Uinta-Wasatch-Cache National Forest Salt Lake Ranger District

United States Department of Agriculture Forest Service Uinta-Wasatch-Cache National Forest Salt Lake Ranger District 6944 South 3000 East Salt Lake City, UT 84121 801-733-2660 File Code: 1950/2300 Date: August 14, 2013 Dear Interested Parties: The Salt Lake Ranger District (SLRD), Uinta-Wasatch-Cache National Forest (UWCNF), is inviting you to comment on the proposed action for the Grit Mill and Climbing Master Plan Project. The proposed project is located on the north side of State Highway 210 in Little Cottonwood Canyon. It extends from the Little Cottonwood Canyon (LCC) Park and Ride lot to the Grit Mill site, and is bordered on the north by the Twin Peaks Wilderness. As the proposed project would involve National Forest System (NFS) lands, we will analyze and disclose these effects in accordance with the National Environmental Policy Act (NEPA) prior to deciding whether to approve them. We invite your comments regarding what environmental issues and concerns should be included in our NEPA analysis. Details on how to comment are discussed near the end of this document. I. INTRODUCTION The area surrounding the Grit Mill in lower LCC is an invaluable recreational resource on the Wasatch Front and has been actively used by climbers and other recreationists for over fifty years. Rock climbing has experienced a dramatic rise in popularity over the last twenty years; consequently, the user impacts on the rock climbing areas within LCC have also increased. Because no formal trail system has been established, climbers have created numerous random access routes/social trails. Many of these routes are steep, located in highly erodible areas, are unsustainable, and are often redundant. The access points to the numerous climbing and bouldering areas similarly have evolved and parking and access occur at areas on the highway that were not designed for that use and present safety issues. Numerous climbing areas are located in the Twin Peaks wilderness area and on private land owned by the Church of Jesus Crist of Latter Day Saints (LDS Church). The LDS Church has allowed climbers to park and climb on their property, though conflicts have occurred. The LDS Church has concerns regarding liability, security, and safety for its personnel and property at their storage vaults. The Grit Mill site, including the structures and abandoned equipment, have not been used for years and have recently become an unattractive nuisance as a site for graffiti and other negligent behavior. The site is currently closed to public use through a Forest Service Supervisor s Order. The disrepair and age of the facilities and equipment also pose a safety hazard for those who venture onto the site. The Grit Mill site is a predominant feature at the mouth of LCC and serves informally as the gateway to the canyon. The community has for years discussed numerous options for the site and Caring for the Land and Serving People Printed on Recycled Paper

establishment of the Wasatch Legacy Project has served as a catalyst to bring community members together to form a public/private partnership that has helped in the development of the Proposed Action. Community members include the Salt Lake Climbers Alliance, Salt Lake City, Salt Lake County, UDOT, UPD, Cottonwood Canyons Foundation (CCF), the LDS Church, Snowbird and Alta ski resorts, and local residents. The SLRD, and it partners are seizing the opportunity to mitigate the wide array of impacts to this valuable environment. The Proposed Action has been designed to improve sustainable recreation opportunities; provide for recreation, transportation and public safety; and to protect important resources including cultural, watershed, wildlife and vegetation. II. PURPOSE AND NEED The 2003 Revised Forest Plan for the Wasatch-Cache National Forest (Forest Plan) provides overarching direction, goals, standards and guidelines, and desired future conditions for all management activities on NFS lands. The project is within the Central Wasatch Management Area as described in the 2003 Revised Forest Plan and it is entirely within management prescription 3.1w (Watershed Emphasis). Watershed protection is a central theme for LCC and the Forest Plan recognizes the critical role in allowing a diverse range of high quality and sustainable recreation opportunities within the constraints of maintaining high quality watershed values. The Forest Plan also recognizes the challenges and the balancing of uses to protect the watershed in light of growing populations and use. Consistent with growing use, the Forest Plan addresses the role of parking in managing capacity and supports the expansion of mass transit to address growth related transportation and parking issues. The purpose for this project is consistent with that direction and is to establish a managed system of trails, with appropriate parking, access, and restroom facilities, that facilitates sustainable climbing and other recreation opportunities for users, while minimizing impacts to the biological, physical, and social environments. The Proposed Action, consistent with this purpose, was designed to meet a number of needs, including; to provide improved access for climbers, maintain or improve scenic quality, preserve and interpret historical and cultural contexts, minimize impacts to adjacent private land owners, and address transportation issues and safety. Similarly, these needs must be met within the context of sustainable recreation and natural resource functions. Management direction in the Final Environmental Impact Statement Wasatch-Cache National Forest Land and Resource Management Plan Revision (2003 Forest Plan; Forest Service 2003) includes the following Desired Future Conditions for recreation activities, scenery management and watershed protection in the Central Wasatch Management Area: Protection of watershed conditions will be a primary factor in managing roads, trails and access. In the Tri-canyon area (Big and Little Cottonwood Canyons and Mill Creek) parking capacities of canyon parking lots (ski areas, summer use homes, developed and dispersed recreation sites) will be not exceed 2000 levels unless modification is needed for watershed protection or to facilitate mass transit. Mass transit will be commonly used during winter, reducing crowding and increasing safety for users of the canyons. The Forest Service will work actively with other parties to explore options for reducing private vehicular use within these Canyons (p. 4-160). 2

A comprehensive evaluation of the existing trail system (including user created routes) will be conducted, and a strategy developed to meet increasing demand while maintaining watershed condition and meeting social expectations for various types of opportunities. Trails to be retained will be modified and included as system trails; those not retained will be closed and rehabilitated where needed for watershed protection. Trails will be signed to standard, and compliance with rules addressing allowable uses will be excellent. Creation of new routes by users will be significantly curtailed. Users will assist with monitoring and will be well informed of impacts and needs for remaining on designated trails to prevent watershed deterioration. Travel planning for motorized access will be completed and monitoring and enforcement will be accomplished through coordination with other agencies (p. 4-160). Trails that provide access to wilderness and backcountry areas will be well designed and maintained with the goals of natural resource protection and visitor safety. The use of trails will be managed to address safety concerns and user conflicts associated with different modes of access. Managerial and enforcement capability will, however, limit the degree to which competing trail uses can be effectively separated (p.4-160). The scenery of the area will continue to be a valuable and pleasurable natural backdrop for the urban area. Views up and within the canyons of natural and developed areas will be carefully managed to sustain scenic resources. Views from the Scenic Byways in Emigration, Big Cottonwood and Little Cottonwood Canyons will be managed for their recognized values. Guidelines for scenery management will be applied to project undertakings. The following landscape character themes will be found in the management area as mapped: Natural Evolving, Natural Appearing, Developed Natural Appearing, and Resort Natural Setting (p.4-163). Given the importance of water coming from this area, watershed maintenance, protection and enhancement will be a primary consideration in all management decisions. Watersheds and streams will continue to provide high quality water supplies to the Salt Lake Valley. Various uses and developments (ski resort design and development, campgrounds, picnic areas, trailheads and trails) will be designed to prevent or fully mitigate impacts, resulting in properly functioning conditions in these watersheds. Impacts from historic activities will be mitigated to the greatest extent that is economically feasible (p.4-154). III. DECISION FRAMEWORK In consideration of the stated purpose and need and this analysis of environmental effects, the SLRD District Ranger as the Responsible Official, will review the alternatives in order to make the following decisions: Whether to authorize the Proposed Action or an alternative to it; What mitigation measures and design features to require for the actions authorized; and What evaluation methods and documentation to require for monitoring project implementation and mitigation effectiveness. IV. SCOPING AND ISSUE IDENTIFICATION The main purpose of our last mailing was to get public input on the scope of the EA, the issues and concerns it addresses and the means it identifies to avoid or minimize adverse impacts (i.e., alternatives and mitigation measures). On May 14, 2013, the UWCNF issued a public scoping 3

notice summarizing the Proposed Action and inviting comments regarding the scope of this EA. The notice was mailed to 127 agencies, organizations, and individuals on the UWCNF mailing list. The notice was also posted on the UWCNF website at http://www.fs.usda.gov/projects/uwcnf/landmanagement/projects and made available on CD or in hard-copy form to anyone requesting it. The 30-day scoping period closed on June 14, 2013. Comments were received from 3 agencies, 11 organizations, and 26 individuals. A scoping summary report was prepared, identifying commenters, comments received, and the disposition of those comments. The scoping notice, comments, and scoping summary report are included in the Project Record. The Proposed Action and scoping results were reviewed in order to determine the environmental issues and alternatives to the Proposed Action (40 CFR 1508.25). Issue statements were formulated, organized by resource discipline and reviewed. They include issues to be analyzed in depth and those dropped from in depth analysis for various reasons (e.g., because they were beyond the scope of this environmental analysis, expressed opinions rather than raising issues, involved matters covered by other laws or regulations, or were too speculative to effectively analyze). Issues to be analyzed in depth may be used to formulate alternatives. Preliminary Issues A Forest Service Interdisciplinary Team (IDT) reviewed the project and identified the following issues to be addressed in the environmental analysis from comments received from the public. These issues guide the formulation of alternatives and provide a framework for the effects analysis to be documented in the environmental analysis. A. Issues Carried Into Detailed Analysis Heritage Resources How would the proposed action affect heritage resources potentially occurring in the project area? There is concern that the proposed action or other alternative may have an effect on the cultural integrity of the greater Grit Mill area. The Grit Mill at the mouth of Little Cottonwood Canyon is a contributing feature to the Historic, National Register, Temple Quarry site (aka Whitmore quarry). Some of the granite quarried from this site was used in the construction of the LDS Temple in Salt Lake City. This large site has well over 100 years of history associated with it. The Grit mill is a contributing feature as it is a continuation of quarrying and stone product use at the site, and is over 50 years old. Removal of the Grit Mill or any new construction or reconstruction at the site, will effect to the overall integrity of the Whitmore quarry and will require consultation with the Utah State Historic Preservation Officer. Recreation How would the proposed projects affect the overall capacity balance, recreation setting, and trails in the project area? There is concern that the existing unmanaged recreation and climbing in lower Little Cottonwood Canyon (LCC) is unsustainable. Lower LCC is an invaluable recreational resource that has been actively used by rock climbers and other recreationists for over fifty years. Rock climbing has experienced a dramatic rise in popularity over the last twenty years, and, 4

consequently, the user impacts on the rock climbing areas within LCC have also increased. Climbing specific recreation has led to the development of unsustainable social trails that often take fall line routes and cause soil erosion, compaction, loss of vegetation and invite the establishment of invasive weeds while increasing the sediment load upon the watershed. The unstable and confusing nature of the climbing trails and access points can have a frustrating effect on climbers unfamiliar to LCC and inhibit the capabilities of local emergency response teams. Scenery How would the proposed projects affect the scenic integrity of the project area? There is concern that the Proposed Actions or other alternatives may affect the scenic integrity of the viewed landscape. The Grit Mill presently serves as a visual landmark near the entrance of Little Cottonwood Canyon. It presents a visual clue for the canyon s rich history as well as a palate for modern graffiti. Proposed changes to the site would represent a change in the landscape in the canyon. Soil Resources How would the proposed construction affect soil resources? Soils within the project area are derived from weathered granitic parent materials and are easily erodible. The lack of a formal trail system and numerous recreational uses in the project area are causing accelerated soil erosion and lowering long-term soil productivity. This could lead to an increase in bare ground and a shift to a drier plant community. Transportation and Public Safety How the proposed project would affect traffic on SR 210 and public safety? Parking and Traffic: There are concerns that the proposal to remove the Grit Mill, develop a summer trailhead and designated parking area, and restricting roadside parking along SR110 will increase traffic-related issues in and around the trailhead and access points. There is also concern that restricting parking along the highway will reduce access and opportunity for climbing as well as be difficult to authorize and enforce. Public Safety and Private Property Impacts: There is concern for public safety from unmanaged roadside climber parking on a busy highway, ingress and egress for the Grit Mill parking lot/trailhead and adjacent communities, as well as climbers and other recreationists crossing the highway to access climbing and recreation sites on the south side of the highway. Adjacent landowners have safety concerns regarding potential rock fall from climbers above their properties. There are also concerns that access to and use of the trails and space may affect neighboring property owners and residents by reducing their sense of privacy and security, increasing trespass and vandalism, and increasing potential conflicts among recreational users and nearby residents and businesses. 5

Vegetation How would the proposed projects affect special status plant species and the presence of invasive species? While no plant species protected under the Endangered Species Act occur in the project area, some species listed as sensitive in the Forest Service s Intermountain Region or otherwise identified as species of concern do occur and could potentially be affected by proposed activities. There is concern that current activities, as well as the Proposed Action or alternatives, may have the potential to increase the spread of noxious weeds in the area Watershed Resources How would the proposed projects affect watershed resources and water quality? The Proposed Action and other alternatives Alternative include three primary developments within the project area. These three developments include Grit Mill removal and parking area development, climbing access trail development, and roadside parking management. The proposed ground disturbing activities are located in dry upland sites and are not expected to affect watershed resources or water quality within the project area or areas downstream of the project area. Preliminary findings indicate that the effects to watershed resources are expected to be minimal in both intensity and duration due to the dry upland nature of the project area A. Issues Not Carried Into Detailed Analysis Fisheries and other aquatic species How would the proposed action affect fisheries and other aquatic species? There are no perennial or intermittent stream channels or ponds present within the project area; therefore, there is no suitable habitat for fish or amphibians. In addition, activities included in the proposed action are unlikely to generate sufficient sediment or deliver this sediment to Little Cottonwood Creek, where it might have an impact on aquatic species. Rather, the proposed trail improvements should lead to a reduction in the amount and movement of sediment downslope as current sources of erosion are addressed. Since there will be no impacts to fish or aquatic species no further analysis is needed. Wildlife How would the proposed projects affect wildlife habitat? There is no wildlife issues associated with this project. There are no threatened or endangered wildlife species in the project area or the adjoining area. The only sensitive species with the potential to exist in the project area would be bighorn sheep, and there are no documented sightings or historic references to them being in the area. V. ALTERNATIVES FORMULATION NEPA regulations require consideration of a "range of reasonable alternatives that would meet the proposal's purpose and need. As a minimum, this reasonable range must include the Proposed Action and a No Action Alternative. The No Action Alternative serves to establish baseline 6

environmental conditions and provides a means to compare alternatives. Other alternatives may be identified as a result of the issues raised during the public comment period. Alternative 1: No Action Under the No Action Alternative, none of the activities described under the Proposed Action would occur in the project area. The unmanaged uses in the Grit Mill and adjacent climbing areas would continue as they currently exist. No changes would occur to the Grit Mill, roadside parking, or access points. The No Action Alternative also represents the existing condition and is identified on the attached map (Figure 1). 1. Grit Mill would remain as currently exists, closure order would remain in place, graffiti and other deviant uses would likely continue 2. Climbing Access Trails/Routes (2.5 miles /0.9 acre) a. No new trail construction would occur. Climbers would continue to access climbing and bouldering features from LCC Park and Ride trailhead and from unmanaged roadside access points. b. Existing core routes would remain with no improvements or scheduled maintenance. These routes would not be included as FS system trails. c. Existing climbing access routes and belay platforms/landing pads would remain with no improvements or scheduled maintenance. These routes would not be included as FS system trails. 3. Roadside Parking Management - Access to climbing and bouldering sites from LCC Park and Ride TH and unmanaged roadside access points would provide continued access to trails and climbing features adjacent to road Alternative 2: The Proposed Action The SLRD is proposing to implement a comprehensive plan to provide managed and sustainable access to climbing areas in Lower Cottonwood Canyon. The proposal includes three primary development components that are identified on the attached map (Figure 2). 1. Grit Mill removal & parking area development a. Demolish and remove the Grit Mill, all related out-structures, and industrial equipment, utilizing heavy equipment (track hoe/excavator). Remove debris to an appropriate off-site location. Construct a climbing access trailhead parking lot, including a restroom and interpretive site. The lot would be designed to accommodate approximately 35 vehicles and would be closed during the winter months. 2. Climbing Access Trail development a. Construct new trail segments Construct approximately 1.04 miles of new trail in areas without existing routes to provide sustainable access to climbing features and other existing access routes (see D below). The new trail segments, combined with the existing segments (see B below), would provide the core loop trail system and provide multi-use access to and from the Grit Mill and LCC Park and Ride trailheads. All core trail segments would become Forest Service system trails. 7

b. Maintain existing core routes Upgrade approximately 0.7 miles of existing core routes to be consistent with Forest Service (FS) trail standards. These segments, combined with the new trail segments, discussed above, would complete the core system loop for access to and from climbing features and trailheads. Trail upgrades would include brushing and retreading to meet width and drainage standards. c. Close non-sustainable routes Close and rehabilitate approximately 0.9 miles of existing access routes that are not sustainable. These routes generally are very steep, run up and down the fall-line, are often redundant, and are highly erodible. d. Stabilize existing climbing access routes and belay platforms/landing pads Stabilize and maintain approximately 1.2 miles of short segments of existing routes to specific climbing features and landing pads to reduce resource impacts (erosion) to the core trail system and surrounding environment and provide sustainable access and climbing. Construct erosion control structures (water bars and check dams) and retaining walls in these areas. These routes provide access from the core trail system to specific climbing features and would not be included as FS system trails. 3. Roadside Parking Management - Close all roadside parking between the Grit Mill and the LCC Park and Ride. The SLRD will coordinate with the Utah Dept. of Transportation (UDOT) and Unified Police Dept. (UPD) to develop a roadside parking signing and enforcement plan. The Proposed Action proposes new recreation facilities on NFS lands which would not be consistent with Forest Plan management prescription 3.1w (FP Standard - no new recreation facilities permitted). To reflect this, the Forest Plan would need to be amended. Alternative 3: This alternative was developed by the IDT in response to issues raised by the public during the initial scoping process. The proposal includes three primary development components that are identified on the attached map (Figure 3). 1. Grit Mill removal & site restoration a. Demolish and remove the Grit Mill, all related out-structures, and industrial equipment, utilizing heavy equipment (track hoe/excavator). Remove debris to an appropriate off-site location. b. Rehabilitate site Close the site (gate, barrier and/or fence where needed), recontour, naturalize, and revegetate the site with native species. 2. Climbing Access Trail development a. Construct new trail segments Construct approximately 1.02 miles of new trail in areas without existing routes to provide sustainable access to climbing features and other existing access routes (see D below). The new trail segments, combined with the existing segments (see B below), would provide the core loop trail system and provide multi-use access from the LCC Park and Ride trailhead and select roadside access points. All core trail segments would become Forest Service system trails. b. Maintain existing core routes Upgrade approximately 0.7 miles of existing core routes to be consistent with Forest Service (FS) trail standards. These segments, 8

combined with the new trail segments, discussed above, would complete the core system loop for access to and from climbing features and trailheads/access points. Trail upgrades would include brushing and retreading to meet width and drainage standards. c. Close non-sustainable routes Close and rehabilitate approximately 0.9 miles of existing access routes that are not sustainable. These routes generally are very steep, run up and down the fall-line, are often redundant, and are highly erodible. d. Stabilize existing climbing access routes and belay platforms/landing pads Stabilize and maintain approximately 1.2 miles of short segments of existing routes to specific climbing features and landing pads to reduce resource impacts (erosion) to the core trail system and surrounding environment and provide sustainable access and climbing. Construct erosion control structures (water bars and check dams) and retaining walls in these areas. These routes provide access from the core trail system to specific climbing features and would not be included as FS system trails. 3. Roadside Parking Management - Access to climbing and bouldering sites from LCC Park and Ride TH and designated roadside access points only. Would provide access to core loop system and climbing features adjacent to road. No new recreation facilities would be developed under this alternative within prescription 3.1w (FP Standard no new recreation facilities permitted); therefore there is no need for a Forest Plan amendment. Also, there is no proposed change in the parking from the current situation. VI. ALTERNATIVES CONSIDERED BUT ELIMINATED FROM DETAIL STUDY Federal agencies are required by NEPA to rigorously explore and objectively evaluate all reasonable alternatives and to briefly discuss the reasons for eliminating any alternatives that were not developed in detail (40 CFR 1502.14). Public comments received in response to the Proposed Action provided suggestions for alternative actions. Some of these alternatives may have been outside the scope of the project, duplicative of the alternatives considered in detail, or determined to not achieve the purpose and need. Land Exchange, Sale or Special Use Permit Proposals One similar alternative suggested by two different scoping commenters was a Land Exchange or Sale Proposal. This alternative consisted in the idea of using the Grit Mill site as a permitted use site and storage for equipment, security, materials and tools with the option of the sale or exchange of the site. Because it doesn t meet the purpose and need of this project, it has been eliminated from further consideration. VII. ENVIRONMENTAL REVIEW Compliance with the National Environmental Policy Act of 1969 (NEPA), the Forest Service will be conducting environmental reviews on the individual tasks. It is believe that an Environmental Assessment (EA) will be needed on the proposed Grit Mill and Climbing Master Plan Project in order to determine if the project would result in significant impacts to the environment. The analysis will lead to a decision on whether and under what conditions to allow the Grit Mill and Climbing Master Plan Project. The project would be approved by the Forest 9

Service with conclusion of a Finding of No Significant Impact (FONSI). Based on preliminary internal and interdisciplinary review, it is anticipated that implementation of these tasks will not likely to result in significant environmental impacts, indicating that an EA is the appropriate level of analysis. If through scoping or our subsequent analysis it is determined that significant impacts could occur an Environmental Impact Statement may be prepared. As the proposed project would impact National Forest System resources, we will analyze and disclose these impacts in accordance with the National Environmental Policy Act (NEPA) prior to deciding whether or not to approve them. We invite your comments regarding what environmental issues and concerns should be included in our NEPA analysis. How to Comment and Timeframe The Salt Lake Ranger District (SLRD) of the Uinta-Wasatch-Cache National Forest (UWCNF) is preparing an Environmental Assessment on the proposed action described above. Individuals and organizations wishing to be eligible to object must meet the information requirements of 36 CFR 218 Subparts A and B. This is the primary opportunity for public involvement in this NEPA process, starting with this scoping period. It is important that those interested in this Proposed Action participate at this time. Please Note: In order to have standing to object to the decision that will be made, individuals and organizations must provide comments to this scoping process. Those who provided comments to the initial scoping must re-submit those comments or provide additional comments to this notice. It is the responsibility of persons providing comments to submit them by the close of the comment period. Only those who submit timely and specific written comments regarding the proposed project during a public comment period established by the responsible official are eligible to file an objection under 218. Written comments provide us a record of your concerns and will be used to identify significant issues and potentially to develop alternatives to be addressed in the environmental analysis. You may hand deliver your comments during normal business hours from 8:00am to 4:30pm, Monday through Friday, excluding federal holidays. Electronic comments must be submitted in a format such as an email message, rich text format (.rtf) or Word (.doc) to comments-intermtnwasatch-cache-saltlake@fs.fed.us, or submit comments to: Cathy Kahlow District Ranger Salt Lake Ranger District 6944 South 3000 East Salt Lake City, UT 84121 The EA and draft decision will be completed and distibuted to those who submitted comments, responded to this scoping letter, and requested to be included on the project mailing list in accordance with 36 CFR 218.5(a). The final environmental analysis and draft decision are expected to be completed by spring of 2014, with initial phases of implementation to occur during the summer of 2014. These projects will implement elements of the 2003 Revised Forest Plan for the Wasatch-Cache National Forest and are not authorized under the Healthy Forest Restoration Act and are subject to 36 CFR 218.7 parts (a) and (b). Instead of an appeal period, there will be an objection process 10

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