DECISION MEMO Grand Targhee Resort Summer Trails USDA Forest Service Caribou-Targhee National Forest Idaho Falls, Idaho 83401 Background Situated on the east side of the Teton Mountain Range, Grand Targhee Resort (GTR) is on the Caribou- Targhee National Forest approximately 8 miles east of Alta, Wyoming. Elevations range from 7,602 to 9,925 feet above sea level. The ski area occupies approximately 2,414 acres of mountain terrain and is almost entirely on National Forest System (NFS) lands administered under a Special Use Permit (SUP) by the Caribou-Targhee National Forest. Purpose and Need Considering the popularity of the existing summer trail network at GTR with the resort s summer guests, GTR s 2011 Master Development Plan (2011 MDP) identified the expansion of summer recreation opportunities as a way to meet the needs of guests staying for multiple days or returning to GTR for repeat visits. There is a need for more variety in summer recreational opportunities offered at GTR and improvements to the quality of the guest experience for repeat or multi-day visitors. The guest experience at GTR is affected by the distribution of users across its summer trail system. As both cross-country and downhill mountain bikers travel at considerably higher speeds than hikers or horseback riders, it is important to provide each of these groups with their own trails. Whether visitors are mountain biking, hiking, or horseback riding, the recreational experience and user safety is generally improved when these groups are separated. Trail user separation also helps reduce congestion and allows guests to choose the conditions best suited to the experience they desire. Based on the above information, the Purpose and Need for Action consists of four elements: 1. Respond to evolving demands for summer activities; 2. Offer guests a broader range of summer activities on public lands within GTR s existing Forest Service-administered SUP area;
3. Complement/expand opportunities for summer activities at GTR while utilizing existing lift infrastructure and guest services; and 4. Provide trail separation for different recreational user groups. Proposed Action GTR plans to construct ten of the planned summer trail segments identified in the 2011 MDP, totaling approximately 8.5 miles. In addition, nine new summer trail segments (totaling approximately 7.8 miles) will be constructed. These nine segments were not identified in the 2011 MDP. In total, these 19 trail segments comprise 16 proposed summer trails (approximately 16.3 miles). The 16 proposed summer trails are identified in the following table and text, and are identified on the attached figure. Activity Downhill Mountain Bike Trails (5 trails total) Hiking Trails (1 trail total) Multi-Use Trails (8 trails total) Horseback Riding Trails (2 trails total) Table 1. Proposed Summer Trails at Grand Targhee Resort 2012 Proposed Trail Name/Reference Approximate Length (Miles) 1 1.0 4th of July Bowl 0.9 Chief Joe 1.0 Rock Garden 0.9 Crazy Horse 2.0 Downhill Mtn. Bike Trails Total 5.8 Trail 4 0.6 Hiking Trails Total 0.6 Trail 8 0.3 Rick s/shoshone Connector 0.5 Base Loop 0.4 Fred s Climb 1.6 Nordic Road 0.7 North Boundary Trail 2.7 Peaked Connector 1.0 Fred s Traverse 0.3 Multi-Use Trails Total 7.5 Rick s Horse 1.8 Wishing Well Ext. 0.6 Horseback Riding Trails Total 2.4 Total 16.3 DOWNHILL MOUNTAIN BIKE TRAILS Five downhill mountain bike trails totaling approximately 5.8 miles will supplement the approximate 8.1 miles of existing and previously approved downhill mountain biking trails at GTR. 2
Clearing/grading for trails will range from 5 to 8 feet wide, as appropriate, based on trail parameters such as slope, visibility, and terrain features. HIKING TRAIL One hiking trail, approximately 0.6 mile in length, will supplement the approximate 5.2 miles of existing hiking trails at GTR. An approximate 3-foot wide corridor will be cleared/graded for the trail; tree removal will be minimized where possible. MULTI-USE TRAILS Eight multi-use trails, totaling approximately 7.5 miles, will supplement the approximate 17.3 miles of existing and previously approved multi-use trails at GTR. Clearing/grading for trails will range from of 5 to 8 feet wide, as appropriate, based on trail parameters such as slope, visibility, and terrain features. HORSEBACK RIDING TRAILS Two horseback riding trails, totaling approximately 2.4 miles, will supplement the approximate 2.1 miles of existing horseback riding trails at GTR. Clearing for trails will be approximately 8 to 10 feet wide, grading will be approximately 2-to- 3 feet wide, and tree removal will be minimized where possible. The Rick s Horse Trail is intended to provide a two hour ride, and the exact route of the trail may be adjusted to accommodate this goal. Trails will be constructed using a mini-excavator, Ditch Witch trail construction machinery, and hand tools, as appropriate. Associated ground/vegetation disturbance will be minimized where possible. My decision meets the project purpose and need to improve the summer opportunities offered at GTR and is consistent with the 1997 Caribou-Targhee Forest Plan. Decision and Rationale It is my decision to authorize GTR to construct sixteen additional summer use trails; eight multi-use trails, five downhill mountain bike trails, one hiking trail, and two horseback riding trails as described above. New multi-use trails will improve the variety of opportunities available for hikers, bikers and horseback riders of all skill levels. Additionally, downhill mountain biking has grown in popularity as trails increasingly offer free-style terrain along with the cross-country experience. GTR has a unique opportunity to provide lift-served mountain biking trails in a developed and maintained manner. Existing and planned developed trails at GTR improve the user experience and reduce the number of rogue trails created haphazardly (i.e., without authorization) elsewhere on National Forest System lands. Decision Memo for Grand Targhee Resort s Summer Trails 3
Given the developed nature of GTR within its SUP boundary, the density of GTR s summer trails is understandably high compared to other areas on National Forest, raising concerns about impacts to wildlife, vegetation, visual, and watershed resources. However, this density is appropriate as per the 1997 Forest Plan for Management Area 4.2 Special Use Permit Recreation Sites and the 1991 Recreation Trails Program. Additionally, the Ski Area Recreational Opportunity Enhancement Act of 2011 clarifies that year-round recreational activities, including mountain bike trails, are appropriate at ski areas operating on National Forest System lands. While the Proposed Action is consistent with law, regulation and policy, Forest Service specialists further reviewed impacts to relevant resources. Due to the scale and location of the proposed projects, no effects were identified that cannot not be addressed by Management Requirements and Best Management Practices (BMPs). The proposed trails are in an area that is developed for both summer and winter use. Generally, tree removal will be minimized by using natural openings and creating trails in areas that are not heavily treed. No whitebark pine will be removed for any of these trails. For those trails that do traverse timber stands, tree removal will be limited to the width necessary and appropriate for trail development. Trail construction widths are somewhat higher than normal because of the type and intensity of use and safety concerns for the public. The amount of disturbance related to trail construction will be reduced after construction as vegetation is re-established. While development of these trails will result in an increased number of trails visible from the immediate vicinity of GTR, views of the human-built environment are unavoidable within the SUP area and this level of development is consistent with 1997 Forest Plan Visual Quality Objective for the SUP area of Partial Retention (slightly altered) to Maximum Modification (Heavily Altered). I also considered the likelihood of bear encounters. While there is a possibility of bear encounters at GTR, there is no history of grizzly bears at the resort during the summer and there are no natural food concentrations within the permit boundary to attract grizzly bears. Currently, there is a food storage order in place for the resort and it is GTR s responsibility to inform guests about the possibility of bear encounters. Erosion will be minimized through trail construction techniques such as rolling grades, grade reversals and drain dips, particularly where trails approach drainages or swales. Through appropriate construction practices and drainage management, impacts to soils and water resources will be minimized. I considered a comment received during scoping about the location of the Peaked Connector trail. The commenter wrote that the trail could lead to further development in a relatively isolated area near the permit boundary. This trail is actually in close proximity to several existing trails and is well within the permit boundary and consistent with the approved Master Development Plan. 4
In addition one comment questioned whether the addition of multiuse trails to the existing network could lead to safety concerns. GTR recognizes issues with conflicting user groups; their proposal is developed to limit this cross use and reduce current user conflict. My decision includes the implementation of Best Management Practices and Management Requirements, as defined below, which will minimize impacts to resources. The project area has been reviewed by Forest Service specialists for impacts to recreation, soils, cultural sites, vegetation, watershed condition, wildlife, or visual resources. No significant issues were identified that could not be mitigated, and all practical means have been employed to avoid and/or minimize environmental impact. Management Requirements & Best Management Practices To eliminate, or minimize, potential resource impacts (e.g., recreation, soils, cultural sites, vegetation, watershed condition, wildlife, or visual resources), this decision incorporates Management Requirements and Best Management Practices (BMPs) from the 1994 Final Environmental Impact Statement (FEIS) for the GTR Master Development Plan. In addition, BMPs identified in IMBA s Guide to Building Sweet Singletrack will be incorporated. On-site monitoring will be provided by the Forest Service throughout the construction phase of all approved trails. All trail maintenance will be the responsibility of GTR and will be performed to Forest Service standards. The following Management Requirements and BMPs are intended to reduce and/or avoid potential impacts associated with approved projects. They are required as part of this decision. Failure to comply with the stated Management Requirements and BMPs will constitute a breach of the terms of the SUP and could delay or suspend implementation of this approval. GEOLOGY AND SOILS Management Requirements and Best Management Practices Included in this Decision Soil-disturbing activities will be avoided during periods of heavy rain or wet soils. Appropriate erosion control measures such as rolling grades, grade reversals and drain dips will be included in construction, drainage management and revegetation plans and approved by the Forest Service. CULTURAL If undocumented historic and/or prehistoric properties are located during ground disturbing activities or planning activities associated with construction activities, they will be treated as specified in 36 CFR 800.11 concerning Properties Discovered During Implementation of an Undertaking. VEGETATION A revegetation plan would be approved by the Forest Service botanist prior to construction. Avoid trampling of native plant communities through designation of formal paths in heavy use areas, and other appropriate means. A adequately mark trail clearing limits to avoid mistakes in clearing limits during construction. Do not remove any whitebark pine trees. Trees designated as leave trees by Forest Service personnel should be marked and avoided. Inform employees and avoid any sweet-flowered rock jasmine and Payson s bladderpod. If any are located in the project area, inform the Caribou-Targhee National Forest botanist. Decision Memo for Grand Targhee Resort s Summer Trails 5
Management Requirements and Best Management Practices Included in this Decision Avoid any Pyson s bladderpod. If any are located in the project area, inform the Caribou-Targhee National Forest botanist. WATERSHED Erosion control and revegetation efforts will commence immediately following construction as per Forest Service BMPs and an approved Erosion Control Plan. Prior to trail construction, a drainage management plan will be prepared in order to preclude sedimentation of streams and wetlands. This will include, but is not limited to, trail design, waterbars, culvert installation and ditching. All wetlands will be avoided during trail construction. WILDLIFE Trails will be designed to minimize potential for an encounter with a grizzly bear by routing them around potential travel corridors and placing trail corners in openings visible to bears, as specified by the Forest wildlife biologist. VISUAL RESOURCES Adhere to the Visual Quality Objectives (VQOs) of partial retention to maximum modification as defined for the area in the 1997 Forest Plan. Disturbed areas adjacent trails will be promptly revegetated to minimize impacts to visual resources. Trail cuts and fill slopes will be designed to be screened by existing vegetation where possible. Trail widths will be minimized where practical on steeper, more visible slopes. Public Involvement A scoping letter describing the proposal for the new trails was released for comment between November 14, 2012 and December 15, 2012 to interested or affected individuals and agencies. Six letters were received which included comments regarding: Management and use of the SUP area; Potential impacts to visual, wildlife, vegetation, soil, and water resources; and The quality of the experience provided by multiuse trails. In reaching my decision, I considered public input (see Decision Rationale), as well as input from Forest Service resource specialists who analyzed the proposal. As stated above, no significant issues were identified that could not be mitigated, and all practical means have been employed to avoid and/or minimize environmental impact. Reason for Categorically Excluding the Proposed Action I have determined that the elements of the proposed project located on NFS land, as described above, are consistent with the types of actions described under 36 CFR 220.6 (e)(1) Construction and reconstruction of trails. The potential direct, indirect, and cumulative effects of the entire project were reviewed and considered in my decision. In regard to extraordinary circumstances, the Forest Service Handbook lists several topics that must be considered (1909.15, 30.3, 2 a g). Forest Service resource specialists have visited the project area and documented their findings regarding these and other potential extraordinary circumstances in the project file. The determinations are summarized below. Upon reviewing the analysis, I have determined that all 6
practicable means to avoid or minimize environmental impacts have been incorporated into this decision. There were no adverse effects identified on resource values listed under the extraordinary circumstances below: a. Federally listed Threatened or Endangered species or designated critical habitat, species proposed for Federal listing or proposed critical habitat, or Forest Service sensitive species Forest Service resource specialists have visited the project area. Potential impacts to Threatened, Endangered and/or Sensitive plant and animal species/habitat are documented in a report that is contained in the project file. It was determined that suitable habitat occurs within the permitted area for sweet-flowered rock jasmine and Payson s bladderpod. However, due to the area and the large extent of potential suitable habitat that will not be impacted, a determination of may impact individuals or habitat, but will not likely contribute to a trend toward Federal listing or cause a loss of viability to the population or species," was reached. If any specimens are encountered they should be avoided and the Caribou-Targhee National Forest botanist should be informed. In addition there are whitebark pines in the project area. These trails would not remove any whitebark pines. Trees designated as Leave Trees would be marked and avoided. The Caribou-Targhee Streamlining Team concurred with a No Effect determination for the Candidate species; this also implies a No Impact determination as a Forest Service Sensitive species. It was determined that development of new trails may affect grizzly bear. Since there is no history of grizzly bears at the resort in summer, no natural food concentrations within the permitted boundary to attract grizzly bears, a Food Storage Order in place, and abundant habitat adjacent to the resort, this trail project is Not Likely to Adversely Affect the species. Therefore, there are no extraordinary circumstances associated with the project. The Forest Service wildlife biologist consulted with the Fish and Wildlife Service and received concurrence that adverse effects to these species are not likely. b. Floodplains, wetlands, or municipal watersheds The project area is not located on a floodplain, or within a municipal watershed. All wetlands can and will be avoided. c. Congressionally designated areas, such as wilderness, wilderness study areas, or national recreation areas The project area is not located within a Congressionally designated area, Wilderness, a Wilderness study area, or a National Recreation Area, nor was the project area proposed for Wilderness designation in the Caribou-Targhee National Forest Land and Resource Management Plan. The Jedediah Smith Wilderness abuts GTR along the northeastern boundary of the SUP area. No projects are proposed within or immediately adjacent to the Jedediah Smith Wilderness. The trails will be developed on an aspect which faces away from the Wilderness and therefore will not be visible from any part of the Wilderness. No impacts to the Wilderness will occur as a result of this proposal. Decision Memo for Grand Targhee Resort s Summer Trails 7
d. Inventoried Roadless Areas or potential Wilderness Areas The project area is not located within an Inventoried Roadless Area or in a potential Wilderness Area. e. Research Natural Areas (RNA) There are no research natural areas in or near the project area; therefore this decision will not affect research natural areas. f. American Indians and Alaska Native religious or cultural sites and archaeological sites, or historic properties or areas No archaeological sites, historic properties or areas exist within the project area, and none will be affected with implementation of this project. Based on the findings summarized above, I am categorically excluding this decision from documentation in an Environmental Assessment or Environmental Impact Statement. Based on experience with management activities similar to this, and upon the environmental analysis conducted for this project, the effects of implementing this action will be limited in context and intensity. Findings Required by Other Laws and Regulations My decision is consistent with the National Environmental Policy Act (42 U.S.C. 4321-4347) and the Targhee National Forest 1997 Revised Forest Plan. Appeal Opportunities This decision is subject to administrative review (appeal) pursuant to 36 CFR Part 215. Individuals or organizations who submitted comments or otherwise expressed interest during the comment period specified at 215.6 may appeal this decision. The notice of appeal must meet the appeal content requirements at 36 CFR 215.14. The appeal must be filed (regular mail, fax, email, hand-delivery, or express delivery) addressed to the Appeal Deciding Officer at: USDA Forest Service, Region 4, Intermountain Regional Office/ATTN: Appeal Deciding Officer, 324 25th Street, Ogden, UT 84401; or by fax to 801-825-5277; or by email to: appeals-intermtn-regional-office@fs.fed.us. The office business hours for submitting hand-delivered appeals are Monday through Friday, 7:30 a.m. to 4:00 p.m., excluding holidays. Electronic appeals must be submitted in a format such as an email message, plain text (.txt), rich text format (.rtf), or Word (.doc) to appeals-intermtn-regionaloffice@fs.fed.us. The appeal must have an identifiable name attached or verification of identity will be required. A scanned signature may serve as verification on electronic appeals. Appeals, including attachments, must be filed (postmarked) within 45 days from the publication date of this notice in The Idaho Falls Post Register, the newspaper of record. Attachments received after the 45- day appeal period will not be considered. The publication date in The Denver Post is the exclusive means for calculating the time to file an appeal. Those wishing to appeal this decision should not rely upon dates or timeframe information provided by any other source. 8
Implementation Date If no appeal is filed, this project could be implemented 50 days (the 45 day appeal period plus a 5 day stay) from the publication date of the notice in The Idaho Falls Post Register, the newspaper of record. If an appeal is received, implementation may not occur for 15 days following the date of appeals disposition. Contact For further information concerning this decision, contact Ray Spencer, Project Lead by letter (Caribou- Targhee National Forest, Teton Division Winter Sports Administrator, Jackson Ranger District, PO Box 1689, Jackson, WY 83001), by telephone (307) 739-5415, by fax (307) 739-5450, or by e-mail at rspencer01@fs.fed.us. Brent Larson Forest Supervisor Caribou-Targhee National Forest Date enclosure: map 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 individuals 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) 720-2600 (voice and TDD). To file a complaint of discrimination, write to USDA, Director, Office of Civil Rights, 1400 Independence Avenue, S.W., Washington, DC 20250-9410, or call (800) 795-3272 (voice) or (202) 720-6382 (TDD). USDA is an equal opportunity provider and employer. Decision Memo for Grand Targhee Resort s Summer Trails 9