environmental assessment for dam spillway repair on crab

Environmental Assessment for Dam Spillway Repair

on Crab Orchard Lake

Date: 04/15/2021

Estimated Lead Agency Total Costs Associated with Developing and Producing this

Document: $3,840

This Draft Environmental Assessment is being prepared to evaluate the effects associated with

the proposed action and complies with the National Environmental Policy Act (NEPA) in

accordance with Council on Environmental Quality regulations (40 CFR 1500-1509) and

Department of the Interior (43 CFR 46; 516 DM 8) and U.S. Fish and Wildlife Service (550 FW

3) regulations and policies. The National Environmental Policy Act requires examination of the

effects of proposed actions on the human environment which includes cultural and natural

resources, as well as, social and economic considerations.

Proposed Action

The U.S. Fish and Wildlife Service (Service) is proposing to perform repairs on the Crab

Orchard Lake spillway at Crab Orchard National Wildlife Refuge (refuge). To facilitate these

repairs, a partial drawdown of Crab Orchard Lake (lake) will be required. Safety inspections

performed on Crab Orchard Lake Spillway discovered issues that must be remedied to ensure

safety and proper functioning of this high hazard dam. Being categorized as a high hazard dam

does not suggest that the Crab Orchard Lake dam suffers from an increased risk for failure, it

means rather that if a failure were to occur, the resulting consequences could cause damage

downstream. Thus, one of the primary drivers for the repair would be protection of life and

property downstream that may become endangered by an uncontrolled release of water from

Crab Orchard Lake. In addition, these repairs are needed to enable continued water supply to

support the Haven (a veteran based public use facility on the refuge), recreational opportunities,

wildlife and habitat conservation, and the sport fisheries of the lake.

Repairs to infrastructure such as dams are typically categorically excluded from further

evaluation under NEPA within the Service pursuant to 515 DM 8.5 B (2): “ The operation,

maintenance, and management of existing facilities and routine recurring management activities

and improvements, including renovations and replacements which result in no or only minor

changes in the use, and have no or negligible environmental effects on-site or in the vicinity of

the site.” However, in view of the fact that the area near the dam needs to be dewatered for the

repair, a partial drawdown is required. This repair and partial drawdown has the potential for

environmental impacts so this Environmental Assessment was prepared to analyze those

potential impacts.

The preferred alternative to achieving this proposed action may evolve during the NEPA process

as the agency refines its proposal and gathers feedback from the public, stakeholders, and other

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Environmental Assessment for Dam Repair on Crab Orchard Lake

agencies. Therefore, the final alternative chosen may be different from what is identified as the

Service’s preferred alternative in this draft environmental assessment. The proposed action will

be finalized at the conclusion of the public comment period for the environmental assessment.

Background

National wildlife refuges are guided by the mission and goals of the National Wildlife Refuge

System (Refuge System), the purposes of an individual refuge, Service policy, and laws and

international treaties. Relevant guidance includes the National Wildlife Refuge System

Administration Act of 1966, as amended by the National Wildlife Refuge System Improvement

Act of 1997, Refuge Recreation Act of 1962, and selected portions of the Code of Federal

Regulations and Fish and Wildlife Service Manual.

Crab Orchard National Wildlife Refuge was established on August 5, 1947, by Public Law 80-

361. This Act of Congress transferred 22,575 acres from the Department of War (Illinois

Ordnance Plant) and 21,425 acres from the Soil Conservation Service (Crab Orchard Creek

Project) to the Secretary of the Interior. This directive stipulated the lands transferred would be

administered by the Secretary of the Interior through the Fish and Wildlife Service “for the

conservation of wildlife, and for the development of the agricultural, recreational, industrial, and

related purposes specified in this Act”

The mission of the Refuge System, as outlined by the National Wildlife Refuge System

Administration Act (Administration Act), as amended by the National Wildlife Refuge System

Improvement Act (16 U.S.C. 668dd et seq.), is

“... to administer a national network of lands and waters for the conservation, management and,

where appropriate, restoration of the fish, wildlife, and plant resources and their habitats within

the United States for the benefit of present and future generations of Americans”

Additionally, the Administration Act mandates the Secretary of the Interior in administering the

Refuge System (16 U.S.C. 668dd (a) (4)) to

Provide for the conservation of fish, wildlife, and plants, and their habitats within the

National Wildlife Refuge System;

Ensure that the biological integrity, diversity, and environmental health of the NWRS are

maintained for the benefit of present and future generations of Americans;

Ensure that the mission of the Refuge System described at 16 U.S.C. 668dd(a)(2) and the

purposes of each refuge are carried out;

Ensure effective coordination, interaction, and cooperation with owners of land adjoining

refuges and the fish and wildlife agency of the states in which the units of the Refuge

System are located;

Assist in the maintenance of adequate water quantity and water quality to fulfill the

mission of the Refuge System and the purposes of each refuge;

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Recognize compatible wildlife-dependent recreational uses as the priority general public

uses of the National Wildlife Refuge System through which the American public can

develop an appreciation for fish and wildlife;

Ensure that opportunities are provided within the Refuge System for compatible wildlife-

dependent recreational uses; and

Monitor the status and trends of fish, wildlife, and plants in each refuge.

The Crab Orchard Lake Dam was originally constructed to provide a reservoir for an industrial

and municipal water supply, recreation, and work relief. Construction was authorized in 1936

and completed in 1939, with extensive modifications completed in 1991. The dam is a zoned

earth fill embankment dam with a service spillway and an armored riprap emergency overflow

(USFWS 2007).

Currently, the lake is used extensively for recreation, including boating, swimming, waterskiing,

fishing, and waterfowl hunting. There are several recreational facilities associated with the lake

including the Crab Orchard and Blue Heron Campgrounds, the Haven (a veteran based public

use facility that uses Crab Orchard Lake as a non-potable water source), a marina, a beach, and

several recreational fishing areas such as Prairie Creek and Bogard’s Point, among others. Crab

Orchard Lake does not supply any industrial or municipal water needs at this time other than the

Haven.

Crab Orchard Lake has an average depth of 9.1 feet at stage 405.0 feet above mean sea level

(MSL). The lake maintains itself at or near this stage as this is the elevation of the lake spillway

crest. At that elevation, the surface area of the lake covers approximately 6,965 acres. There is

no active manipulation of water levels in Crab Orchard Lake, aside from lowering water levels

for periodic maintenance or emergency actions related to flooding. Lake levels are maintained by

passive flow over the spillway and runoff from precipitation. Also, there are no minimum or

maximum release requirements from the dam from any downstream uses (FWS 2018).

Drawdowns at Crab Orchard Lake in recent years have generally been restricted to one to two

feet in depth or less. These drawdowns were related to maintenance and emergency response

activities. Emergency related drawdowns are due to flood events and do not occur very often.

Most drawdowns in recent years, especially two feet in depth or greater, are due to maintenance

related activities. From the construction of Crab Orchard Lake until the early 1970’s, drawdowns

occurred seasonally. Usually these drawdowns were a result of water sales and use from local

communities, the prison, and industrial tenants, although ancillary benefits were realized.

Development of vegetation in the shoreline, riparian, and palustrine zones likely reduced

shoreline erosion, trapped sediments, reduced turbidity, and helped to consolidate flocculent

sediments. Eventually, annual drawdowns ceased as communities transitioned to alternate water

sources such as Rend Lake’s water supply. However, periodic low to moderate drawdowns occurred every 5-10 years for the purposes of the Service’s Dam Safety Program’s inspections

and/or repairs. Seasonally, the lake continued to drawdown approximately one foot through

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natural evaporation and the remaining limited water use by the refuge, prison, and industrial

tenants. A four-foot drawdown was completed in 1988 when several repairs and modifications

were made to the concrete structures at Crab Orchard spillway. Several two-foot drawdowns

have occurred in recent years to allow dam safety inspections and smaller repairs. It can be

reasonably expected that future low to moderate drawdowns (with a magnitude of one to four

feet) will be necessary to facilitate safety inspections and repairs on the Crab Orchard Spillway

and/or dam. Dam safety inspections are conducted by the Regional Dam Safety Officer every

year with detailed inspections being performed every five years. These inspections rarely require

a lake drawdown.

Personal communication with refuge staff indicates that a new reinforced concrete outlet works

station (a device used to release and regulate flow in a dam) was constructed in 1980. This

added three reinforced concrete inlet bays and shortened the spillway length from 450 to 411.5

feet. To facilitate this construction a cofferdam was built, and Crab Orchard Lake was lowered

two and a half feet. A four-foot drawdown took place in 1988 when several repairs and

modifications were made to the concrete structures at the Crab Orchard spillway. Subsequent

repairs were completed between 1988 and 1991 and included:

Construction of retaining walls on the left- and right-hand side of the service spillway

Construction of concrete slabs along the toe of the service spillway

Repairs to the service spillway crest

Construction of fish screens and a walkway across the service spillway, which were

removed in 2010

Purpose and Need for the Action

The purpose of this proposed action is to provide continued management of the lake’s wildlife

and habitats, provide safe wildlife-dependent recreation opportunities, maintain the Haven

facility’s non-potable water supply, and to protect life and property downstream by performing

the necessary repairs on the Crab Orchard Lake spillway. The potential impacts of taking no

action to address the needed spillway repairs and deficiencies could lead to an eventual

uncontrolled release from Crab Orchard Lake’s spillway and/or dam resulting in harmful or

damaging effects. This includes substantial impacts to the local community from reductions in

recreational visits and expenses, potential damage to downstream areas, loss of the lake’s

wildlife and fishery habitats, and loss of water supply to the Haven.

However, an uncontrolled release could also result in a suite of changes that could have positive

short and/or long-term impacts. In the short-term, the mudflats exposed by the release could

result in expanses of vegetation that produce habitat for a host of wildlife species. There would

likely be increased vegetative development across the former lakebed resulting in a shift toward

establishment of terrestrial habitats over a multi-year timeframe.

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The need of the proposed action is to repair the Crab Orchard Lake spillway to meet the Service

Dam Safety Program’s requirements and maintain the integrity and safety of the Crab Orchard

Lake dam. This in turn meets the refuge wildlife and recreational purposes. A drawdown of some

degree is needed to facilitate a complete repair of the spillway structure. The Service’s priorities

and mandates as outlined by the National Wildlife Refuge Administration Act (Administration

Act) to “assist in the maintenance of adequate water quantity and water quality to fulfill the

mission of the System and the purposes of each refuge” and “ensure that opportunities are

provided within the System for compatible wildlife-dependent recreational uses”, (16 U.S.C.

668dd (a) (4)) will also be met. Without a properly functioning and safe dam, the refuge would

be limited in meeting all of its purposes. Additionally, the proposed action meets several

Comprehensive Conservation Plan goals and objectives including:

Comprehensive Conservation Plan Goals and Objectives

Water Quality Goal

Provide and manage for quality of water in streams and lakes at Crab Orchard National

Wildlife Refuge.

Objective 1: Improve the quality of water within the watershed of the refuge.

Resident Fish and Wildlife Goal

Maintain or enhance resident fish and wildlife populations consistent with management

activities for federal trust resources in cooperation with the Illinois DNR.

Objective 1: Manage refuge fisheries with emphasis on mixed-species, warm-

water sport fishing.

Other Land- and Water-based Recreation Goal

Visitors will enjoy high quality, land- and water-based activities that fulfill the recreation

purpose of the refuge when the refuge was established.

Industrial Goal

Provide an industrial complex and attendant utility and transportation infrastructure,

which conform to prescribed safety, health, environmental and maintenance standards.

Safety Inspections of Crab Orchard Lake Spillway (Spillway) indicate that repairs are needed

and repairs to the Spillway are a priority for the Service’s Dam Safety Program. Not correcting

these issues could lead to an uncontrolled release of water that would affect water supplies (for

recreation, wildlife, and the Haven), alter refuge habitats and wildlife populations, reduce the

refuge’s recreational opportunities by as much as 75%, and potentially cause off-refuge impacts.

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Description of Alternatives

Alternative A – No Action

This alternative would continue the status quo. Crab Orchard Lake would remain at normal pool

elevation, with the fluctuations in lake elevations being altered only by normal drying and

precipitation cycles. Recreational opportunities, including fishing, boating, hunting, skiing,

swimming, wildlife viewing, etc. would remain largely unchanged by management activities.

Facilities for boaters and the Crab Orchard Marina houseboat users would remain under normal

operation. Illinois Department of Natural Resources and USFWS would continue to manage the

lake fisheries as they currently are, and USFWS would manage and maintain all other activities

under the same policies and objectives. However, needed repairs on the spillway would not be

pursued. The condition of the dam would continue to decay and the risk of an uncontrolled

release caused by failure of the spillway would continue to increase over time.

Alternative B –Repair of Crab Orchard Dam Spillway – [Preferred

Alternative]

This alternative would result in the full repair of the dam and spillway and require a partial draw

down of Crab Orchard Lake. The drawdown would lower lake levels as much as four vertical

feet, from 405 feet above mean sea level (MSL) to approximately 401 feet MSL. The

Headquarters Dam Safety Branch prepared a plan that forms the basis of this Preferred

Alternative. It would not include the use of a cofferdam to help dewater the area where the

repairs are needed.

Under the Preferred Alternative, the refuge would open the Crab Orchard Lake spillway screw

gates, beginning in July 2021, and discharge water until a maximum of four-foot drawdown of

the lake is achieved. It is predicted that this process will occur over a four to eight-week period,

(one-half to one foot per week) barring any major rainfall events. This timeframe, however, may

be impacted by the Service’s process and could start later depending on the bid process, time

frame the contract is awarded, available funding, weather, etc. Due to these factors, it is hard to

pinpoint an exact date when this project will begin. Consideration has been taken on conducting

this project when it will have the least impact to the refuge, its resources, and the general public.

Lake elevations will be maintained at four feet below the “normal pool” elevation of 405 feet

Mean Sea Level (MSL) for the duration of the spillway repairs. Following repairs, the screw

gates would be closed, and the lake would refill to “normal pool” through natural rainfall and

runoff events. The lake could be back to normal levels or resuming normal levels by February

2022. Weather and construction issues could affect this timing, and there is a possibility an

extension may be granted for the duration of construction.

During a partial drawdown of four feet, the surface acres of Crab Orchard Lake will be reduced

from approximately 6,965 acres to 5,325 acres. This translates into approximately 1,625 acres of

exposed mudflats in shallow bays and along the shoreline. Most (>80%) of the exposed acreage

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will occur in Grassy Bay and areas east of Wolf Creek and Highway 148.The volume of the lake

will be reduced by an estimated 24,350 acre-feet of water, from 61,700 acre-feet to 37,350 acre-

feet. Visual representations of the predicted exposed areas can be viewed on the map in

Attachment C. The only impacts off of the refuge may be downstream of the dam, as flows will

be modified during the drawdown and refilling of the lake.

Recreational opportunities, including fishing, boating, hunting, skiing, swimming, wildlife

viewing, etc. could have short term impacts under this alternative. Lower lake levels would

reduce the surface acres of the Crab Orchard Lake and launching conditions could be changed or

absent at some boat ramps. Crab Orchard Marina houseboat users may have to move crafts to

deeper locations in the lake. Illinois Department of Natural Resources and USFWS would

continue to manage the lake fisheries and wildlife, capitalizing on the positive effects drawdowns

can have on these populations.

Alternatives Considered, But Dismissed From Further Consideration or

Evaluation

Partial Drawdown of Crab Orchard Lake with Cofferdam and Repair of Dam Spillway

The refuge originally planned for a two-foot drawdown that included a cofferdam to facilitate

repair of the dam and spillway. This alternative consisted of drawing the lake down two feet

below “normal pool” and constructing a cofferdam around the spillway to dewater the area

where repairs are needed. This alternative was considered for less impact to facilities and boats

on the lake, particularly to the Crab Orchard Marina and houseboat users. However, under this

alternative several boats may still have had to be moved or removed from the Lake. This

alternative was also considered to be infeasible due to economic reasons. The refuge sought bids

in two separate announcements in 2019 and 2020. None of the bids that were received fell within

the Service’s guidelines and therefore could not be taken into consideration. In addition, the bids

received on the last occasion greatly exceeded available funds. Although this alternative meets

the purpose and need of this action, due to the Service being unable to obtain cost effective bids

that meet the guidelines, this alternative will not be evaluated further.

Removal of the Dam

Removal of the dam does not meet the purpose or need of this action. This alternative was not

considered as it conflicts with the mission of the refuge and the Service’s priorities and mandates

as outlined by the National Wildlife Refuge Administration Act (Administration Act) to “assist

in the maintenance of adequate water quantity and water quality to fulfill the mission of the

System and the purposes of each refuge” and “ensure that opportunities are provided within the

System for compatible wildlife-dependent recreational uses”, (16 U.S.C. 668dd (a) (4)) will also

be met. Without a properly functioning and safe dam to maintain Crab Orchard Lake, the refuge

would be limited in meeting all of its purposes. In addition, the loss of Crab Orchard Lake would

likely have devastating consequences, both locally and regionally to the residents, cities, towns,

economies, businesses, recreational opportunities, fishes and wildlife including migratory birds,

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local water supply, etc. For these reasons, this alternative was not considered and will not be

evaluated.

Affected Environment and Environmental Consequences of the

Action

This section is organized by affected resource categories and for each affected resource discusses

both (1) the existing environmental and socioeconomic baseline in the action area for each

resource and (2) the effects and impacts of the proposed action and any alternatives on each

resource. The effects and impacts of the proposed action considered here are changes to the

human environment, whether adverse or beneficial, that are reasonably foreseeable and have a

reasonably close causal relationship to the proposed action or alternatives. This Environmental

Assessment includes the written analyses of the environmental consequences on a resource only when the impacts on that resource could be more than negligible and therefore considered an

“affected resource.” Any resources that will not be more than negligibly impacted by the action

have been dismissed from further analyses.

Crab Orchard National Wildlife Refuge is located in southern Illinois in Williamson, Union, and

Jackson counties, west of Marion and south of Herrin, on the northern edge of the Ozark foothills

(see map in Attachment A). Crab Orchard NWR is one of the largest refuges in the Service’s

Great Lakes Region. Established in 1947 for wildlife, agriculture, recreation, and industry, the

45,446-acre refuge includes three man-made lakes (Crab Orchard, Devil’s Kitchen, and Little

Grassy) totaling 8,700 surface acres. The refuge landscape also includes hardwood and pine

forests, open oak woodlands, savanna, croplands, grasslands, wetlands, rolling hills, and rugged

terrain with slopes of 24 percent. The 4,050-acre Crab Orchard Wilderness, the first wilderness

area designated in the State of Illinois, lies within the refuge.

The proposed action is located on Crab Orchard Lake, a 6,965 acre impoundment located in the

northwest portion of the refuge. (See map of the general area and proposed project site on the

refuge at Attachment B).

Detailed information regarding the affected environment is provided in Chapter 3 of the refuge’s

Comprehensive Conservation Plan (USFWS 2007), which can be found here:

https://www.fws.gov/midwest/planning/craborchard/CCP/Chapter3.pdf. The environmental

consequences section below also provides additional, brief descriptions of each resource affected

by the proposed action.

This environmental assessment includes the written analyses of the environmental consequences

on a resource only when the impacts on that resource could be more than negligible and therefore

considered an “affected resource.” Any resources that will not be more than negligibly impacted

by the action have been dismissed from further analyses. Therefore, the following resources

either do not exist within the project area or would either not be affected or only negligibly

affected by the proposed action and are not analyzed further in this environmental assessment:

https://www.fws.gov/midwest/planning/craborchard/CCP/Chapter3.pdf

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● Wilderness and Wild and Scenic Rivers Act

o Congress designated the Crab Orchard Wilderness as a unit of the National

Wilderness Preservation System in 1976. The 4,050 acre wilderness was

the first in the State of Illinois. The Crab Orchard Wilderness is located at

the extreme southern end of the refuge bordering the shores of Little Grassy

and Devil’s Kitchen Lakes. This wilderness area is over five miles from

project area and will not be affected by the noise or exhaust from

construction activities, or the lake drawdown.

● Air quality

o There effects on air quality at the project site will be negligible. The small

increases in air emissions would not be expected to exceed the applicability

thresholds outlined under the general conformity rules, or contribute to a

violation of any federal, state, or local air regulations. ● Upland wildlife species and vegetation

o Impacts to upland wildlife and vegetation would be negligible during the

repairs. The operation of heavy equipment would be negligible because no

vegetation removal would be necessary and heavy equipment traffic would

be restricted to improved roadways, mowed dam areas, or at temporary

work pads should they need to be constructed.

● Geology and soils

o The bedrock underlying the refuge is of Pennsylvanian age. In the northern

part of the refuge, the bedrock is covered by a thin layer of glacial till of

Illinoisan age. During the Wisconsin glacial age, the weathered Illinoisan

glacial till was covered by the Farmdale and Peorian loess sheets. The

present upland soils developed from these loess sheets. The Loveland loess

sheet underlies the Peoria and Farmdale sheets in the in the unglaciated

area in the southern portion of the refuge. This Mississippi River Valley is

the main source of the loess. Given the nature of repair activities and the

drawdown, geology and soil resources will not be affected. Construction

activities will be limited to the improved roadways, mowed dam areas, or

at temporary work pads should they need to be constructed.

Natural Resources

Water Quality, Fisheries, and Aquatic Vegetation

Affected Environment

Description of the Affected Environment

Physical and chemical changes indirectly effect fish and other wildlife through alteration of

essential habitat and trophic conditions. Such indirect effects are described in detail under the

heading "Biological Systems” in “A Review of the Effects of Water Level Changes on Reservoir

Fisheries and Recommendations for Improved Management” (Ploskey 1983). This research

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indicates that the important physical variables that affect wildlife are “basin morphometry,

bottom substrates and structures, erosion, turbidity, temperature, and water-retention time”.

Additionally, it indicates that critical chemical variables are nutrients, most importantly, carbon,

nitrogen, and phosphorus, and dissolved oxygen. These variables can directly affect light

penetration, which in turn affects population levels of algae, phytoplankton, and aquatic plants,

which serve as food resources that impact invertebrates, fish, water birds including waterfowl,

and other wildlife.

Crab Orchard Lake has an average depth of 9.1 feet at stage 405.0 feet above mean sea level

(MSL), and a maximum depth of approximately 28 feet. The basin morphometry provides adequate depth for overwintering fishes as well as refugia from high water temperatures and low

dissolved oxygen levels during the summer in the extensive shallow areas of the lake perimeter.

The management of relatively constant water levels has led to increased depths of

unconsolidated flocculent sediments (muck), highly eroded steep shorelines with little to no

vegetation, and high levels of turbidity. Stable water levels have also led to a lack of escape

cover, spawning, and nursery habitats for fish, as vegetation is not allowed to develop within

riparian, emergent, and littoral zones of the lake.

Description of Relevant Environmental Trends and Planned Actions

Continued shoreline erosion and mass wasting is expected as Crab Orchard continues to age with

static lake levels. Mass wasting, also called slope movement, is a process by which sands, soils,

and rock, move downslope from the force of gravity. High levels of turbidity and unconsolidated

sediments are expected to persist or increase at current levels. The lake habitats are expected to

continue to degrade from lack of vegetative development in littoral, lacustrine, riparian, and

shoreline zones. The environmental trends from lack of vegetation in these areas will lead to a

continued decline in overall productivity in part due to a lack of escape and nursery cover. This

will perpetuate the need for additional fish stocking of bass and the development of artificial bass

spawning structures and artificial underwater structure in the form of stake beds and brush piles.

Following a drawdown, beneficial effects of reduced shoreline erosion and turbidity, and

increases in fish escape, nesting, and nursery habitats from vegetative development in the littoral,

riparian, and lacustrine zones of the lake could last for one to three years. If repetitive, annual to

semi-annual vegetative development (which requires drawdown) occurred, effects could result in

self-sustaining warm water sport fisheries in the long-term. There are no other activities in the

past, present, or reasonably foreseeable future that would have effects on the fishery other than

active management strategies. These management strategies will be implemented in cooperation

with the Illinois Department of Natural Resources (IDNR). These efforts might include annual

stocking, felling trees for fish structure, and adding brush piles, stake beds, and artificial bass

spawning structures to the lake. Improving populations, structure, cover, and spawning habitats

are all predicted to benefit the fishery.

Changes in regional climate could affect the water quality, aquatic vegetation, and fisheries of

Crab Orchard Lake and the refuge. A recent report examined trends in heavy precipitation events

in the Midwest from 1961 to 2011 (Saunders et al. 2012). The authors found that the number of

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precipitation events of 3 inches or more nearly doubled in Illinois and Missouri (Saunders et al.

2012). These sporadic, high intensity events will continue to contribute to increased shoreline

erosion and turbidity. These factors will continue to inhibit vegetation establishment, and

therefore limit overall productivity in the lake. According to Brandt et. al. (2012), Southern

Illinois is projected to have the greatest increase in minimum temperatures within the Central

Hardwoods Region. The impacts of these changes to the species and populations on Crab

Orchard NWR are not definitive. Habitat management measures will continue on the refuge to

conserve and improve habitats to increase resilience to changes in climatic conditions.

Environmental Consequences

Impacts on Affected Resource

Alternative A

Under this alternative, a predominantly static water level would be maintained through passive

management of the spillway. This management negatively affects a wide variety of aquatic

wildlife, vegetation, and the fisheries of Crab Orchard Lake. Such management has led to

increased depths of unconsolidated flocculent sediments (muck), highly eroded steep shorelines

with little to no vegetation, and high levels of turbidity. Stable water levels have also led to a

lack of escape cover, spawning, and nursery habitats for fish, as vegetation is not allowed to

develop within riparian, emergent, and littoral zones of the lake. Additionally, it has led to

development of large expanses of American lotus that benefits from water stabilization, at the

expense of annual and perennial aquatic plants that could provide more ecological benefits

throughout all trophic levels. The lack of these plants and their associated insect and invertebrate

populations translates into reduced food availability for fish, waterfowl, and other wildlife.

Higher levels of turbidity increase favorable conditions for certain plankton, planktivores, and

benthivores. Increasing fish benthivore biomass within the lake serves as a positive feedback

loop that leads to higher levels of turbidity as larger populations of these fish stir up bottom

sediments while they migrate and forage.

If the dam fails in the future, which is more likely under this alternative because this needed

repair will not be done, it will result in an uncontrolled release of water. In the event of an

uncontrolled release, some positive effects may be realized in the short term on Crab Orchard

Lake such as what is described below in Alternative B. Downstream impacts would be negative

with potential for severe erosion, scouring, and mass movement of sediments that may

negatively affect downstream habitats and other environmental assets, especially fish and mussel

species. Increased turbidity would be expected downstream and would be especially severe for

the duration of the uncontrolled release. Temperatures and alteration of the thermocline could

shift within Crab Orchard Lake and the creek outflow; this could lead to mortality of fish and/or

other aquatic wildlife.

Emergency repairs to the spillway after a failure would likely have similar impacts as

experienced during the spillway repair in Alternative B. The area of construction would be

similar with similar types of equipment and work performed. However, the duration could be

much longer and depending on the extent of the failure.

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Alternative B

Under this alternative, the lake level will fluctuate during both the partial drawdown (four-foot

maximum) and refilling of the lake. There is potential for several positive physical and chemical

changes. Flocculent sediments are expected to consolidate in exposed areas that should

experience shrinking and reduced depths of these organic bottom sediments during drawdown.

Temporary reductions in water nutrient concentrations and turbidity are expected until the lake

returns to normal pool. Turbidity may increase or decrease depending on composition and cover

of exposed areas. Previously eroded sediments may be re-suspended during periods of rain.

Turbidity may substantially decrease if certain plant species, such as Sago pondweed (Sago spp.)

proliferate and reduce turbulence. Increased herbaceous and woody vegetation produced in

exposed areas during the drawdown are expected to bind soils and reduce wave energies

following the return to normal pool. This will reduce erosion potential, slowing future shoreline

erosion, and thus reduce turbidity. Water level changes may alter patterns of stratification. Low

water levels for extended periods will allow exposed soils to aerate which increases future

availability of nutrients and subsequent vegetative responses.

Regulating the rate of discharge will be an important factor in partially drawing down the lake.

Fish kills can be a concern, especially during hot weather. If the lake is drawn down too quickly,

the thermocline can be disrupted and could potentially cause a fish kill. If fish start to die,

discharge may be regulated to offset this impact. It can be expected that fish populations will be

concentrated for a short period. This would be for the duration of the repair plus the time it takes

the lake to reach normal pool after project completion. During this time, it will make small fish

more vulnerable to predation by larger ones. It may also increase the taking of fish from

concentrated areas that may be accessible by anglers. This, again, is expected to be a short-term

impact that would only occur during the drawdown of water. There are also several long-term

impacts that are expected from the outcome of a partial draw down. Sport fish populations tend

to increase following a drawdown for several reasons including increased food resource

availability, escape cover, and nursery habitats, all related to aquatic macrophytic plant

production. Prey fish populations and young/juvenile fishes will be more vulnerable during the

period of the drawdown. However, prey fish and small fish typically rebound quickly after these

events and their populations can increase dramatically in the first three years following a

drawdown. There are physical and chemical changes that directly affect fish as previously

described. However, increased sediment trapping by vegetation in riverine, emergent, and littoral

lake zones, may decrease turbidity, increase light penetration, and provide increased submerged

habitat for fish. Prolonged refilling of reservoirs increases fish production more than rapid

filling. It is expected that refilling Crab Orchard Lake back to full pool will be a slow process

because it is dependent on rainfall and runoff. Energy flow, following the return to normal pool,

from plants to most fish is indirect through other fish, invertebrates, and zooplankton, as the

breakdown of vegetation increases nutrient availability to higher trophic levels. Periphyton and

macrophytic aquatic vegetation may increase overall productivity within the lake by providing

nutrients and substrates for higher levels of invertebrate production. More available forage

13


translates to increased production of fish; increased fish survival is linked to more foods but also

the added escape and nursery cover that is expected.

Benthic fish should only be benefitted for one to two years following the drawdown. Increased

predation during periods of low water may cull smaller fish. The increased concentration of

forage for young predators equates to an expected increased growth of largemouth bass.

Insectivores are expected to benefit following flood-up as invertebrate populations expand in

relation to increased vegetation and subsequent new detrital formation. Drawdowns tend to

improve sport fish populations once an area is returned to pre-drawdown water levels because of

increased availability of forage, however, reductions in sunfish populations may occur, as they

are more vulnerable to predation. This could translate into improved bass reproduction and

recruitment by limiting future predation by sunfish on bass eggs.

Flow regimes downstream of the lake are dependent on flows over the spillway from local

rainfall and runoff. There could be slightly increased flows during the initial drawdown, but

flows would resume being dictated by rainfall as water passes through the gates during the repair

of the dam. Flows would be temporarily reduced when the repair is complete, as the gates for

dewatering will be closed while the lake fills to capacity. Once back at capacity, water levels in

the lake and downstream would resume being dictated by rainfall and subsequent runoff.

The actual construction work on the spillway will not affect these resources as the work will be

contained to the spillway with all environmental best management practices in place to prevent

contaminants or materials from entering the lake or the downstream environment.

Wildlife and Habitat


Description of Relevant General Features of the Affected Environment Crab Orchard National Wildlife Refuge (NWR) is composed of numerous habitat types. The

predominant land cover today is forest, comprising 56% of the refuge habitat. Other land covers

include open water (20%), agriculture (10%), wetlands (6%), grassland (4%), with shrubland and

developed land being 2% or less. A wide array of wildlife utilizes and depend on habitats within

or influenced by Crab Orchard Lake including fish, waterfowl and other water birds, mollusks,

aquatic invertebrates, amphibians, reptiles, and aquatic mammals. Forty-three species of

mammals, 269 species of birds, and 48 species of reptiles and amphibians have been documented

on Crab Orchard NWR. A comprehensive account of wildlife found at Crab Orchard NWR can

be reviewed in Appendix D of the Comprehensive Conservation Plan (USFWS 2007).

The grasslands, wetlands, forests, savannas, and open woodlands are restored, preserved, and

maintained to exemplify the pre-settlement habitats of Crab Orchard NWR and surrounding

regions. When restoring habitats, the goal is to achieve the natural function of those habitats.

Crab Orchard NWR frequently works with partners and neighbors who possess similar goals, to

implement inventory, monitoring, agricultural, and conservation actions for the benefit of

migratory and resident wildlife species.

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Description of Relevant Environmental Trends and Planned Actions

Refuge biologists implement various techniques to maintain and enhance wildlife habitats as

stated in the Crab Orchard NWR Comprehensive Conservation Plan (USFWS 2007). Water

levels are manipulated in moist soil management units and tallgrass prairie species are seeded to

reestablish native grasslands. Silviculture treatments, plantings, and prescribed fire are used to

manage forested and grassland habitats. Nuisance beavers in Crab Orchard Lake, and the

surrounding lakes and streams, are trapped to minimize damage to infrastructure and prevent

localized flooding potential. Refuge biologists also employ numerous treatments from

mechanical to chemical to control invasive plant species. Populations of ducks, geese,

shorebirds, and other waterbirds are maintained or enhanced on Crab Orchard Lake and other

aquatic habitats.

These management activities will continue to be implemented at Crab Orchard NWR with

cooperators, partners, and neighbors. Biologists will continue to control and eradicate invasive

and nuisance plant and animals in and around Crab Orchard Lake and the refuge as a whole and

continue to maintain and enhance habitats for priority species. Crab Orchard NWR staff will

continue to implement the Fire Management Plan, Agricultural Management Plan, Habitat

Management Plan, Hunting Plan, Annual Work Plan, and Fishing Plan in the areas in and around

Crab Orchard Lake. Improvements to infrastructure in and around Crab Orchard Lake, such as

campgrounds, roads, and boat ramps, are anticipated through programs such as the Great

American Outdoors Act.

Both challenges and opportunities are anticipated as it relates to climate change on the refuge,

and in and around Crab Orchard Lake. The refuge, in cooperation with the Northern Institute of

Applied Climate Science, used the Adaptation Workbook in Forest adaptation resources: Climate

change tools and approaches for land managers (Swanston and Janowiak 2012) to evaluate the

impacts of climate change on the refuge and its ability to meet management objectives. Climate

change impacts to southern Illinois are summarized in the Central Hardwoods Ecosystem

Assessment and Synthesis (Brandt et al. 2014). Key impacts that could impact Crab Orchard

Lake include more extremely hot days, more frequent heavy precipitation events, changes in

hydrology including increased risks for flash floods, and shifts in habitat suitability for many

focal bird species. The impacts of these changes to the species and populations on Crab Orchard

NWR are not definitive. Habitat management measures will continue on the refuge to conserve

and improve habitats to increase resilience to changes in climatic conditions.


Description of Affected Resource

Crab Orchard Lake is an important resource for resting, feeding, and nesting water birds, both on

the refuge and in the region. Failing to conduct the necessary repairs to the Crab Orchard dam,

resulting in an uncontrolled release, threatens those resources. Loss of this open water habitat

would result in a decrease in local and regional water bird populations as well as impact the

associated recreational activities, such as hunting, bird watching, etc. The extent of these impacts

would depend on the timing and magnitude of the dam failure, as well as the duration before it

15


could be repaired. Many other species of wildlife such as mollusks, amphibians, and aquatic

reptiles are dependent on the habitat in and around the lake. Individuals of these species could

perish or be forced to relocate to other suitable habitats in the event of an uncontrolled release.

Wildlife and habitats downstream of the dam would also suffer negative impacts from the

inundation of the water and sediment from the lake in an uncontrolled release.

A partial drawdown would take weeks to accomplish, allowing individuals of most species

reliant on the habitats of Crab Orchard Lake to adjust or move to the 5,000+ acres of remaining

open water for the duration of the spillway repair. The volume of water from a controlled release

through the spillway gates would not exceed flows that downstream wildlife and habitats

regularly experience.


Alternative A

Under this alternative, no impacts are expected under normal circumstances beyond what was

previously described. However, in the event of an uncontrolled release caused by the failure of

the spillway, impacts would be broad, and negatively affect the entire web of wildlife that utilize

the lake. The fish community could be disrupted. The effects could include a fish kill in the lake

and through portions of Crab Orchard Creek and several of its tributaries.

Waterfowl and water birds in general would be negatively impacted in the short term through the

loss of open water and marsh habitats needed for resting, feeding, and nesting. The lake

generally attracts concentrations of water birds that disperse throughout the watershed. Not only

would population declines be realized on the refuge if there were an uncontrolled release, but

also on private lands adjacent to the refuge, including waterfowl hunt clubs. If the uncontrolled

release occurred at appropriate times, water birds may benefit in the short term through increased

food availability as fish and invertebrates are concentrated in smaller pockets of water. However,

long-term negative impacts would be realized through the loss of the lake’s habitats and

destruction of the food web.

An uncontrolled release during winter could result in extreme levels of amphibian and reptile

mortality as aestivating populations are exposed to freezing conditions. Mollusks and aquatic

invertebrates could be impacted, and mortality of downstream populations should be expected

from extreme turbidity and sediment transport and deposition. It would be impossible to list all

impacts to wildlife from an uncontrolled release considering the multitude of scenarios regarding

the magnitude of the release, subsequent repair/replacement, and the timeframe for such actions.

However, the impacts would be extremely negative for most wildlife species and would have

impacts beyond the refuge boundary.

Alternative B

Under this alternative, positive effects are expected for a wide variety of species in the short and

long terms. A plethora of available research is available that document the benefits of water level

manipulations on large reservoirs (Leira and Cantonati, 2008; Liang et al., 2014; Wantzen et al.,

16


2008). Marshes and shallow bays within Crab Orchard Lake will be dewatered and a resulting

flush of vegetation is possible. Drawdowns in August and September within moist soil units at

the refuge generally result in substantial growth prior to the first hard frost; often, late

germinating millets during this timeframe, although stunted, still produce seed heads. The

mudflats exposed by the drawdown could result in expanses of vegetation that produce seed.

The area of open water habitat on Crab Orchard Lake will be reduced. Areas of the lake will be

up to four foot shallower and thus many areas may experience increased light penetration and

subsequent growth of submerged aquatic vegetation. At full pool Crab Orchard Lake has a

maximum depth of approximately 28 feet, with an average depth of 9.1 feet. During the

drawdown, water levels in the lakebed will be maintained at a max depth of approximately 24

feet, with the majority of the lake ranging from 5.1 to 9.1 feet of water.

The partial drawdown proposed will concentrate fish and invertebrate species and provide

additional acreages of shallow foraging habitat. This could result in increased waterfowl and

water bird populations exploiting lake habitats as foraging conditions are optimized. A potential

exists on approximately 1,600 acres to generate expanses of wetland vegetation that produces

seed in newly exposed areas. Once wetland vegetation is re-flooded, aquatic invertebrate

populations are expected to rise. The timing of the drawdown may attract fall migrant waterfowl

to shallow feeding areas where food resources are concentrated. Benefits to waterfowl and other

wildlife may be realized during the drawdown and the following year as they utilize increased

invertebrate populations, seeds, and other plant biomass that develop during the lake drawdown.

The construction work on the spillway may disturb birds or other wildlife in the immediate area

but the localized nature of the construction will cause minimal impact to wildlife. This area is

largely concrete, riprap, mowed grass, and infrastructure associated with the dam.

Threatened and Endangered Species, and Other Special Status Species


Description of Relevant General Features of the Affected Environment

Two federally listed species, the Indiana bat and whooping crane are known to occur at Crab

Orchard NWR. In addition, one federally threatened species, the northern long-eared bat and

one candidate species, the monarch butterfly, also occur on Crab Orchard NWR. Whooping cranes are rare migratory visitors to the refuge with only one recent instance of a pair stopping at

Crab Orchard in 2015. Northern long-eared bats and Indiana bats roost under the peeling bark of

dead and dying trees during the summer months and overwinter in large colonies in caves.

Indiana bats eat a variety of flying insects and typically forage along rivers or lakes and in

uplands, while northern long-eared bats primarily forage in the understory of forested areas.

Even though the northern long-eared bat is listed as threatened, Section 4(d) of the Endangered

Species Act directs the Service to issue regulations deemed “necessary and advisable to provide

for the conservation of threatened species.” It allows the Service to promulgate special rules for

species listed as threatened (not endangered) that provide flexibility in implementing the ESA.

The monarch butterfly utilizes a variety of habitats and geographic areas to meet its life history

requirements. On Crab Orchard NWR, the grassland habitats and forest edges with flowering

17


plants and milkweeds are utilized during the day, while they roost in various types of deciduous

and coniferous trees at night. They are present on the refuge during the warmer months, largely

from April to October.

Description of Relevant Environmental Trends and Planned Actions USFWS and state and federal partners have developed management and recovery plans for each

of the listed species found on Crab Orchard NWR. These plans provide land managers with

guidance regarding conservation strategies that can be used in managing species and

habitats. These plans establish regional population and habitat conservation objectives

and provide estimates of the size and types of habitats required to increase and sustain

populations of Priority Resources of Concern (PROC) at target levels. Species identified in these

plans, and their associated objectives and strategies, were considered during our evaluation of

PROC specific to Crab Orchard NWR and in the development of HMP objectives and strategies.

Refuge staff will continue to manage habitats on Crab Orchard NWR for the benefit of

threatened, endangered, and special status species.

The neighboring Shawnee National Forest implements management strategies for the Indiana

and long-eared bat. In addition, the Shawnee has an open lands program that maintains

grasslands with flowering plants to support pollinators including the monarch butterfly. Crab

Orchard NWR works in concert with the Shawnee National Forest to implement Fire

Management plans that maintain and enhance grassland and forest habitats which benefit

foraging, nesting, and roosting areas for Indiana bats, northern long-eared bats, and monarchs.

The largest limiting factor for Indiana bats and northern long-eared bats is white-nosed syndrome

(WNS). WNS refers to a ring of white fungus often seen on the faces and wings of affected bats.

WNS has killed over a million bats since 2006. The fungus responsible for WNS is continuing to

spread across the U.S. Crab Orchard staff will continue to manage forest resources to maintain

and enhance roosting, foraging, and maternity habitat for Indiana and long-eared bats.

A decrease in flowering plant and grassland habitats, and an increase in pesticide use have

contributed to the decline of monarch populations in the U.S. Following the management

strategies in the Crab Orchard NWR HMP, staff will continue prohibition on use of

neonicotinoids to protect pollinator species. The farm program will use cover cropping to the

maximum extent possible, emphasizing a diversity of crops across all fields, and increased floral

diversity where feasible within fields for the benefit of pollinators and grassland

birds. Cooperative farmers will use integrated pest management strategies and best management

practices to reduce the amount of pesticides used, and apply treatments, or a

combination thereof, (fire, mechanical, chemical, biological controls) at the appropriate

time and based on unique unit needs to maximize native plant diversity and early successional

stages of grassland systems.

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Description of Affected Resources Indiana bats likely forage over Crab Orchard Lake but will not be impacted by the proposed

water level fluctuations in the lake, as adequate food will continue to be available. Northern

long-eared bats utilize the forest understory, which will not be impacted by the spillway repair or

drawdown. Grassland and forest edge habitat utilized by monarch butterflies on Crab Orchard

NWR will also not be impacted. Whooping cranes are rare visitors to Crab Orchard NWR, they

do not nest here, and the wetland and marsh habitats they forage in would only be improved by a

drawdown. A consultation pursuant to Section 7 under the Endangered Species Act was

conducted as part of this environmental assessment and a “No Effect” determination was made

for both alternatives. Considering these facts, no federally designated threatened, endangered, or

special status species will be analyzed further as affected resources under either alternative.

Invasive Plant Species


Invasive, non-native, and noxious weed species are relatively abundant on the refuge. These

species are quite diverse and are found in most refuge habitats, although some are typically

found in agricultural fields or lakes and ponds. Currently, most refuge control efforts focus on

autumn olive (Elaeagnus umbellate), common reed (Phragmites australis), and sericea lespedeza

(Lespedeza cuneata).

Non-native and invasive plant species pose one of the greatest threats to the maintenance and

restoration of the diverse habitats found on the refuge. They threaten biological diversity by

causing population declines of native species and by altering key ecosystem processes such

as hydrology, nitrogen fixation, and fire regimes. Left unchecked, these plants dominate many

areas on the refuge and reduce the value of the land as wildlife habitat. There is a bountiful seed

source of many of these non-native/invasive species on the lands surrounding the refuge.

Lake ecosystems are subjected to a multitude of anthropogenic stressors. Invasive plants are an

example that can have wide-ranging effects on lake management (Leira and Cantonati, 2008) by

competing with native vegetation, affecting food resources for fish and wildlife. Species such as

phragmites can also alter hydrology, sediment accretion, and wildlife diversity. There is a small

quantity of invasive plant species of concern found within Crab Orchard Lake. However, over 50

species of invasive plants occur within its watershed. Phragmites, curlyleaf pondweed, and

Eurasian milfoil are the only invasive plant species likely to be impacted under the alternatives

proposed in this EA. Eurasian milfoil has been documented at the Greenbriar boat ramp;

curlyleaf pondweed is only known from Grassy Bay. Phragmites has patches distributed in

various shallow bays and along several areas of shoreline.

Description of Relevant Environmental Trends and Planned Actions Inventory of the invasive plant species on Crab Orchard NWR are used to develop restoration

and treatment plans. These inventories provide insights into the threats posed on the landscape

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for any given management unit. This information is then used to prioritize invasive species

treatments. Terrestrial invasive plants are evaluated and treated frequently on the refuge using

mechanical, chemical, and agricultural practices. Invasive plant species in the lake are monitored

and managed cooperatively with the Illinois Department of Natural Resources. Cooperative

monitoring and management of these invasive species will continue into the foreseeable future.

Treatment of fragmented populations of invasive submersed aquatic vegetation such as curly leaf

pondweed and Eurasian milfoil is difficult to achieve and rarely successful for eradication.

Mechanical removal will leave plant fragments, seeds, and roots that reestablish plants and

populations quickly. Chemical treatment needs to be repeated several times per year just to

inhibit the spread or expansion of curly leaf pondweed or Eurasian milfoil, and this can have

detrimental effects on native vegetation.

Phragmites can be spread by wind or animal-born seeds, or human activities. Most commonly

however, Phragmites spreads by horizontal above-ground stolons and underground rhizomes.

This species is prevalent on the refuge and neighboring properties. Phragmites outcompetes and

blocks out native vegetation and provides little or no food or shelter for most wildlife. Under

proper conditions, it can spread quickly overtaking large areas. In addition to being detrimental

to wildlife, the thick stands of Phragmites become impenetrable to and reduce recreational values

for birdwatchers, walkers, naturalists, boaters and hunters. Control of Phragmites is also difficult

and requires extensive use of pesticides in combination with mechanical measures over a long

period of time.

The most effective method to control these aquatic invasive species is prevention. Education of

boaters, anglers, and the general public on the impacts and costs of aquatic invasive species to

prevent further spread is a nationwide initiative that has been undertaken by numerous state and

Federal agencies. Crab Orchard NWR and USFWS actively works with the Cooperative Weed

Management Areas in Illinois and the Illinois Department of Natural Resources to develop

outreach tools and materials to inform users how to prevent the spread of aquatic invasive

species.



The shallow areas of Crab Orchard Lake that will be dewatered during a drawdown for spillway

repairs are the areas where invasive curly leaf pondweed, Eurasion milfoil, and Phragmites

currently persist. Maintaining stable water conditions and dewatering both have impacts on the

potential for further expansion or reduction of these species. Therefore, these aquatic invasive

plant species were evaluated under both alternatives.

Alternative A

Under this alternative curlyleaf pondweed, phragmites, and Eurasian milfoil are expected to

continue expanding in overall distribution. Phragmites expansion is expected to be slow and

20


limited due to static water levels inhibiting reproduction and recruitment via seed and vegetative

fragments. Expansion of phragmites is expected primarily through clonal rhizome spread;

occupied areas can rapidly increase up to 20% per year (Gucker, 2008). Under this alternative,

treatments of the three aforementioned species will continue on an as needed basis. Curlyleaf

pondweed is treated in Grassy Bay by IL DNR fisheries staff. Eurasian milfoil has not been

treated in Crab Orchard Lake. Phragmites is treated in locations where it affects infrastructure or

public use.

In the event of an uncontrolled release of water, populations of Eurasian milfoil and curlyleaf

pondweed are predicted to migrate to areas of deeper water. Populations on exposed soils would

be unlikely to persist, although new populations would likely develop in newly formed shallower

areas of the lake for a period until repairs and refilling of the lake occurs. Phragmites could

generally be expected to expand and new populations would be expected to establish and would

likely persist under most uncontrolled release scenarios.

Alternative B

Curlyleaf pondweed and Eurasian milfoil may be negatively impacted by a partial drawdown (a

maximum of four feet) which could prevent spread of these species. Curlyleaf pondweed is only

known in Grassy Bay at this time. That shallow bay is expected to experience substantial drying

resulting in a reduction of this species in Crab Orchard Lake based on literature review

(Parkinson et al., 2016; Woolf, 2009). There is potential for Curlyleaf pondweed to spread to

deeper waters, although this is not expected. Such migration would be short-lived, as the plant

would not receive adequate light to survive the subsequent increase in water depth as the lake

refills. Successful control of these two species depends on various factors including degree of

desiccation, substrate type, and temperature. For example, if the four-foot drawdown extends

through the winter months, Eurasian milfoil may experience severe root system damage if

exposed. It is likely to be sufficiently killed following 24-hour exposure to temperatures at or

below 23°F (Lonergan et al., 2014). With the lake drawdown lasting into February 2022, it is

likely that these temperatures will be reached resulting in a reduction in Eurasian milfoil.

Phragmites generally does not spread well from seeds although new populations can be

established through seed dispersal, rhizomes, and/or sod fragments. Studies indicate viable seed

formation is extremely rare, seeds are short-lived in field conditions, and phragmites does not

develop persistent seed banks (Gucker 2008). There remains a possibility of new population

establishment from seed even though the plant can reproduce more easily vegetatively from

stolons and rhizomes. Studies indicate that vegetative colonization decreases as distance

increases from established populations. Under this alternative, the refuge will monitor for and

treat newly established phragmites populations; additionally, if existing stands experience

substantial (e.g. >20%) expansion following the drawdown then treatments may be pursued.

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Expansion of invasive phragmites, curlyleaf pondweed, and Eurasian milfoil will be monitored

and treated as necessary under this alternative. Expansion of these species, considering the intent

to treat and let the lake return to normal pool, is unlikely to lead to any appreciable increase in

their presence.

Watershed and Floodplains


Crab Orchard Lake and the entire refuge lies within the Crab Orchard Creek watershed, which is

estimated at 291 square miles. The Crab Orchard Dam “impounds a nine-mile segment of Crab

Orchard Creek, and regulates runoff from 196 square miles, or 67 percent of the watershed”

(Hite and King, 1977). Crab Orchard Creek is a tributary of the Big Muddy River, which drains

into the Mississippi River. Major tributaries of Crab Orchard Creek include Drury Creek, Grassy

Creek, Little Grassy Creek, and Wolf Creek; other tributaries include Prairie Creek, Pin Oak

Creek, Pigeon Creek, Little Creek, Rocky Comfort Creek, and numerous smaller, unnamed

streams (see Attachments D and E). Surface water on the refuge exists almost exclusively as

man-made reservoirs and ponds. Three large reservoirs, named above, cover nearly 9,000 acres

of the refuge. There are about 60 smaller impoundments covering about 300 acres of the refuge

(range 0.5-100 acres, average = 6 acres). The only natural lake on the refuge is a 42-acre oxbow

located off Crab Orchard Creek.

Description of Relevant Environmental Trends and Planned Actions The Crab Orchard Lake dam regulates runoff from 196 square miles (Hite and King, 1977).

Under Executive Order 11988 – Floodplain management – Fed. Reg. 26951 (1977), “Each

agency shall provide leadership and shall take action to reduce the risk of flood loss, to minimize

the impact of floods on human safety, health and welfare, and to restore and preserve the natural

and beneficial values served by floodplains in carrying out its responsibilities for … managing…

Federal lands, and facilities.” Crab Orchard NWR staff and the USFWS will continue to

maintain and operate the Crab Orchard Lake dam to comply with Executive Order 11988, and to

meet the specifications of the Service Dam Safety Program.

Safety Inspections of Crab Orchard Lake Spillway indicate that repairs are needed to maintain a

safe and functional dam. Not correcting these issues could lead to an uncontrolled release of

water that would affect the downstream watershed and associated floodplains. Potentially

exacerbating the need for the repair and meeting dam safety standards is the rain events in recent

years have suggested an upward trend in flood events. A recent report on climate change

examined trends in heavy precipitation events in the Midwest from 1961 to 2011 (Saunders et al.

2012). The authors found that the number of precipitation events of 3 inches or more nearly

doubled in Illinois and Missouri (Saunders et al. 2012). If this continues to be the case, the

probability of an uncontrolled release may increase if dam repairs are not made.

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The watershed and floodplain downstream of Crab Orchard Lake are regulated by the Crab

Orchard Dam. Dam repairs requiring a drawdown or a dam failure could both have potential

impacts to extensive areas of the watershed and floodplain, both upstream and downstream of the

lake. Therefore, potential impacts to these resources were evaluated under both alternatives.

Alternative A

Under normal circumstances no impacts are expected other than what is already experienced

through passive management of the Crab Orchard Lake spillway. However, in the event of an

uncontrolled release if the spillway were to break, serious negative consequences could be

expected in the lake and the downstream watershed of the lake. These consequences may include

but are not limited to fish kills as previously described, flooding of residential, commercial,

industrial, agricultural, and institutional properties, pollution, and other environmental effects. In

general, an uncontrolled release is considered a low-probability, high consequence event.

The expected area of inundation from an uncontrolled release depends on several factors,

including volume of the lake at time of failure, the magnitude of the failure scenario, flow rates,

weather conditions, and soil saturation levels. An inventory of assets within the inundation area,

for multiple uncontrolled release scenarios, is beyond the scope of this EA. Environmental

impacts to the watershed may be realized in many forms. Pollution of surface or groundwater

within the floodplain may result from the release of hazardous materials in affected downstream

areas, as well as potential soil contamination. There may be potential for high impact pollutants

from warehouses, industrial areas, or agricultural facilities. Pollution of the potable water

supplies, back up of sewage systems, and septic system failures could occur. Severe erosion,

scouring, and mass movement of sediments may negatively affect downstream riparian and

floodplain habitats and other environmental assets. There could be impacts to a wide variety of

critical infrastructure, including roads and utilities in the floodplain. Changes in land use and

land development could ensue within the downstream floodplain. Loss of indigenous plants and

animals within the floodplain could lead to overall decreased biodiversity. Changes in

downstream hydrogeomorphology, configuration of streams, especially ephemeral streams,

should also be expected within the floodplain.

Alternative B

Under this alternative, negligible impacts to the watershed and floodplain are expected. The

refuge will regulate the flow when discharging waters during the drawdown period. One-half to

one foot of water per week may be released from the water control structures at the spillway.

This will increase baseline flows temporarily downstream, however, the flows will be

constrained to within channel flows. In the event that major rainfall is predicted (approximately

an inch of rain or greater) the water control structures may be closed for one to five days prior to

the event so as to not add any volume to Crab Orchard Creek downstream of the spillway. This

23


will allow Crab Orchard Creek to be able to accommodate any runoff storage volume within its

banks downstream of the Spillway.

The floodplain upstream of the lake is expected to experience reduced overbank flows during the

drawdown period. This will provide much needed relief for stressed bottomland forests that have

experienced frequent inundation in the areas of Little Creek, East Crab Orchard Bay, and other

bottomland areas adjacent to Crab Orchard Creek east of the lake.

Cultural Resources Description of Relevant General Features of the Affected Environment

Lands administered by the Service fall under protection of several federal cultural resources laws

(and executive orders and regulations), in addition to policies and procedures established by the

Department of the Interior and the Service to implement these laws. Thus, cultural resources on

federal lands, including Crab Orchard National Wildlife Refuge, receive protection and

consideration that would not normally apply to private or other government lands, including:

American Indian Religious Freedom Act, as amended, 42 U.S.C. 1996 – 1996a; 43 CFR

Part 7

Antiquities Act of 1906, 16 U.S.C. 431-433; 43 CFR Part 3

Archaeological Resources Protection Act of 1979, 16 U.S.C. 470aa – 470mm; 18 CFR

Part 1312; 32 CFR Part 229; 36 CFR Part 296; 43 CFR Part 7

National Historic Preservation Act of 1966, as amended, 16 U.S.C. 470-470x-6; 36 CFR

Parts 60, 63, 78, 79, 800, 801, and 810

Paleontological Resources Protection Act, 16 U.S.C. 470aaa – 470aaa-11

Native American Graves Protection and Repatriation Act, 25 U.S.C. 3001-3013; 43 CFR

Part 10

Executive Order 11593 – Protection and Enhancement of the Cultural Environment, 36

Fed. Reg. 8921 (1971)

Executive Order 13007 – Indian Sacred Sites, 61 Fed. Reg. 26771 (1996).

Description of Relevant Environmental Trends and Planned Actions The refuge contains many documented cultural resources, and other undiscovered sites probably

exist. This would include both prehistoric and historic sites. The refuge ensures that these

cultural resources are identified and protected as much as possible while achieving refuge

purposes and the Refuge System mission. The refuge is guided by several historic preservation

laws and regulations. Early in the planning of all projects, including this one, the refuge asks the

Regional Historic Preservation Officer (RHPO) to initiate the Section 106 process, which is a set

of procedures specified in the National Historic Preservation Act. This process has been initiated.

Archeological investigations and collecting on the refuge are performed only in the public

interest. Qualified archeologists perform the work under an Archaeological Resources Protection

Act permit issued by the Regional Director. Refuge personnel take steps to prevent unauthorized

24


collecting. If unauthorized collecting is detected, refuge officers cite violators or take other

appropriate action and report the violations to the RHPO. As of 2007, twelve archeological

investigations have produced in excess of 55,400 artifacts from refuge lands. The artifacts are

stored at seven repositories, although most are kept at the Center for Archaeological

Investigations at Southern Illinois University, Carbondale, under a cooperative agreement.


Description of Affected Resource Documented and undocumented cultural resources risk being exposed during partial dewatering

of Crab Orchard Lake for necessary spillway repairs, and if an uncontrolled release were ever to

occur. Monitoring, protection, and potential loss of these resources could be factors with a partial

drawdown or an uncontrolled release. Due to potential cost to the Refuge and risk of loss of

cultural resources, impacts of both alternatives were evaluated.

Impacts of Affected Resources

Alternative A Under this alternative, there would not be much anticipated impact unless an uncontrolled release

of water occurred at the lake if the spillway failed. Depending on the severity of the release, it

may have potential to expose both documented and undocumented cultural resource sites that

occur underneath the water’s surface. This may attract collectors. Access to these sites will

probably be limited due to the lack of access that would occur during an uncontrolled release. If

this does occur, law enforcement will be made aware of the situation and potential exposure of

artifacts. Patrols will be increased in the event exposure of artifacts increases.

Alternative B Under this alternative, there is the potential to expose both documented and undocumented

cultural resource sites that occur underneath the water’s surface during the partial drawdown of

the lake. However, there is the potential that less would be exposed under this alternative

depending on how severe the uncontrolled release of water would be in alternative A. Access to

some of these sites will probably be limited due to decreased boat access in lower water levels

during a partial drawdown. Efforts will be made by refuge staff to monitor potential cultural

resource sites on a weekly basis. If refuge staff or contractors discover any artifacts, the Regional

Historic Preservation Officer will be immediately notified for consultation on the necessary steps

to protect these cultural resources [and the area secured from possible collectors]. If this does

occur, law enforcement will be made aware of the situation and potential exposure of artifacts.

Patrols will be increased in the event exposure of artifacts increases.

25


Potential also exists that cultural resources may be exposed during the repair process at the dam.

If this happens, the Regional Historic Preservation Officer will be notified, and the proper steps

will be taken to remedy the situation as explained above.

Visitor Use and Experience


Description of Relevant General Features of the Affected Environment Crab Orchard NWR has a long history of recreational uses that pre-dates the official

establishment of the refuge in 1947. From 1936 until 1947, the area was managed by the USDA

Soil Conservation Service and one of their main projects was the construction of Crab Orchard

Lake. This project was completed in 1940, making this 7,000-acre lake one of the largest man-

made impoundments in the Midwest. Crab Orchard Lake quickly became a major recreational

attraction providing recreational activities that included swimming, boating, picnicking,

camping, hunting, and fishing. Today a wide spectrum of recreational activities continues to

occur on and around Crab Orchard, Devils Kitchen and Little Grassy lakes in accordance with a

refuge purpose of recreation. The activities include boating, water-skiing, swimming, camping,

picnicking, hunting, fishing, wildlife observation, environmental education and interpretation,

horseback riding, and photography. Public use facilities include campgrounds, marinas, boat

ramps, fishing piers, beaches, picnic areas, hiking trails, wildlife drive, visitor center, an

environmental education complex, observation decks, hunting blinds and photo blinds (USFWS

2019).

Description of Relevant Environmental Trends and Planned Actions The refuge has experienced heavy visitation since its establishment. In 1956, the refuge reached

a milestone of 1 million annual visitors. Nine years later visitation surpassed 2 million annual

visits. During the 1970s and 80s visitation fell as additional State and Federal recreational areas

were constructed in Southern Illinois. In recent years the refuge has averaged more than 850,000

visits per year (USFWS 2019), and is steadily approaching 1,000,000 annual visitors again.

Fishing, camping, boating, and swimming in Crab Orchard Lake account for a large percentage

of the usage on Crab Orchard NWR.

The heavy recreational use of Crab Orchard NWR requires major investment in maintaining

infrastructure such as roads, campgrounds, marinas, boat ramps, parking areas, utility services,

etc. Investment is also required in operation and maintenance of the dams and spillways on Crab

Orchard NWR. Crab Orchard Lake dam has undergone several modifications, improvements,

and repairs since its initial construction. All three high hazard dams on Crab Orchard NWR,

(Crab Orchard, Devils Kitchen, and Little Grassy) have or will have undergone maintenance or

repairs in 2020-2021. Operation and maintenance of the reservoir dams on Crab Orchard NWR

26


will continue into the foreseeable future to continue to provide recreational opportunities and

economic support in the southern Illinois region.



A partial drawdown to conduct the necessary repairs on the Crab Orchard Lake spillway or an

uncontrolled release could have impacts to the large number of recreational users of Crab

Orchard Lake. Fishing, boating, swimming, wildlife viewing, and camping experiences could be

impacted by changes in water levels on the lake. Therefore, impacts to visitor use and experience

were evaluated under both alternatives.

Impacts on the Affected Resource

Alternative A

Under this alternative, within normal circumstances, there are no expected impacts to wildlife-

dependent recreation, visitor use, or the health and safety of visitors on the refuge. However, in

the event of an uncontrolled release on Crab Orchard Lake if the spillway fails, major negative

impacts would be realized. Crab Orchard Lake constitutes approximately 16% of total area of the

refuge and as such is the most important recreational feature. Approximately 75% or more of all

recreational use on the refuge takes place on or immediately adjacent to the lake. Fishing,

boating, skiing, swimming, and waterfowl hunting would be severely limited, if not eliminated,

on Crab Orchard Lake for an extended period (>1 year) during repair and refilling of the lake.

The marina, boat ramps, boat slips, and other recreational infrastructure associated with the lake

could be closed for the duration of repairs and refilling. The Campgrounds, Wolf Creek and

Prairie Creek recreation areas, and other picnic areas could remain open. However, without

adequate water availability for fishing and boating, these areas are likely to experience major

declines in visitor use during the drawdown period. The draw down period occurs during some

of the busiest times of year for these users and will likely reduce the use by (insert number of

visitors that you think will be loss).

Alternative B

Under this alternative, the total surface acres available for recreation on Crab Orchard Lake

would be reduced by approximately 1,600 acres (see map in Attachment B). Impacts are

expected primarily to the Marina and houseboat users; however, the Crab Orchard Beach will

likely be closed due to a lack of water. A four-foot drawdown would require houseboats to be

removed from their slips and either pulled out or moored in deeper areas of the Lake. Houseboats

may be temporarily removed from the Lake at the owner’s expense or allowed to moor on the

Lake for the duration of the drawdown. Tenants will be credited the following year for all time

lost in 2021.

27


Enhanced opportunities for wildlife viewing may result from increases in water bird use on Crab

Orchard Lake as species take advantage of foraging in areas of concentrated prey species such as

fish and invertebrates.

Anglers may experience both positive and negative short-term effects. Fishing success is

expected to increase due to fish becoming more concentrated as the surface area and volume of

the lake decreases. However, some shallow areas frequented by anglers, either from the bank or

from a boat, are expected to become inaccessible and dry (see map in Attachment B). Long-term

positive effects on the lake’s fisheries were previously described; these positive effects are

expected to increase the quality of angler experience for several years following the lake

returning to normal pool. Boating and skiing users will experience a reduction in total acres

accessible for such activities for the period of the drawdown and new hazards from artificial fish

structures may be exposed. Some fishing piers will likely be closed due to safety issues; some

piers are expected to be largely out of water and their floats may come to rest in a severely

unlevel fashion. Green Briar, West End, and Carterville boat ramps are expected to remain

accessible. However, some boat ramps may be closed due to inaccessibility and for minor repairs

if conditions warrant.

Waterfowl hunters may experience both positive and negative effects. Grassy Bay, a popular

waterfowl hunting area may be inaccessible during the waterfowl-hunting season. However, it is

expected that additional shallow water habitats will become available and receive increased

dabbling duck use. These additional areas may offset any impacts from the loss of “normal”

shallow water hunting areas. Vegetation diversity and abundance may improve following the

drawdown, which could improve waterfowl use and hunting opportunities.

Anticipated harvest of migratory waterfowl on the refuge under Alternative B could be less or

more than normal depending on waterfowl response to the drawdown and accessibility by

waterfowl hunters. However, the refuge’s preferred alternative will not have more than a

negligible addition or subtraction to the total impacts of migratory waterfowl hunting in the

flyway.

Anticipated reductions in recreational opportunities are expected to be of such a short duration

that effects will be negligible in terms of socioeconomic impacts at local, regional, and national

levels. No long-term effects are expected from either alternative except in the instance of an

uncontrolled water release under alternative A. Fishing may increase or decrease depending on a

variety of factors. Visitor use and experience for fishing, boating, or other recreational activities

except in the instance of an uncontrolled release under Alternative A will be negligible in the

long-term.

28


Refuge Management and Operations

Administration


Description of relevant General Features of the Affected Environment

The costs of administering and enforcing the refuge's fishing, hunting, visitor use, maintenance,

and water management programs comes out of the refuge's annual budget. Expenses include

program management, staff resources, boundary posting, signage, brochures, parking lot

construction, facility maintenance, and other management activities. The refuge has a user fee

and permits are required.

Description of Relevant Environmental Trends and Planned Actions Law enforcement, including but not limited to, enforcing State hunting regulations, trespassing,

and other violations associated with the management of the refuge is the responsibility of three

Federal Wildlife Officers. Refuge officers cooperate with, and are assisted by, state officers,

county officers, and state conservation officers. Ongoing coordination and communication

between refuge staff and law enforcement officers is conducted throughout the year.

A hunting, fishing, and general brochure that identifies refuge specific regulations is available at

the refuge office, website, and kiosks located at all parking lots and boat ramps on the refuge.

The refuge also uses non-law enforcement staff to manage hunting, fishing, maintenance,

biological, and water level management activities. Fisheries management is conducted

cooperatively by refuge staff, U.S. Fish and Wildlife Service Carterville Fisheries Office staff,

and Illinois Department of Natural Resources staff. Staff are available during the hunting seasons

to assist hunters and non-hunters and ensure that all refuge users understand where to locate

areas that are open to hunting, fishing, boating, and other visitor uses. Staff that operate the

refuge's education and visitor center routinely interact with and assist refuge users throughout the

year.



The cost in staff time to administer, monitor, operate, and maintain facilities and services on

Crab Orchard NWR could be affected by a partial drawdown for the necessary spillway repairs,

or in the case of an uncontrolled release. In both cases, law enforcement staffing and time

commitments could be affected as well. Therefore, the effects on administering the programs of

Crab Orchard NWR were evaluated under both alternatives.

Impacts on Affected Resources

Alternative A

No additional increase in costs are expected for administration, law enforcement, biological

monitoring, management, or research. However, a spillway breach would result in short-term,

but large costs for administration, law enforcement, and facilities staff.

29


Alternative B

A short-term minor increase in visitor services, biological monitoring, vegetation management,

water level management, and annual maintenance is anticipated under this alternative. It is

expected that this increase will be able to be covered by the refuge annual budget and refuge

revenues.

Socioeconomics



Local and regional economies Located west of Marion, Illinois, on the northern edge of the Ozark foothills, Crab Orchard

Refuge is one of the largest refuges in the Service's Great Lakes Region at 45,446 acres. Crab

Orchard Refuge is unique in the NWRS in having an industrial program that generates $40

million annually to the local economy. Additionally, the refuge is an attraction for anglers,

hunters, campers, boaters, bird watchers and other outdoor enthusiasts. Recreation results in

large expenditures for both travel-related goods and services and activity-related equipment

purchases.

Refuge hunting opportunities provide benefits to the local economy through the sales of food,

gas, supplies or lodging. According to research on economic effects, hunting on the refuge

resulted in $2.2 million in expenditures for both travel-related goods and services and activity

related equipment purchases (Caudill, 2003).

Employment In 2010, there were 28,749 full- and part-time jobs in Williamson County. Healthcare, retail

trade and educational services occupations accounted for about 43.2% of the jobs across the area

followed by food serving and law enforcement occupations (10.4%) (2010 U.S. Census Bureau).

Income and Education The median household income in Williamson County is $45,902, just less than $14,000 below

the state average and approximately $10,000 below the national average (2016 U.S. Census

Bureau). The percent of population below the federal poverty line is an indicator of the economic

distress within a community. The percent below poverty in Williamson County, 14.9%, is just

higher than the national average of 14.0%.

In Williamson County, approximately 90% of residents over the age of twenty-five were high

school graduates and 22.5% have earned a bachelor's or advanced degree (U.S. Census Bureau,

2013.)

Description of Relevant Environmental Trends and Planned Actions Williamson County has slightly decreased in population size by just under 1% since 2010. In

2021, the median household income in Williamson County is $50,734, an increase of $4,832

30


since the 2016 census. The percent of population below the federal poverty line is an indicator of

the economic distress within a community. The percent below poverty in Williamson County,

13.9%, down one percent since 2016.

In 2021 in Williamson County, approximately 92% of residents over the age of twenty-five were

high school graduates and 24.3% have earned a bachelor's or advanced degree. These figures

were both slight increases since the 2016 census.



Spending associated with recreation can generate a substantial amount of economic activity in

local and regional economies. Refuge visitors spend money on a wide variety of goods and

services. Trip-related expenditures may include expenses for food, lodging, and transportation.

Anglers, hunters, boaters, and wildlife watchers also buy equipment and supplies for their

particular activity. Because this spending directly affects towns and communities where these

purchases are made, recreational visitation can have a major impact on local economies,

especially in small towns and rural areas. These direct expenditures are only part of the total

picture, however. Businesses and industries that supply the local retailers where the purchases

are made also benefit from recreation spending. Each dollar of local retail expenditures can

affect a variety of businesses at the local, regional and national level. Consequently, increases or

decreases in availability of recreational uses and associated consumer spending can have a major

impact on economic activity, employment, household earnings and local, state and Federal tax

revenue. A study was conducted in 2017 to evaluate the economic contribution of Crab Orchard

National Wildlife Refuge to the local economy. Based on that study, recreational spending in

local communities was associated with about 315 jobs, $8.37 million in employment income,

$2.3 million in tax revenue, and 29.2 million in economic output. Impacts on Affected

Resource

Alternative A

Under normal dam operation, no impacts would be realized from this alternative. However,

several residences, businesses, utilities, and roads could be located within the possible inundation

extent of Crab Orchard Dam in the event of an uncontrolled release. This would be due to the

continued deterioration of the dam and its spillway over time under this alternative, especially

without repairing the spillway within the proper time frame. Substantial impacts could extend to

the local community from loss of revenue related to fishing, boating, and other recreational uses

that may be substantially reduced in the event of an uncontrolled release. There are too many

variables and possible uncontrolled release scenarios for accurately estimating the extent of local

economic revenue reductions from an uncontrolled release, but the magnitude of these impacts

would be considerable. Impacts to the Haven could be expected, as the lake is the non-potable

water supply for that facility.

31


Alternative B

Any socioeconomic impacts under this alternative are expected to be negligible and of a short

duration. The partial drawdown for the Crab Orchard Lake covered by this EA is expected to

start in summer 2021. It is anticipated that work will be completed and the lake starting to refill

by February 2022. This depends on factors including but not limited to things such as the

weather and construction needs which would allow the possibility an extension being granted to

complete the spillway repair. Consideration has been taken to conduct this project when it will

have the least impact to the Refuge, its resources, and the general public. It is expected that this

project will be largely conducted in early fall to winter of 2021. Winter is the slowest time for

outdoor recreationists on the lake. Most of the Refuge concessions and campgrounds close on

October 31 each year and open April 1.

If plans go according to schedule, the project should be conducted to accommodate most of this

dormant time frame. Fishing and hunting would most likely be the biggest use on the lake during

this time. Anglers may have limited access to some spots, but concentrations of fish may make

them easier to catch in some places. Most fishing boats will still be able to access the lake,

although some boat ramps may need to be closed. Deer hunters entering the lake by boat may

have limited access to some places on the lake. Waterfowl hunters may as well, but with the

elimination of the duck draw more areas of the lake will be open to hunting.

In addition, if the drop in water accommodates more dabbling ducks, there may be an increase of

waterfowl usage on the lake. These opportunities have the potential to increase visitation on the

lake, which may in turn increase revenue to the area. In addition, this project may provide some

jobs for local residents in the short term. If not, and workers are brought in from out of the area,

they will more than likely use local lodging and eateries in the area. In the long term, the

reassurance that stability in the lake with no potential uncontrolled release of water and only

minor drawdowns to facilitate necessary repairs will maintain or even increase revenue generated

in the area.

Environmental Justice


Executive Order 12898, Federal Actions to Address Environmental Justice in Minority

Populations and Low-Income Populations, requires all federal agencies to incorporate

environmental justice into their missions by identifying and addressing disproportionately high

or adverse human health or environmental effects of their programs and policies on minorities

and low-income populations and communities.


Alternatives A and B

The Service has not identified any potential disproportionately high and adverse environmental

or human health impacts from this proposed action to minorities or low-income populations or

communities. There are no minority or low-income communities within the impact area.

32


Minority or low-income communities will not be disproportionately affected by any impacts

from any of the alternatives.

Monitoring Monitoring will occur regardless of the alternative selected to ensure that the alternatives

continue to have no adverse impacts on the environment beyond those already described

resulting from passive lake management. The refuge uses adaptive management strategies as part

of all management programs to ensure no impacts are realized. Water levels, sportfish

populations, invasive species, visitor use, hunting and fishing will all continue to be monitored

under each alternative. Vegetative response monitoring may be increased under alternative B,

especially with regard to invasive species as described previously. Additional follow-up

monitoring of invasive species populations will be implemented to ensure success following any

invasive species treatments prescribed resulting from monitoring under alternative B.

Summary of Analysis

Alternative A – No Repair to the Crab Orchard Spillway – [No Action

Alternative]

The No Action Alternative does nothing to address the refuge purposes, as it does not lead to

repairs of the Crab Orchard Lake spillway. If the spillway is not repaired, it could result in an

uncontrolled release causing substantial on and off-refuge impacts. Impacts include the loss of

recreational opportunities on Crab Orchard Lake, the loss of water supplies critical to the

continued operation of the Haven, and negative affects to a wide array of wildlife and their

habitats. Emergency repairs after a failure and uncontrolled release would also be much more

costly than proposed repair action.

Additionally, this alternative does not meet the need described earlier in the document as it does

not help to meet the Service’s priorities and mandates to “assist in the maintenance of adequate

water quantity and water quality to fulfill the mission of the System and the purposes of each

refuge”.

As described above, under normal circumstances the No Action Alternative only further

perpetuates the degraded state of the lake. Shoreline erosion, high turbidity, deep unconsolidated

flocculent sediments, high planktivore and benthivore fish populations, lack of fish escape,

spawning, and nursery habitats would all continue along the current trajectory. Catastrophic

changes to the lake’s habitats and species, as well as severe off-refuge impacts, may be realized

in the event of an uncontrolled release resulting from a failure to address the spillway

deficiencies.

33


Alternative B – Repair the Crab Orchard Spillway – [Preferred Alternative] This alternative helps meet the purpose and needs of the Service as described above because it

would lead to repairs of the Crab Orchard Lake spillway, maintain the lake’s wildlife and

habitats, provide wildlife-dependent recreation opportunities, maintain the Haven’s water supply,

protect critical infrastructure, and protect life and property downstream. Additionally, this

alternative meets the Service’s priorities and mandates to “assist in the maintenance of adequate

water quantity and water quality to fulfill the mission of the System and the purposes of each

refuge”, ensure the continued provision of opportunities for compatible wildlife-dependent

recreational uses, and fulfill the Service’s mandate under the NWRSAA.

As described above, the potential impacts of this alternative to visitor use and services includes

the drawdown of waters popular for fishing, boating, and hunting during the summer, fall, and

winter. The action is proposed to repair and protect the integrity of the Crab Orchard spillway

and dam. This will provide long-term benefits in that the lake, its wildlife, habitats, and

recreational opportunities will continue to persist. Benefits are expected to a wide range of

wildlife and their habitats because of the drawdown. Some benefits are expected to last up to

three years and possibly longer. For these reasons, a four-foot drawdown appears to provide the

most feasible and cost-effective alternative for repair options.

This alternative would also, off-refuge assets, ensure future maintenance of adequate water

quantity and water quality to fulfill the mission of the System and the purposes of the refuge,

List of Sources, Agencies and Persons Consulted U.S Fish and Wildlife Service Regional and National Dam Safety Program’s

Illinois Department of Natural Resources and Carterville Fisheries Offices

U.S. Fish and Wildlife Service Staff: Cathy Nigg, Refuge Area Supervisor; Jeanne Holler,

Division of Conservation Planning Chief; Kristin Rasmussen, Conservation Planner; James

Myster, Regional Historic Preservation Officer; Matt Mangan, Ecological Services

List of Preparers Dan Wood, Wildlife Biologist

John Hartleb, Wildlife Refuge Specialist

Justin Sexton, Refuge Manager

Neil Vincent, Visitor Services Manager

Kevin Reichert, Maintenance Supervisor

Donovan Henry, Assistant Refuge Manager

34


State Coordination

Crab Orchard National Wildlife Refuge staff have worked cooperatively with Illinois

Department of Natural Resources to manage fish and wildlife resources for over 20 years. There

has been and continues to be communications with the Illinois Department of Natural Resources

Fisheries Biologists over the partial drawdown and the potential impacts. Discussions included

impacts to fish and vegetation in the lake. These impacts were described in above sections of this

document.

Tribal Consultation

Tribes and tribal members are welcome to provide comment during the public comment period.

Formal tribal consultation was not required during this process as there are no federally

recognized tribes active in the area to consult.

Public Outreach

This draft environmental assessment will be made available to the public for review for a period

of 15 days and public meetings will be held during the public review period. This draft

environmental assessment will be posted on the refuge website and public comments will be

solicited from April 15 through April 30, 2021. Comments or requests for additional information

may be submitted through any of the following methods:

Email: [email protected]. Include “Crab Orchard Lake Environmental

Assessment” in the subject line of the message.

Fax: “Attn: Crab Orchard Lake Environmental Assessment” to (618)997-8961.

Mail: U.S. Fish and Wildlife Service,

Attn: Justin Sexton

8588 Route 148

Marion, Il 62959

All comments received from individuals become part of the official public record. We will

handle all requests for such comments in accordance with the Freedom of Information Act and

National Environmental Policy Act regulations in 40 CFR 1506.6(f). The Service’s practice is to

make comments, including names and home addresses of respondents, available for public

review during regular business hours. Individual respondents may request that we withhold their

home address from the record, which we will honor to the extent allowable by law. If you wish

us to withhold your name and/or address, you must state this prominently at the beginning of

your comments.

35


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Attachment A. Location of Crab Orchard National Wildlife Refuge

(Crab Orchard NWR). Crab Orchard NWR is located in southern Illinois within

Williamson, Jackson, and Union counties.

39


Attachment B. Map and general features of Crab Orchard National Wildlife Refuge

(Crab Orchard NWR).

40


Attachment C. Map of dewatered areas in a partial, 4 foot, drawdown of Crab Orchard Lake.

41


Attachment D. Map of Crab Orchard Creek Watershed

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Attachment E. Primary Tributaries of Crab Orchard Creek

environmental assessment for dam spillway repair on crab

Documents