OCTOBER 2014 VAIL MOUNTAIN RECREATION ENHANCEMENTS PROJECT FINAL ENVIRONMENTAL IMPACT STATEMENT RECORD OF DECISIONDRAFT

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1 VAIL MOUNTAIN RECREATION ENHANCEMENTS PROJECT FINAL ENVIRONMENTAL IMPACT STATEMENT RECORD OF DECISIONDRAFT OCTOBER 2014 USDA Forest Service White River National Forest Eagle/Holy Cross Ranger District

2 The U.S. Department of Agriculture (USDA) prohibits discrimination in all its programs and activities on the basis of race, color, national origin, age, disability, and where applicable, sex, marital status, familial status, parental status, religion, sexual orientation, genetic information, political beliefs, reprisal, or because all or part of an individual's income is derived from any public assistance program. (Not all prohibited bases apply to all programs.) Persons with disabilities who require alternative means for communication of program information (Braille, large print, audiotape, etc.) should contact USDA's TARGET Center at (202) (voice and TDD). To file a complaint of discrimination, write USDA, Director, Office of Civil Rights, 1400 Independence Avenue, SW, Washington, DC or call (800) or (202) (TDD). USDA is an equal opportunity provider and employer.

3 Vail Mountain Recreation Enhancements Project FINAL ENVIRONMENTAL IMPACT STATEMENT RECORD OF DECISION October 2014 USDA FOREST SERVICE ROCKY MOUNTAIN REGION (R2) WHITE RIVER NATIONAL FOREST EAGLE/HOLY CROSS RANGER DISTRICT Eagle County, Colorado Lead Agency: Responsible Official: For Information Contact: USDA Forest Service Scott Fitzwilliams, Forest Supervisor White River National Forest Roger Poirier, Project Leader White River National Forest 120 Midland Ave., Suite 140 Glenwood Springs, CO

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5 RECORD OF DECISION INTRODUCTION This Record of Decision (ROD) documents my decision to approve proposed projects and activities within Vail Ski Area s 12,590-acre Special Use Permit (SUP) boundary on the White River National Forest (WRNF) in Eagle County, Colorado. My decision is based on, and supported by, the Vail Mountain Recreation Enhancements Project (FEIS) and the administrative record. BACKGROUND Vail Ski Area is owned by Vail Resorts, Inc. and is operated under a SUP administered by the WRNF. Lift-served skiing is supported by operational infrastructure, as well as guest and food service outlets throughout the SUP area. While the ski area has traditionally focused on winter recreation, increasing attention has been directed in recent years towards summer and multi-season activities to accommodate demand for year-round recreation in the Eagle Valley. Adventure Ridge, which opened in 1996, has become the focal point for summer and multi-season activities within Vail Ski Area s SUP area. Adventure Ridge is located at the top of the Eagle Bahn Gondola and provides visitors with an opportunity to explore National Forest System (NFS) lands with Vail Ski Area s SUP in the summer. Adventure Ridge currently includes numerous activities that are designed to engage the ski area s guests throughout the year, including: Sightseeing Pony Rides Zip Line Horse Tours Challenge Courses Jeep Tours Mountain Biking Nature Center Hiking Disc Golf On-Mountain Dining Eagle s Nest Wedding Deck Rebound Trampoline In November 2011, the Ski Area Recreational Opportunity Enhancement Act (SAROEA) was signed into law. The SAROEA provides authority for the Forest Service to approve facilities and activities within ski area SUP boundaries to support summer and year-round natural resource-based recreation, in addition to snow sports which were authorized by previous laws. Furthermore, existing infrastructure (e.g., parking, roads, chairlifts and guest service facilities) at ski areas can serve as a foundation for new and expanded ROD-1

6 summer recreational activities. SAROEA is discussed in Section I (Consistency with Policy) in Chapter 1 of the FEIS. LOCATION Vail Ski Area is located on the Eagle/Holy Cross Ranger District of the WRNF and is accessed by Interstate 70 (I-70), which passes through the Town of Vail. The Town of Vail is located approximately 100 miles west of Denver (the largest metropolitan area in Colorado) and is approximately 30 miles east of the Eagle County Airport. PURPOSE AND NEED Over the years, the way people engage in recreation during the summer months has evolved to include a new variety of activities and user experiences. Likewise, recreational use in the national forests has evolved beyond activities traditionally associated with these lands such as hunting, fishing, camping or hiking. Ski areas serve as portals to national forests for millions of people every year and provide important opportunities for the public to explore the outdoors and engage in active recreation. Increased summer use at ski areas in recent years has been driven by new technologies and the growing number of people seeking outdoor recreational activities in more managed settings. At Vail Ski Area, summer use increased 100 percent between 2008 and 2013, averaging 103,600 visitors (measured by the number of lift tickets sold for the Eagle Bahn Gondola and Gondola One). The Forest Service wants to engage the next generation of national forest users, and believes that ski areas are well-positioned to introduce user groups that might not otherwise visit national forests (e.g., urbanbased population segments, including youth) to outdoor recreation. This exposure can build a deeper appreciation for the outdoors and the value of natural resources, leading to a more environmentally aware population. Having a primarily tourism-based economy, the Eagle Valley both relies on, and attracts, large numbers of visitors throughout the year most of whom recreate on public lands. The Town of Vail averages approximately 1.1 million summer visitors each year, with an additional 800,000 summer visitors coming to Eagle County for a countywide summer visitation total of 1.9 million people. When it comes to outdoor recreation, these visitors can be broadly placed into two categories: those who are likely to engage in selfdirected recreational activities on NFS lands, and those who seek organized or developed activities in more managed settings (i.e., activities supervised by a permittee or guide). The rise in the popularity of developed activities in more managed settings stems, in part, from (1) the difficulty some families have in finding activities they can participate in together, or (2) barriers (the need for specialized knowledge, equipment, skills or familiarity with the forest environment) that can be associated with many selfdirected activities such as mountain biking, kayaking, and rock climbing. ROD-2

7 The purpose of this proposal at Vail Ski Area is to engage a larger segment of summer visitors seeking more managed recreation opportunities by providing: Adventure or thrill-based experiences that require little specialized knowledge, skills, equipment or familiarity with the mountain environment; Activity-based interaction with a forested, mountain environment in a controlled setting, offering an opportunity for users to interact with and learn about nature; Human-powered, active recreational experiences that cater to all ability levels; and Interpretive programs that offer an educational experience for users seeking to learn more about the environment. There is a need for summer recreational and learning opportunities at Vail Ski Area that include passive, active and interactive forms of recreation to provide for this comprehensive range of user experiences. Additionally, there is a need for the improved utilization of and access to existing infrastructure such as chairlifts and restaurants. DECISION After thoroughly considering the project Purpose and Need, issues, alternatives and extensive analyses presented in the FEIS, as well as the public and agency comments submitted, my decision is to approve Alternative 2, the Proposed Action, with modification. Specifically, I am not authorizing the implementation of the proposed Pride Express Mountain Coaster or the proposed wedding venue at The 10th at this time. All of the projects approved by my decision are on National Forest System lands within 2002 Forest Plan Management Area 8.25 and occur within the Vail Ski Area SUP boundary. THE SELECTED ALTERNATIVE My decision to approve the Selected Alternative provides Vail Ski Area with the authorization to implement key components of the 2007 Vail Resort Master Development Plan Update, which will allow Vail Ski Area to better meet guest expectations and address the project Purpose and Need. Implementation of the projects in the Selected Alternative will also respond to long-term goals and objectives of the 2002 Forest Plan and new Forest Service direction regarding additional seasonal and year-round recreational activities at ski areas. The Selected Alternative is depicted in the Selected Alternative Figure. ROD-3

8 DECISION RATIONALE The entire analysis and public involvement processes were both thorough and helpful in making my decision. They provided a foundation for my decision and the project design features (PDF) outlined in Table 2-2 of the FEIS. The Forest Service was diligent and inclusive throughout the process. The FEIS discloses, using the best available science and information, the qualitative and quantitative effects on the human and biological environment that are anticipated to result with the implementation of the approved projects. In reviewing these impacts, I find they have been adequately addressed and disclosed throughout the analysis. I considered all the resource issues and concerns described in the FEIS, and my rationale for choosing the Selected Alternative is based on careful consideration of several key elements addressed during the public involvement and analysis process, including consistency with: the project Purpose and Need, the 2002 White River Forest Plan, agency direction for additional seasonal and year-round recreational activities at ski areas, and the 2007 Vail Resort Master Development Plan Update. CONSISTENCY WITH THE PROJECT PURPOSE AND NEED I am approving the Selected Alternative because it best meets the project Purpose and Need to provide new recreational opportunities at Vail Ski Area. The overarching goal of this project is to engage a wide audience of summer visitors. This goal is a departure from typical ski area projects that focus on improving the experience for the winter visitor. Indeed, this is the first of a few projects across the WRNF which allows us to rethink how ski areas can provide new activities and memorable experiences to users many of whom do not ski at our resorts in the winter season. It is important to recognize that people and families engage with nature and outdoor recreation in different manners and each visitor has their own limits on comfort and exposure to the outdoor elements. I believe this suite of approved projects will provide a combination of activities that provide a broad range of experiences for an increasingly diverse recreating public from those seeking unguided hikes by themselves and a more intimate engagement with the forests and natural surroundings found in the Eagle Valley to those wanting more adventure- and thrill-based activities. This critical mass and mix of activities is fundamental to the success of this program. These new uses, individually and collectively, provide an opportunity for families and guests to appreciate nature through play. They reduce the barriers that some associate with recreating in the mountains. The zoning and location of these activities allows for more concentrated uses near chairlift and restaurant hubs while allowing for more solitude the farther guests venture out from core activity areas. The entire spectrum of activities provides an environment that will better connect guests to nature and nudge them to discover the national forests. Ski resorts do not offer the same experiences found on other NFS lands; they act as unique portals that often attract a demographic of users that are either unaware of the opportunities NFS lands offer or that would not typically visit our campgrounds, trails and facilities. Our ski resorts on the WRNF are home to ROD-4

9 more than 7 million guests annually yet comprise a fraction of the WRNF s land base. This is a rare opportunity to connect so many people to the national forests with so little environmental impact. It is an opportunity we do not want to miss. I understand the concerns of individuals within the community that feel that some of these activities go too far in changing the nature and type of activities appropriate for NFS lands. Certainly some of these activities and experiences are a clear shift from traditional ones. However, my review of the project activities, designs and locations over the last few years has led me to the conclusion that this suite of projects offers an appropriate level of new experiences that are relevant to Vail Ski Area s target audiences while maintaining a setting and experience that is unique to NFS lands and staying true to Forest Service history and our culture of multiple uses. I believe that our national forests are neither amusement parks nor circus attractions. They are far more valuable and unique, and this suite of projects will not change that expectation. With these projects, the nature-based experience at our resorts is only being enhanced, not degraded. CONSISTENCY WITH SAROEA AND FOREST SERVICE DIRECTION With the passage of the Ski Area Recreational Opportunity Enhancement Act of 2011 (SAROEA) and accompanying agency direction, the Forest Service is embarking on new approaches to introduce the American public to recreational opportunities on NFS lands. While some of these activities are novel to ski resorts and NFS lands in general, they may better engage and resonate with younger generations and new user groups. The language chosen by Congress in the SAROEA and codified by the Forest Service at Forest Service Manual (FSM) is deliberate and clearly intended to provide for local discretion in determining the appropriateness of various summer and year-round activities at individual ski areas. Indeed, in a Statement for the Record submitted in the US Senate on March 22, 2014, Colorado Senator and primary sponsor of SAROEA Mark Udall emphasized his advocacy for a flexible directive empowering local decision-making. Incorporating considerations provided to me by the Forest Service s Rocky Mountain Region in their review of the proposed activities, my team has completed a comprehensive screening of the proposed activities. As a result of this screening, I have determined that the proposed wedding venue at The 10th does not meet Forest Service policy for new permanent facilities. I have also determined that additional project design information for the proposed Pride Express Mountain Coaster is necessary to make a conclusive screening determination with FSM direction; therefore the Pride Express coaster is not included in the Selected Alternative. As disclosed in Appendix C of the FEIS, the suite of projects in the Selected Alternative fully meets this agency direction. ROD-5

10 In summary, projects included in the Selected Alternative: Do not change the primary purpose of the ski area to something other than snow sports. The approved activities will supplement existing summer visitation and will increase visitation by a small amount when compared to winter use visits; Are consistent with the vision, zoning and uses found in the 2007 Vail Resort Master Development Plan Amendment; Occur within the existing SUP boundary; Harmonize with the natural environment of the site where they would be located by: being visually consistent with or subordinate to the ski area s existing facilities, vegetation and landscape; not requiring significant modifications to topography to facilitate construction or operations; and not compromising snow sports operations or functions; Encourage outdoor recreation by being located outdoors in a natural setting and in close proximity to other numerous outdoor recreational opportunities; Increase utilization of snow sports facilities and not require extensive new support facilities, such as parking lots, restaurants, and chairlifts; and Enable visitors to engage with the natural setting and may lead them to further explore other NFS lands. Natural Resource-Based Recreation The criteria established for determining whether any particular activity is appropriate at a given ski area at a particular location are much more considerate of the localized design, setting and context for the activity rather than the activity itself. This guidance has been issued in recognition of the incredible variety of landscapes and experiences available to visitors to the national forests, and the understanding that it is impossible to perfectly qualify and describe the myriad ways individuals interact with and react to the natural environment, and consequently what constitutes natural resource-based recreation for every individual. My decision has focused primarily on the specific setting and context for the proposals at Vail Ski Area, rather than attempting to establish a perfect precedent that could be used to determine whether a similar activity at another resort is inherently acceptable. Indeed, had certain activities been proposed at other locations on the front side of Vail Mountain, I may have found them inappropriate given their particular context and surroundings. After careful examination, I find that many activities commonly pursued in everyday life may be appropriately considered natural resource-based depending entirely on the local environment in which the activity is pursued. For example, the activity of driving a car is likely not immediately associated with natural resource-based recreation. But consider that experience and the degree to which it varies depending on the context and the setting. It is one experience to drive through crowded city streets. It is ROD-6

11 another experience entirely to drive a scenic byway or gravel Forest Road Independence Pass or Red Sandstone Road for example. The question of whether that activity is natural-resource based, and whether it is interdependent with attributes such as mountains, forests, geology, grasslands, water bodies, flora, fauna, and natural scenery has far more to do with the presence of and opportunity to interact with those attributes as a setting for the activity than the activity itself. All of the activities in the Selected Alternative make use of these attributes to define the user experience and ensure they are rooted in a natural resource-focused experience whether the forested environment and mountain contours that deliver the thrill and awe of the mountain coaster, or the natural scenery and water features connected to the Riparian Experience. Going Beyond Ski Resorts Another point of careful consideration has been the extent to which activities and facilities could be expected to lead to the exploration and enjoyment of other NFS lands, as required by FSM In reaching my decision, I found it vital to reflect on the many ways people are initially exposed to natural environments and outdoor recreation and to not let my personal history and experience with traditional outdoor activities such as hunting, fishing, hiking, and camping bias my perspective. Ultimately, I have concluded that we must be open to the reality that individuals may be just as inspired to gain a greater appreciation of and engagement with the natural world by being exposed to the types of activities proposed at Vail Ski Area as they would be by engaging in more traditional activities. I have observed the potential for increased exploration and enjoyment of outdoor landscapes created through far less obvious opportunities than these. I ve watched children play in leftover snowbanks while parents snap photos and gasp at the scenery on our high mountain passes in Colorado. We cannot discount the impact and importance that these encounters with nature can afford to families and children. The entire spectrum of activities we offer and promote on the WRNF may engage and inspire families to go further into the Forest hiking on our trails, camping at our campgrounds or becoming agency employees and future stewards of this beloved landscape. This perspective has led me to the belief that the proposed activities in the setting and context of Vail Ski Area will lead at least some visitors to further explore, enjoy and cherish their public lands. Clearly this does not mean that any activity is inherently natural resourced-based or likely to lead to the exploration and enjoyment of other NFS lands simply because it is located at a ski area on NFS lands. Attributes that lead me to find these specific activities appropriate at Vail Ski Area are found in Appendix C of the FEIS. Interpretive Opportunities To balance the thrill- and adventure-based opportunities, the WRNF will fully engage Vail Ski Area and other partnering organizations to develop a comprehensive, world-class program offering educational and interpretive opportunities to inspire guests and engage them with the natural world. Embedding this ROD-7

12 program into the design of the projects is essential to provide a meaningful experience and to ensure program goals are met. INCONSISTENCIES WITH SAROEA AND AGENCY DIRECTION Pride Express Mountain Coaster The proposed Pride Express Mountain Coaster layout and location were analyzed in the EIS process. Although the concept of the proposed activity may be acceptable, the proposed location of the coaster would require an amendment to the 2007 Vail Resort MDP Update. In addition, the conceptual design provided by Vail Ski Area was inadequate to fully analyze the impacts to visual resources and left us unable to determine how the coaster infrastructure may impact winter recreation at the resort. As mentioned previously, additional project design information for the Pride Express Mountain Coaster is required to make a final screening determination with FSM direction. Wedding Venue at The 10th As per FSM direction, new permanent wedding facilities at ski areas cannot be authorized at this time. POST-DECISION REVIEW I recognize that many of these project activities are new to the ski areas and Forest Service administrative oversight. Because implementing these projects correctly getting the look, the feel and ultimately, the user experience dialed in is essential to keeping our national forests looking and functioning like national forests into the future, I feel it is vital that we have a system of checks and balances to ensure these projects are consistent with agency direction and the effects analyzed in the FEIS. The agency has established, and will rely upon, post-decision review and authorization processes to ensure that this infrastructure is designed, installed and operated properly. Prior to the proposed season of construction and operation for each activity approved in this ROD, a design package will be submitted by Vail Ski Area to the Forest Service for a Building Design Review process. These reviews for all construction activities will be conducted by Forest Service engineering, recreation and landscape architecture staff to confirm that the design of each activity complies with the Forest Service s Built Environment Image Guide or other applicable agency criteria (e.g. Agency direction for infrastructure color and reflectivity), and that these structures harmonize with the surrounding environment. CONSISTENCY WITH 2002 FOREST PLAN AND 2007 MASTER DEVELOPMENT PLAN UPDATE The Selected Alternative is located within lands allocated in the 2002 Forest Plan as Management Area 8.25 Ski Areas (Existing and Potential). The WRNF covers over 2.3 million acres of land. Within that, the Forest Plan identified approximately 50,000 acres to be managed specifically for ski areas. These ROD-8

13 50,000 acres accommodate over 7 million skier visits on world-class resorts and ski areas each year. The ski areas provide numerous economic benefits to communities, including among other things, direct and indirect jobs. The ski areas also pay a fee to the US Treasury for the use of these lands. Ski areas provide a vital role in connecting the American public to their public lands. I find that each approved activity in its specific proposed location is consistent with the land use allocation identified in the 2002 Forest Plan and complies with the August 2007 Vail Resort Master Development Plan Update, and that each activity complies with FSM direction for evaluating seasonal and year-round recreation activities. ENVIRONMENTAL AND SOCIAL IMPACTS The ultimate responsibility I have as Forest Supervisor is stewardship of the natural resources held in the public trust. Ensuring our natural resources are sustained and conserved for future generations is something I take very seriously. I am responsible for balancing the environmental and social impacts with the benefits the project will provide, including the conservation measures and design elements developed to reduce impacts. I carefully reviewed the FEIS and the environmental impacts associated with all alternatives when making my decision. For some of the environmental resources, Alternative 3 would have resulted in fewer impacts. Alternative 3 would not have met the Purpose and Need as comprehensively as the Selected Alternative. In the end, I found that the steps taken to minimize impacts and the use of best practices during construction will address the potential effects to many resources. Given the reliance on many existing facilities and infrastructure (for example: existing chairlifts, parking, restaurants, and guest service facilities) for summer operations, the ground disturbance associated with the projects in the Selected Alternative is minimal compared to the opportunities and experiences that will be provided. Effects to Recreation As discussed in Chapter 3, Section A of the FEIS, the projects included in the Selected Alternative will provide a broad range of experiences to meet the needs of an increasingly diverse recreating public. This will be achieved with minimal impacts to winter operations. Effects to Visuals Projects included in the Selected Alternative will have incremental effects on the visual characteristics of Vail Ski Area, and would generally harmonize with the natural environment. All approved projects are designed to limit vegetation removal and modification of the natural topography, and are subordinate to the surrounding environment and existing infrastructure throughout the SUP area. ROD-9

14 Effects to Social and Economic Resources Implementation of the Selected Alternative could have both positive and negative impacts on local businesses. I acknowledge that some local merchants, or other businesses in the region that provide similar activities, may experience decreased business as a result of the increased opportunities and activities afforded by these approved projects within the SUP area. Some people may choose to visit Vail Ski Area instead of other recreational providers along the Interstate 70 corridor, including Glenwood Caverns Adventure Park and Zip Adventures of Vail. However, the program of activities and experiences offered at Vail Ski Area is sufficiently different than those offered at either Glenwood Caverns or Zip Adventures. Some merchants could maintain or see increased business as people begin to explore more of the Eagle Valley as a result of the exposure to the outdoors these activities provide. Some of these visitors may never have pursued these activities in any capacity were it not for the opportunities offered at Vail Ski Area. Businesses such as local restaurants and hotels will likely see an overall increase in business as a result of the approved activities. Effects to Wildlife and Aquatic Resources The effects to wildlife and aquatic species (including Threatened, Endangered, and Proposed species; Forest Service Region 2 Sensitive Species; Management Indicator Species; and Migratory Birds) are disclosed in Chapter 3, Section F of the FEIS. Overall, the authorized projects will lead to incremental changes of habitat values at Vail Ski Area. However, because infrastructure is present throughout the SUP area and some summer recreation already exists, the approved projects and activities will have minimal impacts on wildlife. The Selected Alternative may affect, but is not likely to adversely affect Canada lynx. Similarly, for all Forest Service Region 2 Sensitive Species considered in the analysis, the Selected Alternative may adversely impact individuals, but is not likely to result in a loss of viability in the planning area, nor cause a trend toward federal listing. Effects to Watershed and Wetlands The FEIS includes an extensive list of PDF designed to protect the health of watersheds and wetlands. Among them: final locations of mountain biking and hiking trails will avoid all wetlands (including through the use of bridges and/or other structures); and a follow-up assessment is required once site-specific locations of activities, particularly trails, are known. This will ensure that stream health in the Analysis Area is maintained or improved with implementation of proposed activities. With the implementation of all PDF, there will be minimal adverse impacts to watersheds and no impacts to wetlands. ROD-10

15 Effects to Vegetation There is no habitat for any federally listed threatened or endangered plant species within the Analysis Area. Furthermore, many of the tree islands throughout the SUP area have been impacted by the Mountain Pine Beetle (MPB) epidemic. The Selected Alternative includes approximately 51 acres of disturbance (mostly related to hiking and biking trails), including roughly 15 acres of forest overstory removal. The majority of the vegetation impacts will occur in disturbed ski trails and throughout MPB-affected lodgepole pine stands. CONCLUSION My decision for this project was multi-faceted. No single influence was the determining factor in the selection of a final alternative; rather, the approval of the Selected Alternative is a culmination of a detailed planning and analysis process. The Selected Alternative best meets the Purpose and Need to better engage the summer visitor and provide a diversity of recreational opportunities while balancing effects to natural and social resources. DESCRIPTION OF THE SELECTED ALTERNATIVE The Selected Alternative is depicted on the attached figure. The Selected Alternative includes the following projects, each of which is described in detail: Educational and Interpretive Programs Zip Line Canopy Tours: Game Creek Canopy Tour Front Side Canopy Tour Adventure Ridge Mountain Coaster Expanded hiking and mountain biking trails Riparian Experience Aerial Adventure Course Modified horse trail in Game Creek Bowl Wildwood observation deck Projects have been designed to harmonize with, and benefit from, the natural setting within Vail Ski Area s existing Forest Service-administered SUP area. They are designed to both complement and improve the existing non-skiing recreational opportunities that are currently offered on NFS lands at Vail Ski Area. All of the approved projects rely on the mountain forest setting, either because of the natural ROD-11

16 surroundings (such as the forest canopy and views) or because of the natural conditions (such as topography and vertical relief). While some of the approved projects (e.g., mountain coaster and canopy tours) could be used year-round, the overall package of projects is primarily designed to benefit the summer user at Vail Ski Area. As a whole, the existing and approved activities at Adventure Ridge and throughout the SUP area are designed to offer guests multiple days of entertainment throughout the summer, and will likely drive increased utilization of the ski area at that time. However, the coasters and canopy tours will be amenities to the skiing experience during the winter, and will not, by themselves, drive any additional winter visitation to the ski area. Table ROD-1: Season(s) of Operation for Approved Projects Project Zip Line Canopy Tours Mountain Coasters Hiking and Mountain Biking Trails Riparian Experience Aerial Adventure Course Modified Horse Trail Wildwood Observation Deck Wedding Venue at The 10th Season(s) of Operation Summer and Winter Summer and Winter Summer Summer Summer Summer Summer and Winter Summer To facilitate the use and enjoyment of these approved projects, an existing on-mountain food service venue is authorized for summer use at Wildwood restaurant. This existing facility is presently only used during the winter, but its operation will extend throughout the summer. Avanti Express, Wildwood Express, Mountaintop Express, Game Creek Express, and Pride Express are authorized to operate in the summer to provide access to activities and hiking and biking trails. All authorized activities and operations are depicted on the Selected Alternative Figure. EDUCATIONAL AND INTERPRETIVE PROGRAMS The WRNF and Vail Ski Area recognize that there are ample opportunities available to educate guests about the outdoors and public lands. A key component of the Proposed Action is an interpretive program that is embedded throughout the range of existing and proposed year-round activities at Vail Ski Area. The interpretive program revolves around the concept of learning through play. Environmental education and interpretive elements (signs and displays) will be integrated within each activity, at the staging areas, along the trails and walkways, and within buildings. The evolving interpretive program will be defined through coordination with partner environmental organizations. Participatory programs will also be developed focusing on skills and knowledge that will help people further explore the outdoors on their own. ROD-12

17 ZIP LINE CANOPY TOURS Two approved canopy tours will be composed of multiple, elevated, interconnected zip lines that allow riders to traverse through, and above, the forest canopy. The canopy tours can be operated year-round. Because individual trees in the lodgepole pine, spruce and aspen forest throughout the project area are not large enough to serve as anchors for the canopy tours, cables will be connected to specialized towers that are fitted with elevated platforms (refer to Photo 2-1 of the FEIS). This will enable riders outfitted with climbing harnesses to descend by gravity from the top to the bottom of the inclined cable. Reverse grades on the cables at the landing zones will decelerate descending riders. Groups of riders will be escorted along the entire canopy tour by trained guides. The elevation of each individual zip line will be determined by features such as topography, vegetation, activity overlap and infrastructure location. Each tower will consist of a wooden platform supported by two wooden or dark galvanized steel poles and guy wires and will typically be between 20 to 35 feet tall (refer to Appendix B of the FEIS for a typical tower design). Construction of the towers will require clearing vegetation within an approximate 50-foot radius of the towers, as well as the construction/access routes that are necessary to build and maintain the towers. Most zip line segments will require corridors of vegetation removal through the forest canopy to ensure the safety of riders. Construction/access routes will typically coincide with the clearance zone along the canopy tour route. Riders will traverse over tree tops within tens of feet; however, a Safe Clearance Zone will be cleared of vegetation. The Safe Clearance Zone will be cleared a minimum of 6 feet horizontally from the centerline of each zip line (i.e., 12 feet total for the corridor) with larger clearance zones to account for wind gusts as users get farther away from the towers. The vertical clearance will be at least 15 feet below the un-weighted line, with additional consideration given to large trees within felling distance of the line. Low-lying vegetation in the corridors will remain. Finally, standalone shelters (approximately 150 square feet in size) are approved to be constructed in conjunction with each canopy tour (for a total of two structures) for use during inclement weather. These simple structures will be constructed with three sides (open on the fourth side) with sloped roofs and wooden floors to provide protection from the elements. In total, both zip line canopy tours total approximately 5.3 miles of interconnected zip lines. Construction of both zip line canopy tours is estimated to be accompanied by approximately 9 acres of disturbance (including grading and/or vegetation removal) for the implementation of towers, base stations, weather structures and cable pathways. ROD-13

18 Game Creek Canopy Tour The approved Game Creek Canopy Tour will allow riders to descend to the base of Game Creek Bowl from Eagle s Nest, then utilize the Game Creek Express to access the Wildwood restaurant, and finally descend back to Eagle s Nest. The Game Creek Canopy Tour will be composed of seven interconnected zip lines. The first tower will serve as a launch and landing location for the canopy tour. From the start/finish tower, riders will descend three zip lines into Game Creek Bowl. After descending to ground level from the third tower, the Game Creek Express will transport riders to Wildwood. From there, canopy tour riders will take four more zip lines back to the start/finish tower at Eagle s Nest to complete their tour. A stand-alone shelter will be constructed along the Game Creek Canopy Tour at the tower near the base of the Game Creek Express for use during inclement weather. The Game Creek Canopy Tour will total approximately 2.1 miles of interconnected zip lines. This project involves the construction of eight towers. The two lowest towers in Game Creek Bowl are located on private land. Construction of the Game Creek Canopy Tour will result in approximately 3 acres of disturbance (including grading and/or vegetation removal). Front Side Canopy Tour The Front Side Canopy Tour is approved on the front side of Vail Mountain beginning at Mid-Vail and ending near the base of Gondola One, a short walk from Vail Village. A total of ten interconnected zip lines are included in the design. The longest segment (between towers 5 and 6) will be approximately 3,300 feet long, carrying riders over 500 feet above the ground. The Front Side Canopy Tour will total approximately 3.2 miles of interconnected zip lines. This project involves the construction of eleven towers. As with the Game Creek Canopy Tour, a shelter is approved to be constructed halfway along the route for use during inclement weather. Construction of the Front Side Canopy Tour will result in approximately 6 acres of disturbance (including grading and/or vegetation removal). ADVENTURE RIDGE MOUNTAIN COASTER Mountain coasters are designed specifically based on the slope, contours and topography of an area, and a forested setting with proper grades is integral to the overall experience. The natural topography in the vicinity of Adventure Ridge, combined with existing guest service infrastructure, creates a logical location for a mountain coaster. In addition, the Adventure Ridge area already receives substantial use throughout the year during days and evenings. The approved mountain coaster will tie into the existing power system at the Eagle s Nest facility. Minimal ground disturbance is required for footings and anchors along the track, and a 14-foot wide corridor will be cleared of vegetation. ROD-14

19 The Adventure Ridge Mountain Coaster will be located just west of Pride Express. The track will be approximately 3,700 feet in length, with numerous turns and twists as it descends roughly 300 vertical feet through the forest from start to finish. An integrated return track of approximately 1,700 feet in length will return the guests and carts to the starting area. The elevated track assembly (up to 15 feet above the ground, and 20 feet high at road crossings) will be composed of parallel tubular rails. The elevation of the track is dictated by features such as topography, vegetation, anticipated snow depth, track geometry and the need to cross access roads or trails. A wide track offers stability throughout the descent, and derailment is not a concern as carts are securely fastened to the outer track. Carts can accommodate up to two riders. Riders control their velocity for the entire descent by releasing pressure on a brake handle through straights and curves in the track (if the brake handle is released entirely, the cart will stop). The top speed of each cart can be set with centrifugal brakes (up to approximately 25 mph). Each cart is equipped with safety belts, brake levers and energy absorbent front and rear bumpers. Because snow and rain do not affect their operation and safety, the coaster can be operated throughout the year, and at night. Low-wattage headlights can be fitted to each cart, and low-level lighting on elevated posts is approved at both the start and finish areas. Low-level lights are also approved at turns along the track so riders can be aware of upcoming turns. However; there will be no net increase in lighting at Adventure Ridge as existing lights are required to be relocated or removed from the Chair 15 area to the top and bottom locations of the mountain coasters. An approximate 400-square foot (roughly 15 feet x 25 feet) storage building is approved at the top, with a small operator shelter at the bottom. The design and construction of the Adventure Ridge Mountain Coaster incorporates low-impact design techniques. Foundations for start and finish areas require approximately 0.3 acre of ground disturbance. Likewise, the elevated track between the start and finish area will be supported by a combination of concrete footings (approximately 4 square feet each) and anchors spaced as necessary along the track. Where loops are incorporated into the track design, a larger concrete foundation (approximate 25 square feet) will be necessary. No new access routes are necessary or approved for installation and operation of the Adventure Ridge Mountain Coaster. EXPANDED HIKING AND MOUNTAIN BIKING TRAILS Additional trails have been approved to supplement the 59-mile network of existing mountain biking (cross-country and downhill), hiking and multi-use trails at Vail Ski Area. Approved trails will use the Avanti Express, Wildwood Express, Mountaintop Express, Game Creek Express, Gondola One, Eagle Bahn Gondola and Pride Express for access. ROD-15

20 Between 45 and 55 miles of hiking and biking trails are approved in the areas identified in the Selected Alternative Figure. The average width of new hiking and biking trails range from 3 to 8 feet, depending on cross slope. An approximate breakdown of these approved trails, by type, includes: 20 percent: Hiking 45 percent: Cross-Country Mountain Biking 35 percent: Downhill Mountain Biking Conceptual areas have been identified for proposed hiking and biking trails across the front side of Vail Mountain (refer to the Selected Alternative Figure). Following this approval, trails will need to be fieldfit within areas that have been identified and analyzed in the FEIS. Location and construction of all approved trails are subject to final PDF identified in Table 2-2 of the FEIS. This includes coordination with Forest Service biologists. Approved hiking and biking trails will be constructed using a combination of hand tools and specialized machinery, and could require some grading and minor tree removal for the length of the trails. Through planning and incorporating sustainable trail design, direct fall line descents will be avoided and modern erosion control measures will be incorporated; any wetlands within the vicinity of the trails will be avoided or bridged. RIPARIAN EXPERIENCE The approved Riparian Experience is intended to be a hands-on, interactive, interpretive and educational experience for children. This will be similar to a residential water feature (refer to Photo 2-3 of the FEIS), but will be designed to allow children to observe, investigate and deepen their understanding of the basic hydrologic processes in a natural-looking setting. The Riparian Experience will be located on the east side of Eagle s Nest, just west of the top of Chair 15, and will be constructed of a mix of materials including stone, metal and wood. This manufactured water feature may include check dams and water wheels in braided, in-ground streams approximately 18 inches wide and 4 inches deep. Children will be able to interact with the water features (building dams, rerouting water, etc.), while simultaneously learning about hydrologic processes. A self-contained water recirculating system that ties into the existing system at Eagle s Nest will minimize water usage associated with this approved project. This project has an area of approximately 2,250 square feet. This area has been disturbed in the past and does not contain any overstory vegetation. AERIAL ADVENTURE COURSE An aerial ropes and zip line course is approved to the north and west of Eagle s Nest Facility, in a forested area below and west of the top of Pride Express. This aerial trekking park includes a variety of features suitable for children, such as small towers, bridges, slides and zip lines. The features will represent a variety of difficulty levels. Primarily natural materials and colors will be used. After being ROD-16

21 outfitted with equipment and an orientation session, children will be able to act independently to overcome obstacles in a natural environment. This project will be dispersed across an area of approximately 0.5 acre. Ground disturbance and vegetation clearing for the construction of pathways and features will be limited. MODIFIED HORSE TRAIL IN GAME CREEK BOWL Guided horseback tours that occur entirely on mountain roads are currently provided at Adventure Ridge. These tours take guests from Adventure Ridge through the Game Creek Bowl and back. In order to provide a more natural and engaging experience, a single track trail is approved adjacent to the existing roads utilized in current tours. The alignment will allow the horseback tours to avoid pedestrian traffic in the center of Adventure Ridge. The modified equestrian trail will be approximately 4 feet wide and will require approximately 1 mile of new trail construction, creating approximately 0.5 acre of ground disturbance. Additionally, the corral will be relocated to a location slightly further west. Construction of the new corral will result in approximately 0.5 acre of ground disturbance. WILDWOOD OBSERVATION DECK A deck is approved at Wildwood (at the edge of Sundown Bowl) to provide views of Vail Ski Area s Back Bowls, Blue Sky Basin, the Gore Range, and the Eagles Nest Wilderness. The footprint of the Wildwood observation deck will be approximately 1,000 square feet and will be designed to incorporate the requirements of the BEIG, as appropriate. MANAGEMENT REQUIREMENTS All PDF that are included in Table 2-2 of the FEIS are hereby incorporated into the Selected Alternative. ROD-17

22 RECREATION Table ROD-2: Management Requirements Where appropriate, fencing, flagging, signage and other safety mechanisms will be used to alert skiers to the location of zip line canopy tour towers, guy wires, mountain coaster tracks, and other infrastructure. Signage will be installed to instruct hikers and bikers to remain on designated trails. Signage will be installed at intersections with roads that drop into the Back Bowls to warn people and bikers that they re leaving the managed portion of the SUP area and that there are no lifts to ride back out of the Back Bowls. Signage will be installed to minimize user conflicts and provide for the separation of users. This will include signs prohibiting uphill travel on downhill mountain biking trails, signs prohibiting horse use on hiking and mountain biking trails, and signs alerting users on multi-use trails to be aware of other users, etc. Bidirectional use will be permitted on some trails to allow for uphill access. Appropriate signage will be utilized to prevent user conflicts. In years when the permittee plans to graze sheep in the Meadow-Vail allotment, a Spring meeting (before the operating season) between the Forest Service, Vail Resorts and the livestock permittee will be planned to coordinate summer recreation and sheep management for the season. The parties will identify: (1) specific dates or times when recreation use is limited, and to what capacity; (2) specific dates or times when the allotment is utilized; and (3) educational signage in Game Creek bowl, the bowl ridgeline, and along any of the proposed recreational use routes/areas, including the bike/hiking paths along the rim of the back bowls. VISUALS All proposed structures, features, and facilities will adhere to the WRNF s Building Design Review, and will be consistent with the Vail Mountain Design Guidelines, which were developed in cooperation with the WRNF. Comply with the Forest Service s Built Environment Image Guide (BEIG) when constructing approved facilities, as appropriate. Plan, design and locate vegetation manipulation on a scale that retains the color and texture of the landscape character, borrowing directional emphasis of form and line from natural features. (Forest Plan Guideline) Facilities, structures and towers with exteriors consisting of galvanized metal or other reflective surfaces will be treated or painted dark non-reflective colors that blend with the forest background to meet an average neutral value of 4.5 or less as measured on the Munsell neutral scale. (Forest Plan Guideline) All structures, facilities, and features will meet color guidelines. Bright colors are inappropriate for the forest setting. The colors will be muted, subdued colors that will blend well with the natural forested environment. (Page 37 of Forest Service Handbook No. 617) All structures, facilities, and features will meet reflectivity guidelines. This includes any reflective surfaces (metal, glass, plastics, or other materials with smooth surfaces), that do not blend with the natural environment. Reflective surfaces will be covered, painted, stained, chemically treated, etched, sandblasted, corrugated, or otherwise treated to meet the solar reflectivity guidelines. (Refer to WRNF Forest Plan, Scenery Management Guidelines.) When removing vegetation for any proposed structure, the shape of new openings in the forest canopy should appear natural and blend into the surrounding vegetated mosaic. Edges of new openings should be non-linear, and changes in tree heights along edges will be gradual rather than abrupt, where possible. Soften hard edges by selective removal of trees of different ages and heights to produce irregular corridor edges where possible. When removing trees or other vegetation, stumps will be cut as low as possible to the ground to lessen scenery impact and avoid safety hazard. Any site grading will blend disturbance into the existing topography to achieve a natural appearance. Minimize cut and fill at the transition of proposed grading and existing terrain. ROD-18

23 Table ROD-2: Management Requirements Record of Decision Aside from horse, mountain biking and hiking trails, all disturbed areas will be re-vegetated. Re-vegetation will include planting native trees and shrubs and seeding with native grasses and forbs. Reseed with a native seed mixture recommended by the Forest Botanist. Seeding and planting will be repeated until satisfactory revegetation is accomplished. When planting trees, do not plant in straight lines. For newly planted trees, the goal is to avoid appearance of tree farm regular spacing when planting. When planting, attempt to emulate the shape of openings and patterns in the surrounding landscape where possible. The edges of the stands will be varied and random to blend with the native vegetative mosaic. Plant clumps of trees in random patterns. All facilities including trails and signs must meet Forest Service accessibility guidelines. CULTURAL RESOURCES If proposed hiking and biking trails are approved within the unsurveyed northwest area of the SUP boundary, an inventory for cultural resources shall be conducted prior to project implementation. If undocumented historic and/or prehistoric properties are located during ground disturbing activities or planning activities associated with approved construction activities, all construction in the immediate vicinity will cease and they will be treated as specified in 36 CFR concerning Properties Discovered During Implementation of an Undertaking. VEGETATION AND BOTANY Before implementing any approved project activities not included in the 2013 botanical survey area, the specific project areas will be surveyed using established protocol. Surveys will be conducted for Threatened, Endangered, Proposed and Candidate Species, Sensitive Species, and Species of Local Concern (SOLC). More specifically, site-specific surveys will be conducted along all approved mountain biking and hiking trails and in any other areas where changes to the disturbance footprint have been made since the 2013 botanical survey. Such areas potentially include, but are not limited to, the proposed horse corral, the upper portion of the Pride Express Mountain Coaster, and construction access routes to Game Creek Canopy Tour towers. If any previously unknown occurrences of R2 Sensitive or SOLC plants are encountered within the project footprint prior to or during project implementation, a Forest Service Botany Representative will be notified to derive suitable PDF to avoid or minimize impacts as appropriate. Minimize and avoid impacts to habitat occupied by relatively common Botrychium spp. (SOLC), and that provides habitat for R2 Sensitive moonworts. Use construction fencing or other barriers to delineate occupied moonwort habitat and direct construction personnel to avoid parking or storing materials in these areas. Implement Forest Service approved revegetation guidelines to all disturbed sites. Implement noxious weed control throughout the Analysis Area including: All mulch, hay, and straw used shall be certified weed-free. Equipment coming from off-forest will be inspected and cleaned as necessary to ensure it is weed-free prior to moving into the Analysis Area. Treat existing weed infestations within and adjacent to travel routes and project activity prior to implementation. Monitor project activity areas and treat new infestations promptly. ROD-19

24 WILDLIFE Table ROD-2: Management Requirements Surveys for migratory birds and Threatened, Endangered and Sensitive species shall be conducted by qualified biologists prior to the construction season if construction activities are proposed to start prior to July 15. Construction of approved projects should occur, to the extent practicable, outside the portion of the nesting period (March 1 to July 15) of migratory birds (non-forest Service Threatened, Endangered and Sensitive species) when active nests are present. Construction may occur within that nesting period if surveys show no nests or altricial young present, or as otherwise approved by the Forest Service Responsible Official. If flamulated or boreal owl nests are located within project areas, direct mortality of eggs and/or nestlings shall be avoided by conducting tree removal in nesting habitat outside of the May 21 to July 15 nesting period, or as otherwise approved by the Forest Service Responsible Official. If olive-sided flycatcher nests are located within project areas, direct mortality of eggs and/or nestlings shall be avoided by conducting tree removal in nesting habitat outside of the June 1 to July 15 nesting period, or as otherwise approved by the Forest Service Responsible Official. Surveys for active raptor nests and avian cavity nesting activity shall be conducted by qualified biologists prior to the construction season. To allow for successful nesting and young rearing, no project ground disturbing activities shall be allowed within a quarter-mile of active raptor nests until after July 31, or as otherwise approved by the Forest Service Responsible Offical. To protect breeding adults and young raptors in avian cavity nests, a no-activity buffer of 1 acre around detected cavity trees shall be implemented until July 31, or as otherwise approved by the Forest Service Responsible Official. Final layout of conceptually approved mountain biking and hiking trails shall be conducted in coordination with Forest Service biologists. All efforts should be made to avoid or minimize impacts to isolated (from existing summer activities) and/or large (e.g., ~30 50 acres) inter-trail tree islands and blocks of high quality habitat particularly those supporting mature, closed canopy spruce fir habitats exhibiting high quality lynx winter foraging habitat. Examples of such islands include, but are not limited to, the four large islands on the east side of Northeast Bowl (i.e., those on opposite sides of the Highline Lift and those on opposite sides below the base of the Sourdough Lift), the large habitat block to the east (i.e., mostly outside the SUP area boundary), and the spruce-fir island at the top of Sundown Bowl. Unauthorized hiking and biking trails developed by third parties shall be promptly deconstructed and reclaimed the season that they are discovered. To reduce the risk for human/wildlife conflicts in areas where food or trash could be present, all trash containers should be bear proof. Food products stored outside of buildings and any feed supplements associated with the equestrian operations should be stored in bear proof containers. During construction, contractors should provide an on-site bear proof container for all edible and food related trash. No food products or food containers should be thrown in larger roll-off type dumpsters. All vehicle windows should be kept closed and doors locked on all vehicles to prevent bear entry. All construction activities should be confined to daylight hours, excluding emergencies. Construction workers are prohibited from bringing dogs to the construction site. To minimize bird and other animal mortality, vertical, open-topped pipes, tubes, and other such structures in the project area should be appropriately capped including restrooms, stove pipes, sign posts, gate posts, tubes protecting plants, and fence posts to prevent animal access, while maintaining their intended use and function. This includes any temporarily open hollow vertical pipes, such as snowmaking bases without guns. If American marten dens are located within project areas through surveys prior to the construction season, direct mortality of current year recruitment shall be avoided by conducting tree removal in denning habitat outside of the March 1 to June 15 denning period, or as otherwise approved by the Forest Service Responsible Offical. The Adventure Ridge Mountain Coaster return lift mechanism is closely associated with the coaster s track. The elevated sections of mountain coaster s track and the return lift (where they cross roads) will line up with each other facilitating big game passage. To avoid big game from getting caught between the two track sections, the openings between the mountain coaster and return lift should be fenced or roped and designed/installed to prevent the entanglement of wildlife. ROD-20

25 Table ROD-2: Management Requirements Vail Ski Area has a mandatory Supervisor s Closure (beginning just south of the mountain road following the east-west crest of Vail Mountain s ridgeline) of the Back Bowls (this does not include Game Creek Bowl), which excludes all human activity from May 6 through June 30 (dates inclusive) to facilitate continued elk calving and calf-rearing. In the event that a hiking/biking trail, is proposed within portions of Polygons G and H overlapping the closure area, there should be no activity (construction or recreation) along those portions of the trail in the closure area for the duration of the annual closure period. Per the CAT III ROD, no organized recreational activities shall occur in either the Back Bowls or Blue Sky Basin in the summer. Biking trails should not be developed, where practicable, in the two mule deer staging areas near Golden Peak and the area west of the Lionshead Gondola. In the event that trails are created in these two areas, construction, maintenance, and biker activity should end before September 15. To protect mule deer staging areas, biking trails on Golden Peak should not be located on or extend over the crest of the ridge so that trails are not located on the northfacing slope above I-70. Biking trails in the area west of Lionshead Gondola should be closed to use from May 6 to June 15 (dates inclusive) to protect spring mule deer migration areas. AQUATICS Reduce sediment sources (connected disturbed areas [CDA]) on existing and proposed trails and stream crossings. Design new trails to minimize sediment input into streams at crossing points; use bridges where necessary. Design bridges/culverts to withstand high flow and runoff events. Bridge structures must be constructed above bank full stage. SOILS Prior to construction, soil surveys will be completed within the disturbance area to ensure no net loss of soil organic matter. Prior to construction, a detailed site erosion control plan will be prepared. This plan shall include the following components: Silt fences, straw bales, straw wattles, and other standard erosion control BMPs shall be employed to contain sediment onsite. Jute-netting or appropriate erosion-control matting on steep fill slopes (i.e., land with a slope angle of 35% or greater) will be utilized to protect soils and enhance conditions for vegetation re-establishment. Promptly revegetate disturbed areas. Seed mixtures and mulches will be free of noxious weeds. To prevent soil erosion, non-persistent, non-native perennials or sterile perennials may be used while native perennials become established. The Forest Service must approve the seed mixtures prior to implementation, unless previously approved seed mixes are employed. Existing roads will be used for construction and routine maintenance of the proposed project components where possible. Vegetative buffers will be maintained adjacent to intermittent or perennial drainages and wetlands, to the extent possible. Where avoidance of the vegetative buffer is not possible, disturbance will be minimized. In all areas where grading or soil disturbance will occur, a reassessment of the quantity (depths) of soil A and/or organic ground cover will be made to ensure no net loss of this material. Soil-disturbing activities will be avoided during periods of heavy rain or excessively wet soils. Areas determined to have been compacted by construction activities may require mechanical subsoiling or scarification to the compacted depth to reduce bulk density and restore porosity. Ground cover, as a combination of revegetation, organic amendments and mulch applications, will restore depths of soil A and/or organic ground cover. ROD-21

26 WATERSHED AND WETLANDS Table ROD-2: Management Requirements In order to ensure that stream health in the Analysis Area is maintained or improved with implementation of proposed activities, a follow-up assessment will be required once site-specific locations of activities, particularly trails, are known. The follow-up assessment will include a site-specific delineation of the effective water influence zone (WIZ) and other identified Sensitive Areas, as well as quantification of connected disturbed areas and WIZ disturbance, including proposals for mitigation and treatment of such. This assessment will be updated on a project-by-project basis and will require collaboration between the Forest hydrologist, consulting hydrologists, and Vail Ski Area. Vail Ski Area is required to have a Stormwater Management Plan (SWMP) to operate under a State approved Permit for Stormwater Discharges Associated with Construction Activity (CDPS Permit No. COR ). The SWMP describes practices (BMPs) to be used to reduce the pollutants in stormwater discharges associated with construction activities and is updated annually to incorporate appropriate BMPs for specific projects. In the WIZ next to perennial and intermittent streams, lakes and wetlands, allow only those land treatments that maintain or improve long-term stream health and riparian ecosystem condition. Keep heavy equipment out of streams, swales, and lakes, except to cross at designated points, build crossings, or do restoration work, or if protected by at least 1 foot of packed snow or 2 inches of frozen soil. Keep heavy equipment out of streams during fish spawning, incubation and emergence periods. Locate new concentrated-use sites outside of the WIZ if feasible and outside riparian areas and wetlands always. Harden or reclaim existing sites in the WIZ to prevent detrimental soil and bank erosion. (WIZ boundaries adjacent to project areas should be clearly demarcated on the ground to prevent infringement during construction and operation.) Do not excavate earth material from, or store excavated earth material in, any stream, swale, lake, wetland, or WIZ. (WIZ boundaries adjacent to project areas should be clearly demarcated on the ground to prevent infringement during construction and operation.) Do not excavate earth material from, or store excavated earth material in, any stream, swale, lake, wetland, or WIZ. Keep ground vehicles out of wetlands unless protected by at least 1 foot of packed snow or 2 inches of frozen soil. Do not disrupt water supply or drainage patterns into wetlands. If trails must enter wetlands, use bridges or raised prisms with diffuse drainage to sustain flow patterns. Set crossing bottoms at natural levels of channel beds and wet meadow surfaces. Avoid actions that may dewater or reduce water budgets in wetlands. Final locations of any approved mountain biking and hiking trails will avoid all wetlands (including through the use of bridges and/or other structures). If any wetland impacts are determined to be absolutely necessary, additional NEPA analysis and U.S. Army Corp of Engineers (USACE) permitting will be required prior to construction. Avoid long-term reduction in organic ground cover and organic soil layers in any wetland (including peat in fens). Limit disturbed sites to the minimum feasible number, width, and total length consistent with the purpose of specific operations, local topography, and climate. (No new roads are proposed, but temporary construction access routes are required for installation and maintenance of canopy tour towers and coasters.) Stabilize soils onsite. Endhaul soil if full-bench construction is used. Avoid slopes steeper than 70%. Avoid soil-disturbing actions during periods of heavy rain or wet soils. Apply travel restrictions to protect soil and water. Install cross drains to disperse runoff into filter strips and minimize connected disturbed areas. Make cuts, fills, and road surfaces strongly resistant to erosion between each stream crossing and at least the nearest cross drain. Revegetate using certified local native plants as feasible; avoid persistent or invasive exotic plants. Retain stabilizing vegetation on unstable soils. Avoid new roads or heavy equipment use on unstable or highly-erodible soils. Use existing roads unless other options will produce less long-term sediment. Reconstruct for long-term soil and drainage stability. ROD-22

27 Table ROD-2: Management Requirements Record of Decision Avoid ground skidding with blades lowered or on highly erodible slopes steeper than 40%. Conduct logging to disperse runoff as feasible. Designate, construct, and maintain recreational travelways for proper drainage and harden their stream crossings as needed to control sediment. (Applies primarily to biking, hiking, and horse trails.) Any construction-related disturbance will minimize sediment discharge into streams, lakes and wetlands. Design trails and other soil disturbing activities to the minimum standard for their use and to roll with the terrain as feasible. Use filter strips, and sediment traps if needed, to keep all sand sized sediment on the land and disconnect disturbed soil from streams, lakes and wetlands. Disperse runoff into filter strips. Key sediment traps into the ground. Clean them out when 80% full. Remove sediment to a stable gentle upland site and revegetate. Stabilize disturbed sites during and after construction to control erosion. Do not encroach fills or introduce soil into streams, swales, lakes, or wetlands. Properly compact fills and keep woody debris out of them. Revegetate cuts and fills upon final shaping to restore ground cover, using certified local native plants as feasible; avoid persistent or invasive exotic plants. Provide sediment control until erosion control is permanent. Do not disturb ditches during maintenance unless needed to restore drainage capacity or repair damage. Do not undercut the cut slope. PLANNING CONSIDERATION BMPS (CDPHE, WQCC, REGULATION 82) CDPHE, Construction Stormwater Discharge Permit Colorado stormwater regulations s (5CCR ) require a permit for construction activity that disturbs 1 acre or more during the life of the project. Prior to commencement of construction, a stormwater management plan (SWMP) with appropriate erosion and sediment control BMPs must be developed and implemented. A comprehensive list of potentially appropriate BMPs is included in the CDPHE 401Certification Regulation (5 CCR ). An erosion and sediment control plan should be developed and is comprised of three major elements. The erosion control measures that will be used to limit erosion of soil from disturbed areas at a construction site; the sediment control measures that will be used to limit transport of sediment to off-site properties and downstream receiving waters; and the drainageway protection and runoff management measures that will be used to protect streams and other drainageways located on the construction site from erosion and sediment damages. Some of the site constraints that should be considered planning/designing/locating approved projects and activities include slope stability, drainage aspect and constructability, along with the general stream hydrology, stream morphology, water quality and aquatic ecology. (Site constraints, such as avoidance of wetlands, are address above under the USFS Design Standards.) Seasonality should be considered, particularly when construction must take place within streams and other waterways. (For example, construction during periods of high stream should be avoided.) Surface roughening provides temporary stabilization of disturbed areas from wind and water erosion; surface roughening should be performed after final grading to create depressions 2 to 4 inches deep and 4 to 6 inches apart. It is particularly useful where temporary revegetation cannot be immediately established due to seasonal planting limitations. Surface roughening only provides temporary protection and must be used in combination with other BMPs, such as mulching and temporary cover. Mulching of all disturbed areas should occur within 14 days after final is reached on all portions of site not permanently stabilized. A viable vegetative cover should be established within one year on all disturbed areas and soil stockpiles not otherwise permanently stabilized. Vegetation is not considered established until a ground cover is achieved, which is sufficiently mature to control soil erosion and can survive severe weather conditions. The seed mix for erosion control and stabilization during construction should be compatible with the final seeding needs and will be approved by the WRNF. ROD-23

28 Table ROD-2: Management Requirements As a minimum, topsoil preservation and reuse involves the removal, stockpiling, and re-spreading of the surface 6 to 8 inches of natural soil. Erosion control blankets are used in place of mulch on areas of high velocity runoff and/or steep grade, to aid in controlling erosion on critical areas by protected young vegetation. To provide vegetative cover on disturbed areas not paved or built upon for a period of two years or longer, or for an indeterminate length of time, a perennial grass should be planted. Cut-and-fill slopes must be designed and constructed to minimize erosion. This requires consideration of the length and steepness of the slope, the soil type, up-slope drainage area, groundwater conditions and other applicable factors. Slopes that are found to be eroding excessively will require additional slope stabilization until the problem is corrected. Sediment entrapment facilities include terracing, slope drains, straw bale barriers, silt fences, filter strips, sediment traps and sediment basins; at least one entrapment facility should capture runoff leaving a disturbed area. A silt fence is made of a woven synthetic material and acts to filter runoff. Silt fence can be placed as a temporary barrier at the base of a disturbed area but is not recommended for use in a channel or swale. A sediment trap is a temporary structure that is designed to fill with sediment. A sediment trap can be constructed by either excavating below grade or building an embankment across a swale. Excavated traps are less prone to failure than embankments. No pipe is used at the outlet, as in a sediment basin, and an open-channel spillway must be included in the design. A minimum of 900 cubic feet of storage volume must be provided for each tributary acre. All BMPs shall be maintained and repaired as needed to assure continued performance. Straw bale barriers or silt fences may require periodic replacement and all sediment accumulated behind them must be removed and disposed of properly. Sediment traps and basins will require periodic sediment removal when the design storage level is one-half full. All facilities must be inspected following each heavy precipitation or snowmelt event that results in runoff. All temporary erosion and sediment control measures must be removed within 30 days after final stabilization. Good housekeeping requires keeping potential areas where pollutants and pollution exist clean and orderly. Use of common sense to improve and maintain basic housekeeping methods: accidental spill response, well-maintained machinery and processes, improved operations, material storage practices, material inventory controls, routine or regular clean-up schedules, well organized work areas, educational programs and method to prevent mixing of runoff into environment from stormwater runoff. Preventative maintenance involves regular inspection and testing of equipment and operational systems to prevent break downs and failures that cause potential runoff contamination. AIR QUALITY Site improvements will be installed promptly in order to reduce the potential for dust emissions. The area disturbed by clearing, earth moving, or excavation activities will be kept to a minimum at all times, allowing improvements to be implemented in sections. ROD-24

29 PUBLIC INVOLVEMENT On November 19, 2012, a scoping notice was mailed to approximately 53 community residents, interested individuals, public agencies, and other organizations. The scoping package provided a brief description of the Proposed Action, the Purpose and Need, preliminary issues raised, and an illustrative map. This notice was specifically designed to elicit comments, concerns, and issues pertaining to the Proposed Action. A Notice of Intent (NOI) to prepare an Environmental Impact Statement (EIS) was published in the Federal Register on November 26, A public open house was held on December 5, 2012, at the Avon Public Library in Avon. Following media coverage of the proposal, other individuals obtained copies of the scoping package at the open house or sent requests to the Eagle/Holy Cross District Ranger for information. In addition, the scoping package was posted online, on both the WRNF and project websites. An address was provided for submitting electronic comments. On March 7, 2014, a Notice of Availability was published in the Federal Register for the DEIS. The DEIS was released for public review and comment for a 45-day comment period which extended through April 21, In response to the DEIS 51 comments were received from interested individuals, agencies and organizations. From these letters, substantive comments were extracted and entered into a database; comments were linked to specific commenters and resource issues. Substantive comments are addressed in the Response to Comments (RTC) document. On August 22, 2014, a Notice of Availability was published in the Federal Register for the Final EIS and draft Record of Decision. On the same day, a legal notice was also published in the Glenwood Springs Post Independent. This initiated a 45-day pre-decisional objection period under 36 CFR 218. No objections were received on the draft Record of Decision. CONSIDERATION OF OTHER ALTERNATIVES NEPA requires that a range of reasonable alternatives to the Proposed Action be developed and analyzed. By definition, alternatives must meet the Purpose and Need while responding to issues identified during scoping. 1 Therefore, in response to internal and external scoping, the Forest Service Interdisciplinary (ID) Team considered issues that would generate alternatives to the Proposed Action. Both CEQ Regulations and Forest Service Handbook direction emphasize that alternatives must meet the reasonableness criteria in order to warrant detailed analysis. No physical or biological resource issues were identified that warranted consideration of alternatives to the Proposed Action. However, one alternative to the Proposed Action was created in response to Forest Service policy for summer and year-round recreation at activities at ski areas. This is discussed below under Alternative 3. 1 USDA Forest Service, Forest Service Handbook : National Environmental Policy Act Handbook, Chapter 10, Section and 14. ROD-25

30 In addition, after the Proposed Action was scoped in November 2012, the Proposed Action was modified in four ways: 1. Rappel Activity at Adventure Ridge: removed from Proposed Action 2. Reconfigured Talon s Deck and Barbeque Area at Eagle s Nest: removed from Proposed Action 3. Observation Tower at Adventure Ridge: removed from Proposed Action 4. Observation Tower at Wildwood: Clarified that this is proposed as a deck extending from Wildwood overlooking Sun Down Bowl I am confident that the ID Team considered a reasonable range of alternatives early in the NEPA process, and that the two alternatives, in addition to the required No Action Alternative, analyzed in the FEIS are adequate for the scope and scale of this project. ALTERNATIVE 1 NO ACTION As required by NEPA, a No Action Alternative was included in this analysis for review alongside the action alternatives. 2 By definition, the No Action Alternative represents a continuation of existing management practices without changes, additions, or upgrades to existing conditions. The No Action Alternative is depicted in Figure 1 of the FEIS. The No Action Alternative provides a baseline for comparing the effects of the action alternatives. The No Action Alternative essentially reflects a continuation of existing management practices without changes, additions, or upgrades. No new facilities or recreational activities are included. ALTERNATIVE 3 No resource issues were raised during public or internal scoping that drove the consideration of an alternative to the Proposed Action. However, an alternative to the Proposed Action was created to comply with a list of specific activities allowed for under the SAROEA. While the 2011 Act specifically identifies zip lines, mountain biking trails, frisbee golf courses, and ropes courses as activities and facilities that can be authorized on NFS lands, some activities are specifically prohibited, and others are not addressed at all. When the DEIS was released for public review, final policy that identifies which specific activities are allowable/precluded on NFS lands had not yet been published. Alternative 3 was developed to analyze those activities specifically named in SAROEA as appropriate activities on NFS lands at ski areas. In order to provide assurance that one of the action alternatives was consistent with SAROEA, Alternative 3 was developed to include all projects in the Proposed Action, except the following three components: 2 40 CFR (d) Regulations for Implementing the Procedural Provisions of the National Environmental Policy Act, as amended July 1, ROD-26

31 Mountain Coasters Riparian Experience Wedding venue at The 10th Alternative 3 is depicted in Figure 3 of the FEIS. ENVIRONMENTALLY PREFERABLE ALTERNATIVE In accordance with CEQ regulations, I am required to identify the alternative or alternatives that could be considered environmentally preferable (40 CFR [b]). Forest policy (FSH , Section 05) defines environmentally preferable as: An alternative that best meets the goals of Section 101 of NEPA Ordinarily this is the alternative that causes the least damage to the biological and physical environment and best protects, preserves, and enhances historic, cultural and natural resources. Based on the review of the alternatives, Alternative 1 (the No Action Alternative) is the environmentally preferable alternative. Alternative 1 is identified as the environmentally preferable alternative because, by its nature, it is not accompanied by any of the acknowledged impacts to the human or biological environment associated with Alternatives 2 or 3. FINDINGS REQUIRED BY LAWS, REGULATIONS AND AGENCY POLICY This approval is consistent with the intent of the 2002 Forest Plan s long term goals and objectives. 3 The project was designed in conformance with 2002 Forest Plan Forest-wide management direction and incorporates appropriate Forest Plan guidance for ski areas existing and potential. As Forest Supervisor for the WRNF, I am required to manage the Forest in accordance with applicable laws and regulations. This authority, which includes approval of ski area projects, is delegated to me through agency policy described in FSM In reviewing the FEIS, I have concluded that my decision is consistent with all relevant laws, regulations and requirements. This includes, but is not limited to: 2011 Ski Area Recreation Opportunity Enhancement Act of 2011 Americans with Disabilities Act (ADA) of 1990 American Indian Religious Freedom Act of 1978 Archaeological Resource Protection Act of USDA Forest Service, White River National Forest Land and Resource Management Plan 2002 revision. White River National Forest, Glenwood Springs. CO. ROD-27

32 Clean Air Act of 1990, as amended Clean Water Act of 1977, as amended Endangered Species Act of 1973, as amended, including consultation resulting in a Biological Opinion signed April 27, Fish and Wildlife Coordination Act of 1934, as amended Forest and Rangeland Renewable Resources Planning Act of 1974 Multiple-Use Sustained Yield Act of 1960 National Environmental Policy Act of 1969, as amended National Forest Management Planning Act of 1976 National Forest Ski Area Permit Act of 1986, as amended National Historic Preservation Act of 1966, as amended Organic Administration Act of 1897, as amended Protection of Wetlands Executive Order In addition to requisite Forest Service approvals, consultation with the following entities, or permits, may be required to implement any approved projects: Eagle County General Construction Permit Colorado Department of Public Health and Environment (CDPHE), Construction Stormwater Discharge Permit. Colorado stormwater regulations s (5CCR ) require a permit for construction activity that disturbs 1 acre or more during the life of the project. OBJECTION PROVISIONS AND IMPLEMENTATION DATE As discussed previously under Public Involvement, the draft Record of Decision was subject to the predecisional objection process pursuant to 36 CFR 218, subparts A and B. Objections could only be accepted from those who had previously submitted specific written comments regarding the proposed project during scoping or the DEIS public review and comment period, in accordance with 36 CFR 218.5(a). Issues raised in objections must be based on previously submitted, timely and specific written comments regarding the proposed project unless based on new information arising after the designated comment opportunities. No objections were received throughout the 45-day pre-decisional objection period. ROD-28

33 CONTACT PERSON For additional information concerning this Record of Decision, the FEIS, or the Forest Service predecisional objection process, contact: Roger Poirier, Project Leader White River National Forest 120 Midland Ave., Suite 140 Glenwood Springs, CO ROD-29

34 INSET: Adventure Ridge White River National Forest Horse Corral EAGLE'S NEST Adventure Ridge Mountain Coaster E ID PR HN BA S ES PR EX E GL EA ND (1 9) HN LEGEND A OL #18 HIG ) PRESS (7 REEK EX GAME C Selected Alternative Figure 6) (2 GO 5 #1 SUN DOWN BOWL #35 GAME CREEK BOWL Aerial Adventure Course Riparian Experience ND L A ND A FS US TE L IVA R P Vail Mountain Recreation Enhancements Project EIS OON Existing Conditions Lifts SUP Boundary Proposed Projects D WOO WILD SUN UP BOWL ) (17 SS (4 MID-VAIL ) E ID PR UP SU N S ES PR EX ) (36 ESS PR EX PE XPR E Game Creek Canopy Tour 5 #1 UP NTA INT O Horse Trail 0 #4 ) ESS (3 EXPR 6) (2 2) HN BA ( SS S OOD THW GH E GL EA E PR EX TI AN AV NOR SOURDOU CAS CAD ND K AC BL GO EV ILLA G E A OL (1 R FO 9) ND T ES GO O A! B! C! D! F ( G! H! Front Side Canopy Tour Horse Corral Riparian Experience Aerial Adventure Course Wildwood Observation Deck Downhill Mountain Biking Trails Hiking Trails Cross Country Mountain Biking Trails LA O R BO NE N EE FR HLIN E S (6 ) (8 ) BAH N EX PRE S SS RIVA E PR EX HIG Lionshead #25 Vail Village ,000 Created by: 2,000 4,000 Feet Date: October 2014 C TEA MO U Adventure Ridge Mountain Coaster EAGLE'S NEST

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