DECISION NOTICE SUMMIT COMPLEX PROJECT USDA FOREST SERVICE PIKES PEAK RANGER DISTRICT PIKE & SAN ISABEL NATIONAL FORESTS AND CIMARRON & COMANCHE NATIONAL GRASSLANDS EL PASO COUNTY,

DECISION Based upon my review of the Pikes Peak Summit Complex Environmental Assessment (EA), consideration of public comments, input from tribes and other agencies, and review of the project record documenting the best available scientific information, I have decided to implement the Proposed Action Alternative, which authorizes the following activities at the Pikes Peak Summit (T14S, R68W, SE¼SW¼ Sec7 and NE¼NW¼ Sec18, Sixth Principal Meridian): Summit Visitor Center Structure The existing Summit House is to be replaced with a larger, two-story facility (one story above grade) set into the hillside on the southeast portion of the summit area, positioned to visibly anchor with adjacent Mount Rosa, the location where Zebulon Pike first viewed Pikes Peak (Figure 2-2 in the EA). The new Summit Visitor Center design is exhibited in the project’s Final Schematic Design document (RTA and GWWO 2016). The focus of the revised Summit Complex design incorporated several elements including: • Preserve and enhance the natural qualities of the Pikes Peak summit area, providing a setting similar to that first seen by early explorers and the indigenous tribes. • Use of building materials that would blend with the natural environment, withstand environmental conditions, and provide for energy efficiency • Incorporate alternative and renewable energy sources, where feasible • Reorganize the existing site facilities and utilities in a sustainable and efficient manner • Restructure visitor use and traffic flow, encompassing the Cog Railway, motor vehicles, bicycles, and hikers • Ensure access to the 14,000+ foot mountain summit is achievable by all visitors.

—Decision Notice— Page 1 of 10 Cog Railway Under the Proposed Action, visitors arriving by the Cog Railway would arrive on the summit and disembark near the historic Summit House location, approximately 140 feet from the new Summit Visitor Center entrance. An accessible 42-inch-high platform for all passengers to disembark concurrently would be constructed and sized to handle peak visitation on the summit with outdoor seating. Vehicular Access and Parking No modifications to the 19-mile Pikes Peak Highway corridor from the Gateway entrance to Pikes Peak summit are proposed under the Summit Complex Project (Figure 1-1 in the EA). At the summit, vehicular access circulation is proposed to be modified by incorporating: (1) two- way linear loops; (2) one year-round, permanent colored aggregate asphalt pavement with 10- foot width striped stalls (116 parking spaces that would include 7 accessible parking stalls); (3) 14 permanent staff parking stalls; and (4) one peak season (Memorial Day through Labor Day), unstriped, overflow parking area (110 spaces). The combined visitor parking would total 240 spaces. The separation of the lots reduces the need for year-round snow plowing on the entire summit and better distributes vehicular traffic. Pedestrian Access The Proposed Action would delineate specific pedestrian circulation patterns around the Summit Complex to define pedestrian use areas and prevent indiscriminate use. The proposed design would provide interpretive pedestrian walks, highlighting historic cultural resources and connecting each space, while avoiding native tundra areas to support tundra restoration efforts. Walkway design would provide options for visitors, based on time, weather, and interests. Other visitor circulation and flow elements would include strategically designed spaces to provide uninterrupted views, seating, and interpretive opportunities for both cultural and natural resources. Trails Under the Proposed Action, trail access to the Barr Trail trailhead would be retained and afford trail users the ability to enjoy the summit walkways, interpretive loops, overlooks, and access the Summit Visitor Center emergency shelter. The established trail terminus at the summit for the Devils Playground Trail would be connected with an overlook area (Figure 2-1 in the EA) and signed indicating the trail access. Both trailheads would include seating areas for users. Multiple routes are proposed around the Summit Complex perimeter and through the area, allowing visitors to choose the desired routes around the summit. Viewing Two rooftop observation areas are proposed to flank the upper entrance, which would be accessible from the upper lobby of the Summit Visitor Center, the pedestrian paths, and vehicular parking areas. The observation decks would mimic the summit’s landscape with small boulder fields and porous railings along the south and east edges to allow snow to drift off the

—Decision Notice— Page 2 of 10 roof. The terraces would offer expansive views along the summit perimeter’s south and east sides, including views down to the Barr Trail and the Cog Railway. Visitor seating is proposed to include stand-alone and built-in benches, strategically located throughout the summit area. Bench materials would encompass a combination of stacked, grouted granite boulders and colored concrete benches with stone supports and veneered seat walls. Materials would be selected for durability, low maintenance, and in compliance with the Forest Service’s Built Environment Image Guide (BEIG) parameters. Events and Activities Major annual events associated with Pikes Peak summit would continue as in the past, including the Pikes Peak International Hill Climb and Pikes Peak Ascent and Marathon. The Pikes Peak International Hill Climb requires: • Emergency run-out area: 500 feet • Parking for race cars, officials, and media: 120 vehicles • Interior space for drivers: 100 drivers • Media area: 75 press members and 25 drivers • Crash embankment. The Pikes Peak Ascent and Marathon requires: • Interior space for spectators • Interior space for runners • Interior space for medical treatment and refreshment area • Visitor parking: 90 vehicles (75 visitors and 15 volunteers) • Transportation circulation:

o 15-passenger vans for transport to Devils Playground Shuttle Location o Finish line access to Summit Visitor Center without crossing Cog Railway tracks. The U.S. Army Maher Memorial High Altitude Research Laboratory (HARL) facility would be used for event staging, and trail access would be provided to the Summit Visitor Center emergency shelter. Future event planning would be structured to ensure the activities would be consistent with the proposed summit design modifications. Pikes Peak - America’s Mountain Plant and Mechanical Facility The new Plant facility would be incorporated into the Summit Visitor Center footprint (Figure 2- 2). The Plant would contain the necessary utilities for the entire complex, including electrical panels; transfer switches; emergency generator; 500-gallon diesel storage tank; 15,000- to 20,000 gallon water and wastewater storage tanks; a tool, equipment, and parts storage area; and a staff restroom.

—Decision Notice— Page 3 of 10 U.S. Army HARL The new U.S. Army’s HARL would replace the current U.S. Army Research Institute of Environmental Medicine (USARIEM) building. The HARL would be located on the west side of the new Summit Visitor Center (Figure 2-1). While they would be adjacent, the HARL and the Summit Visitor Center would be separated with fire-rated walls. The HARL facility would be approximately 3,000 square feet, providing space for research in human subject performance physiology evaluation and testing; sample analysis; and study preparation/administration; and space for personnel support, including temporary male and female living quarters, showers, and food preparation/dining. The U.S. Army is developing separate and independent plans for the internal design of the HARL facility.

COLORADO SPRINGS UTILITIES (CSU) Communications Facility Prior to demolition of the existing CSU Communications building, CSU would erect a temporary tower structure on the summit. The tower height would be approximately 40 feet and resemble the structure shown in Figure 2-3 in the EA. The tower would be either free-standing or with several guy wires to further assist with stability. Guy wires would be either rock bolted into the ground or secured to concrete ballast. CSU would use space inside the existing HARL building to house its communications equipment. Upon completion of the Summit Complex construction, the communications equipment would be moved to the new communications facility, and deconstruction of the HARL facility would be initiated. Summit Complex Construction Site construction would be phased, as shown in Figure 2-11 in the EA. Before facility deconstruction or new construction would be initiated, topsoil, rocks, and plants would be salvaged, where feasible. Refer to the EA for more detail on deconstruction and construction activities. Facility removal and construction would encompass: 1. Construct temporary CSU Communications building 2. Deconstruct (i.e., demolish) existing CSU Communications Facility and phase in building roadway and parking lot 3. Construct temporary utilities services and associated structure 4. Deconstruct existing Plant building 5. Construct new HARL facility 6. Construct new Summit Visitor Center 7. Deconstruct existing HARL facility 8. Deconstruct and remove existing Summit House after new Summit Visitor Center is operational 9. Construct elevated walkways through boulder fields

—Decision Notice— Page 4 of 10 10. Complete perimeter walkway and interpretive loop 11. Restore alpine tundra (ongoing process)

Design Criteria, Mitigation Measures, and Best Management Practices

Design criteria and mitigation measures are site-specific management activities designed to avoid and reduce the potential adverse impacts of project activities. A full list of environmental protection measures, mitigation measures and best management practices for the proposed action are included in Table 2-6 in the EA. I am confident the selected measures will minimize adverse effects for the following reasons: these measures are practices we have used successfully in the past, many are State-recognized best management practices for protecting water quality, or they are based on current research. The PSICC determined the Proposed Action would have an adverse effect on the historic resources at the summit and consulted with the Colorado Historic Preservation Officer (SHPO) pursuant to 36 CFR Part 800, regulations implementing Section 106 of the National Historic Preservation Act (54 U.S.C. § 306108) and the State Historic Preservation Officer concurred. In accordance with the National Historic Preservation Act of 1966, the PSICC has initiated the development of the “Memorandum of Agreement (MOA) Among the USDA Forest Service Pike & San Isabel National Forests and Cimarron & Comanche National Grasslands, the City of Colorado Springs, Colorado State Historic Preservation Officer, and the Advisory Council on Historic Preservation Regarding the Pikes Peak Summit Complex Project, El Paso County, Colorado,” to mitigate the impacts of the adverse effects. Prior to any alterations or destructive activities to historic properties within the area of potential effect, the PSICC will ensure that the MOA will be signed by all consulting parties. For this MOA, the National Park Service, Tribal Historic Preservation Officer for the Southern Ute, the Pawnee Nation of Oklahoma, the Northern Cheyenne, have agreed to participate as concurring parties. Execution of this MOA by the PSICC, the City, SHPO, and the Advisory Council on Historic Preservation (ACHP) and implementation of its terms evidence that PSICC shall take into account the effects of this undertaking on historic properties and afford the ACHP an opportunity to comment. If for any reason the MOA fails to be executed by any of the consulting parties, then procedures defined in 36 CFR 800.6(b)(v) and 36 CFR 800.7(c)(2) will be implemented to ensure compliance with Section 106 of the National Historic Preservation Act.

—Decision Notice— Page 5 of 10 BACKGROUND The City of Colorado Springs (City), Pikes Peak – America’s Mountain (PPAM), in partnership with Colorado Springs Utilities (CSU) and the U.S. Army Research Institute of Environmental Medicine (USARIEM), have proposed to design, construct, and operate a new Pikes Peak Summit Complex located in the Pike National Forest in El Paso County, Colorado (Summit Complex Project). The existing Summit Complex is located on the top of Pikes Peak at an elevation of 14,115 feet. The U.S. Forest Service (Forest Service), Pikes Peak Ranger District within the Pike and San Isabel National Forests and Cimarron and Comanche National Grasslands, is the federal lead agency for this Environmental Assessment (EA). The Forest Service is responsible for review and issuance of a decision in accordance with the National Environmental Policy Act (NEPA) of 1969. Currently, the Pikes Peak Summit Complex consists of four separate buildings designed and built independent of one another with varying architectural styles and levels of infrastructure deterioration (Figure 1-2). PPAM currently maintains the existing Summit House (12,125 square feet), which was constructed and dedicated in 1964, and the separate Plant building with an observation deck (Figure 1-2). The Summit House provides guest services for visitors arriving via the Pikes Peak Highway, the Manitou & Pikes Peak Cog Railway (Cog Railway), and the Barr and Devils Playground Trails to the summit. These services include retail gift services, restaurant, restrooms, and interpretive services that support upwards of 750,000 visitors annually. PPAM’s existing Plant (6,865 square feet) has been in operation since 1978 (Figure 1-2). The mechanical building contains fresh water and wastewater storage tanks, system support pumps, and a diesel power generator. The new Plant building would contain the necessary utilities for the entire complex. USARIEM operates HARL within the Summit Complex, providing a research facility, sleeping quarters, restrooms, and kitchen space needed for program operation. The U.S. Army’s existing facility is 2,425 square feet and located in a separate modular building west of the Summit House (Figure 1-2). This facility has operated since 1969 and was renovated in 1984. CSU currently maintains and operates a separate Communications Facility (935.5 square feet) within the Summit Complex that provides communication infrastructure and services to multiple government organizations in the Pikes Peak region (Figure 1-2). This facility has been in operation since the late 1970s. In total, these facilities are reaching or have exceeded their useful life and are no longer sufficient to support the increasing visitor use each year. The purpose and need of the Pikes Peak Summit Complex reflects the deteriorating condition of the summit infrastructure, the impacts to the fragile tundra ecosystem, the cultural resources at risk due to the unfettered public access, and the growing public interest in a safe, efficient visitor experience that may accommodate a variety of uses in a more environmentally sensitive manner.

—Decision Notice— Page 6 of 10 DECISION RATIONALE In making this decision I sought to protect the high-altitude tundra ecosystem and the cultural heritage of the landscape while addressing the ongoing need for access to the summit. I find that the Proposed Action, rather than another alternative, will best address the numerous purpose and needs identified in the EA (pages 1-11 to 1-12), the public concerns identified through the scoping process, and the increasing visitor use without significantly affecting the human environment (effects analysis in EA Chapter 3). The high-altitude tundra ecosystem requires a number of protection measures to prevent damage from human infrastructure and activity. Throughout the iterative design process used to develop the Proposed Action, changes were made to better address resource protection concerns raised by the interdisciplinary team of specialists, consulting agencies, and the public. No federally protected threatened or endangered species or their designated critical habitat would be affected by this project (EA pages 3-39 and 3-46). The use of site-appropriate materials, the extensive tundra restoration activities, the energy-efficient structures, and the designated trails and driveways will all reduce the impact the infrastructure complex will have on the Pikes Peak summit. The design of the structures and content of the visitor center interpretive displays have all been planned to reflect the rich history of Pikes Peak and the numerous cultures that have called surrounding area home. While the project resulted in an adverse effect to two historic properties, appropriate measures, as identified through the Section 106 consultation process and a Memorandum of Agreement which is being finalized, will be applied during demolition and construction to mitigate effects (EA pages 3-59 to 3-61). The Proposed Action best protects these ecological and cultural resources while meeting the diverse purpose and needs of the project. The new visitor center, designated driving routes, parking areas, walking paths, and interpretive points, will greatly improve the visitor experience at the summit of Pikes Peak. By redesigning and rebuilding the infrastructure, this project is able to incorporate the need to improve visitor services and meet the needs of the USARIEM, the communication facilities, and other existing special events and programs, while reducing impacts of dispersed visitor activities at the summit. The new design will be less obtrusive and more cohesive with the surroundings, contributing to a more natural and enhanced experience for all who visit or work at the summit. In considering the project purpose and needs in context of my goal to protect the high- elevation and cultural landscape, I find that the Proposed Action best meets all of these requirements.

Other Alternatives Considered But Not Selected

In addition to the selected alterative, I considered the No Action Alternative through detailed analysis, and considered but eliminated from analysis several other design options. A comparison of the design options and description of why they were eliminated from further

—Decision Notice— Page 7 of 10 analysis can be found in Chapter 2 of the EA. Refer to Chapter 3 of the EA for information on the effects of the No Action alternative. No Action Alternative The No Action Alternative represents a continuation of existing facilities and recreational and operational activities on the summit and within the special use permit area without changes, additions, or upgrades. The existing facilities encompass the Summit House, Plant building, HARL facility, and Communications Facility. Continuation of existing practices would include the wide range of public activities and uses currently authorized on the Summit. No new facilities, infrastructure, recreational opportunities, or improvements are included in this alternative. I considered, but did not select the No Action Alternative, since this alternative does not address the purpose and need for designing and constructing a new Pikes Peak Summit Complex. By continuing to use the existing infrastructure, no improvement would have been made to the visitor experience, no tundra restoration would have taken place, the cultural resources would have remained at risk, and the site would have continued to operate in an energy-inefficient manner.

Design Options – Considered but Dropped from Detailed Analysis • Design Option 2 - “Outcropping,” was a two-story, traditional design located close to the existing Summit House (Figure 2 18 in the EA). • Design Option 3 - “Biomimicry – Learning from Nature,” was a two-story, futuristic design located on the northeast portion of the summit (Figure 2 19 in the EA). • Design Option 4 - “Geomorphology,” was a two-story building with a sloped roof located along the north side of the summit (Figure 2 20 in the EA). • Design Option 4B - a variation of Design Option 4 (Figure 2 21 in the EA). • Reconstruct Summit House with Smaller Footprint • Reconstruct Summit House with Cog Railway Track Realignment • Remove Summit House and Provide No Replacement Facility • Remove Summit House and Construct Small Viewing Platform • Observatory on Pikes Peak

The Pikes Peak Summit Complex EA and Finding of No Significant Impact (FONSI) documents the environmental analysis and conclusions upon which this decision is based.

PUBLIC INVOLVEMENT This action was originally listed as a proposal on the Pike & San Isabel National Forests and Cimarron & Comanche National Grasslands Schedule of Proposed Actions in October, 2015 and updated periodically during the analysis. A scoping letter and description of the proposed action was sent to interested parties on August 13, 2015, with a follow up newsletter emailed on August 21, 2015. The public was further notified of the scoping period through a press

—Decision Notice— Page 8 of 10 release distributed on August 14, 2015; letters to interested parties and key stakeholders posted on August 21, 2015; and legal notices published in the Pueblo Chieftain (the newspaper of record) and the Colorado Springs Gazette on August 21, 2015. A public open house was held on August 25, 2015, where the public were encouraged to submit written comments in person or via the online comment form. Approximately 90 members of the public attended. The scoping notice was also published on the project website. A total of 32 letters were received containing 77 unique comments on the proposed action. The majority of comments related to the design of the new summit complex (57%), followed by recreation opportunities (19%), and then miscellaneous issues, including transportation, vegetation, the decision process, wildlife resources, cultural resources, geology and soils, visual resources, air quality, and economics all receiving 6 or fewer comments each. More information on scoping comments received can be found in the project file. In addition to the public scoping process, public input was incorporated into the design process through a series of public meetings, surveys, and community presentations. Four public meetings were held to solicit input on multiple designs and aspects of the proposed action design. Electronic surveys were provided and resulted in approximately 1,250 responses and comments being received on the design concepts. Additional outreach mechanisms including E-newsletters and ongoing media relations were continually updated during the design and development of the proposed action. Details of the public involvement process can be found in the EA (pages 1-13 to 1-16). This project was subject to objection pursuant to 36 CFR §218, Subparts A and B. A legal notice announcing the 45-day objection period on the draft decision was published in the Colorado Springs Gazette, the newspaper of record, on March 1, 2018. The Forest also mailed notice of availability of the draft decision to those who submitted project-specific written comments during scoping period for this project. One letter of was received from the Colorado Parks and Recreation supporting changes to the proposed action made in response to concerns raised during the scoping process. One objection was received from Ms. Carol Beckman requesting that signage to indicate the start of the Devils Playground Trailhead be placed at the summit. During a call with Ms. Beckman on April 16, 2018, the Pikes Peak District Ranger, Oscar Martinez, noted that signage to indicate the start of the Devils Playground Trail was intended in the design of the summit signage plan, and as a result, Ms. Beckman agreed to withdraw her objection if a sign was specified in the final decision. I have revised this decision to specify a sign for the Devils Playground Trail (page 2). Ms. Beckman and the Reviewing Officer (Acting Deputy Regional Forester Bunni Maceo) signed a negotiated objection resolution confirming the withdrawal of the objection on April 18, 2018.

FINDINGS REQUIRED BY OTHER LAWS AND REGULATIONS This decision is consistent with the Pike and San Isabell National Forest Land Management Plan (1984). The project was designed in conformance with the Clean Air Act (EA pages 3-4 to 3-8), the Clean Water Act (EA pages 3-16 to 3-22), the Endangered Species Act (EA pages 3-33 to 3- 50), and the National Historic Preservation Act (EA pages 3-50 to 3-61).

—Decision Notice— Page 9 of 10 IMPLEMENTATION DATE After this Decision Notice is signed, implementation may begin immediately. Construction is anticipated to begin in June 2018. Initial plans estimate construction will take place as weather permits for at least two years.

CONTACT For additional information concerning this decision, contact: Jeff Hovermale, Lands and Minerals Staff Officer, Pikes Peak Ranger District, 601 South Weber Street, Colorado Springs, CO 80903; or via phone: (719) 477-4201 or email: [email protected].

May 3, 2018 DAVID J. CONDIT Date Deputy Forest and Grassland Supervisor Pike and San Isabel National Forests Cimarron and Comanche National Grasslands

In accordance with Federal civil rights law and U.S. Department of Agriculture (USDA) civil rights regulations and policies, the USDA, its Agencies, offices, and employees, and institutions participating in or administering USDA programs are prohibited from discriminating based on race, color, national origin, religion, sex, gender identity (including gender expression), sexual orientation, disability, age, marital status, family/parental status, income derived from a public assistance program, political beliefs, or reprisal or retaliation for prior civil rights activity, in any program or activity conducted or funded by USDA (not all bases apply to all programs). Remedies and complaint filing deadlines vary by program or incident. Persons with disabilities who require alternative means of communication for program information (e.g., Braille, large print, audiotape, American Sign Language, etc.) should contact the responsible Agency or USDA’s TARGET Center at (202) 720-2600 (voice and TTY) or contact USDA through the Federal Relay Service at (800) 877-8339. Additionally, program information may be made available in languages other than English. To file a program discrimination complaint, complete the USDA Program Discrimination Complaint Form, AD- 3027, found online at http://www.ascr.usda.gov/complaint_filing_cust.html and at any USDA office or write a letter addressed to USDA and provide in the letter all of the information requested in the form. To request a copy of the complaint form, call (866) 632-9992. Submit your completed form or letter to USDA by: (1) mail: U.S. Department of Agriculture, Office of the Assistant Secretary for Civil Rights, 1400 Independence Avenue, SW, Washington, D.C. 20250-9410; (2) fax: (202) 690-7442; or (3) email: [email protected] . USDA is an equal opportunity provider, employer and lender.

—Decision Notice— Page 10 of 10