interbasin transfers and
                                           from paying an annual fee under                            Section 26a of the TVA Act requires                certain water intakes. TVA will
                                           § 310.4(b)(1)(iii)(B), will be provided a               that TVA’s approval be obtained prior to              continue to require approval of these
                                           unique account number that will allow                   the construction, operation, or                       and other obstructions not set forth in
                                           that person to access the registry data                 maintenance of any dam, appurtenant                   Section III of this Interpretive Rule,
                                           for the selected area codes at any time                 works, or other obstruction affecting                 when located across, along, or in an
                                           for the twelve month period beginning                   navigation, flood control, or public                  upstream tributary reach.
                                           on the first day of the month in which                  lands or reservations across, along, or in               The Tennessee River has a 41,000-
                                           the person paid the fee (‘‘the annual                   the Tennessee River or any of its                     square-mile drainage basin. Thousands
                                           period’’). To obtain access to additional               tributaries. 16 U.S.C. 831y–1 (2012).                 of miles of upstream tributary reaches
                                           area codes of data during the first six                 TVA’s rules governing such approval                   ultimately flow into the Tennessee
                                           months of the annual period, each                       are codified at 18 CFR part 1304. The                 River, making it impractical to identify
                                           person required to pay the fee under                    rules include a permitting process                    each upstream tributary reach in this
                                           paragraph (c) must first pay $61 for each               whereby applicants may request from                   rule. For the purpose of this rule,
                                           additional area code of data not initially              TVA a permit for various structures                   upstream tributary reaches do not
                                           selected. To obtain access to additional                such as boat docks, piers, shoreline                  include the following:
                                           area codes of data during the second six                stabilization projects, dams, and                        (1) The Tennessee River;
                                           months of the annual period, each                       bridges, all of which qualify as                         (2) TVA reservoirs, (TVA reservoirs
                                           person required to pay the fee under                    ‘‘obstructions’’ under TVA’s regulations.             are listed in Table 1);
                                           paragraph (c) must first pay $30 for each               An obstruction is generally any man-                     (3) stream reaches within a TVA
                                           additional area code of data not initially              made physical condition that during its               reservoir, the 500-year floodplain of the
                                           selected. The payment of the additional                 continuance after completion                          Tennessee River, or both;
                                           fee will permit the person to access the                impounds, checks, hinders, restricts,                    (4) stream reaches downstream of a
                                           additional area codes of data for the                   retards, diverts, or otherwise interferes             TVA dam (these reaches are listed in
                                           remainder of the annual period.                         with the movement of water or of                      Table 2); and
                                           *     *     *      *    *                               objects on or in the water. Over the                     (5) stream reaches where TVA owns
                                             By direction of the Commission.                       years, TVA has found that certain                     property (whether fee-owned property
                                           Donald S. Clark,                                        obstructions because of their location,               or other property right, such as a right
                                                                                                   the nature of their construction, or both             to flood) in or adjacent to the reach
                                           Secretary.
                                                                                                   have not discernibly interfered with the              (including property adjacent to a TVA
                                           [FR Doc. 2016–20817 Filed 8–30–16; 8:45 am]
                                                                                                   operation or management of the TVA                    reservoir or downstream of a TVA dam).
                                           BILLING CODE 6750–01–P                                                                                           TVA will continue to review the
                                                                                                   reservoir system. In particular, this has
                                                                                                   occurred at locations across, along, or in            proposed construction of obstructions
                                                                                                   certain tributary reaches that are                    located across, along, or in the above-
                                                                                                   upstream of the control or influence of               listed five categories of reservoirs and
                                           TENNESSEE VALLEY AUTHORITY                                                                                    reaches. These reservoirs and stream
                                                                                                   TVA’s reservoir system operations. For
                                           18 CFR Part 1304                                        the purpose of this rule, these are called            reaches are controlled or influenced by
                                                                                                   upstream tributary reaches. At these                  the operation of TVA’s reservoir system.
                                           When Obstructions on Certain                            locations, certain obstructions have an               As discussed in more detail below,
                                           Tributaries of the Tennessee River Do                   indiscernible impact on water surface                 individual members of the public are
                                           Not Require a Section 26a Permit from                   elevations in the reservoir system or the             encouraged to contact a TVA
                                           the Tennessee Valley Authority                          flow or volume of water entering the                  representative for help in determining
                                                                                                   reservoir system and thereby do not                   whether their location is across, along,
                                           AGENCY:    Tennessee Valley Authority.                  materially interfere with TVA’s flood                 or in a reservoir or stream reach in the
                                           ACTION:   Interpretive Rule.                            control or navigation responsibilities.               above-listed five categories or across,
                                                                                                   Furthermore, at these locations, TVA                  along, or in an upstream tributary reach.
                                           SUMMARY:   The Tennessee Valley                         does not typically own property and                   III. Scope of Interpretive Rule
                                           Authority (TVA) is issuing guidance                     therefore construction does not affect or
                                           stating that certain structures, while                  interfere with the management of TVA’s                   TVA hereby clarifies that, going
                                           obstructions across, along, or in certain               property. These obstructions include,                 forward, the construction of the
                                           tributaries of the Tennessee River, do                  but are not limited to, stream bank                   following obstructions across, along, or
                                           not need a Section 26a permit from                      stabilization, bridges and culverts,                  in an upstream tributary reach of the
                                           TVA, because they have an                               stream crossings, fences, launching                   Tennessee River, does not require a
                                           indiscernible effect on navigation, flood               ramps, boat docks, piers, and certain                 Section 26a permit from TVA:
                                           control or public lands or reservations.                fills and intakes. For these reasons, TVA                (a) Stream bank, bed, or channel
                                           DATES: Effective August 31, 2016.                       has determined that certain obstructions              stabilization structures—Natural or
                                                                                                   do not require approval pursuant to                   man-made obstructions to stabilize and
                                           FOR FURTHER INFORMATION CONTACT:                                                                              protect banks, beds, or channels of
                                                                                                   Section 26a of the TVA Act when
                                           Rebecca C. Tolene, Vice President,                      located across, along, or in an upstream              streams or excavated channels (e.g.,
                                           Natural Resources, Tennessee Valley                     tributary reach of the Tennessee River.               vegetation, riprap, gabions, fiber rolls,
                                           Authority, Knoxville, Tennessee (865–                      Conversely, based on years of                      stacked rock, retaining walls, etc.);
                                           632–4433).                                              permitting experience, TVA has found                     (b) Stream restoration, enhancement,
ehiers on DSK5VPTVN1PROD with RULES




                                           SUPPLEMENTARY INFORMATION:                              that other obstructions across, along, or             relocation, or treatment structures—
                                                                                                   in upstream tributary reaches do                      Natural or man-made obstructions for
                                           I. Legal Authority
                                                                                                   potentially interfere with the                        relocating a stream or for restoring or
                                             This interpretive rule is promulgated                 management of TVA’s reservoir system.                 improving the stream’s function (e.g.,
                                           under the authority of the TVA Act, as                  These include, but are not limited to,                weirs or sills, boulders, wing deflectors,
                                           amended, 16 U.S.C. 831–831ee.                           structures such as dams,                              log, brush, rock, trees, fill, etc.);


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                                                            Federal Register / Vol. 81, No. 169 / Wednesday, August 31, 2016 / Rules and Regulations                                         59847

                                              (c) Bridges and culverts including                     Members of the public are responsible               Property right—Any legal right acquired or
                                           riprap or other stabilization necessary                 for knowing whether their proposed                      reserved by TVA that concerns property,
                                           for their construction;                                 construction project is located across,                 such as a right to flood private property.
                                              (d) Stream crossings—A stabilized                    along, or in an upstream tributary reach              Reach—A segment of stream between two
                                                                                                   or on TVA property. If your proposed                    locations.
                                           area or a structure (culvert, bridge, or
                                                                                                                                                         Tennessee River—The river reach from its
                                           fill) constructed across a stream to                    obstruction is located on TVA property,
                                                                                                                                                           mouth at the Ohio River to its beginning
                                           provide a travel-way for people,                        in addition to a Section 26a permit for                 at mile 652, at the confluence of the
                                           livestock, equipment, or vehicles,                      the obstruction, approval from TVA to                   Holston and French Broad Rivers.
                                           including riprap or other stabilization                 use the property may be required. TVA                 Tributary—Any watercourse the contents of
                                           necessary for their construction;                       encourages members of the public to                     which, if not obstructed, diverted or
                                              (e) Fences, playgrounds, picnic tables,              seek TVA’s help in identifying whether                  consumed, will ultimately flow into the
                                           benches, grills, and other recreational                 a Section 26a permit or TVA approval                    Tennessee River.
                                           structures;                                             to use its property is necessary. For                 TVA reservoir—The impoundment created
                                              (f) Launching ramps and marine                       more information or assistance in                       by a TVA dam constructed across the
                                           railways;                                               determining whether your project                        Tennessee River or one of its tributaries
                                              (g) Buoys;                                           requires a Section 26a permit, contact                  (including all streams reaches impounded
                                                                                                   TVA at 1–800–882–5263 or visit TVA’s                    by the dam). One dam may impound
                                              (h) Docks, piers, and other water-use
                                                                                                   Web site at tva.com.                                    reaches of more than one stream. The
                                           facilities;                                                                                                     impounded stream reaches together form
                                              (i) Decks, gazebos, patios, and other                  Except as it applies to TVA’s
                                                                                                                                                           the body of water (i.e., the reservoir)
                                           open structures;                                        regulations implementing Section 26a,
                                                                                                                                                           created by the construction of the dam. For
                                              (j) Enclosed land-based structures;                  this interpretive rule is not a substitute              example, the construction of Douglas Dam
                                              (k) Water intakes with a combined                    for the requirements of any federal,                    impounded a portion of the French Broad
                                           peak withdrawal of less than 50,000                     state, or local statute, regulation,                    River as well as many other stream reaches,
                                           gallons per day (0.08 cubic feet per                    ordinance, or code, including, but not                  including, but not limited to, portions of
                                           second) and having a pipe diameter less                 limited to, applicable building codes,                  Pigeon River, Nolichucky River, Flat Creek,
                                           than 6 inches;                                          now in effect or hereafter enacted.                     Muddy Creek, and Seahorn Creek. All of
                                              (l) Towers, poles, electrical panels,                  This guidance reflects TVA’s current                  the stream reaches impounded by Douglas
                                           satellite antennas, service lights, signs,              judgment on the types of obstructions                   Dam comprise Douglas Reservoir.
                                                                                                   that either individually or cumulatively              TVA reservoir system—The series of
                                           and their anchors and foundations;
                                                                                                   do not affect navigation, flood control,                interconnected dams and reservoirs, with
                                              (m) Outfall structures;                                                                                      associated facilities, on the Tennessee
                                              (n) Underground, submarine, or aerial                or public lands or reservations across,
                                                                                                   along, or in an upstream tributary reach                River and its tributaries, that, with the
                                           utility pipes and lines and their support                                                                       adjacent TVA property, are managed by
                                           structures, anchors or foundations;                     of the Tennessee River. TVA may refine
                                                                                                                                                           TVA for purposes of navigation, flood
                                              (o) Causeways, roads, driveways, and                 this guidance, if circumstances warrant,
                                                                                                                                                           control, and power production; and
                                           parking lots;                                           in a future Federal Register notice. This               consistent with those purposes, for a wide
                                              (p) Grading and fill not involving the               guidance has no effect on whether a                     range of other public benefits.
                                           construction of a dam or impoundment.                   permit is required by other federal or                Upstream tributary reach—Stream reaches
                                              Those considering construction of one                state agencies.                                         located upstream of the control or
                                           or more of the above-listed obstructions                                                                        influence of the operation of the TVA
                                                                                                   IV. Definitions
                                                                                                                                                           reservoir system.
                                           across, along, or in an upstream
                                                                                                   Fee-owned property—Real property owned                  Dated: August 17, 2016.
                                           tributary reach as defined in this rule                   in fee by the United States of America in
                                           are not required to submit an                             the custody and control of TVA.                     Rebecca C. Tolene,
                                           application or design drawings to TVA                   Property—Fee-owned property or other                  Deputy General Counsel and Vice President,
                                           for approval of a Section 26a permit.                     property right, such as a right to flood.           Natural Resources.

                                                                                                          TABLE 1—TVA RESERVOIRS

                                                                                                            Tennessee River Reservoirs

                                           Kentucky.
                                           Pickwick.
                                           Wilson.
                                           Wheeler.
                                           Guntersville.
                                           Nickajack.
                                           Chickamauga.
                                           Watts Bar.
                                           Fort Loudoun.

                                                                                                                Tributary Reservoirs

                                           Apalachia.                                                                           Bear Creek Projects (Alabama):
                                           Beaver Creek (tributary to South Fork Holston River).                                    Bear Creek.
                                                                                                                                    Cedar Creek.
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                                           Blue Ridge.                                                                              Little Bear Creek.
                                           Boone.                                                                                   Upper Bear Creek.
                                           Chatuge.                                                                             Beech River Projects (West Tennessee):
                                           Cherokee.                                                                                Beech.
                                           Clear Creek (tributary to Beaver Creek, tributary to South Fork Holston                  Cedar.
                                             River).                                                                                Dogwood.
                                           Doakes Creek (Norris Reservoir).                                                         Lost Creek.



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                                           59848               Federal Register / Vol. 81, No. 169 / Wednesday, August 31, 2016 / Rules and Regulations

                                                                                                                TABLE 1—TVA RESERVOIRS—Continued
                                           Douglas.                                                                                                            Pine.
                                           Fontana.                                                                                                            Pin Oak.
                                           Fort Patrick Henry.                                                                                                 Redbud.
                                           Hiwassee.                                                                                                           Sycamore.
                                           John Sevier Detention Dam (just upstream of Cherokee Reservoir).
                                           Melton Hill.
                                           Nolichucky.
                                           Normandy.
                                           Norris.
                                           Nottely.
                                           Ocoee No. 1.
                                           Ocoee No. 2.
                                           Ocoee No. 3.
                                           South Holston.
                                           Tellico.
                                           Tims Ford.
                                           Watauga.
                                           Wilbur.


                                                                                                  TABLE 2—STREAM REACHES DOWNSTREAM OF TVA DAMS
                                                                         River or stream                                                      Reach (mile)                                               Description

                                           Tennessee River ...............................................................       0 to 652 ..............................         Mouth to confluence of the Holston and French Broad
                                                                                                                                                                                  Rivers.
                                           Beaver Creek (tributary to South Fork Holston River) .....                            0 to 22.5 .............................         Mouth to Beaver Creek Dam.
                                           Clear Creek (tributary to Beaver Creek tributary to South                             0 to 2.8 ...............................        Mouth to Clear Creek Dam.
                                             Fork Holston River).
                                           Clinch River ......................................................................   0   to   79.8 .............................     Mouth to Norris Dam.
                                           Duck River ........................................................................   0   to   248.6 ...........................      Mouth to Normandy Dam.
                                           Elk River (tributary to Tennessee River) ..........................                   0   to   133.3 ...........................      Mouth to Tims Ford Dam.
                                           French Broad River ..........................................................         0   to   32.3 .............................     Mouth to Douglas Dam.
                                           Hiwassee River .................................................................      0   to   121.0 ...........................      Mouth to Chatuge Dam.
                                           Holston River ....................................................................    0   to   142.2 ...........................      Mouth to confluence of the North and South Fork
                                                                                                                                                                                   Holston Rivers.
                                           Little Tennessee River 1 ....................................................         0 to 61.0 .............................         Mouth to Fontana Dam.
                                           Nolichucky River ...............................................................      0 to 45.6 .............................         Mouth to Nolichucky Dam.
                                           Nottely River .....................................................................   0 to 21.0 .............................         Mouth to Nottely Dam.
                                           Ocoee River ......................................................................    0 to 37.8 .............................         Mouth to the Georgia/Tennessee State Line.
                                           South Fork Holston River .................................................            0 to 49.8 .............................         Mouth to South Holston Dam.
                                           Toccoa River .....................................................................    0 to 53.0 .............................         The Georgia/Tennessee State Line to Blue Ridge Dam.
                                           Watauga River ..................................................................      0 to 36.7 .............................         Mouth to Watauga Dam.
                                           Bear Creek Projects (Alabama):                                                        .............................................
                                                 Bear Creek ................................................................     0 to 114.7 ...........................          Mouth to Upper Bear Creek Dam.
                                                 Cedar Creek ..............................................................      0 to 23.1 .............................         Mouth to Cedar Creek Dam.
                                                 Little Bear Creek ........................................................      0 to 11.6 .............................         Mouth to Little Bear Creek Dam.
                                           Beech River Projects (West Tennessee):                                                .............................................
                                                 Beech River ...............................................................     0 to 35.0 .............................         Mouth   to   Beech Dam.
                                                 Big Creek ...................................................................   0 to 6.7 ...............................        Mouth   to   Dogwood Dam.
                                                 Browns Creek ............................................................       0 to 5.1 ...............................        Mouth   to   Pin Oak Dam.
                                                 Dry Branch .................................................................    0 to 1.1 ...............................        Mouth   to   Sycamore Dam.
                                                 Dry Creek ..................................................................    0 to 1.0 ...............................        Mouth   to   Redbud Dam.
                                                 Haley Creek ...............................................................     0 to 4.0 ...............................        Mouth   to   Cedar Dam.
                                                 Lost Creek .................................................................    0 to 1.3 ...............................        Mouth   to   Lost Creek Dam.
                                                 Piney Creek ...............................................................     0 to 4.8 ...............................        Mouth   to   Pine Dam.
                                              1 Brookfield     Smoky Mountain Hydro manages Little Tennessee River Miles 33.6 to 59.1.
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                                                            Federal Register / Vol. 81, No. 169 / Wednesday, August 31, 2016 / Rules and Regulations                                                  59849

                                           [FR Doc. 2016–20093 Filed 8–30–16; 8:45 am]             Regulations, the term real property                    property under sections 856 through
                                           BILLING CODE 8120–08–P                                  means land or improvements thereon,                    859. On May 14, 2014, the Treasury
                                                                                                   such as buildings or other inherently                  Department and the IRS published in
                                                                                                   permanent structures thereon (including                the Federal Register a notice of
                                           DEPARTMENT OF THE TREASURY                              items which are structural components                  proposed rulemaking (REG–150760–13
                                                                                                   of such buildings or structures). In                   at 79 FR 27508) (NPRM) to define ‘‘real
                                           Internal Revenue Service                                addition, the term ‘‘real property’’                   property’’ solely for purposes of sections
                                                                                                   includes interests in real property. Local             856 through 859 and provisions that
                                           26 CFR Part 1                                           law definitions will not be controlling                reference the definition of real property
                                                                                                   for purposes of determining the                        in section 856 and the regulations
                                           [TD 9784]                                               meaning of the term ‘‘real property’’ as               thereunder.
                                           RIN 1545–BM05                                           used in section 856 and the regulations
                                                                                                                                                             Written and electronic comments
                                                                                                   thereunder. The term includes, for
                                           Definition of Real Estate Investment                                                                           responding to the NPRM were received.
                                                                                                   example, the wiring in a building,
                                           Trust Real Property                                     plumbing systems, central heating, or                  The written comments are available for
                                                                                                   central air-conditioning machinery,                    public inspection at http://
                                           AGENCY:  Internal Revenue Service (IRS),                pipes or ducts, elevators or escalators                www.regulations.gov or upon request. A
                                           Treasury.                                               installed in the building, or other items              public hearing was held on September
                                           ACTION: Final regulations.                              which are structural components of a                   18, 2014.
                                                                                                   building or other permanent structure.                    After consideration of all the
                                           SUMMARY:   This document contains final
                                                                                                   The term does not include assets                       comments, these final regulations adopt
                                           regulations that clarify the definition of
                                                                                                   accessory to the operation of a business,              the proposed regulations as revised by
                                           real property for purposes of the real
                                                                                                   such as machinery, printing press,                     this Treasury decision.7 The comments
                                           estate investment trust provisions of the
                                                                                                   transportation equipment which is not a                and revisions are discussed in this
                                           Internal Revenue Code (Code). These
                                                                                                   structural component of the building,                  preamble.
                                           final regulations provide guidance to
                                                                                                   office equipment, refrigerators,
                                           real estate investment trusts and their                                                                        Summary of Comments and
                                                                                                   individual air-conditioning units,
                                           shareholders.                                                                                                  Explanation of Revisions
                                                                                                   grocery counters, furnishings of a motel,
                                           DATES:  Effective date: These regulations               hotel, or office building, etc., even                  I. The Definition of Land
                                           are effective on August 31, 2016.                       though such items may be termed
                                             Applicability date: For dates of                      fixtures under local law.                                 The proposed regulations defined the
                                           applicability, see § 1.856–10(h).                          The IRS issued revenue rulings                      term ‘‘land’’ to include water and air
                                           FOR FURTHER INFORMATION CONTACT:                        between 1969 and 1975 addressing                       space superjacent to land and natural
                                           Julanne Allen of the Office of Associate                whether certain assets qualify as real                 products and deposits that are
                                           Chief Counsel (Financial Institutions                   property for purposes of section 856.                  unsevered from the land. A commenter
                                           and Products) at (202) 317–6945 (not a                  Specifically, the published rulings                    requested clarification that land
                                           toll-free number).                                      address whether assets such as railroad                includes water space and air space
                                           SUPPLEMENTARY INFORMATION:                              properties,1 mobile home units                         above ground that the taxpayer does not
                                                                                                   permanently installed in a planned                     own. For example, a taxpayer may own
                                           Background                                              community,2 air rights over real                       a building and purchase air rights
                                              This document contains amendments                    property,3 interests in mortgage loans                 superjacent to one or more neighboring
                                           to the Income Tax Regulations (26 CFR                   secured by total energy systems,4 and                  buildings to enhance the value of the
                                           part 1) relating to real estate investment              mortgage loans secured by microwave                    building the taxpayer owns, or a
                                           trusts (REITs). Section 856 of the Code                 transmission property 5 qualify as either              taxpayer may purchase air rights in
                                           defines a REIT by setting forth various                 real property or interests in real                     anticipation of using those rights to
                                           requirements. One of the requirements                   property under section 856. After these                facilitate the future acquisition or
                                           for a taxpayer to qualify as a REIT is that             published rulings were issued, REITs                   development of property. The Treasury
                                           at the close of each quarter of the                     invested in various types of assets that               Department and the IRS agree that air
                                           taxable year at least 75 percent of the                 are not directly addressed by the                      space or water space superjacent to land
                                           value of its total assets is represented by             regulations or the published rulings,                  each qualify as land even if the taxpayer
                                           real estate assets, cash and cash items                 and some of these REITs received letter                owns only the air space or water space
                                           (including receivables), and                            rulings from the IRS concluding that                   and does not own an interest in the
                                           Government securities. See section                      certain of these various assets qualified              underlying land. The proposed
                                           856(c)(4). Section 856(c)(5)(B) defines                 as real property. A letter ruling,                     regulations stated that superjacent water
                                           real estate assets to include real                      however, may not be relied upon by                     and air space qualify as land, and these
                                           property (including interests in real                   taxpayers other than the taxpayer that                 final regulations retain the language of
                                           property and interests in mortgages on                  received the letter ruling 6 and is limited            the proposed regulations.
                                           real property). Section 856(c)(5)(C)                    to its particular facts. The Treasury
                                           defines interests in real property to                   Department and the IRS recognized the                    7 Under section 856(c)(2) and (3), in order for an

                                           include fee ownership and co-                           need to provide updated published                      entity to qualify as a REIT, certain prescribed
                                           ownership of ‘‘land or improvements                     guidance on the definition of real                     percentages of that entity’s gross income must be
                                                                                                                                                          derived from certain types of income (which
                                           thereon.’’ Prior to these final
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                                                                                                     1 Rev. Rul. 69–94 (1969–1 CB 189).                   include ‘‘rents from real property’’ and ‘‘interest on
                                           regulations, § 1.856–3(d) of the Income                   2 Rev.                                               obligations secured by mortgages on real property
                                                                                                            Rul. 71–220 (1971–1 CB 210).
                                           Tax Regulations, promulgated in 1962                      3 Rev. Rul. 71–286 (1971–2 CB 263).
                                                                                                                                                          or on interests in real property’’). The definition of
                                           in TD 6598 (the 1962 Regulations),                                                                             real property in these final regulations applies for
                                                                                                     4 Rev. Rul. 73–425 (1973–2 CB 222).
                                                                                                                                                          purposes of section 856(c)(2) and (3), but these final
                                           defined real property for purposes of the                 5 Rev. Rul. 75–424 (1975–2 CB 269).
                                                                                                                                                          regulations provide neither explicit nor implicit
                                           regulations under sections 856 through                    6 Rev. Proc. 2016–1 (2016–1 IRB 1), section 11.02;   guidance regarding whether various types of
                                           859. Under § 1.856–3(d) of the 1962                     see section 6110(k)(3) of the Code.                    income are described in section 856(c)(2) and (3).



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Document Created: 2018-02-02 12:15:16
Document Modified: 2018-02-02 12:15:16
CategoryRegulatory Information
CollectionFederal Register
sudoc ClassAE 2.7:
GS 4.107:
AE 2.106:
PublisherOffice of the Federal Register, National Archives and Records Administration
SectionRules and Regulations
ActionInterpretive Rule.
DatesEffective August 31, 2016.
ContactRebecca C. Tolene, Vice President, Natural Resources, Tennessee Valley Authority, Knoxville, Tennessee (865-632-4433).
FR Citation81 FR 59846 

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