1999 BASS LAKE SHORELINE AND WATER SURFACE MANAGEMENT PLAN

Transcription

1 1999 BASS LAKE SHORELINE AND WATER SURFACE MANAGEMENT PLAN PACIFIC GAS AND ELECTRIC COMPANY CRANE VALLEY HYDROELECTRIC PROJECT FERC PROJECT NUMBER 1354 FINAL - JUNE 2001

2 1999 BASS LAKE SHORELINE AND WATER SURFACE MANAGEMENT PLAN TABLE OF CONTENTS Page 1. EXECUTIVE SUMMARY GOALS, OBJECTIVES, AND STRATEGIES... 2 Goal 1 - Provide a Safe Water Surface... 2 Goal 2 - Enhance and Balance Recreation Activities on Bass Lake... 6 Goal 3 - Coordinate the Management of Bass Lake s Water Surface with its Environmental Resource Goals, Including Wildlife, Botanical, 8 Water Quality, and Cultural BACKGROND INFORMATION Background Bass Lake Advisory Board for Boating Use (ABBU) Crane Valley Project Committee (CVPC) Current Management at Bass Lake State of California Pacific Gas and Electric Company Madera County Madera County General Plan Recreation Element U.S. Forest Service Sierra Forest Land and Resource Management Plan Other Management Agencies Miller-Lux Agreement Findings ABBU Water Surface Boat Counts Cal Boating Accident Data Sheriff Department Boat Registration Data Forest Service CUSTOMER Boating Questionnaire Survey Data Recommendations by Advisory Groups Advisory Board for Boating Use (ABBU) Crane Valley Project Committee (CVPC) Recreation Subcommittee Lake Surface and Shoreline Management (LSSM) Task Force Lake Level and Instream Flow (LLIF) Task Force File: 1999SWSMPiii.doc i

3 1999 BASS LAKE SHORELINE AND WATER SURFACE MANAGEMENT PLAN TABLE OF CONTENTS (Continued) Page 3.5 Key Issues Boating Safety Management of Shoreline Facilities Environmental Protection BIBLIOGRAPHY Appendices Appendix A - Current Members of the Communication Committee for Bass Lake Appendix B - Bass Lake Shoreline Permit Program Appendix C - Rules and Regulations Governing Boating in Madera County Appendix D - Comment Letters List of Figures Figure Page Figure 1 - Existing Land Uses... 3 Figure 2 - Bass Lake Water Surface Plan Summary Figure 3 - Bass Lake Shoreline Zones Figure 4 - Bass Lake Shoreline and Water Surface Management Plan Summary 15 Figure 5 - Existing Water Surface Zones Appendix B Figure Figure A - Bass Lake Design Guideline Graphics U Shape Docks... Rectangular Docks... L-Shape Docks... Single Slip Adjacent to Multi-Slip Docks... Multi-Slip Docks... Figure B - Pier Head Line Coves and Planning Areas... Page List of Tables Table Page Table 1 - Permitted Structures and Leased Shoreline Areas Within the FERC Boundaries of the Crane Valley Project Table 2 - Privately Owned Facilities Under County Jurisdiction Table 3 - Forest Service Public Recreation Facilities Table 4 - Forest Service Privately Permitted Recreation Facilities ii

4 1999 BASS LAKE SHORELINE AND WATER SURFACE MANAGEMENT PLAN 1. EXECUTIVE SUMMARY This Shoreline and Water Surface Management (SWSM) Plan-addresses the uses and occupancies on Bass Lake s water surface and along its shoreline. Bass Lake is the primary storage reservoir for Pacific Gas and Electric Company s (Licensee s) Crane Valley Hydroelectric Project, Federal Energy Regulatory Commission (FERC) Project No. 1354, which supplies electric power for use in California. The lake is located in the foothills of California s Sierra Nevada Mountains, 5 miles east of Oakhurst and 40 miles north of Fresno, offering cooler summer temperatures than those in the San Joaquin Valley. The cooler climate, combined with the attractive reservoir and easy access from population centers, contributes to the popularity of the area. Its unique mixture of public recreation facilities, private resorts, and year round residences, its proximity to Fresno and Yosemite National Park, and the desirable summer temperatures all combine to create a very strong public demand for water oriented recreation at Bass Lake. Bass Lake is approximately 5 miles long and ½ mile wide with 14.7 miles of shoreline. Along the lake s southwest shore, the United States Forest Service (FS) provides numerous day and overnight public recreation facilities and permits use of its land by several resorts, recreation residences, and organizational camps. The lake s northeastern shore is characterized by residential homes, several resorts, and relatively steep shoreline terrain managed as open space by the Forest Service (FS) as shown on Figure 1. The local Bass Lake Chamber of Commerce, private resorts, Madera County Visitors Bureau, and the FS actively promote the attractions found at Bass Lake. The SWSM Plan addresses shoreline uses from the FERC boundary, which is generally the lake s high water surface elevation in private shoreline areas and 75 feet above this elevation in public shoreline areas, down to the lake s winter pool elevation. The plan also addresses the boating use on the lake s water surface. During the typical summer recreation season, the water surface generally fluctuates from 1,165 acres at the end of May down to 922 acres at the end of September. The SWSM Plan is scheduled to be updated every 10 years. 2. GOALS, OBJECTIVES, AND STRATEGIES The purpose of this SWSM Plan is to formulate a comprehensive policy for managing the lake s shoreline and water surface that is consistent with the project s primary purpose of power generation and balances present and future recreational development with the need to provide a safe, enjoyable, and environmentally sensitive recreation experience. The policies of the 1999 SWSM Plan were developed with input from the FS, the County Sheriff s Department and residential and commercial interests at Bass Lake during many advisory meetings. Licensee s objective in developing the plan is to reach broad support 1

5 for the plan s policies. Given that Bass Lake crosses many jurisdictional boundaries, implementation of the policies and goals will require the commitment, not only of the Licensee, but also of the County, the FS, other resource agencies, commercial marinas, and homeowners at the lake. The SWSM Plan s goals, objectives, and policies are presented below and key policies are summarized on Figures 2 and 4. GOAL 1: PROVIDE A SAFE WATER SURFACE OBJECTIVE 1: Enhance safety and minimize boating conflicts through water surface management. Strategy 1: Request the County Sheriff s Department to continue to adjust the buoys as the water level recedes so the area in the personal water craft (PWC) zones is not reduced substantially between the Memorial Day and Labor Day weekends. Strategy 2: Encourage the County Sheriff s Department to continue the safety program currently in place at Bass Lake. The safety program includes, but is not limited to, safety inspections of water craft, warnings issued to individuals who practice unsafe boating activities, citations issued to violators of boating rules and regulations, and enforcement of a 5 mph speed limit on the lake when unsafe conditions exist because of the number of water craft on its water surface. Strategy 3: Encourage the County Sheriff s Department to annually summarize the Bass Lake accident statistics in the same categories as the annual statewide Cal Boating Accident Report. This would make it easier to compare Bass Lake accident data to statewide accident statistics and to the accident data from other lakes that are similar to Bass Lake. Strategy 4: Encourage the County Sheriff s Department to record the water surface zone location of each accident. Strategy 5: Encourage the County Sheriff s Department to hold an annual public meeting to review use and safety statistics at Bass Lake and to modify the safety program, if necessary, to address safety concerns. Strategy 6: Encourage the County Sheriff s Department to continue water surface boating use counts by water surface area, water craft type, and activity on Saturday afternoons during the summer recreation season. Strategy 7: Encourage the County Sheriff s Department, commercial marinas, residents, and visitors to immediately remove, when observed, floating hazards from the lake s water surface. Encourage the removal of floating hazards from the lake in future versions of the Bass Lake Safety Brochure. 2

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8 OBJECTIVE 2: Increase Bass Lake boaters knowledge of boating regulations and safe boating practices. Strategy 1.0: Continue providing boaters with boating safety information during boat registration. Safety information should include: Strategy 1.1: A simple-to-read Bass Lake safe boating brochure summarizing: Bass Lake boating regulations; Safe and courteous boating and PWC practices; and A map showing boating zones, rest rooms, launches, fueling facilities, commercial marinas, and public recreation facilities. In the next safe boating brochure update, include information encouraging boaters to watch out for swimmers and recreation users on floatation devices within the low speed zone. Strategy 1.2: The ABC s of California Boating Laws published by the California Department of Boating and Waterways; Strategy 1.3: A listing of dates and places of boating safety classes offered throughout California by the Power Squadron and Coast Guard Auxiliary. Strategy 2: Provide informational signs at boat launches, commercial marinas, FS campgrounds, and community docks that list and graphically show basic Bass Lake rules and regulations. Strategy 3: Encourage commercial marinas to show short safety and operational videos to inexperienced boat and PWC operators before renting such craft to them. Strategy 4: Encourage businesses at Bass lake to coordinate a PWC safety day in which PWC manufacturers provide instruction and demonstrate the use of safe PWC operation to the recreating public. Strategy 5: Encourage the Red Cross, Power Squadrons, U.S. Coast Guard Auxiliary, commercial marinas, the County Sheriff s Department, or other qualified groups to offer boat and PWC handling and safety courses at Bass Lake. Strategy 6: Encourage the County to update the Boating in Madera County pamphlet to reflect current boating rules and regulations at Bass Lake. GOAL 2: ENHANCE AND BALANCE RECREATION ACTIVITIES ON BASS LAKE 5

9 OBJECTIVE 1: Achieve acceptable levels of satisfaction among Bass Lake's primary water recreation users pleasure boaters, water skiers, PWC users, anglers, and swimmers. Strategy 1: As part of the ten-year shoreline and water surface management plan update, survey the lake s primary water recreation users for their satisfaction while pursuing their primary activity, for feelings of crowding within their primary water surface zones, and satisfaction with management of the lake s water surface, shoreline, and recreation facilities. Fund this survey through a one-year increase in boating registration fees. Strategy 2: As part of the ten-year shoreline and water surface management plan update, consult with representatives of local boating organizations. OBJECTIVE 2: Achieve acceptable levels of satisfaction among Bass Lake's residents, day-use visitors, and overnight visitors. Strategy 1: As part of the ten-year shoreline and water surface management plan update, consult with representatives of the homeowners, the FS, the commercial marinas, and the County. Strategy 2: Encourage the County to pass an ordinance prohibiting overnight parking at the Wishon boat launch to better accommodate use by day-use boaters. Strategy 3: Allow public demand to determine the short term versus long-term boat rental composition of commercial marinas. OBJECTIVE 3: Allow the development of shoreline structures within acceptable limits. Strategy 1: Limit the number of boat docks and moorings by implementing the spacing standards in the Bass Lake design guidelines (see Appendix B). Strategy 2: Permit new shoreline structures to owners with long term leases, easements, or fee title for shoreline property. New permitted shoreline structures constructed by these owners shall be located directly in front of their owned, leased, or easement shoreline property. Strategy 3.1: Encourage the County to pass an ordinance that establishes designated overnight berthing areas at Bass Lake and allows overnight berthing of boats only within these areas. All berthing within these areas must be under permit with the Licensee. 6

10 Strategy 3.2: Berthing areas should include: a) Existing residential boat dock areas. b) Existing commercial dock and mooring areas. c) Proposed berthing areas near FS campgrounds to accommodate existing overnight moored or beached boats dispersed along Bass Lake s westerly shoreline. These mooring areas should not preclude public access to popular shoreline areas. d) New berthing areas to accommodate privately owned or leased shoreline areas. Strategy 3.3: Encourage the County Sheriff s Department and the FS to cite boats moored or beached overnight outside of the designated berthing areas (see Figure 3). OBJECTIVE 4: Manage the development of public launch facilities to reduce congestion along access roads and in parking areas and to provide more convenient access for users. Strategy 1: Consider formalizing the public boat launch and parking facilities at the Forks Resort. Strategy 2: Work with Cal Boating in determining appropriate design, necessity, and location of any new public or commercial boat launching facility. OBJECTIVE 5: Reduce congestion around boat docks and other shoreline structures, minimize intrusion by boat docks and structures onto the boatable water surface, and maintain boat docks and other shoreline structures in a safe condition. Strategy 1: Use the criteria in the shoreline permitting program (see Appendix B) to reduce congestion, minimize intrusion into the boatable water surface, and maintain boat dock safety. Strategy 2: Encourage the Pines Marina and Pines Resort to develop a boat dock management plan that reconfigures existing boat docks in a way that reduces congestion and moves the gas dock to the lake side end of the marina. Strategy 3: Encourage the FS and the Forks Marina to develop a Forks Cove management plan that addresses shoreline use and parking, converts the existing rental buoys to boat slips, and formalizes the existing single launch lane. Strategy 4: Encourage the FS to work with its permitees, Miller s Landing and the Forks Resort, to develop plans to accommodate existing overnight mooring along the west shore. Authorize approximately 56 moorings or slips to accommodate boats brought to Bass Lake by campground visitors. The goal is to provide approximately one mooring or boat slip per four FS campsites. 7

11 Strategy 5: Encourage dock owners to use dredging as an option to reduce congestion in coves and other shoreline areas. GOAL 3: COORDINATE THE MANAGEMENT OF BASS LAKE'S WATER SURFACE WITH ITS ENVIRONMENTAL RESOURCE GOALS, INCLUDING WILDLIFE, BOTANICAL, WATER QUALITY, AND CULTURAL. OBJECTIVE 1: Minimize impacts from boating on environmental resources. Strategy 1.0: Encourage the County and the FS to revise their Bass Lake camping regulations to include no boat camping below the high water mark. Strategy1.1: Encourage the County Sheriff s Department and the FS to conduct early morning (i.e. 6 A.M.) surveys to enforce the proposed ban on overnight camping below the high water mark at Bass Lake. Strategy 2: Inform boaters of environmentally sensitive boating practices using educational material handed out during boat registration. Strategy 3: Encourage the County to pass an ordinance prohibiting beaching of boats within riparian areas. Strategy 4: Continue monitoring cultural resource sites to assess impacts from recreation use. OBJECTIVE 2: Minimize impacts from construction activities on environmental resources. Strategy 1: Formalize the Bass Lake shoreline zones described below and shown on Figure 3 at the end of this section. Management and permitting within these zones are to be consistent with the Project s hydroelectric operations, license conditions, and resource plans. In addition, these zones will be managed according to the following policies and other policies contained in the 1999 SWSM Plan. Residential Zone: This zone corresponds to private residences located along the shoreline in fee, lease, and easement areas. New structures will generally be permitted within this section as long as spacing requirements, as well as other permit requirements, are met. The reduction of congestion within this zone is an important criteria that will be used to evaluate permit applications for the construction of new shoreline structures and the reconstruction of existing shoreline structures. 8

12 Commercial Zone: This zone corresponds to private commercially owned or leased shoreline areas. Permitted shoreline uses and occupancies within this zone shall be available to the general public. Developed Public Recreation Day-Use Zone: This zone corresponds to government owned developed public recreation areas. Permitted shoreline use and occupancies within this zone shall be available to the general day-use public Informal Public Recreation Day-Use Zone: This zone corresponds to government owned developed public recreation areas without structures. These areas are managed for dispersed recreation use and general open space. New recreational structures will not be permitted within this zone. However, structures needed to enhance or protect the natural environment may be permitted. Organizational Camps: This zone corresponds to berthing areas designated for organizational camps. Shoreline areas adjacent to these areas will be available to the general public. Resource Protection Zone: This zone contains environmental resources in need of protection. Shoreline uses and occupancies will not be permitted in this zone. Presently this zone contains riparian habitat and may be expanded in the future to contain other sensitive resources, such as wildlife nesting areas. Strategy 2: Utilize the shoreline permitting program to minimize impacts to Bass Lake s unique environmental resources, such as riparian areas, special status wildlife habitat, visual resources, and cultural resources. Strategy 3: Utilize the shoreline permitting program to prohibit new shoreline development within nesting habitats of special status wildlife species. For proposed activities in areas adjacent to such nesting habitat, require the permit applicants to consult with the appropriate resource agencies. Strategy 4: Utilize the shoreline permitting program to identify proposals for new shoreline development or the reconstruction of existing facilities that will impact cultural resource sites eligible for the National Register of Historic Places. On private land, the Licensee s cultural resource specialist will identify avoidance or mitigation requirements that will become conditions of the permit for such projects. On FS land, avoidance and mitigation requirements will be developed in consultation with the FS. Strategy 5: Utilize the shoreline permitting program to encourage the use of materials that conform to the environmental setting of shoreline structures. Strategy 6: Do not permit the use of reflective roof materials. OBJECTIVE 3: Minimize land-use impacts to environmental resources. 9

13 Strategy 1: Prepare an informational sheet describing measures that shoreline property owners can implement to minimize the quantity of domestic pollutants entering Bass Lake. Strategy 2: Encourage an annual Bass Lake Shoreline and Water Surface Clean-Up Day sponsored by the FS, homeowner associations, commercial establishments, and the Licensee. OBJECTIVE 4: Minimize shoreline erosion and encourage the removal of sediments from the Bass Lake. Strategy 1: Continue to monitor soil erosion around the lake. Strategy 2: Implement erosion control measures where public safety is threatened. Strategy 3: Conduct annual inspections of shoreline structures and encourage property owners to effectively maintain retaining walls and other permitted structures. Strategy 4: Cooperate with property owners and boat dock owners to remove accumulated sediment that has become an obstacle to boating traffic. Strategy 5: Maintain the low speed zone along the shoreline of Bass Lake. 10

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18 Figure 4 Bass Lake Shoreline and Water Surface management Plan Summary Recently Implemented Measures County ordinance prohibiting camping except in designated campgrounds. County ordinance prohibiting operation of motorized vehicles and starting of fires on lake bed. County ordinance prohibiting parking along Road 222. Proposed Shoreline Measures Establish formal shoreline zones and mooring areas around the lake to help Licensee manage the shoreline. Shoreline zones include residential, commercial, developed public recreation, dispersed public recreation, organizational camps, and resource management areas. Licensee will permit new structures, including docks and slips, in residential, commercial, and mooring areas. Appropriate public day-use facilities and improvements will be permitted in the developed recreation zone. The organizational camp zone represents existing permitted docks at organizational camps. Only resource protection measures will be permitted in dispersed recreation zones and resource protection zones. Proposed County ordinances including: Establishing formal overnight mooring areas. Outside these areas, the FS and the Sheriff s Department will cite moored or beached water craft left overnight. Prohibiting overnight parking at the Wishon boat launch to increase day-use opportunities. Prohibiting beaching of boats within riparian areas. Require the Pines, Forks, and Miller s marinas along with the FS to develop management plans to address berthing and shoreline uses. Prepare an information sheet that will assist property owners with minimizing the amount of domestic waste entering Bass Lake. Encourage an Annual Bass Lake Shoreline Clean-Up Day. Annually inspect shoreline protection measures and encourage owners to effectively maintain these measures. Implement new erosion control measures where public safety is threatened. Shoreline Permitting Program Adopt the Bass Lake Permitting Program that includes the Bass Lake design guidelines which establish structure spacing and length standards and a pierhead line to manage the lengths of shoreline structures. New structures that meet the permitting requirements and design standards will, in general, be permitted, while those that don t meet these requirements and standards will not be permitted. Allow existing permitted shoreline structures to remain even if they do not meet the guidelines. Allow such structures to be reconstructed as is in place, but encourage voluntary efforts to reduce congestion, especially in coves, when reconstructing such structures. Require that any modifications to part or all of an existing permitted structure meet the latest Bass Lake design guidelines. Protect Bass Lake s environmental, cultural, and visual resources through the approval process of the permitting program. Proposed projects may be denied or modified to protect these resources. 15

19 3. BACKGROUND INFORMATION 3.1 Background Bass Lake is the largest storage reservoir in the Crane Valley Hydroelectric Project system. Spring runoff is stored in the lake for later release to generate electricity for use in California and according to the conditions set forth in the Miller-Lux agreement administered by the U. S. Bureau of Reclamation (Bureau). In 1984 Licensee began studies to relicense the Crane Valley Project and in 1986 filed a new license application with the Federal Energy Regulatory Commission (FERC) for the project. To date a new license has not been issued, and the Licensee has operated the project on an annual license since the original license expired in The license application s recreation plan proposed that Bass Lake s water surface and shoreline zoning and management practices be developed in cooperation with the FS and Madera County (the County). Subsequently, FERC requested that the Licensee submit a comprehensive Shoreline and Water Surface Management (SWSM) Plan for the lake. Licensee prepared a SWSM Plan and filed it with FERC in The plan was developed in cooperation with the County, FS, California Department of Boating and Waterways (Cal Boating), and the FERC Regional Office. The implementation of the 1989 SWSM Plan was conditioned upon Licensee s acceptance of a new license. Bass Lake Advisory Board for Boating Use (ABBU): In 1992, Licensee formed the Bass Lake Advisory Board for Boating Use (ABBU) to review and recommend updates to the 1989 SWSM Plan. The ABBU was composed of representatives from the Licensee, FS, the County, Bass Lake homeowners, and Bass Lake commercial interests. Appendix A lists the names of individuals who have served on the ABBU. Between 1992 and 1997, the ABBU met 29 times, with the County s participation limited to specific issues. During this period the ABBU implemented the following actions that are consistent with the objectives of the 1989 SWSM Plan: Performed boating use counts from 1993 through Sponsored the CUSTOMER Boater Attitude Survey conducted by the FS in Monitored Bass Lake boating accidents. Compared the number of accidents at Bass Lake to comparable lakes. Sponsored a 1996 Safety Workshop to address the increase in boating accidents. Obtained agreement from the Sheriff s Department to monitor boating use. Obtained a County ordinance that prohibits parking on Road 222. Obtained a County ordinance that prohibits the operation of motorized vehicles and bicycles below the high waterline of Bass Lake. Reviewed options for establishing a dock pierhead line. Reviewed options for establishing appropriate spacing between docks. Reviewed and commented on Licensee s proposed shoreline permitting program. In 2001 the name of the ABBU was changed to Communication Committee for Bass Lake (CCBL) by agreement of the members. 16

20 In addition, the Licensee has implemented the following measures since the 1989 SWSM Plan was prepared: Issued new boat dock permits. Established interim rules for the use of existing boat docks and other structures. Established spacing standards between boat docks. Maintained a moratorium on the construction of additional boat docks until Obtained a County ordinance that prohibits camping outside of designated campgrounds. Crane Valley Project Committee (CVPC): In 1996 the Licensee withdrew the improvements to the Crane Valley Hydroelectric Project that it had proposed in its 1986 license application. With the decline in energy prices, these could no longer be supported by the project. The Licensee began working cooperatively with the resource agencies and other stake holders to develop and file an application that would have widespread public and agency support and could be supported by the project economics. As part of this effort, the Licensee committed to spending $6 million to fund the new recommended license proposals. The Crane Valley Project Committee (CVPC) was created to assist the Licensee in developing these proposals. This committee consisted of representatives from the California Department of Fish and Game (DFG), the U. S. Fish and Wildlife Service (FWS), the FS, the County, the Madera Irrigation District (MID), the Bureau of Reclamation (Bureau), and the Licensee. The CVPC established a recreational subcommittee to address Project-wide recreational issues; a Lake Surface and Shoreline Management Task Force (LSSM) to review and update the 1989 SWSM Plan; a Lake Level and Instream Flow (LLIF) Task Force to recommend alternatives for maintaining water surface elevations that facilitate recreation activities at Bass Lake; and the Partners for Bass Lake Resources (PBLR), a non profit association, to seek funding to improve and preserve the environmental, recreational, and cultural resources in and around Bass Lake. The CVPC has considered establishing a conservancy or other resource management entity at Bass Lake to help fund the CVPC Bass Lake proposals and to manage the lake. 3.2 Current Management at Bass Lake The four primary entities with management jurisdiction at Bass Lake are the State of California, the County, the FS, and the Licensee. Coordination and consistency of management policies and regulations is an ongoing effort between them. State of California: The State of California establishes boating regulations that govern the use of state waters, including Bass Lake. When forming regulations, the state tries to maintain uniformity with federal boating regulations. Recent legislation has updated boating regulations regarding operation of personal water craft, age limits and education for vessel operators, enforcement of boating laws, intoxicated vessel operators, and control of beach erosion. Local governments may also adopt boating regulations and 17

21 ordinances that pertain to time of day restrictions, speed zones, special-use areas, and sanitation and pollution control. Cal Boating is the lead state agency in making recommendations on changes in state boating laws. It works with local agencies to maintain uniformity with local boating ordinances. Cal Boating also plays a state-wide lead role in collecting and annually reporting boating accident statistics, providing boating safety material and classes, establishing statewide guidelines for the design of boat berthing and launching facilities, granting funding to government agencies for planning and constructing boating facilities, and providing loans to small businesses for the development of marina facilities. At Bass Lake Cal Boating has provided accident data, funding for the Wishon Boat Launch, and brochures on state boating regulations, water skiing, and PWC safety. In addition, Cal Boating s design guidelines for boat berthing and launching facilities have been incorporated by reference into the Bass Lake shoreline facility design guidelines. Pacific Gas and Electric Company: The Licensee is responsible for managing the lands and waters within the FERC project boundary in compliance with the Project s license conditions and resource plans as well as to meet the electric demands of its customers. Approximately 1,165 acres of water surface and 14.7 miles of shoreline lie within the FERC boundary. The Licensee owns approximately 6.4 miles of shoreline around the lake. Approximately 1.3 miles of Licensee s southwest shoreline are under an easement to the FS. In addition, Licensee licenses approximately 2.9 miles of northeastern shoreline to the Lakeshore Park, Lakeview Estates, and Marina View Heights residential developments for docking and general shoreline use. Since the 1989 SWSM Plan was developed, Licensee has sold approximately 2.9 miles of shoreline lands, lying above the high water surface elevation and outside the FERC project boundary, to private owners of the Pines and Falls residential tracts, the Pines Resort, and other interests (see Figure 1). Article 33 of the Project s FERC license delegates to the Licensee the authority to approve certain land uses and occupancies within the FERC project boundary without prior FERC approval. This includes permission to approve: small, noncommercial piers, landings, and boat docks; embankments, bulkheads, retaining walls or similar erosion control structures to protect the existing shoreline; landscape plantings; and food plots for wildlife. Licensee is also granted the authority to lease, provide fee title to, or convey easements across project lands for small private or public commercial marinas that can accommodate no more than 10 water craft at a time and recreational developments and other uses that involve five acres or less. Licensee can only exercise its authority if the proposed use and occupancy is consistent with the purpose of protecting and enhancing the scenic, recreational, and other 18

22 environmental values of the project. Under the requirements of Article 33, Licensee has the continuing responsibility to: supervise and control the use and occupancies it permits or conveys; monitor the use of and ensure compliance with the conditions of the permits and rights it conveys; and require multiple use and occupancy of facilities for access to project lands or waters, to the extent feasible and desirable. The Licensee is allowed to establish a program to issue permits for the specified uses and occupancies and may charge reasonable fees to cover the administration costs of the permit program. Licensee has established a permitting program for Bass Lake (see Appendix B). The currently permitted structures and leased land areas are summarized in Table 1 below. Table 1. Permitted Structures and Leased Shoreline Areas Within the FERC Boundaries of the Crane Valley Project Permitted Structures Retaining Docks Slips Boat Ramps Walls 9 Private 9 1 Lease Lands Shoreline The Falls Residential Tract The Pines 141 Private 143 Residential Tract 18 Community 279 The Pines Resort 2 Commercial 60 The Pines Marina 2 Commercial 79 1 two lane ramp 200 feet Lake Shore Tract 39 Private 39 1 single lane ramp 1 mile 1 Community 2 Marina View Heights 5 Community 76 1 single lane ramp ¼ mile Residential Tract Wishon Boat Ramp 1 two lane ramp Lakeview Estates 1 Community 16 1 single lane ramp ¼ mile Wishon Cove 1 Private 1 Wishon Cove (PSEA) 1Community 16 Miller s Landing 1 Commercial 80 Sky Lake / 1 Private 1 Yosemite Camp The Forks Resort 1 Commercial 66 moorings 1 informal single lane ramp 19

23 Madera County: The County regulates and manages Bass Lake s water surface within the FERC boundary and approximately 4.4 miles of privately owned shoreline areas adjacent to the FERC boundary that coincides with the lake s high water surface elevation (HWSE) in these areas. These lands correspond to the residential, commercial, and private recreation uses along the lake s northeast shore (see Figure 1). On the water surface, as allowed by state law, the County has established special use areas and time of day regulations as summarized in Figure 5. In addition, county ordinances prohibit polluting of Bass Lake waters, prohibit parking along the shore of Bass Lake on Road 222 to prevent congestion, and prohibit fires and the operation of vehicles below Bass Lake s HWSE. The County Sheriff s Bass Lake Boat Patrol actively enforces both state and county boating regulations on Bass Lake during the summer season. All Bass Lake water craft must be inspected and issued a pollution control permit at the Sheriff s tower located near the center of Bass Lake. Proceeds from these permits pay for the costs of administering the permit program and for patrolling the lake to enforce boating regulations. At the time of permit registration, the Sheriff hands out a copy of the County s boating regulations (see Appendix C) and boating safety material. Of the privately owned shoreline adjacent to the FERC project boundary, 2.8 miles belong to property owners within the Pines and Falls residential tracts, 0.1 mile is owned by the Pines Resort and Pines Marina, and 1.4 miles are Licensee lands leased to the Lakeshore, Lakeview, and Marina View residential tracts. The county manages these lands through its general plan and zoning, subdivision, and building code regulations. Privately owned facilities that are outside the FERC boundary and not on FS or Licensee lands, and thus under the County s jurisdiction, are summarized in Table 2 below. To date the County has not exerted building code enforcement jurisdiction over boat docks and other structures within the FERC boundary. 20

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25 Madera County General Plan Recreation Element: The recreation element of the County s 1994 general plan states that the County is not active in acquiring land or providing outdoor recreation opportunities for its residents because much of the land within the county is owned and administered by the FS. Relevant recommendations of the recreation element include: Local, state and federal agencies should work together to provide regional funding for parks and recreation facilities of regional significance; The County should promote the continued and expanded use of national forest, national park, and wilderness areas to meet the recreational needs of County residents; The County should encourage federal, state, and local agencies currently providing recreation facilities to maintain, at a minimum, and improve, if possible, their current levels of service; and Urban expansion should be encouraged in planned growth patterns to maximize preservation of natural resources and emphasis placed on community recreation facilities. Table 2. Privately Owned Facilities Under County Jurisdiction Shoreline Parcels Total Parcels Falls Residential Tract Lakeshore Park Lakeview Estates. 15 Marina View Heights 100 Overnight Rental Units Commercial Parking Spaces Pines Tract Pines Residential Tract Pines Resort 20 Suites + 84 Units 531 Bass Lake Bed & 2 Units Breakfast The Lake House Bed & 2 Units Breakfast. Bass Lake Homes 100 Units Bass Lake Land Office 60 Units Bass Lake Vacation 90 Units Rentals Bass Lake Recreation Resort 60 RV Sites + 20 Cabins Bass Lake Lodge 4 Units Note: Many of the overnight rental units are in private homes. 22

26 United States Forest Service: The FS owns approximately 5.4 miles of Bass Lake shoreline. In addition, the FS has an easement from Licensee to use another 1.3 miles of shoreline. These lands are managed in accordance with FS management plans and regulations. The FS manages its shoreline lands primarily for public recreational day-use where the natural terrain and resources allow and for general open space along steep shoreline and constrained resource areas. The FS manages six picnic areas, a group picnic area, a group campground, an informal area, and the Wishon Boat Launch along the shoreline and four campgrounds and one group campground away from the shoreline (see Table 3 below and Figure 1). The FS also issues special use permits for the use of its land to two resorts, two recreation residential tracts, and three organizational camps as summarized in Table 4. Table 3: Forest Service Public Recreation Facilities Day Use Areas Units Parking Spaces PAOT Capacity Recreation Point 1 Group Denver Church Pine Slope Pine Point Rocky Point Falls Beach Lakeside Willow Cove Informal Wishon Boat Launch Campgrounds Units Parking Spaces PAOT Capacity Forks 31 informal 186 Lupine Cedar Bluff Spring Cove Wishon Point Crane Valley Group Recreation Point Youth Group PAOT = People at one time 23

27 Sierra Forest Land and Resource Management Plan: The FS management plan as amended in 1993 focuses on improving the level of service of its Bass Lake public recreation facilities to provide an urban level of recreation experience. The plan for Bass Lake proposes to improve the comfort and convenience of existing recreation facilities, make facilities accessible to persons with disabilities, protect natural resources from high use levels, and reduce conflicts between users. The plan contains these additional Bass Lake shoreline and water surface proposals: Continue restrictions on boat speeds and time of use; Limit boating density to one boat for each four acres of water surface; Restrict overnight mooring to designated mooring sites on FS lands; Limit expansion of boat docks and commercial services on FS lands; Allow limited expansion of boat dock, restaurant, and grocery services at the Forks and Wishon resorts; and Increase day-use parking by 50%. Other Management Agencies. Several agencies exert secondary jurisdiction to regulate specific activities that have the potential of affecting the shoreline and waters of Bass Lake. The California Department of Fish and Game (DFG) issues Streambed Alteration Permits for activities which may affect the fish and wildlife habitat of the lake bottom and shoreline. The U.S Army Corps of Engineers (Corps) enforces Section 404 of the Clean Water Act, including the placement of fill on the lake bottom. The Central Valley Regional Water Quality Control Board (RWQCB) oversees activities that affect water quality. In addition, Licensee consults with the State Historic Preservation Officer (SHPO) and the FS for management of cultural resource sites along the lake s shoreline and in other Project areas. Miller-Lux Agreement: The Miller-Lux Agreement, originally executed in 1909 and now administered by the U. S. Bureau of Reclamation (Bureau), allows for the storage of water in Bass Lake for power generation purposes. Unless granted a variance by the Bureau, Licensee must operate Bass Lake so that storage does not exceed 60% of the lake s capacity by September 15 and October 1 of each year, and does not exceed 50% of the lake s capacity on November 1, December 1, and the following January 1. 24

28 Table 4: Forest Service Privately Permitted Recreation Facilities Slips or Moorings Shoreline Parking Spaces Cabins and Overnight Units PAOT Capacity The Forks Resort 66 Informal Moorings Millers Landings 50 Slips Resort Angel Springs Tract 8 Wishon Tract 6 Emerald Cove Camp 130 Skylake/Yosemite Camp Summit Adventures Camp 1 slip Findings Since the preparation of the 1989 SWSM Plan, the ABBU and Licensee have collected new information on Bass Lake boating use. The major findings from this information are summarized in this section. ABBU Water Surface Boat Counts: ABBU members and homeowner volunteers conducted water surface boat counts from 1993 to 1997, excluding In 1996 the Sheriff s Department agreed to start performing monthly boat counts on the lake in place of residential volunteers performing these counts. Below is a summary of key findings from all of these counts: On average, during summer afternoons, there are 75 water craft on the total water surface (including the high speed zone, the low speed zone, and the personal water craft or PWC zones) of Bass Lake during weekdays, 95 water craft during weekends, and 139 water craft during holiday weekends (1993 through 1997 data) On average, during afternoons of summer weekends, there are 57 water craft in the high speed zone, 32 water craft in the low speed zone, and 8 personal water craft in the PWC zones (1993 through 1997 data). On average, during afternoons of summer weekends, within the high speed zone approximately 39% of the water craft are towing water-skiers, 28% are cruising, 14% are party barges, 14% are PWCs, and 6% are lower powered (<25 hp) boats (based on the 1993 data). Bass Lake s water surface safe carrying capacity is reached or exceeded during some holiday weekends, typically on the July 4th weekend. The 1989 SWSM Plan identified the lake s safe carrying capacity to be approximately 130 boats in use at the same time on the lake. 25

29 Cal Boating Accident Data: The Licensee summarized the 1989 to 1994 Cal Boating accident statistics for Bass Lake. In addition, the Licensee obtained basic Cal Boating accident information for 1979 through 1984 and 1995 through Key findings from this information include: At Bass Lake the five-year average annual boating accident rate increased from three accidents per year (1979 through 1984) to nine accidents per year (1989 through 1994). The latter accident rate was comparable to the 1989 through 1994 accident rate at ABBU-identified comparable lakes (Millerton, Almanor, Don Pedro, and Nacimiento). From 1995 to 1998, the Bass Lake accident rate averaged eight accidents per year. Accidents are more likely to occur during high boating use periods. Personal water craft (PWC) are the primary vessel involved in two-thirds of boating accidents at Bass Lake (based on 1994 data). The vast majority of PWC accidents involve a collision with another vessel, typically another PWC. The primary causes of PWC accidents are operator inexperience and improper lookout. Secondary causes include carelessness and speeding. Descriptions of PWC accidents often include the phrases minor involved and operator contributed to fault. Open motorboats are the primary vessel in one-third of Bass Lake boating accidents (based on 1994 data). Collision with another vessel is the most frequent accident type for motorboats. Improper lookout is the primary cause of motorboat accidents. Operator contributed to fault is the most frequent description of motorboat accidents. Sheriff Department Boat Registration Data: In 1993, the Licensee summarized the Sheriff Department s Bass Lake boat registration data. Since then, the Sheriff s Department has been providing the Licensee with total registered boats and PWCs. The findings from this information include: In 1993, approximately 2% of the registered water craft were boats with motors greater than 300 hp, 21% with motors of 300 hp to 201 hp, 37% with motors of 200 hp to 100 hp, 12% with motors of 100 hp to 36 hp, and 6% with motors of less than 36 hp. PWC made up 16% of the registered water craft, while 3% were nonpowered, and 3% were party barges. In 1993, approximately 1% of registered water craft were less than 6 feet long, 20% were 6 feet to 10 feet long, 10% were 11 to 15 feet long, 59% were 16 to 20 feet long, 10% were 21 to 25 feet long, and 1% were more than 26 feet long. In 1993, approximately 20% of registered water craft were less than 5 feet wide, 65% were 5 to 6 feet wide, 14% were 7 to 8 feet wide, and 1% were 9 to 12 feet wide. During the 1970s an average of about 2,700 water craft were registered at Bass Lake each year. During the 1980s an average of about 3,300 water craft were registered at Bass Lake each year. During the 1990s an average of about 4,400 water craft were 26

30 registered at Bass Lake each year. During the last four years ( ) boat registration has remained at about 4,600 water craft each year. The number of registered PWCs at Bass Lake has increased significantly from about 600 in 1989, when PWC records were first collected, to about 1,400 in PWCs represented about 30% of the registered water craft at Bass Lake during Forest Service CUSTOMER Boating Questionnaire Survey Data: During 1993 the ABBU sponsored a boating questionnaire survey funded by a one-year increase in boat registration fees and conducted by the FS. The survey collected the opinions of and descriptive information on resident and visiting pleasure boaters, water skiers, and PWC users. Major findings from this survey include: Water Surface Crowding The vast majority (80% to 90%) of the respondents felt the lake was not crowded on the day of their visit. The majority (about 60%) of respondents felt there is not a conflict among the lake s water craft users. Of those who felt there was a conflict, most expressed concern about problems related to tensions between PWC users and power boaters. The majority (about 65%) of respondents felt there should be a limit on the number of water craft on the lake at one time. Safety and Boating Regulations The majority (60% to 70%) of respondents felt the lake was mostly safe, although approximately 20% of resident water skiers and pleasure boaters felt the lake was somewhat unsafe. The majority (55% to 65%) of respondents felt the lake s boating regulations were strictly enforced. Resident respondents held this opinion less strongly than visiting respondents. Most boaters, except PWC users, felt management should limit boat size on Bass Lake. Resident boaters felt this most strongly. A length of 24 feet was the most frequent response for maximum boat size. Shoreline Facilities (Launching Facilities, Docking Facilities, and Other) About 85% of respondents indicated that launch facilities were adequate. About 70% of resident respondents and 5% to 25% of visiting respondents owned or rented a slip at Bass Lake. Docking facilities were important to very important to all boaters except day pleasure boaters for which dock facilities were generally unimportant. Generally, overnight pleasure boaters were satisfied with docking facilities. Waterskiers and PWC users felt satisfied to mixed with docking facilities. Day pleasure boaters felt unsatisfied with docking facilities. Respondents were largely ambivalent to the questions regarding whether enough commercial dock space is available. The strongest response came from residents, 50% to 60% of whom felt there was enough space. On the other hand, 40% to 50% of other respondents were neutral or had no opinion on the question. 27

31 The majority, approximately 65%, of overnight visiting respondents stayed in campgrounds. Clean water, drinking water, clean facilities, safety, and security were the most important elements in the respondents recreation setting. On average, respondents are willing to pay about $300 more per year to continue to visit Bass Lake. Bass Lake was the primary trip destination for the vast majority (about 90%) of respondents. Environmental (Visual Quality) Scenery was the most or second most frequent reason for boater respondents visiting Bass Lake. Boater respondents were pleased to delighted with the natural features of Bass Lake. Bass Lake s natural features were one of the top four most satisfying elements of the boaters recreation experience. About 70% of resident boaters and 50% to 60% of visiting respondents and PWC respondents rated Bass Lake s shoreline as extremely attractive. The most frequent suggestions, in descending order, for improving the visual quality of the shoreline were: more sand beaches, pickup trash, keep natural, control development, and maintain a high lake level. Boater Characteristics Approximately 95% of the boater respondents were from California, primarily from central and southern California counties. The group size of the majority of boating respondents was 3 to 6 people. The majority of boating respondents characterized their groups as a family, and secondarily as family and friends. 3.4 Recommendations by Advisory Groups The Licensee has received many recommendations for SWSM Plan proposals from the ABBU, the CVPC, and the CVPC s Recreation Subcommittee, Lake Surface and Shoreline Task Force, and Lake Level and Instream Flow Task Force. These recommendations are summarized below. Advisory Board for Boating Use (ABBU): The first drafts of the SWSM Plan were developed based on proposals discussed at many of the ABBU meetings. Many of the ABBU proposals are included in the current draft of the 1999 SWSM Plan. The ABBU reviewed proposals made in the Licensee s recreation plan that was included with the application for new license, the 1989 SWSM Plan, and information obtained from the CUSTOMER boating survey. The ABBU specifically recommended against the following proposals: Reducing the low speed zone from 300 feet to 200 or 150 feet because the 300 foot zone provides a safety buffer between high speed boats and swimmers and anglers in 28