DRAFT Document for Public Review May 1, 2017 WAYNE COUNTY, UTAH RESOURCE MANAGEMENT PLAN 2017 Wayne County Resource Management Plan Page 1 DRAFT Document for Public Review May 1, 2017 Prologue Wayne County is a unique and beautiful place steeped in pioneer heritage and culture. The hearty souls that settled this county and their generations of offspring to follow, have a rich history of making a living utilizing the public lands within it. The early settlers and those that followed, up until the 1970’s, had no idea the government would start locking up land, limiting their access and use of the land. It could be said we have all been naïve while bit by bit land has been taken from our reach and set aside in monuments, parks, recreation areas, wilderness study areas, wilderness characteristic areas, roadless areas, and other designations. All land uses except recreation have been almost entirely eliminated, and that has been limited and controlled to the point that some people are completely prevented from visiting some areas. This elimination of use has severely affected the livelihoods, families, economics, and entire lives of those who have remained and tried to raise families in the county. The slow choking out and change to a seasonal and recreational economy is devastating. As kids move away, farms and ranching operations are sold, houses are sold for second homes or short term rentals, and tourists flock in, good traditional jobs, and families disappear. It can be said that almost everything that sustains life comes from the earth, except sun light. Life as we know it, and especially with increasing population, cannot and will not go on without an increase in use of and products from the earth. Renewable energy is really not renewable, it requires products mined from the earth to make solar panels or wind mills which periodically need to be replaced which requires more mined products from the earth. As more and more land in the county is locked up, more of everything that sustains life must be transported in. Carry this scenario to the extreme and the result is a place none of us would want. This Resource Management Plan is an effort to outline how the majority of Wayne County residents would like the public lands that surround us managed. Wayne County Resource Management Plan Page 2 DRAFT Document for Public Review May 1, 2017 Table of Contents Chapter 1 - Purpose and Need……………………………………………………...4 Chapter 2 - Land Use and Land Access…………………………………………..12 Chapter 3 - Livestock, Grazing and Agriculture………………………………….21 Chapter 4 - Geological and Paleontological Resources ………………………….92 Chapter 5 - Irrigation, Water Rights, Ditches and Canals ……………………….95 Chapter 6 - Mining, Mineral and Energy Development…………………………100 Chapter 7 - Forest and Fire Management ……………………………………….109 Chapter 8 - Noxious Weeds ……………………………………………………..127 Chapter 9 - Hydrology, Water Quality, River Terraces and Flood Plains ………138 Chapter 10 - Riparian Areas and Wetlands ……………………………………..155 Chapter 11 - Wildlife, Fisheries and Predator Control ………………………….166 Chapter 12 – Recreation and Tourism …………………………………………..185 Chapter 13 - Cultural and Historical Resources ………………………………...198 Chapter 14 - Wilderness and Related Special Designations …………………….215 Chapter 15 - Wild and Scenic Rivers …………………………………………...238 Chapter 16 – Threatened, Endangered and Sensitive Species ………………….240 Chapter 17 - Law Enforcement …………………………………………………250 Chapter 18 - Air Quality ………………………………………………………..253 Chapter 19 - Economic Considerations …………………………………………263 Chapter 20 – Broadband ………………………………………………………..266 Bibliography…………………………………………………………………….275 List of Appendices………………………………………………………………291 List of Maps……………………………………………………………………..292 Wayne County Resource Management Plan Page 3 DRAFT Document for Public Review May 1, 2017 Wayne County Resource Management Plan Chapter 1 Purpose and Need 1.1 Introduction Wayne County has developed a resource management plan (RMP) as required by Utah House Bill 323, which requires a county to develop a RMP (H.B. 323, 2015 General Session). The RMP will be part of the county’s existing general plan. H.B. 323 has established the content requirements for a county’s RMP. The requirements of H.B. 323 was amended in the 2016 legislative session by H.B. 219. Utah State Statute directs the development of county-level plans. Section 17-27a-401 of the Utah Code provides: “…each County shall prepare and adopt a comprehensive, long range general plan.” Specific components which are required to be addressed within these plans include: land use, transportation, environmental issues, public services and facilities, rehabilitation and redevelopment, economic concerns, recommendations for plan implementation, and "any other elements that the county considers appropriate". In 2015, the Utah Legislature amended Title 17-27a-401 to also require that County General Plans include a Resource Management Plan to provide a basis for communicating and coordinating with the federal government on land planning and resource management issues. This Resource Management Plan is the fulfillment of those requirements. In 2016, HB 219 resulted in amendments to Title 17-27a-401, 403, 404, also 63J-4-607. Pursuant to HB323/219 and Title 17-27a, Wayne County prepared and adopted a comprehensive, long-range general plan for present and future needs of the county; for growth and development of all or any part of the land within the unincorporated portions of the county; and as a basis for communicating and coordinating with the federal government on land and resource management issues. In addition, Title 17-27a-401(3) (a) the general plan shall contain a RMP for public lands within the county. (b) Specifically the RMP shall address: (A) mining; (B) land use; (C) livestock and grazing; (D) irrigation; (E) agriculture; (F) fire management; (G) noxious weeds; Wayne County Resource Management Plan Page 4 DRAFT Document for Public Review May 1, 2017 (H) forest management; (I) water rights; (J) ditches and canals; (K) water quality and hydrology; (L) flood plains and river terraces; (M) wetlands; (N) riparian areas; (O) predator control; (P) wildlife; (Q) fisheries; (R) recreation and tourism; (S) energy resources; (T) mineral resources; (U) cultural, historical, geological, and paleontological resources; (V) wilderness; (W) wild and scenic rivers; (X) threatened, endangered, and sensitive species; (Y) land access; (Z) law enforcement; and (AA) economic considerations. (AB) air quality Wayne County is located in south central Utah, lying within the Colorado Plateau. The Fremont River flows into the county from Fish Lake in Sevier County and then east converging with the Muddy River to form the Dirty Devil River which then flows south into the Colorado River in Garfield County. The Bureau of Land Management (BLM); United States Forest Service (FS) including the Dixie and Fishlake National Forests; the National Park Service (NPS) including Capitol Reef National Park, Glen Canyon National Recreation Area and Horseshoe Canyon, Canyonlands National Park; and State lands manage large amounts of land in the county. BLM- 891,978 acres or 56.54 % Forest Service- 160,080 acres or 10.14 % National Park Service- 199,589 acres or 12.65 % National Recreation Area- 88,170 acres or 6.22 % State of Utah- 169,159 acres or 10.72 % Private Lands- 57,721acres or 3.65 % A land use plan must be based on the goals, objectives and values as well as on objective scientific, economic or legal bases. The goals and desired conditions used by the federal agencies are shaped by values of interest groups, their own personnel, and some scientists to achieve their Wayne County Resource Management Plan Page 5 DRAFT Document for Public Review May 1, 2017 desired conditions. These may not always be the same as those of the local residents, and some of the science used to support these views is usually open to different interpretation. 1.2 County Goals Wayne County has a responsibility to the citizens of the county, to landowners in the county, and to the people who visit the county for business or recreation, to: 1. Protect and expand the tax base and level of economic activity in the county to provide a good standard of living and county services for its residents. 2. Provide for the health and safety of the residents of and visitors to the county. 3. Provide a quality environment for the enjoyment and use of its citizens, including protection of local values and lifestyles. 4. Protect and improve the natural environment, including wildlife, plant life, soils, water, and air for the benefit of current and future generations. 5. Represent the interests of its residents in coordinating the planning, management, and regulatory activities of other local, state and federal agencies. A General Plan for Wayne County was completed in May 1994, as an effort on the part of the citizens of Wayne County to define the values and the goals of the county and to identify the means by which to meet those goals. In addition, a Wayne County Resource Management Plan was completed in January of 2011. This plan will address each of the resources named above. 1.3 General Positions of Wayne County 1.3.1 Adaptive Management Forest Service and BLM policy is to employ an adaptive management approach to management of the federal lands. In essence, this approach involves defining objectives, planning and implementing management designed to reach objectives, monitoring to see if progress is being made, and adjusting plans as required if not. The County supports this approach. However, the county also believes that Forest Service and BLM too often subvert this approach by setting rigid guidelines or restrictions both in general land management plans, leasing plans, and specific allotment management plans. Rigidly enforced guidelines on forage utilization, grazing dates, acceptable land treatments, and other practices restrict flexibility and case by case decision making which are fundamental to the concept of adaptive management. The county believes that management plans should concentrate on the desired results of the plan and provide for flexibility, innovation, and site specific monitoring to achieve those objectives.