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2008 WINTER USE PLANS ENVIRONMENTAL ASSESSMENT Yellowstone and Grand Teton National Parks and the John D

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2008 WINTER USE PLANS ENVIRONMENTAL ASSESSMENT Yellowstone and Grand Teton National Parks and the John D National Park Service U.S. Department of the Interior Grand Teton / Yellowstone National Parks John D. Rockefeller, Jr. Memorial Parkway Wyoming / Montana / Idaho Winter Use Plans Environmental Assessment November 2008 United States Department of the Interior • National Park Service • Grand Teton and Yellowstone National Parks and the John D. Rockefeller, Jr. Memorial Parkway Winter Use Plans Environmental Assessment Summary This environmental assessment considers two alternatives for a winter use plan in Yellowstone and Grand Teton National Parks and the John D. Rockefeller, Jr. Memorial Parkway. Alternative 1 is the No Action alternative: the 2004 winter use plans regulations would remain in place and neither snowcoach nor snowmobile access would be permitted. Wheeled vehicle travel would continue on roads that have been traditionally plowed, and the parks would be open to skiing and snowshoeing. Alternative 2 would continue recent trends of snowmobile and snowcoach access and is the preferred alternative. It would allow 318 snowmobiles per day in Yellowstone for a period of up to three winters (i.e., through the winter of 2010-2011). In Yellowstone, this alternative requires that all recreational snowmobiles be best available technology, and travel with commercial guides. Seventy-eight snowcoaches would be authorized to operate daily in Yellowstone. All would be commercially guided, and also allowed for the same three-winter period as snowmobiles. For Grand Teton and the Parkway, a total of 50 snowmobiles would be allowed, but not subject to the three-year limitation. Snowmobile use on Jackson Lake and the Grassy Lake Road would not be required to be commercially guided; snowmobiles on Jackson Lake must be best available technology. Snowmobiles being operated between Flagg Ranch and the South Entrance of Yellowstone must be accompanied by a guide. Public Comment If you wish to comment on the environmental assessment, you may post comments online at http://parkplanning.nps.gov/yell, mail comments to National Park Service, Management Assistant’s Office, P.O. Box 168, Yellowstone National Park, Wyoming 82190, or hand-deliver them to the same address. Comments must be RECEIVED BY Nov. 17, 2008. Before including your address, phone number, e-mail address, or other personal identifying information in your comment, you should be aware that your entire comment – including your personal identifying information – may be made publicly available at any time. Although you can ask us in your comment to withhold your personal identifying information from public review, we cannot guarantee that we will be able to do so. United States Department of the Interior • National Park Service • Grand Teton and Yellowstone National Parks and the John D. Rockefeller, Jr. Memorial Parkway This page intentionally left blank. 2008 WINTER USE PLANS ENVIRONMENTAL ASSESSMENT Yellowstone and Grand Teton National Parks and the John D. Rockefeller, Jr. Memorial Parkway Winter Use Plans Environmental Assessment Yellowstone and Grand Teton National Parks John D. Rockefeller, Jr. Memorial Parkway Table of Contents Page Summary i Chapter 1: Purpose and Need 1-1 Winter Use Planning History 1-1 Purpose and Need 1-4 Need 1-5 Appropriate Use 1-9 Impairment and Conservation of Park Resources and Values 1-10 Scoping 1-11 Impact Topics 1-11 Chapter 2: Alternatives 2-1 Introduction 2-1 Formulation of the Alternatives 2-1 Management Zones 2-2 Alternatives Dismissed from Further Consideration 2-6 Alternative 1: Eliminate Motorized Recreational Oversnow Travel (No Action) 2-11 Alternative 2: Continue Recent Use Levels (Preferred Alternative) 2-17 Environmentally Preferred Alternative 2-33 Chapter 3: Affected Environment 3-1 Introduction 3-1 Wildlife 3-1 Soundscapes 3-17 Socioeconomics 3-32 Air Quality and Air Quality-Related Values 3-44 Public and Employee Health and Safety 3-51 Visitor Access and Circulation 3-64 Visitor Experience 3-73 Winter Operations 3-77 Chapter 4: Environmental Consequences 4-1 Methodology 4-1 Cumulative Impact Scenario 4-1 Unacceptable Impacts 4-5 Effects on Wildlife 4-6 Effects on Soundscapes 4-18 Effects on the Socioeconomic Environment 4-25 Table of Contents Page iii November 2008 2008 WINTER USE PLANS ENVIRONMENTAL ASSESSMENT Yellowstone and Grand Teton National Parks and the John D. Rockefeller, Jr. Memorial Parkway Page Effects on Air Quality and Air Quality-Related Values 4-33 Effects on Public and Employee Health and Safety 4-39 Effects on Visitor Access and Circulation 4-42 Effects on Visitor Experience 4-46 Unacceptable Impacts and Impairment 4-51 Chapter 5: Consultation, Coordination, and Bibliography 5-1 Public Involvement 5-1 Preparers 5-1 Bibliography and List of Cited References 5-2 Appendices A-1 A. Policies and Mandates A-3 B. Monitoring and Adaptive Management Program B-1 C. Summary of Recent Bison and Elk Studies C-1 D. Summary of Other Economic Reports D-1 Table of Contents Page iv November 2008 2008 WINTER USE PLANS ENVIRONMENTAL ASSESSMENT Yellowstone and Grand Teton National Parks and the John D. Rockefeller, Jr. Memorial Parkway CHAPTER 1: PURPOSE AND NEED Winter Use Planning History 1974 Master Plan and Final Environmental Statement The 1974 Master Plan states “Yellowstone will be managed on a year-round use basis. There are two defined periods of heavy use, and the management and operation must be geared to such for maximum enjoyment of the resources by the visitor – May 1 through October 31 and December 1 through March 15.” Further elaboration is provided in the Final Environmental Statement (for the Master Plan, p. 10): “No visitor protection concept can be considered complete if it did not address itself to the rapidly emerging phenomena of winter use. To this end, present and proposed programs diagrammed in the following sketch suggest the hierarchy of challenge possible within the park proper. A fleet of 12 passenger snow machines (Bombardiers) provide daily scenic introductory tours along prime wildlife winter ranges. For the more hearty individual, snowmobiling along designated and maintained road corridors is available. Proposed for those willing to test their mettle against the Yellowstone winter will be a number of cross-country ski or snowshoeing routes.” The 1990 Winter Use Plan In 1990, the National Park Service completed a Winter Use Plan for Yellowstone National Park, Grand Teton National Park, and the John D. Rockefeller, Jr. Memorial Parkway (the Parkway; collectively, the parks). That plan projected that by the year 2000, winter visitation to Yellowstone would be 143,000 visitors. Visitation to the parks grew at a rate much faster than expected, and reached the forecasted level by the winter of 1992–1993 (total visitors to Yellowstone and Grand Teton in that year were 142,744 and 128,159, respectively). That same winter, the Continental Divide Snowmobile Trail (CDST) opened in Grand Teton. These changes (increased visitation and the CDST opening) prompted the Greater Yellowstone Coordinating Committee, composed of national park superintendents and national forest supervisors within the Greater Yellowstone Area (GYA), to collect information and analyze winter use in the entire GYA. The interagency study team released its results in 1999 as “Winter Visitor Use Management: A Multi-agency Assessment.” The assessment identified desired conditions for the GYA, current areas of conflict, issues and concerns, and possible ways to address them. The final document incorporated many comments from the public, interest groups, and local and state governments surrounding public lands in the GYA. The 1997 Fund for Animals, et al., Lawsuit In May 1997, the Fund for Animals, Biodiversity Legal Foundation, and certain other plaintiffs filed suit against the NPS in the U.S. District Court for the District of Columbia (D.C. District Court). The suit was prompted in part by the extraordinary winter of 1996–1997 and the killing of 1,084 Yellowstone bison that winter. The groups alleged violations of the Endangered Species Act and the National Environmental Policy Act (NEPA), and other laws. In October 1997, the Department of the Interior and the plaintiffs reached a settlement agreement wherein the NPS agreed, in part, to prepare an environmental impact statement (EIS) for new winter use plans for the parks. Purpose and Need Page 1-1 November 2008 2008 WINTER USE PLANS ENVIRONMENTAL ASSESSMENT Yellowstone and Grand Teton National Parks and the John D. Rockefeller, Jr. Memorial Parkway The EIS and Decision of 2000 In preparing the EIS, nine county, state, and federal agencies joined the NPS as cooperating agencies. These were the states of Montana, Idaho, and Wyoming; Fremont County in Idaho, Gallatin and Park Counties in Montana, Park and Teton Counties in Wyoming; and the U.S. Forest Service. The NPS released the Final EIS (FEIS) on October 10, 2000. Based on the FEIS, NPS Intermountain Regional Director Karen Wade signed the Record of Decision (ROD) on November 22, 2000. The decision was to eliminate both snowmobile and snowplane use from the parks by the winter of 2003–2004, and provide visitor access via an NPS-managed mass- transit snowcoach system. The decision was based upon the finding that existing snowmobile and snowplane use impaired the parks’ resources and values (specifically its wildlife, air quality, natural soundscapes, and visitor experience), thus violating the statutory mandate of the NPS. Following publication of a proposed rule and its public comment period, a final rule implementing the decision was published in the Federal Register on January 22, 2001, becoming effective on April 22, 2001. The rule provided for a phase-out of snowmobiles beginning with the winter of 2002-2003, with full implementation of the plan in the winter of 2003-2004. On December 6, 2000, the International Snowmobile Manufacturers’ Association (ISMA) and several other plaintiffs filed a lawsuit in the U.S. District Court for the District of Wyoming (Wyoming District Court). They alleged, among other things, that in preparing the FEIS and ROD, the NPS violated the National Environmental Policy Act (NEPA) and the Administrative Procedure Act (APA).
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