Buffalo Pass Trails Project Hahns Peak/Bears Ears Ranger District, Medicine Bow-Routt National Forests and Thunder Basin National Grassland Routt County, Colorado T6N 83W Sections 3-5, 8; T6N 84W Sections 1, 2, 11; T7N 83W Sections 27-29, 32-35; T7N 84W Sections 25-26, 35-36 Comments Welcome The Hahns Peak/Bears Ears Ranger District of the Routt National Forest welcomes your comments on the Buffalo Pass Trails Project to develop and manage recreation trails in the Buffalo Pass area. The project will advance Forest Service goals, objectives, and desired conditions for recreation and other resources. Your comments will help us identify issues associated with the Proposed Action, identify potential alternatives, and determine the appropriate level of analysis required for this project. Instructions for submitting comments are provided at the end of this notice. Background The Buffalo Pass area is one of the closest portals to the Routt National Forest from the community of Steamboat Springs, Colorado. Access is via National Forest System Road (NFSR) 60, or the Spring Creek Trail (National Forest System Trail (NFST) 1160) which begins in city limits and ends at the Dry Lake area (Figure 1). Designated trails in this popular area are currently limited to the previously mentioned Spring Creek Trail and the Wyoming Trail (NFST 1101) located near the summit of Buffalo Pass, eight miles east of the Dry Lake area. Due to the proximity to town and popularity of the area, a series of non-system trails have been created by recreationists (see Purpose and Need). Several groups have expressed interest in partnering with the Hahns Peak/Bears Ears Ranger District to improve the trails in the Steamboat Springs area. This interest, plus resource impacts associated with existing user created trails, compelled the Forest Service to evaluate trail resources across the District. In 2014, the International Mountain Bike Association (IMBA) assessed existing trails and developed a conceptual plan for bike trails within a 30-minute radius of Steamboat Springs. The Forest Service hosted a public meeting in August of 2014 allowing user groups and the general public to identify and discuss trail proposals and issues. Over 400 miles of new trails were identified by trail users. Proposals and concepts by interested parties were then assessed
Figure 1. Buffalo Pass area proposed trails (Alternative 2).
for feasibility and prioritized by the Forest Service. The outcome is a comprehensive list of action items for over the next 10-15 years for trails management on the District including resolving existing conflicts, identifying necessary improvements, and developing a more sustainable trail system over the long-term. A sustainable trail system is one that minimizes impacts on resources and requires minimal maintenance. From these efforts, the Buffalo Pass area was identified by the Forest Service as a top priority for both resource protection and opportunities for partnerships. Steamboat Trails Alliance (STA) input, IMBA s assessment, public input, and Forest Service staff concerns were considered to propose a series of trails that would meet public desires and also address resource issues. Purpose and Need for Action The purpose of this project is to provide for trail-based recreation needs by developing and managing a sustainable, designated trail system in the Buffalo Pass area near Steamboat Springs, Colorado. As discussed above, designated trails in this area are currently limited. The project would also address recreational impacts in the area including illegal trail building and use, and cross country travel by mountain bikes. A series of non-system trails have been created by recreationists, primarily from unrestricted cross country riding. Generally, these trails are not meeting Forest Service standards for sustainability and are leading to erosion and impacts to hydrology, vegetation, soils, and other resources. Forest Service regulations prohibit the unauthorized construction and maintenance of trails, but no regulations prohibiting the use of mountain bikes off of designated routes have been established on the Routt National Forest. If the existing trails and recreation activities are left unmanaged, unauthorized trail construction and associated resource impacts will likely continue in this area. The project would advance Forest Service goals, objectives, and desired conditions in the 1997 Routt National Forest Revised Land and Resource Management Plan (Forest Plan). See Management Direction in this document for further information. Project Area The Buffalo Pass Trails Project analysis area is located on the Hahns Peak/Bears Ears Ranger District of the Medicine Bow-Routt National Forests and Thunder Basin National Grassland in Routt County, approximately one mile northeast of Steamboat Springs, Colorado, in Townships 6 & 7 North, Ranges 83 & 84 West, 6 th PM (Figure 1). The analysis area occurs in the Middle Yampa Geographic Area of the Routt National Forest. According to the Forest Plan (page 3-54), this 95,040-acre area is dominated by spruce/fir (46%), aspen (23%), lodgepole pine (11%), and grass and forbs (10%). Unique features of the Middle Yampa GA include, but are not limited to, diverse recreation opportunities, a rural-urban boundary along the Yampa River Valley, the Steamboat Ski Area, low motorized travel route density, and domestic water supply provided by the watershed (Forest Plan, 3-54). 3
Management Direction The project will be designed to meet Forest Plan goals, objectives, and desired conditions. The project would advance Regional and Forest-wide direction by: Providing for multiple-uses and sustainability of National Forests and grasslands in an environmentally acceptable manner (Regional Goal #2) (Forest Plan, 1-1) Providing for scenic quality and a range of recreation opportunities which respond to the needs of National Forest customers and local communities (Regional Goal #4) (Forest Plan, 1-1) Providing a wide variety of outdoor recreational opportunities and experiences to meet the full range of visitor experiences (Forest-wide Goal #2) (Forest Plan, 1-1) o Identifying appropriate programs and compatible levels of use for Forest recreation and resource programs in collaboration with user groups, communities, and other agencies (Forest-wide Objective) (Forest Plan 1-1) Managing trail development at a broad scale to coordinate with trail systems developed by municipalities, counties, states, other federal agencies and partners. (Dispersed Recreation Guideline #3) (Forest Plan 1-19) Considering proximity to population centers, feasibility of loop trails, types of trail users to be served, and other factors in the development of new trails (Dispersed Recreation Guideline #6) (Forest Plan 1-20) Forest plan geographic area and management area direction in the project area emphasize providing for recreation opportunities (primarily non-motorized) while minimizing environmental effects on wildlife, vegetation, water quality, scenery, and other resource values. Forest Plan standards and guidelines would be applied to the proposal as appropriate. Forest Service Manuals and Handbooks for recreation provide further direction relevant to this proposal. Forest Service Manual (FSM) 2300 - Recreation, Wilderness and Related Resource Management outlines the authority, objectives and policy for providing a wide array of outdoor recreational opportunities, sustaining natural and cultural resources and deepening public stewardship by working with non-profit partners. FSM 2350 Trail, River and Similar Recreational Opportunities provides more specific direction to Forest Service trails programs to coordinate with local communities to provide a variety of trail opportunities to meet the public need and meet land management and recreation policy objectives by providing a trail system that is environmentally, socially and financially sustainable. It also states a policy of not maintaining unauthorized trails. Forest Service Handbook (FSH) 2309.18 Trails Management Handbook specifies how to plan, develop and maintain a trail system following the five Trail Fundamentals: Trail Type, Trail Class, Managed Use, Designed Use and Design parameters. Proposed Action- Alternative 2 Alternative 2 is the Proposed Action Alternative designed to specifically meet the purpose and need for this project. Information gathered from early scoping was considered by the Forest 4
Service and narrowed down to a proposal that would meet sustainable trail uses and recreation needs in the project area. Under this alternative, the Forest Service would: Construct and/or designate approximately 42.2 miles (mi) of sustainable trail and associated facilities in the Buffalo Pass area (Figure 1). This includes 38.5 mi of new nonmotorized single-track trail, and 3.7 mi of motorized single-track trail. Some existing user-created trails would be incorporated/designated as part of the trail system. Rerouting, decommissioning, and rehabilitation of user-created trails, or portions thereof, would occur for resource protection. The Dry Lake parking facilities would be improved for visitor use. To address further non-system trail development, a closure order would be implemented prohibiting mountain bike and all other wheeled-vehicle use off of designated roads and trails. Project implementation would likely begin in spring or summer of 2016. Under this alternative, approximately 17.9 mi of non-motorized single-track trail would be developed in Colorado Roadless Areas. This includes 13.1 mi in the Mad Creek CRA, and 4.8 mi in the Long Park CRA (Figure 1). The Forest Service completed a pre-scoping roadless project evaluation and found the proposed action to be consistent with the Colorado Roadless Rule. The rule does not prohibit motorized or non-motorized trail construction in Colorado roadless areas. Tree cutting or trimming (approximately 11.5 ac) would be incidental to construction and future maintenance of proposed trails, activities otherwise not prohibited under the rule. Alternatives to the Proposed Action Alternatives to the proposed action include the No Action Alternative (Alternative 1) and Trail/ Area Closure (Alternative 3). No Action- Alternative 1 The analysis may document consideration of a no-action alternative through the effects analysis by contrasting the impacts of the proposed action and any alternative(s) with the current condition and expected future condition if the proposed action were not implemented (36 CFR 220.7(b)(2(ii). Alternative 1 is the No Action Alternative. Under this alternative, the Buffalo Pass Trails Project would not be implemented, and current management would continue in the project area. No new trails or facilities would be developed to provide for recreation needs. Resource impacts and conflicts from illegal trail activities would not be addressed. An off-route closure order for mountain bikes and wheeled vehicles would not be implemented and resource impacts would continue. Under the No Action Alternative, valid previously 5
approved management actions would continue to be implemented in the project area, and new independent actions could be analyzed and/or implemented. Trail/ Area Closure- Alternative 3 Existing user-created and non-system trails (approximately 14 miles) in the project area including portions in roadless areas would be closed and rehabilitated, and no new trails would be designated. A closure order would be implemented prohibiting mountain bike and all other wheeled-vehicle use off of designated roads and trails. Implementation would likely begin in spring or summer of 2016. Decision to be Made The Hahns Peak/Bears Ears District Ranger is the responsible official for this decision. The responsible official will review the environmental analysis for the proposed action, other alternatives, and any public comments to determine whether to implement, in part or full, the proposed action, alternatives, and design criteria and mitigation. Public Involvement Early scoping that occurred for this project is summarized above (Background). This is the first opportunity for the public to provide formal comments on the Buffalo Pass Trails Project. The project was first listed in the Forest Service Schedule of Proposed Actions (http://www.fs.fed.us/sopa) on April 1, 2015, and updates are provided quarterly. Issues to Consider Issues are unresolved conflicts that arise as a result of the proposed action. The analysis will be issue-driven and contain detail commensurate to the degree at which a resource may be affected. From internal scoping, the Forest Service has identified preliminary issues and initial design criteria related to: Roadless Areas o Under the proposed action (Alternative 2), approximately 17.9 mi of nonmotorized single-track trail would be developed in Colorado Roadless Areas. This includes 13.1 mi in the Mad Creek CRA and 4.8 mi in the Long Park CRA (Figure 1). o The Forest Service completed a pre-scoping roadless project evaluation and found the proposed action to be consistent with the Colorado Roadless Rule. The rule does not prohibit motorized or non-motorized trail construction in Colorado roadless areas. Tree cutting or trimming (approximately 11.5 ac) would be incidental to construction and future maintenance of proposed trails, activities otherwise not prohibited under the rule. 6
Wildlife o Threatened, endangered, and sensitive species o Big game habitat and animal distribution o Wildlife-human conflicts o Biodiversity of the Soda Creek Preliminary Conservation Planning Area o Wildlife critical life stages and seasonal habitat needs o Raptor nests and breeding periods Hydrology o Soil erosion and sediment o Water quality o Streams o Wetlands including fens and springs Visual and scenic quality Sensitive and local concern plant species Revegetation methods Invasive non-native plants Other issues raised through internal scoping, field analysis, or in response to this notice of proposed action will be considered and addressed in the environmental analysis. Some issues may be addressed through modification of the proposed action, development of a new alternative, or mitigation measures. Comment Process The proposed project is an activity implementing a land management plan and subject to the objection process described in 36 CFR 218 Subparts A and B. The Forest Service is combining scoping with the legal notice and opportunity to comment, consistent with 218.24. The public is encouraged to provide specific written comments on this proposal, including supporting reasons for the responsible official to consider. Specific written comments are within the scope of and have a direct relationship to the proposed action. Written comments will be accepted for 30 calendar days following the publication of a legal notice in the Steamboat Pilot & Today. The publication date in the newspaper of record is the exclusive means for calculating the comment period. The regulations prohibit extending the length of the comment period. However, the Forest Service has the option of providing additional comment periods if determined necessary. Written comments must be submitted via mail, fax, electronically, or in person (Monday through Friday, 8:00 a.m. to 4:30 p.m., excluding holidays) to: Charles Sharp, NEPA Planner, USDA Forest Service, 100 Main Street, PO Box 158, Walden, CO 80480. Electronic comments including attachments can be submitted to: comments-rm-medicine-bow-routt-hahns-peakbears-ears@fs.fed.us. Acceptable formats for electronic comments include rich text (rtf), Word (doc or docx), and pdf. 7
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 will have eligibility to file an objection under 218.8. For objection eligibility, each individual or representative from each entity submitting timely and specific written comments must either sign the comment or verify identity upon request. Individuals and organizations wishing to be eligible to object must meet the information requirements in 218.25(a)(3). Names and contact information submitted with comments will become part of the public record and may be released under the Freedom of Information Act. If the agency determines there are no significant impacts, that finding along with the EA and a draft decision notice will be published for a 45-day objection period. If no specific written comments are received during the designated opportunity for comment, the project will not be subject to objection. If the EA concludes there is potential for significant impacts, then an environmental impact statement will need to be prepared. This also is requesting your comments under Section 106 of the National Historic Preservation Act, as amended (NHPA). Consultation under the NHPA seeks to consider the views about an undertaking and its effects on historic properties for the agency official to consider in decision making (36 CFR 800). Additional information regarding this proposal can be obtained from: Project Leader Kent Foster, USDA Forest Service, 925 Weiss Drive, Steamboat Springs, CO 80487, (970) 870-2142, kfoster@fs.fed.us. Disclaimer: The Forest Service uses the most current and complete data it has available. GIS data and product accuracy may vary. They may be: developed from sources of differing accuracy, accurate only at certain scales, based on modeling or interpretation, incomplete while being created or revised, have represented features not in accurate geographic locations, etc. The Forest Service makes no expressed or implied warranty, including warranty of merchantability and fitness, with respect to the character, function, or capabilities of the data or their appropriateness for any user's purposes. The Forest Service reserves the right to correct, update, modify, or replace this geospatial information based on new inventories, new or revised information, and if necessary in conjunction with other federal, state or local public agencies or the public in general as required by policy or regulation. Previous recipients of the products may not be notified unless required by policy or regulation. For more information, contact the Medicine Bow-Routt National Forests and Thunder Basin National Grassland Supervisor's Office (2468 Jackson Street, Laramie, WY 82070, 307-745-2300). The U.S. Department of Agriculture (USDA) prohibits discrimination in all its programs and activities on the basis of race, color, national origin, gender, religion, age, disability, political beliefs, sexual orientation, or marital or family status. (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 USDA, Director, Office of Civil Rights, Room 326-W, Whitten Building, 14th and Independence Avenue, SW, Washington, DC 20250-9410 or call (202) 720-5964 (voice and TDD). USDA is an equal opportunity provider and employer. 8