This notice announces the availability of the Final Environmental Impact Statement (FEIS) for the Village of Bald Head Island proposed terminal groin and shoreline stabilization project.
The complete FEIS, along with other key project documents, can be downloaded from the Bald Head Island project page.
PUBLIC NOTICE
Issue Date: August 1, 2014
Comment Deadline: September 1, 2014
Corps Action ID #: SAW-2012-00040
All interested parties are hereby advised that the Wilmington District, Corps of Engineers
(Corps) has published in the Federal Register a Notice of Availability (NOA) for the
Final Environmental Impact Statement (FEIS) for the Village of Bald Head Island
Shoreline Protection Project on Bald Head Island, Brunswick County, North Carolina.
This public notice serves to address requirements for public notification as contained in
general regulatory statutes (i.e., 33CFR325-332) and those statutes (i.e., 33CFR230 and
40CFR1500) which outline requirements for compliance with the National
Environmental Policy Act. The main purpose of the proposed project is to address
erosion at the western end of South Beach and to thereby protect public infrastructure,
roads, homes, beaches, dunes and wildlife habitat. The applicant’s proposed action
includes the construction of a 1,900-ft terminal groin as well as creation and maintenance
of an updrift sand fillet on the western end of South Beach.
Current plans and location information are described below and shown on the attached
plans. This Public Notice and all plans are also available on the Wilmington District
Web Site at:
http://www.saw.usace.army.mil/Missions/RegulatoryPermitProgram/PublicNotices
Applicant:
Village of Bald Head Island
c/o: Calvin Peck, Village Manager
Post Office Box 3009
Bald Head Island, North Carolina 28461-7000
Agent (if applicable): Olsen Associates, Inc.
c/o: Erik J. Olsen
2618 Herschel Street
Jacksonville, Florida 32204
Authority
The Corps will evaluate this project to compare alternatives that have been carried
forward for study pursuant to applicable procedures under Section 10 of the River and
Harbors Act and Section 404 of the Clean Water Act (33 U.S.C. 1344). In order to more
fully integrate Section 404 permit requirements with the National Environmental Policy
Act of 1969, and to give careful consideration to our required public interest review and
404(b)(1) compliance determination, the Corps is soliciting public comment on the merits
of this proposal. This comment period is offered to allow agencies and the public the
opportunity to provide comments on the FEIS and the applicant’s proposed project.
Written comments on the FEIS will be received until September 1, 2014. The District
Commander is not authorizing construction of a proposed terminal groin or any
alternative under consideration at this time. A Department of the Army permit could be
issued following a complete review of the proposal for compliance with our regulations
and related laws, including assurance that impacts to the aquatic environment have been
minimized to the maximum extent practicable and a compensatory mitigation plan for
unavoidable impacts has been approved. This FEIS includes responses to comments
received during public review of the Draft EIS (DEIS).
Location
Bald Head Island is located in Brunswick County, North Carolina at approximately
33°51’ N, 78°00’ W (see Figure 1). It is roughly 25 miles south of the City of
Wilmington and 32 miles east of the South Carolina/North Carolina state line. It is the
southernmost of the coastal barrier islands which form the Smith Island complex at the
mouth of the Cape Fear River. The southeastern tip of the island is Cape Fear (also
referred to as Cape Fear Point) from which Frying Pan Shoals extend seaward over 20
miles to the southeast.
The island’s east and south shorelines, “East Beach” and “South Beach, front the Atlantic
shoreline. The west shoreline, or “West Beach,” fronts the Cape Fear River. A
depositional spit feature known as the “Point” lies at the juncture of West Beach and
South Beach (see Figure 1). The north side of the island is bounded by the Bald Head
Creek estuary, Middle Island and Bluff Island. The Cape Fear River entrance, over one
mile in width, separates Bald Head Island from Oak Island (or Caswell Beach).
Existing Site Conditions
A temporary sand-filled tube groin field was constructed by the Village of Bald Head
Island (Village) along the westernmost portion of South Beach in March 1996,
immediately following completion of a 1996 dredge disposal project constructed by the
Wilmington District. Sixteen groins (sand-filled tubes) were constructed of geotextile
material and filled with sand. These temporary groins were replaced by the applicant in
2005 and in 2009.
The Island’s gross volumetric sediment loss over the period from November 2000 to May
2011 (excluding East Beach) was approximately 4.363 million cubic yards (Mcy), or
approximately 415,000 cy per year. During this period, the largest erosion impacts
occurred at the west end of South Beach near the Cape Fear River entrance. Since 2001,
the Wilmington District has placed approximately 4.09 Mcy on the South Beach
shoreline from material dredged during the Cape Fear River channel deepening/widening
project and three channel maintenance projects. In 2009, the Village dredged
approximately 1.85 Mcy from Jay Bird shoals and placed this material onto South Beach
and West Beach. In July 2011, the VBHI constructed an extension to groin no. 16
(located closest to the Cape Fear River Entrance). The need for this structure was due to
erosion on the downdrift side of groin no. 16. In December 2011, the Village
constructed approximately 350 ft. of sand bag revetment located downdrift of groin no.
16 in order to alleviate erosion impacts to the nearby adjacent dunes, roads, homes,
habitat, and infrastructure. The Village recently placed approximately 140,000 cy of
material at the western end of South Beach. The source of material for this project was
Bald Head Creek Shoals. Most recently, during the Winter and early Spring of 2013, the
maintenance dredging of the Federal channel has resulted in the disposal of
approximately 1.525 Mcy along South Beach between Sta 44+00 and 150+00 and along a
portion of West Beach.
Applicant’s Stated Purpose
The purpose of the proposed work is to address erosion at the western end of South
Beach and to thereby protect public infrastructure, roads, homes, beaches, dunes and
wildlife habitat.
Project Description
The Corps, in consultation with the Project Review Team (PRT), developed a range of
alternatives to be considered in the FEIS. The range of alternatives includes
considerations of various means by which to respond to the project need and associated
objectives. An initial alternative identified during scoping, but not advanced further in
the EIS analysis, included consideration of construction of a terminal groin without beach
nourishment. As this alternative is not compliant with the provisions of State Senate Bill
151 and is not preferred from an engineering standpoint, it has been eliminated from
further consideration. The remaining alternatives evaluated within the FEIS are identified
in Table 1. Below:
Table 1. Project Alternatives
Alternative #1 No-Action (includes component of Status-Quo)
Alternative #2 Retreat
Alternative #3 Beach Nourishment/Disposal with Existing Sand Tube Groinfield to Remain in
Place
Alternative #4 Beach Nourishment/Beach Disposal and Sand Tube Groinfield Removal
Alternative #5 Terminal Groin with Beach Nourishment/Beach Disposal
(Sand Tube Groinfield Remaining)
Alternative #6 Terminal Groin with Beach Nourishment/Disposal
(Removal of Sand Tube Groinfield)
Description of Alternatives
1. No Action/Status Quo Alternative
Under the No-Action Alternative, the Village would not implement any comprehensive
action (or actions) to offset the on-going erosion of the western end of South Beach. The
No-Action Alternative takes into consideration the existing or status quo condition.
Disposal events occurring under the existing Wilmington Harbor Sand Management Plan
(SMP) would occur. The current SMP anticipates roughly 2/3 of the total volumetric
sand dredged from the channel would be placed on Bald Head Island. Under the No-
Action Alternative, short-term stabilization measures such as the placement of emergency
sand-bags for protection of structures imminently threatened by erosion and the
maintenance of the existing sand-tube groinfield would occur. Furthermore, the no action
or status quo alternative would include use of beach scraping during the winter
months to stabilize foredunes in critically eroded areas. The Village would also continue
its program of sand fencing to promote dune formation and stabilization.
2. Retreat
Under the Retreat Alternative, the Village would identify high-risk areas for the
development and implementation of a Managed Shoreline Retreat Plan (MSRP) that
would ultimately provide for the unimpeded recession of the shoreline. The Plan would
provide for the systematic removal of the sand tube groinfield and the demolition or
relocation of residences, roads, and infrastructure, if land and funds are available, in
advance of the shoreline recession. Thresholds would be identified to trigger the
demolition or relocation of specific structures. As part of the retreat strategy,
undeveloped lots of the interior sections of Bald Head Island would be identified and
acquired for the explicit use of relocating homes. Unimproved lots potentially available
for acquisition and structure relocation have been identified based upon several factors,
including: distance from nine-year predicted shoreline position under the Retreat
Alternative; condition of lot (i.e. unimproved); and relocation logistics (e.g. avoiding
areas in maritime forest that would require additional clearing along narrow right-of ways
for structure transport).
3. Beach Nourishment/Disposal with Existing Sand Tube Groinfield to Remain in Place
Under Alternative #3, it is assumed that beach disposal would continue per the terms of
the existing SMP. The Village would continue to design and implement independently sponsored
beach nourishment and beach disposal projects on an as-needed basis. While
Federal Emergency Management Agency (FEMA) funds may be available to the Village
to address sand losses subsequent to a declared disaster, FEMA support is not available
for scheduled renourishment events.
Potential sand sources that may be considered in EIS include the following:
a. Wilmington Harbor Entrance Channel
Prior federal channel maintenance and disposal events conducted under the Wilmington
Harbor SMP have demonstrated that the innermost segment of the Ocean Entrance
Channel is a suitable source of beach-compatible material. Navigation channel surveys
for three channel reaches (Smith Island Range, Baldhead Shoal Channel 1, and Baldhead
Shoal Channel 2) continue to be conducted on bi-monthly intervals. Condition surveys
performed by the Corps of Engineers in 2012 indicate the occurrence of continued
shoaling in Smith Island Channel and Baldhead Shoal Reaches 1 and 2. Areas of
pronounced decreases in channel depth resulting from shoaling represent suitable high
quality sources for beach nourishment material.
b. Jay Bird Shoals
Jay Bird Shoals is a linear, ebb tidal feature of the Cape Fear River and is situated
immediately west of the confluence of the current Wilmington Harbor entrance channel
and the former, abandoned channel. Suitable sediment (i.e. beach compatible by North
Carolina sediment standard criteria) has been previously identified throughout much of
the shoal feature to an average depth of -22 ft NGVD. In 2009, the Village received
federal and state authorizations to dredge up to 2 Mcy of material from Jay Bird Shoals.
The permitted borrow site was approximately 158 acres and was located at the seaward
end of the shoal. Prior to authorization of the final borrow site footprint, boundaries were
refined to avoid and minimize disturbance to potential cultural and environmental
resources. A 200-ft buffer was maintained around two areas containing potential
shipwreck material. The final authorized borrow limits avoided shallow subtidal and
intertidal habitat (Land Management Group, 2009).
Approximately 1.85 Mcy of material (measured volume from borrow site) was excavated
and pumped to South Beach and West Beach during the Village-sponsored 2009/2010
beach restoration project. Based upon geotechnical evaluations completed in 2007, the
Jay Bird Shoals permitted borrow area contained over 3 Mcy of beach quality material
(Olsen 2007). However, as indicated above, the final volume requested for the
2009/2010 project was 2 Mcy for a one-time nourishment event.
c. Bald Head Creek Shoals
The depositional shoal feature located at the mouth of Bald Head Creek (BHC) is a
potential smaller volume sand source in the immediate vicinity of the Island. The creek
mouth is located approximately 1600 linear feet north of the entrance to Bald Head
Marina. BHC is a relatively small saltwater creek system (approximately 3.5 km from
headwaters to mouth) subject to semidiurnal tidal flows. It is bordered to the south by
Bald Head Island and to the north by Middle Island.
In November 2010, the Village received Federal and state authorization to dredge
100,000 cy of material from an approximate 21-acre borrow site at the mouth of BHC for
the purpose of providing supplemental sand to a severely eroded segment of western
South Beach. The permit was subsequently modified to allow for up to 140,000 cy of
material to be excavated. The Village completed the dredge and nourishment work in
March 2012. Monitoring of the borrow site is on-going for a period of up to 3 years post construction.
Given the relatively short-time period since project construction (one year),
there has been no significant infilling or adjustment of the borrow site documented to
date. The borrow site limits may be expanded to the north to allow for the excavation of
approximately 200,000 cy of beach quality material.
d. Frying Pan Shoals
Frying Pan Shoals is a submerged extension of a cuspate foreland (i.e. accretional feature
formed by processes of longshore drift and prevailing wind and wave conditions). The
shoals extend nearly 20 miles offshore from the eastern end of Bald Head Island. Early
reconnaissance level sand resource evaluations conducted for the Cape Fear Region
(Meisburger 1977) identified that “modern sediment accretion on the inner shelf appears
to be largely restricted to the shoal fields off Cape Lookout and Cape Fear, and to inlet
shoals along the coast.” It included exploratory density type seismic lines, as well as a
limited number of cores and surficial grab samples. Based upon sediment core data
collected as part of this early study, the most appropriate beach quality sand identified
within the Cape Fear shoal field appeared to be sixteen (16) nautical miles offshore of
Bald Head Island. It should be noted that sediment sampling for the study was relatively
limited given the expansive area of Frying Pan Shoals. More recent evaluations
conducted by the Corps as part of the General Reevaluation Report (GRR) for the
Brunswick County Beaches Coastal Storm Damage Reduction Project indicate the
presence of substantial volumes of “beach-compatible” material. However, in
correspondence received on 9, 2014, the National Marine Fisheries Service (NMFS)
stated that the use of Frying Pan Shoals may be included in the Final EIS provided there is a
commitment to reinitiate Essential Fish Habitat consultation with NMFS should the Village
actually pursue mining sand from this area.
4. Beach Nourishment/Beach Disposal and Sand Tube Groinfield Removal
Under this alternative, beach disposal would continue per the terms of the existing SMP,
and the Village would implement supplementary beach nourishment and/or beach
disposal projects on intervals sufficient to accomplish the stated Purpose and Need. In
addition, the Village would terminate maintenance of the sixteen (16) sand-filled tube
groinfield or seek means by which it would be removed. Removal of the sand-filled
geotextile tubes and associated underlayments would require excavation with heavy
machinery and sand tube clearing via hydraulic means (i.e. washing of sand from each
tube structure). Sand tube removal can occur only subsequent to a beach fill operation in
order to ensure a sandy shorefront immediately upon removal. Similarly, excavation of
the structures – essentially in the “dry” after a fill project – ensures both complete and
relatively cost-effective removal. The potential sand sources required for this Alternative
are the same as those identified under Alternative #3.
5. Terminal Groin with Beach Nourishment/Beach Disposal (Sand Tube
Groinfield Remaining)
Alternative #5, the applicant’s preferred alternative, includes the construction of a 1,900
linear foot (lf) terminal groin concurrent with, and following a federal beach disposal
operation on Bald Head Island. The structure would be constructed in two phases (as
discussed below) and would serve as a “template” for fill material placed eastward
thereof. Federal beach disposal activities on South Beach typically proceed from west to
east. Historically, the westernmost limit of direct federal beach disposal in proximity to
the channel (by design specification) has been approximately South Beach baseline
station 44+00.
As required by current North Carolina General Statute, the construction of a terminal
groin would necessarily involve the placement and maintenance of a concurrent beach
fillet (NC Session Law 2013-384). The concurrent beach fillet would be achieved via
disposal from an approved source site. As indicated above, the proposed source site for
the fillet is sand disposal from the Wilmington Harbor navigation project. Additional
sand source sites proposed by the applicant for maintenance and future Village-sponsored
nourishment are: (1) Jay Bird Shoals; (2) reaches of the Wilmington Harbor Channel
demonstrated to contain beach-compatible material (i.e. Baldhead Shoal Channel 1,
Baldhead Shoal Channel 2, and Smith Island Channel); (3) Bald Head Creek Shoal; and
(4) Frying Pan Shoals.
Construction Phasing: In order to expedite beneficial post-groin shoreline equilibration
conditions (both updrift and downdrift of the structure, and including formation of the
sand fillet), the terminal groin would be constructed in two phases. Phase I would
involve the construction of an approximate 1,300-lf structure (approximately 2/3 of the
structure’s overall design length) coincident with the federal beach disposal. Phase II
would extend the seaward end of the structure to complete the structure’s overall design
length. It is estimated that the timing of the Phase II groin construction would be based
upon two to four years of performance monitoring. The implementation of Phase II
would be coordinated with agencies subsequent to the submittal of physical monitoring
data. Physical monitoring is described in more detail in the EIS.
It is presently estimated that a Phase I (1,300 ft long) terminal groin, constructed without
the need for a hydraulically placed fillet, could theoretically begin in November or
December of the construction season but would in all probability extend at least 3 months
past the 1 May 2015 moratorium observed to minimize impacts to nesting sea turtles.
Certain construction activities associated with terminal groin construction can begin prior
to beach disposal operations. They are principally limited however to stone transport and
stockpiling at the site, installation of a construction trestle (if deemed necessary),
excavation and limited placement of structure foundation mattresses and armor rock
(above the MLWL).
If implemented concurrent with the Federal disposal, it is possible that the Phase I
structure may not require any additional sand from a supplemental source site. At the
least, a Phase I structure would reduce both the initial volume of sand required, as well as
potentially the timing of updrift fillet enhancement (if necessary) by approximately six
months to one year.
6. Terminal Groin with Beach Nourishment/Disposal (Removal of Sand
Tube Groinfield)
Alternative #6 would involve the construction of a single, low-profile terminal groin as
described in Alternative #5 above. However, upon completion of the installation of the
terminal groin, the Village would begin the systematic removal of the existing sand-tube
groinfield on South Beach. Sand placement via Village-sponsored nourishment projects
and federal beach disposal would continue on periodic intervals.
Avoidance and Minimization
Efforts to avoid and minimize effects on aquatic resources will be evaluated during the
analysis of alternatives and prior to permit decision.
Compensatory Mitigation
The project will have no direct or indirect effects on wetlands. No compensatory
mitigation to offset unavoidable functional loss to the aquatic environment is proposed.
Avoidance and minimization measures proposed by the applicant are described in the
FEIS. Rationale for not including construction moratoria are described in the FEIS
Other Related Federal Laws
Since, distribution of the DEIS in January 2014, the Corps has concluded consultation
with the appropriate Federal and State resource agencies on the following Federal laws:
National Historic Preservation Act – State Historic Preservation Officer, Endangered
Species Act-U.S. Fish and Wildlife Service; and the Magnuson-Stevens Fisheries
Conservation and Management Act – NMFS. Consultation with NMFS Protected
Resources Division regarding the project’s effects on Atlantic sturgeon and marine sea
turtles is pending.
Other Required Authorizations
This notice and all applicable application materials are being forwarded to the appropriate
State agencies for review. The Corps will generally not make a final permit decision until
the North Carolina Division of Water Quality (NCDWQ) issues, denies, or waives State
certification required by Section 401 of the Clean Water Act (PL 92-500). The receipt of
the application and this public notice combined with appropriate application fee at the
North Carolina Division of Water Quality central office in Raleigh will constitute initial
receipt of an application for a 401 Water Quality Certification. A waiver will be deemed
to occur if the NCDWQ fails to act on this request for certification within sixty days of
the date of the receipt of this notice in the NCDWQ Central Office. Additional
information regarding the Clean Water Act certification may be reviewed at the NCDWQ
Central Office, 401 Oversight and Express Permits Unit, 2321 Crabtree Boulevard,
Raleigh, North Carolina 27604-2260. All persons desiring to make comments regarding
the application for certification under Section 401 of the Clean Water Act should do so in
writing delivered to the North Carolina Division of Water Quality (NCDWQ), 1650 Mail
Service Center, Raleigh, North Carolina 27699-1650 Attention: Ms Karen Higgins by
September 1, 2014.
The applicant has not provided to the Corps, a certification statement that his/her
proposed activity complies with and will be conducted in a manner that is consistent with
the approved North Carolina Coastal Zone Management Program. Pursuant to 33 CFR
325.2(b)(2), the Corps cannot issue a permit for the proposed work until the applicant
submits such a certification to the Corps and the North Carolina Division of Coastal
Management (NCDCM), and the NCDCM notifies the Corps that it concurs with the
applicant’s consistency certification.
Evaluation
The decision whether to issue a permit will be based on an evaluation of the probable
impacts, including cumulative impacts, of the proposed activity on the public interest.
That decision will reflect the national concern for both protection and utilization of
important resources. The benefit which reasonably may be expected to accrue from the
proposal must be balanced against its reasonably foreseeable detriments. All factors
which may be relevant to the proposal will be considered including the cumulative effects
thereof; among those are conservation, economics, aesthetics, general environmental
concerns, wetlands, historic properties, fish and wildlife values, flood hazards, flood plain
values (in accordance with Executive Order 11988), land use, navigation, shoreline
erosion and accretion, recreation, water supply and conservation, water quality, energy
needs, safety, food and fiber production, mineral needs, considerations of property
ownership, and, in general, the needs and welfare of the people. For activities involving
the discharge of dredged or fill materials in waters of the United States, the evaluation of
the impact of the activity on the public interest will include application of the
Environmental Protection Agency’s 404(b)(1) guidelines.
Commenting Information
This notice announces that we have distributed a Notice of Availability for the FEIS
which will be published in the Federal Register on August 1, 2014 and can be found in
the Federal Register at the following website:
http://www.gpo.gov/fdsys/browse/collection.action?collectionCode=FR
After connecting with the website, click through the dates to August 1, 2014. Click on
“Defense Department” and then locate the Village of Bald Head Island Shoreline
Protection Project under “Notices.”
As disclosed in the NOA, any written comments pertinent to the proposed work, as
outlined above, will be received by the Corps of Engineers, Wilmington District, until
September 1, 2014. Comments should be submitted to Mr. Ronnie Smith, Wilmington
Regulatory Field Office, 69 Darlington Ave., Wilmington, North Carolina 28403-1343,
or (910) 251-4829, or by email at: ronnie.d.smith@usace.army.mil.