Wildwood Recreation Area Management Plan

Wildwood Recreation Area Management Plan

Impacts Environmental Assessment (EA) Number: DOI-BLM-ORWA-N010-2016-0003-EA

November 2019

Responsible Agency: United States Department of Interior- Bureau of Land Management Northwest Oregon District Office, Cascades Field Office Clackamas County, Oregon T. 02 S., R. 06 E., Section 23

Responsible Official For Further Information, contact John Huston, Field Manager Dan Davis, Outdoor Recreation Planner Northwest Oregon District Office Northwest Oregon District Office Cascades Field Office 1717 Fabry Road SE 1717 Fabry Road SE Salem, OR 97306 Salem, OR 97306 (503) 315-5935

Wildwood Recreation Area Management Plan

Section 1 – Introduction.

(a) Executive Summary The Wildwood Recreation Site is located 42.5 miles east of Portland on US-26, near the Town of Welches and at the base of Mt. Hood. The estimated drive time to Wildwood from Portland is 1 hour and 7 minutes. The area surrounding Wildwood Recreation Site has ample outdoor recreation opportunities ranging from mountain biking at the popular Sandy Ridge Trail System, spending the day at Timberline Lodge, skiing at the various resorts, fishing and water activities in the Sandy and Salmon Rivers, and Wildwood provides direct access to the Salmon- Huckleberry Wilderness area. Wildwood Recreation Site is currently a day-use only site that offers large reservable group shelters, a smaller reservable group shelter, reservable outdoor kitchens, potable water, picnic tables, kitchen facilities, and seven full service restrooms. Wildwood Recreation Site offers two ball fields, open play areas, a playground, four horseshoe pits, two volleyball courts, two basketball courts, and an extensive assortment of trails, accessible interpretive facilities, and site hosts. The site includes several miles of accessible trails that allow visitors to explore the forest along the Salmon River, enjoying an interpretive experience that explains the natural process of the river, with the trail concluding at the underwater fish-viewing window. Visitors currently pay standard amenity (day-use fee) and expanded amenity (reservable group shelters, kitchens) fees for day-use at the site. Wildwood Recreation Site is a well-maintained recreation site, which offers high quality recreation amenities in a well-developed, forested environment. Wildwood offers unique experiences for recreation visitors that want to engage in the natural world in a very developed platform for the day. The quality and amount of available amenities at Wildwood is uncommon for a federal recreation site. The site currently underutilizes the unique history that is found directly on the site, including portions of the Oregon Trail and remnants of the logging mill that occupied the area until the 1930’s. The BLM’s approach to meeting recreation demand encompasses two distinct recreation management areas (RMAs): Special Recreation Management Areas (SRMAs) and Extensive Recreation Management Areas (ERMAs). The 2016 Resource Management Plan (RMP) for Western Oregon identifies the planning area as a SRMA (Figure 1). Changes in BLM National policy for Recreation and Visitor Services provide new guidance on applying RMA allocations. Wildwood’s SRMA boundary defines the planning area, helps determine the management of recreation use, and represents a commitment from the BLM to provide a higher level of recreation-related resources when compared with BLM-administered lands outside the SRMA. The SRMA designation provides for the protection of recreation setting characteristics (physical, social, and operational), and for the SRMA to be the primary driver for the management for this portion of BLM managed lands.

Page 2 of 29 Wildwood Recreation Area Management Plan Wildwood Recreation Site is currently facing financial difficulties as the site only generates on average $49,470 annually in fee revenue or 11% of the total operation and maintenance expenses. The current operation and maintenance expenses total $449,650 annually with labor consisting of the largest portion of the cost. Stagnating or shrinking budgets and inflation compound the issue, as there is less of a budget to go around and the appropriated funding purchases less and less each year as inflation rises.

Wildwood Recreation Site has seen a continual decline in visitation, while the outdoor recreation market and region has seen a continual increase in visitation. This suggests that Wildwood Recreation Site is seeing a decrease in visitation due to design and development not keeping pace with the outdoor recreation trends for the region.

Graph 1: Annual Visitation Since 1995

The Recommended Development, “Proposed Action”, estimates an increase in fee generation resulting in $658,924 annually or 110% of the operating and maintenance expense, which would increase to $598,585 annually by the year 2021, due to an increase in labor, maintenance, and inflation. This would result in fee collection being $60,339 annually above costs, compared to the current deficit of $400,180. The deficit would rise to -$471,910 without new development for the year 2021 due to inflation. This alternative would result in the Northwest Oregon District saving an estimated $532,249 annually after construction of the recommended development.

The construction cost is estimated at $2,770,887 and would take ($2,770,887 / $658,924) = 4.2 camping seasons to pay back the construction costs. This does not take into consideration any camping area remaining open during the winter season. The pay off period could be reduced depending on the success of the recreation site during the winter recreation season. This alternative only selects the development types that have the longest life cycles, and would need the least amount of future development. In a 30-year period, this alternative would generate $19,767,720, without the need for any major maintenance or additional development. This

Page 3 of 29 Wildwood Recreation Area Management Plan alternative will not need major maintenance or improvements for 30 years, resulting in nearly 26 years of revenue generation after the initial development expenses are paid back. The return on investment (ROI) for the development would be $16,996,833 after development expenses are paid, and this does not include possible fee revenue collection during the winter months. (b) Purpose of the RAMP The Recreation and Visitor Services policy recommends the local BLM officer develop Recreation Area Management Plans (RAMPs) that address implementation level management, administration, information, and monitoring actions. The BLM has determined that development of a RAMP would allow for planning and implementation of recreation site development in order to increase visitation and revenue. The ROD/RMP designated Wildwood as a SRMA, and as such, the site would be managed to protect and enhance the activities, experiences, benefits, and desired recreation setting characteristics included in the SRMA planning framework (ROD/RMP p. 251; Planning Framework p. 135). The Wildwood RAMP would plan and implement recreation site management for the following purposes: Manage Special Recreation Management Areas and Extensive Recreation Management Areas, identified in Appendix G, in accordance with their planning frameworks (ROD/RMP p. 88): The Wildwood SRMA Planning Framework outlines specific outcome objectives that include mountain biking, hiking, camping, picnicking, day-use, swimming, fishing, and environmental education (Planning Framework p. 1). The Planning Framework also states that the site is open to overnight camping use, including permitted use for future group areas (Planning Framework p. 2). Because camping is both an outcome objective as well as an allowable use, the proposed Wildwood RAMP is in accordance within the activities, management action, and allowable use restrictions included in the Planning Framework. The proposed project meets the objectives outlined on page 1 and 2 of the Planning Framework because it would improve, not interfere with, the recreation opportunities at the site, and would maintain the recreation setting characteristics by adhering to the PDFs in EA Section 2.2. Protect recreation setting characteristics within Special Recreation Management Areas to prohibit activities that would degrade identified characteristics (ROD/RMP p. 88): The recreation setting characteristics are defined based on a combination of physical (remoteness, naturalness, etc.), social (contact, groups site, etc.), and operational components (access, visitor services, etc.) (FEIS p. 556). The Wildwood SRMA Planning Framework determined the proposed recreation setting characteristics designation to be Front County (Planning Framework p. 2). The FEIS described portions of the physical setting for the Front Country classification as Remoteness within 0.25 miles of collector roads (add footnote), and Naturalness contains a partially modified landscape with more noticeable modification and young, high density forest stands without structural legacies (FEIS pp. 556-559). The remainder of the recreation setting characteristics are described in Section 3.3 of the EA.

Page 4 of 29 Wildwood Recreation Area Management Plan Figure 1: Current Wildwood Special Recreation Management Area

Page 5 of 29 Wildwood Recreation Area Management Plan

(c) Relationship to other documents (e.g., LUP management direction, policy documents) The BLM signed the ROD/RMP on August 5, 2016. The Wildwood Recreation Area Management Plan EA is in conformance with the ROD/RMP, which addresses how the BLM will comply with applicable laws, regulations, and policies in western Oregon including, but not limited to the: O&C Act, Federal Land Policy and Management Act (FLPMA), Endangered Species Act (ESA), National Environmental Policy Act (NEPA), Archaeological Resources Protection Act, Clean Air Act, and Clean Water Act. Congressionally Reserved Lands and National Conservation Lands – Mount Hood Corridor The Mount Hood Corridor was designated under Title IV of the Oregon Forest Resource Conservation (OFRC) Act of 1996, Public Law 104-208. The legislation required that all BLM- administered lands located in Townships 2 and 3 South, Ranges 6 and 7 East, Willamette Meridian, that can be seen from U.S. Highway 26 be managed “primarily for the protection or enhancement of scenic qualities. Management prescriptions for other resource values associated with these lands shall be planned and conducted for purposes other than timber harvest, so as not to impair the scenic qualities of the area.” The Act further specifies that “timber cutting may be conducted following a catastrophic event. Such cutting may only be conducted to achieve the following resource management objectives, in compliance with current land use plans to maintain safe conditions for the visiting public; to control spread of forest fire; for activities related to the administration of Mount Hood Corridor Lands and for removal of hazard trees along trails and roadways.” The proposed project is in compliance with the direction under the Mount Hood Corridor designation because it would not impair the scenic qualities of the area by adhering to the project layout and design features included in Chapter 2 to minimize impacts (EA Section 2.2). District-Designated Reserve-Area of Critical Environmental Concern (ACEC) LUA The proposed project is located within the Sandy River Outstanding Natural Area (ONA) ACEC under the ROD/RMP. The ONA is a specific type of ACEC that aims to protect unique scenic, scientific, educational, and recreational values of certain areas within the public lands. Management direction for ACECs under the ROD/RMP states “Implement activities as necessary to maintain, enhance, or restore relevant and important values” (RMP/ROD p. 57). Relevant and important values for the Sandy River ONA include historical, scenic, fish and wildlife, and natural processes. The proposed project would maintain the relevant and important values for scenic, fish and wildlife, and natural processes by not constructing any proposed facilities or camping areas within the one site potential tree height of the Riparian Reserve and adhering to Project Design Features (PDFs) listed in EA Section 2.2. Historical values would be enhanced because there would be an emphasis placed on promoting and protecting the cultural resources that are found on the Wildwood SRMA through interpretive signage and trails.

Page 6 of 29 Wildwood Recreation Area Management Plan Wild and Scenic River Salmon River Segment 5 The RMP p. 38 states: “The corridor width for rivers found eligible or studied for suitability is generally defined as one-quarter mile on either side of the river (approximately one-half mile wide corridor). Technically these are not land use allocations at this time.” (d) Objectives At Wildwood there is a need to provide increase site utilization, fee collections, accessibility, safety, availability of amenities, and site environmental education and interpretation in a managed natural environment, to provide for high quality recreation experiences while enhancing or protecting resources. Wildwood SRMA is one of the most developed recreation sites in the Northwest Oregon District, but receives some of the lowest visitation rates compared to the cost of operations and maintenance (RAMP Figure 1). Wildwood is seeing near continual declines in both visitation and revenue for over the past decade (2006 to 2016), resulting in the need to identify possible solutions to increase revenue and site visitation. Continual declines or stagnation of bureau budgets further increases the magnitude of impact that underperforming recreation sites have on the overall health of a District recreation program. Additionally, Wildwood currently has aging infrastructure and declining forest stand health. The ROD/RMP designated Wildwood as a Special Recreation Management Area (SRMA) (ROD/RMP p. 17). Recreation and Visitor Services management are the predominant land use plan use focus, emphasizing recreation opportunities and recreation setting characteristics for protection and long-term management (ROD/RMP p. 251). Graph 2: Annual Visitation Since 1995

*Visitation was not recorded from 1975 to 1995 (Recreation Management Information Systems data).

Page 7 of 29 Wildwood Recreation Area Management Plan Additionally, the 2016 ROD included Recreation Management Area Frameworks, and provided management direction that states “Manage Special Management Areas and Extensive Recreation Management Areas, identified in Appendix G, in accordance with their planning frameworks. Protect recreation setting characteristics within Special Recreation Management Areas to prohibit activities that would degrade identified characteristics.” (2016 ROD, pg 88). To view the entirety of the planning framework for Wildwood, see Appendix B. Figure 3: Framework Outcome Objectives

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Section 2 - Management.

(a) Commitment of resources. Implementing the proposed action would slightly increase the costs of operations and maintenance for the recreation site, however, the resulting increase in revenue would decrease any financial burden that would occur due to the proposed action. The total O&M cost projected for the Proposed Action is $598,585. This cost includes labor and expenses for approximately ten staff members, Youth Corps labor, vehicles, equipment and supplies, services, eight camp hosts, and law enforcement, both BLM staff and County Sheriff contracts (Table 1). Table 1: Proposed Action Projected O&M Costs

Expense Category Projected Cost Staff Labor and Expenses $375,365 Youth Corps Labor $66,800 Vehicles $32,500 Equipment and Supplies $48,000 Services $29,800 Camp Host Stipend $10,820 Law Enforcement $35,300 Total $598,585

Page 9 of 29 Wildwood Recreation Area Management Plan

The projections based on regional averages that were taken from USFS campgrounds within the analysis area and Metro’s Oxbow Regional Park suggests the total amount of revenue that Wildwood would bring under the Proposed Action, which includes the current day-use fee revenue generated ($49,470), is $607,404 (EA Table 20). With the O&M costing a projected $598,585 annually after development, there would be no deficit at Wildwood, and instead there would be a profit of $8,819 (Appendix A). This would result in the Northwest Oregon District saving an estimated $480,729 annually. Similarly, the modeling using Fishermen’s Bend suggests the total amount of revenue that Wildwood would generate after development, adding in the current day-use fee revenue generated ($49,470), would be $658,924. With the O&M costing a projected $598,585 annually after development, there would be no deficit at Wildwood and the site would instead generate a profit of $60,339. This would result in the Northwest Oregon District saving an estimated $532,249 annually (EA Table 21). Table 2: Projected Annual Revenue, using both Regional Average and Fishermen's Bend Average

Fishermen’s Bend Occupancy Recreation Type Regional Occupancy Average Average Day-use $49,470 $49,470 Camping $557,934 $609,454 Total $607,404 $658,924

Table 3: Difference between Revenue Collected and Expenditure Costs

Regional Projection Fishermen’s Bend Projection Fees Collected $607,404 $658,924 Operations and Maintenance $598,585 $598,585 Difference (+) $8,819 (+) $60,339

Wildwood would become more self-sufficient based on the current and projected fees for O&M costs. In addition to becoming more self-sufficient, the added fee revenue would allow for improved maintenance and visitor services, as well as other enhancements to the recreation site. Additional fee revenue and an additional fee revenue source, overnight camping facilities, would allow Wildwood to be more responsive to changes in outdoor recreation needs and demands, reducing the likelihood that Wildwood would revert to a stage of having a large deficit. (b) Development of facilities (e.g. developed recreation sites, roads and trails, trailheads). Vegetation Modification

Page 10 of 29 Wildwood Recreation Area Management Plan Trees, shrubs, and other vegetation would be removed for construction of the proposed development. To help reduce the total cost of the development, the timber would be sold to the contractor which is allowed in the SRMA Planning Framework “Allow timber harvest if compatible with meeting recreation objectives, not interfering with recreation opportunities, and maintaining setting characteristics” (Planning Framework p. XX). All vegetation, limbs, crowns, or any other non-merchantable timber that could not be processed into firewood would be chipped or burned on site when safe according to burning regulations. BLM employees that are familiar with the fire program would be present if any burning was required. A minimum of 50 feet of vegetative screening would remain after construction between campsites to provide for use privacy and to maintain the visual resources within the recreation site. Native plants would be planted in locations that need additional screening. The Front Country or better designation for the Recreation Setting Characteristics would be followed and maintained according to the 2016 PRMP/FEIS analysis. Front Country is described as: ● Partially modified landscape with more noticeable modifications. ● Young High Density without Structural Legacies. ● Young Moist-Forests that are over 30 years old ● Young High Density–Without Structural Legacies < 24 trees per acre ≥ 20” DBH and the coefficient of variation of tree diameters over 10” < 0.35

Administrative Facilities Currently, the Wildwood office is located in a back corner of the SRMA, which is not easily accessible by visitors. Under all action alternatives, the office would be moved to the main entrance road into the Wildwood site (Figure 5). The existing small fee booth would be removed and the main entrance road would be widened to include an additional lane to prevent park visitor traffic from backing up onto Oregon State Highway 26. Additional parking would be added to the new office location to allow visitors to stop and contact the staff for reservations or information about Wildwood. Additionally, a bus stop would be moved to the office location and a separate ingress lane for RVs, camper trailers, and the bus to utilize would be added behind the office. The new office location would also allow staff to be more efficient in managing Wildwood, to handle collection and normal administrative tasks. Security cameras would be installed throughout the site in locations of high visitor use, such as the entrance, administrative buildings, and information kiosks to deter crime. Additional trash receptacles would be installed in order to continue to collect and remove from trash. Trail Construction and the Barlow Trail Interpretive Site Approximately two miles of additional trails would be constructed to provide linkages between campground loops and other areas of interest. Proposed routes would include trails from the new office location towards the Upper Camping Loop, the RV Loop, the Group Overnight Shelters, trails to Lower Camping Area 1 and Lower Camping Area 2, and other trails to connect the Lower Day-Use Area to the new camping areas. Additional smaller trails to restroom facilities

Page 11 of 29 Wildwood Recreation Area Management Plan from camping areas would be constructed to allow for easy access. Proposed trails would be built out of a porous concrete called flexi-pave, or they would be natural surfaced, or similar trail hardening techniques would be used as existing. The material (Flexi-Pave™) can infiltrate 9,872 inches of water per hour (Roy and Braga 2009). This material reduces impacts to hydrology as it would maintain water infiltration into the soil. The material is also resistant to cracking from tree roots or the freeze-thaw cycle making it a superior product to cement or asphalt. The proposed trails would be located within the Wildwood SRMA and would adhere to the project design features to protect natural resources. The proposed trails would be flagged after all other new development is constructed to ensure the trails are meeting their intended purpose, and to prevent trail destruction during facility construction. An additional trail would be constructed in the Northeast section of Wildwood as a community connector trail to the town of Welches, Oregon. This trail would also be used as an interpretive trail for the Barlow Trail, a portion of the historic Oregon Trail, which travels through the Wildwood SRMA. BLM archaeologists would help develop interpretive signage along the trail to provide information about the unique history of the area and the trail. Natural Playground and Additional Picnic Areas A new natural play area would be constructed in the existing southwestern day-use area utilizing the existing paved loop and parking. The play area would feature natural materials like logs, boulders, and wood chips for kids to play on and enjoy a more natural setting than the existing plastic and metal play structures. Four additional 15-foot diameter paved picnic spots would be built to accommodate families picnicking while utilizing the natural playground and play area. During public scoping, this type of setting is one of the preferred day-use activities. Environmental Education Program Currently, Wildwood does not have a dedicated environmental education program. Wildwood used to have a partnership with a non-profit organization that led tours, and worked with local school districts on environmental education programming. Unfortunately, the non-profit organization relocated and the BLM has not been able to establish a new partnership. The BLM will continue to work on establishing new partnerships and encourage local schools to visit Wildwood and utilize the environmental education features that exist at Wildwood. The BLM would work to develop a comprehensive educational program, with material, to allow the site park rangers to help conduct site-specific environmental education activities. Dog Park Dog parks are a favorite amongst overnight visitors that travel with RVs or camper trailers as it allows their companions a chance to stretch their legs. A portion of the existing ball field would be transitioned into an off-leash dog park. The off-leash dog park would be one acre in size. The dog park would be fenced and include wood chip ground cover, dog-waste cleanup stations, and shade trees.

Page 12 of 29 Wildwood Recreation Area Management Plan Dump Station A dump station would be built near the recreation site entrance to allow visitors or others to stop at Wildwood to dump wastewater from their RVs and camper trailers. The dump station would require a fee for use. The dump station would include a pull through parking station, a vault tank for waste, and a water hose to flush the RV and camper trailer wastewater systems. Proposed Action The Proposed Action would develop Wildwood into an overnight campground with the highest return on investment overnight types, including RV spaces with full hookups, cabins, overnight group shelters, and camping loops. The total amount of hardened surface area for this alternative would be approximately six acres. The Proposed Action would provide 85 full hookup camping sites in three defined overnight use loops, which would be referred to as the RV loop, lower camping area #1, and lower camping area #2. The RV loop would include 23 pull through sites that include full hookups, barbeque grills, a tent pad, picnic tables, and fire rings. Pull through sites are preferred, as they are easier for large vehicles and large trailers to access, as well as providing additional vegetative screening to further enhance the privacy at each site. The RV loop would only allow for one-way traffic, with the road winding through a cedar forest and re-entering the existing road system. A large restroom and paid shower facility would also be developed within the RV loop located near the cabins for use by both visitor types. Cabins are the most profitable overnight development due to their high occupancy rate and the higher fee amount, making them one of the most valuable overnight developments in terms of possible fee collection. Cabins also have the highest probability of occupation during the winter season due to the protection they offer from the elements and the fact that there is no specialty equipment, beyond basic camping equipment, that is needed to stay the night, unlike full hookup sites that require a person to own or rent a RV or camper trailer. The cabin loop would feature 15 cabins, and would be located within the existing large, paved loop west of the group day-use shelters. The cabins would offer electric heat, basic furniture, barbeque grills, picnic tables, and designated parking. Additional parking would be developed for the cabins off the existing paved loop. The cabins would be located near an existing restroom and near the new proposed restroom and paid shower facility. The Pioneer group shelter currently offers hot water, electric hookups, seating for up to 300 for day-use, large fireplaces, lights, and electric cooktops. The existing Pioneer group shelter would be converted into a group overnight shelter including five full hookup RV or camper trailer sites, and five tent pads. Barbeque grills and fire rings would also be installed in the group shelter area.

Page 13 of 29 Wildwood Recreation Area Management Plan The outdoor covered kitchens would be converted into a circular nook and would feature cabins looking inward toward the central shared outdoor covered kitchen (Figure 2. Three to four cabins would be located at each of the two converted outdoor kitchen areas, depending on the available space. The unique setting would be ideal for families or individuals that require an additional cooking space and dining area that can support a large group. This development type is also appealing for outfitter and guides that want to base camp out of Wildwood as they take their clients, mountain biking, skiing, snowshoeing, river rafting, kayaking, or exploring the wilderness area.

Figure 4: Outdoor Covered Kitchens Two additional full hookup camping loops would be added between the upper camping area and the existing day-use area to the south near Salmon River (EA Figure 3). The two camping loops would add an additional 62 sites, two additional camp hosts, and a single seasonal ranger. The two additional camping loops would have a single entry that would allow for one-way traffic for easy site management. One camping loop would offer 34 sites, a restroom, and a camp host. The second camping loop would offer 28 sites, a restroom, and a camp host. For winter camping options, the two camping loops could both be opened, or a single one could be opened or they both could remain closed, dependent on the amount of demand. This would reduce operational cost during the winter season, and provide flexible options for management to maximize efficiency.

Page 14 of 29 Wildwood Recreation Area Management Plan Figure 5: Proposed Action Map

(c) Access. The entrance will be redesigned to better manage visitor traffic. The current fee both will be removed, and the recreation site’s office will be moved to the front of the recreation site at the first intersection (see figure 3), and will take on the roles and responsibilities of the current fee both. In addition to the removal of the fee both, another lane for ingress traffic will be created to split the traffic out between the upper portion of the recreation site and the lower section. There

Page 15 of 29 Wildwood Recreation Area Management Plan will also be a bus stop installed behind the main office, to allow for non-personal vehicle travel to the recreation site, and throughout the region including Sandy Ridge Trail, Mountain Hood, Government Camp, and all the other prominent recreation destinations in the region. A trail will be built between Wildwood and Welches, connecting the recreation site to the greater community for vehicle free travel, this trail will also connect to the proposed non-motorized trail network that Clackamas County, and the State of Oregon are developing in the region. (d) Visitor health and safety. Security cameras will be placed throughout the recreation site at major gathering points like, trailheads, parking lots, the entrance, administrative sites, and restrooms to improve visitor safety, and help protect vehicles from break ins. The security system will record the data on a cloud base platform, to ensure that data is protected and secure at all times. Additional street lighting will be installed in any new development ensuring that there is adequate lighting during the winter months. In addition to the BLM law enforcement officers, the BLM has a contract with Clackamas County for additional emergency services support. The BLM also contracts with Oregon Department of Forestry for assistance with wildland fire. (e) Other management requirements. Currently Wildwood has a park manager, assistant park manager, three seasonal park rangers (summer), and six camp hosts. Once implementation of the overnight facilities began, additional staffing will need to be hired, including one full time park ranger, and two additional hosts.

Section 3 – Administration (Regulatory Actions).

(a) Permits/permit systems. The BLM authorizes recreation use of the public lands and related waters through the issuance of special recreation permits (see EA Section 2.7.7), and recreation use permits. The BLM’s authority to issue permits is described in the Federal Land Policy and Management Act of 1976 and 43 Code of Federal Regulations (CFR) 2930. The issuance and administration of permits must adhere to the BLM policy contained in Manual (2930 Recreation Permits and Fees) and Handbook (H-2930-1 Recreation Permit Administration). (b) Fees. Proposed fees reflect what comparable sites currently charge for similar visitor facilities, number of campsites, access, and services. For more information on the fee determination process, review the Sandy River Basin Business Plan-2017, found at BLM.gov. The table below (Table 4) outlines the proposed fees for Wildwood Recreation Site based on market analysis. Table 4: Existing Fees and Proposed Fee Changes at Wildwood Standard Amenity Existing Fees No Changes Day-use for passenger vehicle $5 $5

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Standard Amenity Existing Fees No Changes Day-use for van (10-20 people) $10 $10 Day-use for bus (20+ people) $20 $20 Annual Day-Use Passi $25 $30 Expanded Amenity Existing Fees Proposed Fees Individual Tent Campsite $22 Partial Hookup Campsite $26 RV/Trailer Full Hookup Campsite $35 Yurt 16’ $45 Yurt 16’ with power $55 Group Yurt $110 Cabin with electric None $65 Cabin with electric and shared outdoor $80 covered kitchen (SOCK) $6 per person *Overnight Group Shelter With a minimum of $420 for up to 70 people Extra Camping Vehicle $5 Group Picnic Shelter – (M-Th*) *Discontinuing weekday Outdoor Picnic Kitchens $45 reduced fees Salmon River Shelter $95 $60 Group-use Day Shelter (Half) $95 $125 Group-use Day Shelter (Full) $190 $150 $300 Group Picnic Shelter – (Fr-Su and *Discontinuing weekday Holidays) reduced fees Outdoor Picnic Kitchens $60 $60 Salmon River Shelter $120 $125 Group-use Day Shelter (Half) $120 $150 Group-use Day Shelter (Full) $240 $300 Dump station None $5 * Minimum fee and group size may change based on further planning input. Depending on amenities, fees range $16 to $32 per individual tent campsite. Group campsite fees range from $34 to $75 with an addition charge of $2.50-$5 per person exceeding the 25 limit per campsite. Group picnic day-use shelters range from $50 to $250 per facility based on number of people and amenities offered. Cabins range from $40-$165 a night and yurts range from $39-$70 a night, based on amenities, location and management type. Additionally, some parks may charge a day-use fee if visiting non-camping areas of the park. During the analysis and price comparison, we rounded to the nearest whole dollar amount for fees; additionally any tacked on or added fees, like Metro’s $5 per vehicle for everyone (including visitors camping) and USFS $2 additional fee for weekends and holidays were excluded from the analysis.

Page 17 of 29 Wildwood Recreation Area Management Plan Individual Tent Campsites were highest in the private sector, ranging from $27-$32 and USFS was the lowest ranging from $17-$21 for single tent sites, some double sites are $40. The average cost per night for tent campsites, excluding special fees, is $22 a night. The $22 fee places the BLM in the mid-level range of fees and development levels when compared to public and private sector campgrounds. Partial Hookup Campsites are the most numerous RV/camper trailer designed site and range from $24-$28. The average cost per night for partial hookup sites is $26 across both private and public sector campgrounds. This resulted in a fee rate of $26 for partial hookup campsites. Full Hookup Campsites are limited to only four comparable campgrounds with designated full hookup campsites, many campgrounds use double sites for RVs and trailers, while offering no amenities or just partial hookups. The average was $35 a night. This average is strongly driven by private sector campgrounds with the sites ranging from $38-$49 a night. Public RV sites range from $24-$29, which excludes additional fees charged for weekends, holidays, and additional vehicles. The nearest comparative campgrounds for Wildwood are privately owned and managed. Overnight Group Shelters currently do not exist in the analysis area. Using the current fee per person rate of $3 for group campsites, and then adding 100% of the cost, due to the much higher level of amenities that would be offered at the overnight group shelters, resulted in a rate of $6 per person. One of the day-use shelters that currently exist at Wildwood would be repurposed into an overnight group shelter. The overnight group shelter fee would be set to $420 for the first 70 people and an additional $6 per person would be charged after the initial 70. The shelter would have hookup pedestals and parking spaces added for RVs and camper trailers. Yurts in the public sector range from $39-$50 a night and range from $62-$70 a night in private sector. The fee structures dependent on what amenities are included; electricity and pet friendly yurts usually incur an extra $10 fee. Comparing the non-electric yurt fees showed an average fee of $43 a night. The average fee for yurts with electricity was $64; these were private sector facilities. The resulting fee for BLM yurts would be $45 with an additional $10 fee for yurts with electricity. The small increase above the average is based on the level of development and amenities at BLM sites compared to other public campgrounds. Group Yurts do not currently exist in the regional recreation market. Group yurts are twice the size and offer twice the number of amenities as standard electric yurts, due to this it was determined that the fees would be set to twice the fee rate of the standard electric yurts, which is $110 a night per group yurt. Cabin supply is limited at public campgrounds in the region. All three private sector campgrounds offer cabins ranging from $59 for non-electric to $165 for A-frame styled cabins. The only public campground in the analysis area that offers cabins is Champoeg State park with prices ranging from $40-$50 for non-electric, with a $10 price surcharge for pet friendly cabins. Due to the limited nature of cabins within the area, a larger, more extensive analysis was completed for cabins. It is recommended that the BLM’s cabin rates should range from $60-$70

Page 18 of 29 Wildwood Recreation Area Management Plan a night; this conclusion was driven by analyzing a mixture of BLM, State, County, USFS and private campgrounds throughout Oregon. With the large variation in private sector, prices and the limited amount of public sector cabins in the region, the recommendation would be to set the fee price at $65 a night for a cabin with electricity at Wildwood Recreation Site. Cabin with Shared Outdoor Covered Kitchen pricing is based off how many cabins would be located around the current outdoor kitchens. The proposed outdoor kitchen fee of $60 was divided by four, due to that being the maximum number of cabins that would be located around an outdoor kitchen. Any amount of cabins less than the proposed four would have an increased value, since there would be less people sharing the outdoor kitchen. The proposed fee of $65 per night for a cabin with electricity was added to $15, which is $60/4, for a fee of $80 a night. Group Day-Use Shelters range from about $50 to $250 per facility based on number of people. The wide range of occupancy numbers, quality of sites and fees resulted in using the average fee per person method. The resulting average fee for group shelters is $1.56 per person per day and $1.50 per person after rounding to the nearest $.50 cents. However, due to the higher level of amenities provided; kitchen facilities, electric stoves, bathrooms, electric outlets, running hot water, and heat at the Salmon River Shelter resulted in a 50% increase to the average; after rounding to the nearest $.50 cents, the rate is $2.50 per person. This results in an increase of the Salmon River shelter fee from $120 to $125 with the max occupancy of 50 people. Pioneer and Mountain View group day-use shelters fees increase to $150 for a half shelter (100 person max occupancy), and $300 for a full shelter rental (200 person max occupancy). (c) Use restrictions. Camping Restrictions:  Open to overnight use  Open to overnight use under permit- camping may be allowed in the future in the Group Use area and other portions of the park as determined appropriate. Associated fee changes would be implemented. Special Recreation Permits:  Allow SRPs within RMA boundaries Trails and Travel Management:  Open to biking  Closed to equestrian  Open to hiking  Designate area as limited to existing for OHV Firearm Use Restriction:  Closed to shooting

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(d) Partnership agreements. Currently there are no partnerships associated with Wildwood. However, Wildwood will continue to seek partnerships with non-profits, other agencies, and school districts to improve the educational component of the recreation site. Wildwood has an extensive education component to the site that includes the “stream watch” that takes guest through the life cycle of Salmon, and Steelhead, that ends at a one of a kind instream fish viewing window. The BLM will also seek a partnership with local historic groups, that could help provide interpretation and programming for the extensive historic resources that are present at the site that includes remnants of the original logging settlement, and portions of the Oregon Trail. (e) Business plans or fiscal accountability systems. The authority to collect and retain recreation fees is specified in the Federal Lands Recreation Enhancement Act (REA) of 2004. The BLM is currently seeking to make changes to the existing fee structure at the site. Potential changes include adding camping fees, and charging for services or amenities like firewood and showers. Any change in the fee structure requires a presentation to the Recreation Resource Advisory Committee and recommendation for approval before going to the BLM State Director for concurrence and final approval prior to implementing. The goal of the fee changes and new management direction is to move Wildwood towards becoming a self-sustaining recreation site. Fees collected at Wildwood supplement allocated recreation funds to maintain and operate the recreation site. The goal is to have 100 percent of fee receipts go towards the recreation facilities, services, and programs that impact visitors such as maintenance and enhancement projects, interpretation and signage, and direct costs related to the site that collected the fee. No more than an average of 15 percent of the total revenue collected may be used for administration, overhead, and indirect costs related to fee collection (H-2930-1, Chapter 2, III Expenditures). An automated fee station is currently in place to collect day-use fees, and this system could be used to collect fees from walk-up campers or non-park visitors using the dump station. All the campsites would be placed on the online reservation system to allow for easy, automated service for both the staff and visitors. The Sandy River Basin Business Plan proposed standard and expanded amenity fees for individual day-use, campsites, group picnic shelters, group camping sites, yurts, and cabins. The business plan was completed April 2017; the information from the business plan was used in determining fees, and revenue projections for the RAMP, and EA, and Economic Analysis. Each vehicle past the allowed amount per campsite will be required to pay an additional fee. The business plan’s comparative analysis conducted in 2016 reviewed user fees at similar state, regional, and local park facilities. Analysis showed that the proposed fees for Wildwood would be in line with what other similar facilities are charging. The existing fee schedule would change to the analyzed fees only after being recommended by the Resource Advisory Committee/Council, approved by the Oregon/Washington BLM State Office Director, and completion of site development.

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(f) Data management protocols. Data management protocols will focus on tracking and gaining a better understanding on visitation, fee collection, and fee compliance. A formal data collection procedure will be developed after development of the proposed action takes place. The data collection procedures will be developed at the district level and will include best management practices and strategies for improving data quality. The emphasis of the data collection will be on improving fee collection, and staffing efficiencies. (g) Timelines. Implementing the proposed action will began within six months of the signing of the Record of Decision. The focus of implementation will be on administrative facilities, day-use facilities, and non-development plans, such as education and data collection. None of the overnight facilities will be developed or implemented before fees are approved. Once fees are approved and development implementation begins, each additional loop will be developed based on capacity needs. Once the Upper Loop meets capacity during the summer recreation season, one of the Lower Loops will be developed, and once that loop is at capacity, the other loop will be developed. (h) Priorities for implementation. Top priority will be placed on changes to the administrative structures, and day-use facilities. After those are completed, priorities will be placed on the highest fee return, lowest cost, and most efficient development first, dependent on funding. The Upper Loop RV circle and cabins will be the first overnight development to occur. After those are completed the rest of the Upper Loop will be developed. Next will be the two lower loops in sequential order (Lower Loop 1 first, Lower Loop 2 last), and only after the prior loop hits the targeted occupancy rate that is described in the estimations for fee projections during the summer recreation season. (i) Cost estimates of implementation projects. The below table (Table 24) represents the total construction cost for the proposed development. The most significant costs to the development would be the construction of the new asphalt ($1,176,535) and the installation of the new electric, water and sewer hookups ($613,632). The costs savings from this alternative is the $100,000 from not developing group yurts.

Page 21 of 29 Wildwood Recreation Area Management Plan Table 5: Construction Costs Construction Type Cost Per Unit Quantity Total Cost Construction Type Cost Per Unit Quantity Total Cost Upper: 1,606 Electrical Service Conduct $12.50 per foot Lower 1: 1,992 $64,850 and Line includes trenching Lower 2: 1,590 Electrical Service Pedestal $900.00 each 85 $76,500 Upper: 1,606 Water Service Mainline $14.00 per foot Lower 1: 1,992 $72,632 Pipe Lower 2: 1,590 Water Service Line Pipe $10.00 per foot 850 $8,500 Upper: 1,606 Sewer Service Mainline $50.00 per foot Lower 1: 1,992 $259,400 Pipe Lower 2: 1,590 Water Service RV Hookup $500.00 each 85 $42,500 Sewer Service Line Pipe $30.00 per foot 850 $25,500 Sewer Service RV Hookup $750.00 each 85 $63,750 Upper: 67,954 New Constructed Asphalt $5.85 per sqft Lower 1: 67,082 $1,176,535 Lower 2: 66,081 New Constructed Cabins $20,000 each 15 $300,000 Precast Shower/Restroom $225,000 each 1 $225,000 New Constructed Office $250,000 each 1 $250,000 Wooden Play Structure $5,000 each 1 $5,000 Precast Restrooms $65,000 each 2 $130,000 Picnic Tables $653.00 each 85 $55,505 Fire Rings $179.00 each 85 $15,215 Dump Station $45,000 1 $45,000 Total Cost $2,815,887

This alternative would take ($2,815,887 / $658,924) = 4.3 camping seasons to pay back the construction costs. This does not take into consideration the upper camping area remaining open during the winter season. The pay off period could be reduced depending on the success of the recreation site during the winter recreation season. This alternative only selects the development types that have the longest life cycles, and would need the least amount of future development. In a 30-year period, this alternative would generate $19,767,720, without the need for any major maintenance or additional development.

Section 4 - Information and Education.

(a) Map and brochure development. There is already a map, brochure and coloring book for Wildwood. Once development begins, and after each phase is completed, the brochure and maps will be updated.

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(b) Website development. Wildwood already has an existing website, and is also featured on recreation.gov. All reservations will be done through recreation.gov. (c) Outreach efforts. Once development starts, Wildwood will be heavily advertised through a network of partner agencies that focus on marketing and tourism, outdoor recreation publications, mountain biking focused publications, and social media, in addition to BLM websites. Some of the agencies include Travel Oregon, Mt. Hood Territory, Mt Hood/Gorge Region, and other designated marketing organizations. (d) Marketing. Significant trends in outdoor recreation include the ever-increasing demand for active outdoor recreation, like mountain biking, skiing, hiking with dramatic views and off highway vehicle (OHV) use. Another significant trend in outdoor recreation is people wanting larger sites to accommodate RVs, fifth wheels, camper trailers and higher levels of amenities, like paved areas, flushing restrooms, power hookups, cellphone reception, potable water, and shower facilities (Outdoor Foundation, 2014).

Wildwood Recreation Site sits in the shadow of Mt. Hood, off US-26, which provides terrific access from Portland to Mt. Hood. Utilizing US-26 allows visitors from the Portland-Metro area to reach Wildwood Recreation Site and the surrounding outdoor recreation sites within an hour’s time of driving. The ease of access to recreation sites along US-26 from Portland increases the destination appeal for both small vehicles and the largest RVs. Recreation sites that are on major travel routes are at an advantage compared to those that require a visitor to traverse winding, narrow or less maintained roads.

Camping development at Wildwood would allow the BLM to fill a camping gap within the Sandy River Basin – Mt. Hood Corridor (US-26 Corridor leading from Sandy to Mt. Hood). Currently there are no overnight public camping facilities located in the middle section of the Sandy River Basin – Mt. Hood Corridor, from Sandy to Welches. An appropriate level of development at Wildwood would be able to fill a unique niche in the recreation market for the region. An assessment of the current recreation market for campgrounds including both the public and private sector, suggests the best option for the BLM is to take a mid-level of development approach for Wildwood. The BLM would be able to create a unique identity by taking a mid-level development approach for a campground when compared to the rustic campgrounds of the USFS and the resort like campgrounds of the private sector.

In addition to the findings of this analysis, Clackamas County’s Mt. Hood Territory commissioned a water tourism study that had similar findings. The study looked at the overall outdoor recreation market within Clackamas County, primary focusing on water based recreation. However, the study noted, “Camping is in high demand especially on the summer weekends, and additional campsites in the county are likely to be filled” (Crane Associates, 2018. pg 78). Additionally, the studied says, “These data do show that camping is preferred over

Page 23 of 29 Wildwood Recreation Area Management Plan hotels by twice as much across the entire market” (Crane Associates, 2018 pg. 78). The study called for more, higher quality, and higher amenity level infrastructure. The Nash Equilibrium, which is an economic theory for selecting the best outcome for all parties involved in market competition, suggests that the mid-level of development would also result in the best situation for all parties involved in camping. The mid-level of development would not pull a significant amount of market share from either the USFS or the private sector due to the development targeting a different audience and filling an unmet need. It is unlikely that the private sector or the USFS would change from the current course of the types of amenities that their campgrounds offer. This theory suggests that there would be an increase in visitation to the other sites due to Wildwood entering into the market and advertising to a different group of campers; this would increase the overall presence of the region in the overall State, and National camping market.

Campground development at Wildwood could pull in additional visitors to both the USFS and the private sector campgrounds from the additional advertising of Wildwood and camping along the Sandy River Basin—Mt. Hood Corridor. Additionally since Wildwood is taking the mid- market approach of development, a customer that is looking for a more rustic campground that does not provide RV hookups could go to the USFS, or if a customer is looking for a higher amount of amenities like Wi-Fi, laundry, and cable hookups could go to the private sector instead. Likewise, the inverse could happen for Wildwood, this is the benefit of developing based on the Nash Equilibrium.

This mid-level development would allow the BLM sites to attract a larger audience by appealing to visitors that frequent both types of sites. Visitors that want the more traditional camping experience of being in nature, but still want all the comforts of modern technology and a fair amount of expanded amenities that allow for a home like stay, would find Wildwood to be very appealing. The mix of expanded amenities and the location of the site allow Wildwood to be a high-end public facility, but still be comparable to a lower-end private sector facility in terms of amenities and cost. Comparable public sector facilities only offer at most an electric hookup and the roads to the location are unimproved. Comparable private sector facilities offer amenities such as cafes, swimming pools, laundry services, workout facilities and more.

Marketing of Wildwood is done through the BLM’s website, brochures, and other facilities as well as through partnerships with County and State tourism boards. The summer season and winter season would use two different marketing approaches and styles, due to the difference in demand and outdoor recreation activity type during those seasons. The additional proposed stop of Wildwood on the Mt. Hood Expresses bus route would further increase the regional significance of Wildwood for both winter recreations, and summer. Wildwood would become a more appealing destination for lower income visitors by being a stop on a public transportation route allowing those families the opportunity to experience the unique recreation experience of Mt. Hood.

The best marketing strategy for Wildwood Recreation Site would be to market it as a hub, basecamp or gateway to the vast amounts of active recreation opportunities in the area. When advertising Wildwood, an emphasis needs to be placed on the amenity level, and the general travel times to the most in-demand recreation sites, like Sandy Ridge Trailhead, Trillium Lake

Page 24 of 29 Wildwood Recreation Area Management Plan Trailhead, Timberline Lodge and other notable locations. The travel times need to include by car, bus and bike. Summer Opportunities Wildwood could serve as a basecamp for visitors wanting to take advantage of the incredible day-use recreation opportunities existing in the area, including the Sandy Ridge Trailhead, Salmon-Huckleberry Wilderness, the Sandy River and the ample outdoor recreation on Mt. Hood. The Sandy Ridge Trailhead has rapidly grown in popularity, receiving 90,000 to 120,000 visitors a year and is advertised in other nations like Canada and Germany. It is expected that Sand Ridge Trailhead will continue to see an increase in visitation in the years to come, and will continue to grow in recognition as site amenities are improved with the new Sandy Ridge Trailhead Access Improvement EA. Wildwood could greatly benefit from the success of Sandy Ridge Trailhead as a basecamp due to Wildwood being a short (17 min. biking) bike ride from Sandy Ridge Trail, and by being on the Mt. Hood Express route. Active outdoor recreation demands a greater level of amenities as the recreationalists generally become dirty, sweaty or wet. These types of recreationalists want to be able to come back to a basecamp, take a shower, get dry, enjoy hot food, and be warm for the night. The Sandy River Basin-Mt. Hood Corridor is a national and international outdoor recreation destination and developing Wildwood to accommodate those travelers can greatly benefit the recreation site in terms of revenue generation. The further that a person travels for recreation, the more likely they will be needing or wanting a higher level of amenities such as full hookups or a permanent shelter like a cabin. Winter Opportunities The winter recreation market focuses more heavily on skiing, snowboarding, snowshoeing and day-use fishing for salmon and steelhead on the Sandy River. The addition of the improved lodging at Wildwood would allow the recreation site to better accommodate winter recreation demands. Wildwood would generate more revenue by tapping into the large winter tourism market of the Mt. Hood Region. Traditionally campgrounds close during the winter months, as camping usually occurs during the summer months, and coincides with the sunny days. Building yurts or cabins at Wildwood would allow for a longer camping season, thus increasing revenue during the shoulder season. With appropriate camping development and public transportation servicing Wildwood, it could allow for possible winter season use. The traditional outdoor recreation “shoulder season” includes the winter season; however, due to the location of Wildwood being out of the snow zone, and with the appropriate overnight facility development, Wildwood could take advantage of the ample winter recreation market that exists from Mt. Hood reducing the shoulder season. Mt. Hood Express, the local public transportation, has begun incorporating Wildwood as a stop on the route; this allows visitors of Wildwood to travel to Mt. Hood, Sandy Ridge Trailhead and other popular trailheads without needing to use their vehicle. People that feel uncomfortable or have a vehicle that may not perform well in snow could take the Mt. Hood

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(e) Events. All events will be allowed by following the Special Recreation Process. Events must be appropriate for the setting of the recreation site. An example of an event that would not be appropriate for the recreation site would be an electronically amplified music concert. (f) Interpretation. Interpretation will be created to target the unique resources that exist at the recreation site. The interpretation will focus on the rich historic aspects of Wildwood which includes a section of the Oregon Trail, the logging settlement that existed before Wildwood, and the overall pioneer legacy that occurred within the corridor. Additionally, wild life and the natural cycles of the river and forest will also be at the center of interpretation for the recreation site. Separate plans will be completed for each project after construction has occurred. The appropriate BLM staff will be included for interpretation (wildlife biologists, fisheries, archaeology, etc.). (g) Environmental education. The BLM will continue with an effort to find a new partner to utilize the unique environmental education components of Wildwood. Additionally, the BLM staff will continue to reach out to schools to find ways to work with them with environmental education. State certified schools will not need to pay any fees to utilize the recreation site for education related activities. The schools will need to receive a letter of authorization from the BLM. Additionally, the BLM will look to develop an environmental education plan for schools to utilize when they are at the recreation site. (h) Sign placement. Traffic signs will be placed in the appropriate locations determined by the Oregon Department of Transportation, federal, and any other traffic safety guidelines. Information for trails will be posted at trail heads, regulatory signage will be placed throughout the recreation site at high usage areas, such as the front office, trailhead kiosks, along walking paths, at parking lot and trail intersections.

Section 5 - Monitoring (Recreation Resources and Human Use).

(a) Visitor use and use patterns. Wildwood Recreation Site will only be reservable online for overnight camping. This will allow the BLM to easily track user visitation rates and patterns throughout the year, allowing the BLM to staff the recreation site accordingly with the busiest days. Additionally, electronic counting systems such as magnetic traffic counters and infrared beam counters will be used to get an accurate count of day-use visitation and peak time use during the day. Beyond electronic devices park rangers will do visitor profiling through campsite counts, vehicle occupancy counts, and fee compliance checks. Adding all of these elements together will allow the BLM to have accurate visitation reports, and help plan for efficient staffing levels, and uses.

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(b) Recreation-caused resource effects or impacts. See Appendix 1 for a detailed analysis on impacts to natural resources from recreation at Wildwood. (c) Law enforcement role. The BLM will continue to maintain their current law enforcement, including a contract with Clackamas County for additional law enforcement services. (d) Effectiveness or attainment of outcomes-focused management objectives, RSCs, standards, and indicators. See Appendix 1. Wildwood Recreation Area Management Plan Environmental Assessment/NEPA (EA).

Page 27 of 29 Wildwood Recreation Area Management Plan Appendix A: Wildwood Recreation Area Management Plan Environmental Assessment and unsigned Finding of No Significant Impact

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