United States Department of Agriculture Forest Service MVUM Update Project Environmental Assessment Eagle-Holy Cross Ranger District, White River National Forest, Eagle and Garfield, Counties, Colorado

March 2014

For more information contact:

Paula K. Peterson, Recreation Staff Eagle-Holy Cross Ranger District 24747 US HWY 24 Minturn, CO 81645 (970) 827-5715 U.S. Department of Agriculture (USDA) prohibits discrimination in all its programs and activities on the basis of race, color, national origin, age, disability, and where applicable, sex, marital status, familial status, parental status, religion, sexual orientation, genetic information, political beliefs, reprisal, or because all or part of an individual’s income is derived from any public assistance program. (Not all prohibited bases apply to all programs.) Persons with disabilities who require alternative means for communication for program information (e.g. Braille, large print, audiotape, etc.) please contact USDA’s TARGET Center at (202) 720-2600 (voice and TDD). To file a complaint of discrimination, write to USDA, Director, Office of Civil Rights, 1400 Independence Avenue, SW., Washington, DC 20250-9410, or call (800) 795-3272 (voice) or (202) 720-6382 (TDD). USDA is an equal opportunity provider and employer.

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Contents Page (s) Executive Summary 1 Document Structure 2 Proposed Project Location 2 General Description of Project Area 3

Chapter 1: Purpose, Need and Proposed Action Background 3-5 Purpose of and Need for Action 5 Public Involvement 5 Formulation of Alternatives 6 Proposed Action 6-7 Design Framework 8

Chapter 2: Alternatives, including Proposed Action Alternatives Considered in Detail 8-14 Design Features 15

Chapter 3: Environmental Effects of Proposed Action and Alternatives Affected Environment 16-19 Direct, Indirect, and Cumulative Effects 19-25

Chapter 4 Consultation and Coordination 26

List of Figures

 Figure 1: Vicinity Map  Figure 2: Proposed Action Map  Figure 3: Flattops Map  Figure 4: Derby Mesa Map  Figure 5: Cottonwood Pass Map  Figure 6: South Eagle Map  Figure 7: Red Sandstone – Muddy Pass Map  Figure 8: Homestake – Camp Hale Map  Figure 9: Developed Recreation Sites

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EXECUTIVE SUMMARY The White River National Forest (WRNF or Forest) is proposing to change use designations on multiple roads within the Eagle-Holy Cross Ranger District as part of the WRNF Travel Management Plan (TMP) in order to bring improved balance to the mix of available motorized and non-motorized recreation opportunities. This environmental assessment (EA) has been prepared to determine whether changing use designations on 133 miles of forest system roads currently open to “licensed vehicles only” and 10 miles of forest roads authorized under special use permit to a designation allowing “all motorized vehicles” may significantly affect the quality of the human environment and thereby require the preparation of an Environmental Impact Statement (EIS). Preparation of this EA fulfills agency policy and complies with the National Environmental Policy Act (NEPA). For more details of the purpose of and need for action and the proposed action, please see those relevant sections of this document.

In the spring of 2011 the WRNF completed a Final EIS (FEIS) and issued a Record of Decision (ROD) implementing the Forest Travel Management Plan. The TMP defined where licensed, unlicensed, and mechanical vehicles are allowed across the entire WRNF. A Motor Vehicle Use Map (MVUM) is the legal instrument that displays the TMP decisions for motorized vehicles pursuant to 36 CFR 212.51. MVUMs show what type(s) of motorized vehicles (vehicle classes) are allowed on each route and any seasonal restrictions. A decision to implement the proposed action or an alternative described in this EA would result in changes to the 2014 and subsequent Motor Vehicle Use Maps.

Terminology used in the TMP, ROD, MVUMs, and in this EA to define different types of motor vehicles is as follows: The term “Unlicensed Vehicles” refers to Off Highway Vehicles (OHVs) which includes All Terrain Vehicles (ATVs), Utility Transport Vehicles (UTVs), and unlicensed motorcycles. The terms “Highway Legal Vehicles” and “Licensed Vehicles” refer to all motorized vehicles that are titled, display a state license plate, and meet the definition and legal requirements to operate on streets and highways. The terms “Mixed Use” and “Roads Open to All Vehicles” are used when referencing use by both licensed and unlicensed motor vehicles.

The 2005 Travel Management Rule (TMR) allows individual forests and ranger districts to alter their MVUM to reflect changes made through either administrative and/or National Environmental Policy Act decision processes. This policy allows forests to adapt their travel management system based on changing conditions, new information, and both internal and external input.

Since issuance of the 2011 ROD, strong input from individuals, organizations, municipalities, and businesses have indicated that the decision limiting use to Licensed Vehicles only on these 133 miles of system roads and designating 10 miles open only to Special Use Permit holders on the Eagle-Holy Cross Ranger District was overly restrictive. The proposed action was crafted in order to seek improved balance in the system of motorized and non-motorized recreation opportunities.

This EA analyzes the effects of allowing unlicensed vehicles on system roads that are currently open only to highway legal vehicles (“mixed use”). The 2011 FEIS thoroughly analyzed and disclosed the effects of motorized use on the designated open road and trail system. Since the proposed action considered in this EA is limited to changing use designation and proposes no new routes, a detailed analysis was only conducted on resources for which there are new or differing effects from those disclosed in the 2011 FEIS. These resources are recreation, law enforcement, and transportation. This EA tiers to and incorporates the remainder of the 2011 FEIS.

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The responsible official is the Eagle-Holy Cross District Ranger. Based upon the effects of the proposed action, the responsible official will decide whether or not to implement the proposed action, or a reasonable alternative. DOCUMENT STRUCTURE This EA was prepared in compliance with the National Environmental Policy Act and other relevant federal and state laws and regulations. This EA discloses the direct, indirect, and cumulative environmental impacts that would result from the proposed action. The document is organized into four parts:

• Chapter 1: Purpose, Need and Proposed Action: This section includes information on pertinent background and history, the purpose of and need for action, and the agency’s proposed action for achieving that purpose and need. This section also details how the Forest Service informed the public of the proposal and how the public responded.

• Chapter 2: Alternatives, Including the Proposed Action: This section provides a more detailed description of the agency’s proposed action as compared to no action.

• Chapter 3: Environmental Effects of the Proposed Action and Alternatives: This section describes the environmental effects of implementing the proposed action contrasted to the existing condition, which represents the no action alternative as set forth in 26 CRF 220.7.(b)(2)(ii). This analysis is organized by resource area where each section has a description of the affected environment followed by the effects of the proposed action compared with no action.

• Chapter 4: Consultation and Coordination: This section provides a list of preparers and agencies consulted during the development of this EA. Project Location The project area is located on National Forest lands within Eagle and Garfield Counties, all within the Eagle-Holy Cross Ranger District on the White River National Forest in Colorado. A general location map of the project is shown in Figure 1. The project area that includes the 143 miles of forest system roads is shown in Figure 2. More detailed maps are shown as Figures 3 through 8.

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Figure 1. Vicinity map

Routes that are part of this analysis are listed by road number in Appendix A. These routes exist in several areas including the Flat Tops (north of Dotsero), Derby Mesa, Cottonwood Pass, South Eagle, Red Sandstone-Muddy Pass, and Homestake-Camp Hale. The topography along these routes is typical of the Rocky Mountains with steep rocky terrain, wide open meadows, and heavily forested areas. Vegetation includes Engelmann spruce, subalpine fir, lodgepole pine, and aspen forests intermixed with sage, grass, and brush components. Historic use on routes in the project area prior to the 2011 ROD included mixed vehicle use throughout the year, especially on weekends and throughout the fall hunting season (September-November).

CHAPTER 1: PURPOSE, NEED, AND PROPOSED ACTION

Background

In 2011 the White River National Forest signed a Record of Decision that implemented the Forest's Travel Management Plan in compliance with the 2005 Travel Management Rule (CFR 36 Parts 212, 251, 261, 295). The ROD restricted unlicensed vehicles on many road segments open to highway legal vehicles across the Eagle-Holy Cross Ranger District. These restrictions were identified on the District's 2012 and 2013 Motor Vehicle Use Maps.

The 2005 TMR allows individual forests and ranger districts to alter their MVUM to reflect changes made through either administrative and/or National Environmental Policy Act (NEPA) decision processes. This

Eagle-Holy Cross Ranger District MVUM Update Project Page 3 policy allows forests to adapt their travel management system based on changing conditions, new information, and both internal and external input. Forest Plan and Management Area Prescriptions

Travel on National Forest System lands including the White River National Forest must adhere to management direction on many levels including federal statutes, regulations, laws, executive orders, and national forest directives, as well as applicable state laws and regulations.

Management must also be consistent with the overall direction in the White River National Forest Land and Resource Management Plan (Forest Plan), 2002 Revision, as amended. No amendments to the Forest Plan will be proposed through this travel management planning process. The 2011 Travel Management Plan adheres to all direction provided for in the Forest Plan, which is incorporated into this document by reference.

Management Area (MA) prescriptions prescribed in the 2002 Forest Plan define where different management activities may be carried out and where different kinds of public uses occur. Each area is defined by a primary management theme, a management area description, and set of elements that guide the activities taking place in it. All lands administered by the WRNF are managed according to these prescriptions. These Management Areas provide sustainability of the physical, biological, and scenic values of general forest and rangelands.

This proposed action is in conformance with the WRNF 2002 Forest Plan and does not conflict with current MA direction. Appendix C displays the MAs as they relate to the proposed action. For a detailed description of MA prescriptions see the 2002 WRNF Forest Plan. High Quality Recreation Opportunities

The effects to recreation and other resources were thoroughly considered during the completion of the 2011 TMP Final Environmental Impact Statement. Motorized travel was deemed appropriate in the Record of Decision for the 143 miles of road considered under this analysis. However, the ROD restricted the class and type of motorized vehicles to “Licensed Only” on 133 of these miles and limited use to certain Special Use Permit holders on an additional 10 miles.

The TMP FEIS recreation section described the rationale for how the Forest would, under each alternative, work to isolate and enhance recreation opportunities and experiences by allowing some recreation experiences related to motorized travel in one setting or spatial area but restricting others. The goal of this recreation management approach is to reduce user conflict and facilitate what the FEIS describes is "high quality recreation experiences". This rationale is rooted in multiple policies, both local and national (2005 Recreation Facility Master Plan, 2006 Recreation Strategy, White River Recreation Management Matrix, National Framework for Sustainable Recreation), designed to guide land managers towards providing sustainable, diverse, and high-quality recreation experiences. Not all visitor demands can be met on each individual district or forest. Difficult decisions need to be made regarding which visitors will have an opportunity for a quality recreational experience and which visitors may have to seek out alternative locations for their desired experience.

High quality recreation experiences are defined as those that generate the personal goal attainment and satisfaction of forest visitors (More, Buhyoff 1979). The idea is that the general forest recreationist has specific perceptions and ideas about what they want out of each activity prior to conducting the activity. These perceptions are then translated to goals and attached to each goal is a desired emotional response. Attainment of the desired goal and the satisfaction of experiencing the preferred emotional response

Eagle-Holy Cross Ranger District MVUM Update Project Page 4 define a high-quality experience. Importantly, interference with goal attainment due to the behavior of another user is the definition of recreation conflict.

The Forest TMP sought to reduce the potential for user conflict by separating specific types of motorized uses under the assumption that geographic separation would allow for individual goal attainment for each type of motorized user. In 2002 the USFS committed to improving the capability of the national forests and grasslands to provide diverse, high quality recreation opportunities. In 2006 the Forest reaffirmed the 2002 decision to provide high quality recreation opportunities by creating a matrix of forest wide recreation strategies based on forest niche and providing high quality recreation opportunities. This strategy focused on providing sustainable opportunities for high quality recreation experiences in appropriate locations.

An unplanned consequence of this approach was a reduction in opportunities for high quality experiences for recreationists whose desired outcome or goals included unlicensed motorized travel on the Eagle-Holy Cross Ranger District. Though those types of recreation opportunities are still available to a greater degree on some neighboring ranger districts, Bureau of Land Management lands, and to a lesser degree on private land, these opportunities are not present locally on the Eagle-Holy Cross District to a sufficient degree to meet the demand suggested by the majority of those who responded to the comment period for this project including the towns of Eagle, Avon, Gypsum, and Eagle County. This position is in line with the consistent feedback received by district staff from concerned members of the public, community leaders, scoping respondents, and recreationists in the field.

Purpose of and Need for Action The purpose of action is to expand and improve opportunities for Off Highway Vehicle motorized recreation on system roads already designated and open for licensed motorized vehicles.

The need for the proposal was driven by information and feedback provided by citizens, local businesses, municipalities, and elected officials gathered during the first several years of 2011 Travel Management Plan implementation, including the need to sustain the associated economic benefits to local communities related to OHV recreation visitation..

Public Involvement

Since the signing of the 2011 ROD for the travel management plan, comments regarding the closure of open system routes to unlicensed vehicles have been received at all levels of management on the WRNF.

The Eagle-Holy Cross District requested formal public comment on this proposal for a 30 day comment period beginning July 1, 2013 through July 31, 2013. Approximately 250 individual scoping letters were mailed. A legal notice was posted in the Vail Daily newspaper. The proposed action was listed on the Schedule of Proposed Actions on the White River National Forest webpage along with a link to the Planning Litigation and Appeals System which uses the Comment Analysis Report Application (CARA) system so commenters could also use an online process for their input.

150 letters were received electronically and via hardcopy, and have been categorized. Of the 150 letters received, 140 were generally or specifically supportive of the proposed action. The remaining 10 letters raised issues with the proposal. These were consolidated into three key issues described in the effects analysis. Appendix B lists the summary of comments, categorization using CARA, and response to comments.

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Formulation of Alternatives Reasonable alternatives to the proposed action are developed following the public involvement process and are designed to respond to key issues raised by either the public or by a Forest Service interdisciplinary team. Issue definition helps highlight those issues of public concern as well as those of internal concern relating to the initial proposal. Issues are derived during the initial environmental analysis process and during project scoping. Once a list of issues is identified, those issues are analyzed through interdisciplinary review and categorized. The interdisciplinary team for travel management reviewed all comments in the database and categorized each comment into significant and non-significant issues. Council on Environmental Quality (CEQ) NEPA regulations, Sec. 1501.7, direct the team to “identify and eliminate from detailed study the issues which are not significant or which have been covered by prior environmental review (Sec. 1506.3).”

For this project this process resulted in identification of three issues. These issues are:

 Recreation Opportunities, including:

o General recreation

o Developed and dispersed recreation

o Special use permits

 Law Enforcement

 Transportation, including:

o Appropriateness of mixed use on certain road segments

An additional issue that is outside the scope of this analysis was identified as a non-key issue: Re-evaluate roads closed to all motorized use in the 2011 ROD for the TMP.

The ID Team determined that no other action alternatives were necessary to respond to key issues. The scope and scale of this proposed action does not affect or change determinations and conclusions of environmental effects described in the 2011 Travel Management Plan (TMP) for the following resources: Wildlife, Threatened and Endangered Species, Cultural and Heritage Resources, Wilderness, Wild and Scenic Rivers, Fisheries, Socio- Economic, Timber, Fuels, Lands, Soil, Scenery, Water, or Air Resources. This EA therefore tiers to and references the Forest’s 2011 TMP and subsequent ROD for the above resources hereinafter. Thus, the effects to recreation opportunities and related experiences, law enforcement, and the transportation system will be the only resources analyzed in detail in this EA.

Proposed Action The Proposed Action is to change use designation on approximately 133 miles of roads on the Eagle-Holy Cross Ranger District of the White River National Forest from “Licensed Vehicles Only” to “All Motorized Vehicles”. Additionally, approximately 10 miles of roads would change from “Special Use Permit Only” to “All Motorized Vehicles”. Figure 2 displays the roads that will be considered for each type of use designation change. Figure 3-8 displays the same information on individual maps. No new routes or roads are being considered as part of this proposal. Roads completely closed to motorized use in the TMP were not included in this proposal.

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Figure 2 – Proposed Action

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Decision Framework For this project, the responsible official is the Eagle-Holy Cross District Ranger. Given the purpose and need, the responsible official reviews the EA in order to make the following decisions:

• Whether to open 133 miles to unlicensed vehicles on forest system roads currently open to licensed vehicles to accommodate unlicensed vehicles • Whether to open 10 miles of special use permit roads to accommodate all motorized travel including unlicensed vehicles • What design features, if any, should be included to address impacts to other recreational activities, transportation system sustainability, education, safety, and regulatory enforcement

This EA discloses the environmental effects of the proposed action as compared to no action. It is not a decision document. A subsequent Decision Notice, signed by the District Ranger, will document the decision and rationale for selection of the preferred alternative.

CHAPTER 2: ALTERNATIVES, INCLUDING THE PROPOSED ACTION Alternative 1 – No Action Alternative

The "No Action" alternative is required by the National Environmental Policy Act (NEPA) (40 CFR 1502.12). This alternative provides a point of reference for evaluating the environmental effects of Alternative 2.

The No Action alternative represents the current condition (as identified in the Forests 2011 TMP FEIS and ROD). The no action alternative consists of maintaining current decisions on 29 unique forest system routes (133 miles) or portions or segments thereof (as described in Appendix A) as open to “licensed vehicles” only. The no action alternative restricts unlicensed travel on those 133 miles of roads. In addition, 3 routes (10 miles) would remain open only to Special Use Permit holders. .

The no action alternative is fully analyzed and described in the Forests 2011 TMP as the preferred alternative/alternative GM and subsequent ROD.

Alternative 2 – Proposed Action As stated above, the Proposed Action is to change use designation on approximately 133 miles of roads from “Licensed Vehicles Only” to “All Motorized Vehicles”. Additionally, approximately 10 miles of roads would change from “Special Use Permit Only” to open to “All Motorized Vehicles”. Appendix A lists the roads that will be considered for each type of use designation change. Figure 2 is an overall map of the proposed action. Figures 3-8 are individual maps of each geographic area’s specific road(s) in the proposed action. No new routes or roads are being considered as part of this proposal.

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Figure 3 – Flattops

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Figure 4 – Derby Mesa

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Figure 5 – Cottonwood Pass

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Figure 6 – South Eagle

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Figure 7 – Red Sandstone – Muddy Pass

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Figure 8 – Homestake – Camp Hale

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Design Features

General

Illegal motorized cross country travel emanating from the open road system or from associated dispersed campsites may result in the prohibition of unlicensed use on that forest road and/or the closure of problematic dispersed campsites.

Engineering

Comprehensive engineering reports were completed in the summer of 2013 to identify potential mitigation measures that might allow for mixed-use on portions/segments of the following system roads:

1. Eagle Thomasville Road ( NFSR400) 2. Nolan Creek Road (NFSR418) 3. Coffee Pot Road (NFSR 600) 4. Red Sandstone Road (NFSR700)

In summary, all routes that had the additional comprehensive engineering reports completed concluded that mixed used could be accommodated with various mitigation measures/design features. These are described in Chapter 3 in the effects to transportation section. The specific engineering studies can be found in Appendix D.

Photo of representative curve with limited site distance

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Chapter 3: ENVIRONMENTAL EFFECTS OF THE PROPOSED ACTION AND ALTERNATIVES This section summarizes the existing condition of the area affected by the proposed action (the affected environment) as well as the potential effects of the proposed action and alternatives for each affected resource. The affected resources were identified by the Interdisciplinary Team based on internal review and public comment, and are the same as the key issues identified in Chapter 1.

Affected Environment General Recreation

The Eagle-Holy Cross Ranger District encompasses approximately 655,000 acres within Eagle, Routt, and Garfield counties. There are six geographic areas which encompass the roads included in the Proposed Action: Flattops; Derby Mesa; Cottonwood Pass; South Eagle; Red Sandstone-Muddy Pass and Homestake-Camp Hale (see Figures 3-8).

Visitors have different preferences for recreation settings and for activities in which they want to participate. For the purposes of outdoor recreation management, the range of possible combinations of activities, settings, and probable experience opportunities has been represented in terms of a spectrum or continuum. This is called the Recreation Opportunity Spectrum (ROS). ROS provides a framework for stratifying, defining, and managing classes of outdoor recreation settings, activities, and experience opportunities. The geographic areas included in the proposed action fall within the Semi-Primitive Motorized, Roaded Modified, and Roaded Natural ROS classes. In all three classes a user would expect to hear and see motorized traffic, and expectations of remoteness are minimal. Most resource-based recreation occurs within ½ mile of a road or trail (Cordell et. al 1990). Based on this information it is reasonable to describe the effected environment of the proposed action changes would fall within the motorized ROS classes. Appendix E displays the ROS classes associated with the proposed action. Enforcement

Use of National Forest System lands is governed by the Code of Federal Regulations. Prohibited uses are addressed in 16 USC 36 CFR 261. These prohibitions address a broad range of visitor actions on public land, including use of OHVs. The Eagle-Holy Cross Ranger District has a commissioned Law Enforcement Officer as well as several Forest Protection Officers who are trained and authorized to issue Violation Notices as warranted for failure to comply with federal regulations.

Unlicensed motor vehicles are also regulated by the Colorado Parks and Wildlife through Colorado Revised Statutes. These statutes address emissions, noise, rider requirements, where riders can operate, and registration requirements. The Forest Service has authority to enforce state requirements via the Code of Federal Regulations detailed in Appendix F. Developed Recreation

There are several developed recreation facilities which include campgrounds, trailheads, cabins, and huts within the project area. The facilities are detailed in Figure 9. Visitors bring an array of recreation equipment to enjoy while using developed sites. In some cases these include unlicensed motor vehicles such as ATVs, UTVs, and unlicensed motorcycles. Users may ride OHVs to ingress and egress a developed site from an open road to access a day use sites and/or a developed campgrounds (36 CFR 261.16 (o), Appendix F). Motorized vehicles or trailers must park in designated areas such as the site spur,

Eagle-Holy Cross Ranger District MVUM Update Project Page 16 parking area, or on the designated road system (36 CFR 261.16 (m) Appendix F). At some fee sites an additional charge is added for extra vehicles. Horseplay and excessive unlicensed vehicle use is prohibited within developed sites. Sylvan Lake State Park is governed by Colorado Revised Statutes, refer to Appendix F.

Figure 9 – Developed Recreation Facilities

Proposed Campgrounds Trailheads Day Use Cabin/Hut Proposed Action Areas Action Roads Flattops Coffee Pot, White Deep Creek 623.1, 622.1 Owl, Deep Lake Deep Lake 624.1, 604.1

South Eagle Yeoman Park, Fulford Fulford Peter Estin 416.1, 416.1A, Cave, Sylvan Lake Cave Sylvan Yurts 416.1B, 415.1, S.P. 416.1, 418.1, 431.1, 415.1, 419.1, 436.1, 400.2, 414.1 Red Sandstone- Lost Lake Piney Guard 744.1, 700.1, Muddy Pass Station 734.1, 433.1, 717.1, 717,1A, 774.1 Homestake- Camp Hale Memorial, Climbing Camp Hale Jackal 702.1, 708.1, Camp Hale East Fork Group Site, Wall Interpretive Site Fowler-Hilliard N714W.13, 716.1, 716.1A, 716.1B, 716.1BW1, 755.1

Dispersed Recreation

All six geographic areas (Figures 3-8) outlined in the proposed action offer a variety of dispersed recreation activities adjacent to the open road systems. These include hunting, dispersed camping, driving/riding for pleasure, wildlife/scenery viewing, hiking, biking, and just being in the natural environment.

In general, most dispersed users access the forest via a motorized vehicle. Hunters, wildlife viewers, hikers, and campers access via an open road to reach their destination. They may park in a pull-out or trailhead and then pursue their chosen form of dispersed recreation.

Other users enjoy dispersed camping opportunities. The 2011 TMP ROD designated a maximum of 300 feet which a motorized vehicle may travel from an open road to access a dispersed campsite as long as resource damage does not occur. There are existing dispersed campsites along the roads listed in the proposed action (see Appendix A). A typical dispersed campsite contains a rock fire ring and compacted ground where vehicles and campers park. Human waste is managed via a self-contained system or cat- hole techniques. In many sites, human waste is not addressed adequately and is found on the ground surface. Other temporary features appear such as native-log cross bars, tables, or benches. Recreation crews remove these as time and resources allow.

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Dispersed campers who access their campsite along the open road system are motorized users. However, some choose non-motorized activities once they have arrived at camp. Since the access to the dispersed site should be within the 300 foot zone the ROS setting revolves around motorized opportunities. Typically these users enjoy the freedom dispersed camping affords. A dispersed camper is often more self-reliant – they have to provide their own water, cooking platform, and human waste disposal method - as opposed to visitors to developed campgrounds where these amenities are often provided, fees are charged, and which commonly have restrictions such as limits on party size, number of vehicles allowed per site, and pets. Special Uses

There is a varied array of permitted activities within the project area. Outfitter guide services include guided hunting, biking, hiking, education based tours, and jeep tours. There are also several permitted recreation events for bike races on the system roads and trails. Several huts are authorized on National Forest System lands in the project area. Other permitted uses include utility corridors, communication sites, filming and photography authorizations.

Tenth Mountain Hut Division Association is authorized for the occupancy and operation of several huts on the Eagle-Holy Cross Ranger District. The Fowler-Hilliard, Jackal, and Peter Estin Huts fall within the project area. The hut operator has motorized access during the summer months to all the huts for administrative purposes. The client is required to adhere to the current MVUM. Disabled clients are given the combination to the gate so they have motorized access to the huts.

Excel Energy/Public Service is permitted for several 230 and 115 KV transmission lines and high pressure natural gas lines, their appurtenant structures, and access routes which travel through the project area. Road 431.1 is one of the roads proposed to change from a permitted road to open to all motorized vehicles.

Holy Cross Electric is authorized for 115 and 155 KV transmission lines, appurtenant structures, and access routes which travel through the project area.

A public rock collection site is designated for use within the proposed open portion of NFSR 441.1. Permits are required for the removal of any material. Personal use forest products permits are issued for public gathering of firewood, Christmas trees, and other forest products. Transportation

Two types of motorized mixed use analyses are available for determining the appropriateness of designating roads for mixed use (FSH 7709.55 Travel Analysis Handbook, Chapter 30, and Engineering Analysis, see Appendix G). Depending on the complexities of the situation, the analysis may range from documenting an engineering judgment to a comprehensive engineering report that addresses many factors related to motorized mixed use. In 2006 engineering judgments were conducted on select routes in the Eagle-Thomasville, Coffee Pot, and Red Sandstone areas in preparation for the Travel Management Plan in conformance with the 2005 travel management rule. Judgments were prepared for the following roads in the Eagle-Thomasville area: Eagle-Thomasville Road (NFSR 400), East Brush Creek Road (NFSR 415), Nolan Creek Road (NFSR 418), Hat Creek Road (NFSR 416), West Hat Creek Road (NFSR 436), Brush Gypsum (NFSR 414), and Powerline/Crooked Creek (NFSR 431). These judgments were a professional opinion based on consideration of past accident histories, traffic counts, opinions on “reasonable and prudent” driving speeds, and observations made during a single site visit, and did not include detailed speed studies, “85th percentile” speed calculations, site specific & current traffic volumes & vehicle types, road surface factors, roadside factors, and sight/stopping distance considerations. The

Eagle-Holy Cross Ranger District MVUM Update Project Page 18 engineering judgment process was the appropriate course at the time and a conventional method used frequently in travel planning across the USDA Forest Service.

All roads were determined to be appropriate for mixed use with the exception of the Eagle-Thomasville Road (NFSR 400), the East Brush Creek Road (NFSR 415) from its intersection with the Eagle-Thomasville Road to the junction with NFSR 416 and the entrance to Yeoman Park Campground, and the Nolan Creek Road (NFSR 418) from the junction with NFSR 415 to the town of Fulford. In the Coffee Pot area, only the Coffee Pot Road (NFSR 600) had a motorized mixed-use judgment completed from the Forest Boundary (mile point 12.6) to the junction of the Grizzly Jeep Road (NFSR 632) at mile point 22.9. The judgment recommended not designating these road segments for mixed use. Other connecting routes (NFSR 604, 622, 623 and 624) did not have motorized mixed use judgments done based on the fact that the main Coffee Pot Road was not recommended for mixed use. In the Red Sandstone area a judgment was made for the Red Sandstone Road (NFSR 700) from mile point 00 (town of Vail) to mile point 6.6 at the junction with the Piney Lake Road (NFSR 701).The judgment recommended not designating this segment for mixed use. An additional judgment was conducted on the Red Sandstone Road from the junction of NFSR 701 to the junction with NFSR 405 at Muddy Pass (mile point 24.6). This section of road was determined appropriate for motorized mixed use. Other routes included in this judgment and recommended to allow for mixed use were the following: the Red and White Mt. Road (NFSR 734), Moniger Road (NFSR 433), and the Marma Lake Road (NFSR 744). Several of these road segments where engineering judgments recommended against allowing mixed use are important for system connectivity, which was a strong consideration in development of the proposed action. As part of this analysis, those road segments were analyzed in the additional comprehensive engineering study in 2013 to better determine whether any alternatives to separation of use may be implemented as a means of appropriately allowing mixed use. Those road segments were: a portion of the Eagle Thomasville Road (NFSR 400) from the entrance of the Sylvan State Park (MP 4.7) to the junction with NFSR 414 (MP 5.8); Nolan Creek Road (NFSR 418) from the junction with NFSR 415 (MP0.0) to the town of Fulford (MP 3.8); Coffee Pot Road (NFSR 600) from the Forest Boundary (MP 12.6) to the junction with Grizzly Jeep Road (NFSR 632) at MP 22.9; and Red Sandstone Road (NFSR 700) from the junction with NFSR 734 (MP 6.49) to the junction with NFSR 701 (MP 6.6) (570 feet).

Direct, Indirect, and Cumulative Effects No Action Alternative

Under the No Action Alternative the proposed action would not occur. The 133 miles of road in question would remain open to licensed vehicles only, and the 10 miles of special use permit roads would remain

Eagle-Holy Cross Ranger District MVUM Update Project Page 19 open only to those permit holders. The direct, indirect, and cumulative effects would be the same as those disclosed in the 2011 FEIS for the TMP. There would be a continued decrease in use of these routes by unlicensed vehicles. There would be no increased recreation opportunities for those seeking access on unlicensed vehicles. The recreation opportunity for those seeking motorized access in full-sized vehicles only would remain the same. Visitors driving these routes or camping at dispersed campsites would not encounter legal unlicensed vehicle use. The requirements of law enforcement officers would remain high, as intentional and unintentional use of these routes by unlicensed vehicle operators would continue. There would be no additional effects to special use permit holders or to the current transportation system generally.

Proposed Action Alternative General Recreation Use Direct and Indirect Effects

A variety of factors influence recreation use levels, which makes accurately quantifying future traffic volumes difficult. Weather conditions, road conditions, time of day, day of week, time of year, fuel prices, ease of access, proximity to destinations – all these and more factor into whether a particular visitor may encounter an OHV on a particular road at a particular time. As an example, a visitor on a rainy day is far less likely to encounter ATVs and motorcycles than a visitor on a sunny day, and other potential effects such as increased dust would likely not occur. Due to these fluctuating and changing influences, the effects of designating roads as open to mixed use are described generally, in terms of likelihood.

Allowing all motorized vehicle access on the proposed 143 miles of system roads may increase traffic, noise, and dust along these open roads due to additive use by additional vehicle classes. These effects may be experienced by the visitor who has parked or camped alongside the open road system. The three special use roads proposed for all motorized use receive less traffic than many of the other roads; consequently there is the potential that these effects would be more pronounced on these routes. However, the topography on FSR 441, 755, and 431 is not conducive to vehicle-supported dispersed camping. The typical recreation activity which occurs off these roads includes: driving for pleasure, scenery/wildlife viewing, and hunting.

It is reasonable to say that weekdays see less recreational traffic than weekends. Allowing unlicensed vehicle on these roads would affect the experience proportionately between weekday verses weekends.

The ROS classes associated for all 143 miles within the proposed action fall within motorized designations (Roaded Natural, Roaded Modified, and Semi-Primitive Motorized). In all three classes, a user would expect to hear and see motorized traffic, expectations of remoteness are minimal, and encounters with other motorized users would be expected. Developed Recreation Direct and Indirect Effects

The Forest Service manages several developed sites and Colorado Parks and Wildlife operates the Sylvan Lake State Park within the project area. These sites are shown on Figure 6. Designating 143 miles of roads open to all motorized use will allow legal ingress and egress for unlicensed vehicle users to Forest Service and Sylvan Lake State Park developed campgrounds and the Piney Guard Station as occurred

Eagle-Holy Cross Ranger District MVUM Update Project Page 20 previous to the 2011 TMP decision. The Jackal hut would have access via NFSR 755. Users would have to park and hike approximately ½ mile to the hut. Both the Forest Service and Colorado Parks and Wildlife have regulations for use of developed sites which require that motorized vehicles remain on designated roads, spurs, and parking areas. Horseplay and excessive motorized traffic is prohibited inside the developed campgrounds. Developed sites have posted quiet hours which restrict the use of motorized equipment and vehicles and other noisemaking devices.

It is likely that some visitors to developed campgrounds, huts, and cabins within the project area will bring unlicensed vehicles as part of their camping experience. Consequently, visitors may encounter noise, dust, and traffic from OHV use stemming from and returning to these sites. As there are a finite number of campsites in each location as well as limits on the number of persons and vehicles per site, this use cannot expand indefinitely. However, additional education and enforcement may be needed to ensure campers adhere to existing regulations within the developed sites, and that excessive riding within or to- and-from these sites is minimized. Additional management actions may be implemented if developed site users do not adhere to motorized vehicle regulations. For example, additional vehicle fees may be implemented to reduce congestion at developed campgrounds, or additional vehicles may need to be parked in off-site parking areas rather than within the developed campground.

The MVUM will contain icons for staging areas to direct users to access points. The staging area icons can be seen on Figures 3-8. As an example, the Red Sandstone area (Figure 5) will display a staging area icon on the west side of NFSR 700 approximately 3 miles from State Highway 131 at the gravel area just above the cattle guard on NFSR 700. This will reduce congestion on the east side of NFSR 700 and reduce the potential for unauthorized OHV use on the restricted portions of NFSR 700 and 701.

If staging areas become more popular they may need additional facilities to address impacts. The district would pursue grant opportunities or partnering with local clubs in the event these facilities are needed. Dispersed Recreation Direct and Indirect Effects

Dispersed campers may bring unlicensed vehicles along as a part of their camping experience. Campers may travel up to 300 feet from open roads with their motorized vehicle to access the campsite. Additional use on the road system from unlicensed vehicles may increase the noise, dust, and traffic experienced by visitors to dispersed campsites.

Allowing the unlicensed vehicle use on the 143 miles of open road system may result in the creation of new unauthorized routes emanating from dispersed campsites. Enforcement, education, physical barriers, signing, restoration, and possibly site closure would be used to pre-empt this behavior.

Dispersed users, especially campers along the open road system who enjoy non-motorized recreation experiences, may be displaced to locations without OHV use allowed on the road system if they determine the OHV use impacts their experience. Special Uses Direct and Indirect Effects

Allowing unlicensed motor vehicles on 143 miles of open roads may cause additional vehicles to be encountered by other operators at any one time. Guided operators will continue to use caution while transporting their client or in a guided tour. Recreation event permit holders will have to plan for all types of motorized vehicles while managing events on the open road system.

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NFSR 755.1, Ranch Creek would be open for all motorized use. It would not be managed as a special use road to the Tenth Mountain Hut Division Association’s Jackal Hut. The Tenth Mountain Hut Division Association would not be responsible for the road maintenance and repairs. This work would be the responsibility of the Forest Service. The Tenth Mountain Hut Division Association would continue to partner with the Forest Service with respect to road maintenance and repairs as needed. A motorized closure area would be maintained around the Jackal hut. Some of the huts managed by Tenth Mountain Hut Division Association are accessed by non-motorized means only. Opening FSR 755.1 to all motorized use allows a full array of hut users to access the Jackal Hut. Road closure devices may be needed at the termination of NFSR 755.1 to prohibit unauthorized motorized use. This use will be monitored and actions will be taken if needed.

NFSR 431.1, Powerline Road would be open for all motorized use. It would not be managed as special use road permitted to Xcel Energy. Xcel Energy would not be responsible for the road maintenance and repairs. This work would be the responsibility of the Forest Service. Xcel Energy would continue to partner with the Forest Service with respect to road maintenance and repairs. Vandalism has historically occurred (shooting at the line and insulators, graffiti) and may continue, but it is not anticipated to increase with continued motorized access. Enforcement Direct and Indirect Effects

As a result of the proposed action, education and enforcement patrols will be required to ensure all motor vehicles are operating consistently with the MVUM and other requirements. Because the action opens increased opportunities for legal OHV use over those that were available under the 2011 TMP decision, it is expected that fewer enforcement contacts for illegal use of OHVs will be made. Enforcement patrols will still be required, as they are currently.

Colorado Parks and Wildlife regulates the emissions, noise, rider requirements, and registration requirements for OHVs. The addition of 143 miles of open roads for unlicensed motorized use on an open road system may result in the need for additional enforcement contacts for these purposes beyond what would be required under the existing travel system. The regulations are currently in place and riders are currently required to adhere to these to occupy National Forest System lands.

The Eagle-Holy Cross Ranger District has been successful in 2013 and 2014 competing for Colorado Parks and Wildlife OHV grant program funding for a two-person OHV Crew. The crew’s focus is making public contacts on the open motorized system, visiting dispersed campsites, passing out Motor Vehicle Use Maps, closing unauthorized routes as soon as they are discovered, installing and maintaining OHV signage, and using enforcement techniques as situations warrant. The district has applied for a 2015 grant to continue to fund this crew. After receiving an OHV grant for three years, a Good Management Grant is available for this program which provides for more consistent funding over a longer term for the program. The district plans on applying for the Good Management Program.

Transportation Direct and Indirect Effects With implementation of the proposed action it is anticipated that traffic volumes will be similar to volumes that existed prior to the 2011 TMP ROD. While it is impossible to quantify at this time, it is expected that traffic volumes will reflect use prior to the TMP decision in the Eagle-Thomasville area,

Eagle-Holy Cross Ranger District MVUM Update Project Page 22 with the connection of Sylvan Lake State Park to the Yeoman and Fulford Campgrounds over the Hat Creek Road and to the town of Fulford via Nolan Creek Road. The Red Sandstone area is likely to experience traffic volumes similar to pre-TMP decision as well. However, the portion of Red Sandstone Road (NFSR 700) from Vail to the junction with NFSR 701 is not proposed for mixed use due to high traffic volumes, so OHV use into the Red Sandstone area will be via state highway 131 through Muddy Pass. This will be implemented through trailhead location and associated signing. Signing will be implemented in accordance with the Manual on Uniform Traffic Control Devices, (MUTCD), Sign and Poster Guidelines for the Forest Service (EM 7100-15), and in cooperation with Colorado Natural Resource Group (CNRG). All roads are already signed in accordance with the designation decisions based in the 2011 TMP. Additional signing will be needed to reflect changes in use designations which will carry additional costs. These increased signing costs could be offset by reducing maintenance frequency and corresponding reduced maintenance costs. Engineering studies show that the single factor that most influences both the probability and severity of a crash is speed. One of the key mitigation measures to reduce the probability and severity of crashes is by lowering speeds. Speed could be managed by designating a speed limit on those particular forest roads where speed studies have been conducted. Speed limits are normally thought of for paved or improved gravel roads rather than unimproved forest roads especially like those in the proposed action which are level 2 and 3 roads. A level 2 road is considered suitable for high clearance vehicles, rough, and may require a four-wheel-drive vehicle to navigate it during adverse weather or wet/snowy/muddy conditions. Level 3 roads are considered suitable for passenger cars; however, a four-wheel-drive vehicle may be needed in adverse weather or wet/snowy/muddy conditions. Setting speed limits is not the most practical solution to manage speed within this project area as this process involves preparing and issuing a Forest Supervisor’s Order, working with local Law Enforcement Officers (LEOs) in preparing and developing a law enforcement plan, and ensuring the availability of LEOs to enforce the speed limit order. However, slower speeds will be achieved through reduced maintenance which will result in roughened road surfaces. See the engineering reports in Appendix D. It is anticipated that maintenance cost could be less as use of OHVs during inclement weather and wet soft road surfaces will result in less road damage than full size vehicles. This could result in extended or increased maintenance intervals. In accordance with FSH 7709.55 the comprehensive engineering reports specifically consider crash history, traffic volumes and vehicle type, speed, road surface factors, intersecting roads and trails, sight/stopping distances, and other roadway considerations. Each state has specific licensing or permitting requirement for operations of non-highway legal vehicles. While the USFS engineering reports consider state law in probability/severity ratings, changes or amendments to state laws are is outside the scope of forest service authority. Following the engineering studies, the following design features are recommended to safely accommodate mixed use on specific road segments:  Installation of motorized mixed use signs (“Share the Road” and “ATV”) to inform users of the types of traffic they can expect to encounter on the road. o NFSR 700 for 570 feet in between the intersection of NFSR 734 and 701 o NFSR 600 between M.P. 12.6 to M.P. 23 focused on the 2.1 miles adjacent to the Coffee Pot Campground. o NFSR 400 between M.P. 4.7 to M.P. 5.8 to the intersection with NFSR 414 and at Crooked Creek Pass

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o NFSR 418 between M.P. 0.0 to M.P 3.8 at the entrance to the Town of Fulford  Reduce road surface maintenance frequency (2 years between maintenance cycles instead of the current 1 year cycle) to provide a rougher road surface to reduce travel speeds on road segments detailed in the comprehensive mixed use reports. o .NFSR 700 for 570 feet in between the intersection of NFSR 734 and 701 o NFSR 600 between M.P. 12.6 to M.P. 23 focused on the 2.1 miles adjacent to the Coffee Pot Campground. o NFSR 400 between M.P. 4.7 to M.P. 5.8 to the intersection with NFSR 414 and at Crooked Creek Pass o NFSR 418 between M.P. 0.0 to M.P 3.8 at the entrance to the Town of Fulford  Roadside clearing/brushing to increase sight distance on curves for earlier detection of oncoming vehicles. o NFSR 700 on the curve in between the intersection of NFSR 734 and 701 near the Lost Lake Trailhead. o NFSR 600 intermittently on curves between M.P. 12.6 to M.P 23 focused on the 2.1 miles adjacent to the Coffee Pot Campground. . At the intersection with 600.3c o NFSR 400 between M.P. 4.7 to M.P. 5.8 intermittently on curves south of Sylvan Lake State Park to the intersection with NFSR 414. o NFSR 418 intermittently on curves between M.P. 0.0 to M.P. 3.8 to the entrance of the Town of Fulford.  Roadside clearing/brushing with tree stump removal, to increase usable width of the road. o NFSR 600 intermittently between M.P. 12.6 to M.P. 23 focused on the 2.1 miles around the entrance to the Coffee Pot Campground.  Installation of “NO PARKING AT ANY TIME” signs along both sides of the road to maintain the use of turnouts along the road for vehicles to use to pull over and avoid oncoming traffic. o NFSR 400 M.P. 4.7 to M.P. 5.8 south of Sylvan Lake State Park to the intersection with NFSR 414.

The proposed action could result in indirect effect of increased unauthorized off road travel. While it is difficult to quantify indirect effects or anticipated change in use patterns and numbers relative to OHV use as a recreational activity verses a means to travel from one point to another, these effects can be addressed through adaptive management and monitoring.

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Cumulative Effects

Past, present, and reasonably foreseeable future actions that could contribute cumulatively to the direct and indirect effects described above are any forest management activities that would add unlicensed vehicle traffic to the 143 miles of road under consideration for designation as open to all motor vehicles. These activities could include enforcement and education patrols, wildfire response, access for resource monitoring, assessment, or survey work, access for trail or facility maintenance, or other similar activities.

The Eagle-Holy Cross Ranger District, including the East Zone of the WRNF, has relatively few employees (approximately 28 full-time equivalents between District and Zone when fully staffed) and OHVs are used for field work by only a small number of these employees infrequently in any given summer season. Thus the additive effects of this minor increase in unlicensed vehicle traffic from these activities would be highly insignificant.

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Chapter 4: CONSULTATION AND COORDINATION The list of individuals, Federal, State, tribal, and local agencies consulted during the development of this EA is found at Appendix B.

Environmental Assessment prepared by:

 Kay Hopkins, Recreation Planner, Supervisors Office, WRNF

 Bruce Moss, Civil Engineer Technician, Supervisors Office, WRNF

 Paula K. Peterson, Recreation Staff, Eagle-Holy Cross Ranger District, WRNF

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