United States Department of the Interior Bureau of Land Management
Environmental Assessment DOI-BLM-CO-N010-2020-0041
Sarvis Creek Cabin Recreation Fee Proposal
March 2020
U.S. Department of the Interior Bureau of Land Management Northwest District Little Snake Field Office 455 Emerson St. Craig, CO 81625
TABLE OF CONTENTS TABLE OF CONTENTS ...... i 1. Introduction ...... 1 Identifying Information ...... 1 Background ...... 1 Purpose and Need for Action ...... 2 Decision to be Made...... 2 Conformance with the Land Use Plan...... 2 2. Public involvement ...... 3 3. Proposed Action and Alternatives ...... 3 Proposed Action (Alternative A) ...... 3 3.1.1. Project Components and General Schedule ...... 3 3.1.2. Design Features ...... 3 Summer/Fall Rental Alternative (Alternative B) ...... 5 No Action Alternative (Alternative C) ...... 5 4. Issues ...... 5 Issues Analyzed ...... 6 Issues Considered but not Analyzed...... 6 5. Affected Environment and Environmental Consequences ...... 8 General Setting & Access to the Project Area ...... 8 Cumulative Impacts ...... 8 Access and Transportation ...... 9 5.3.1. How would the establishment of a fee-based cabin rental program affect access and transportation? ...... 9 5.6 Recreation ...... 12 5.3.2. How would the establishment of a fee-based cabin rental program affect visitor satisfaction related to recreational experiences? ...... 12 6. Supporting Information ...... 14 List of Preparers ...... 14 Tribes, Individuals, Organizations, or Agencies Consulted...... 15 References ...... 16 Appendix A. Figures ...... 1 Appendix B. Scoping Comments ...... 3
i 1. INTRODUCTION
Identifying Information Project Title: Sarvis Creek Cabin Recreation Fee Proposal
Legal Description: T4N, R84W, SESE Section 21, Routt County, Colorado, 6th P.M.
NEPA Document Number: DOI-BLM-CO-N010-2019-0041-EA Background The Little Snake Field Office acquired the Sarvis Creek Cabin and surrounding property through the America’s Great Outdoors Initiative in 2014. An Environmental Assessment (EA) was published (DOI-BLM-N010-2014-0049-EA) for the acquisition, but further analysis is necessary to develop a fee-based nightly rental program. The stated purposes for acquisition of the property were to “enhance public recreation opportunities within the Yampa River corridor, to maintain or improve wildlife habitat, to consolidate public ownership, and to reduce the management complications common with scattered landownership patterns.”
The cabin is located on five acres of BLM public land along the west bank of the Yampa River, which is within two miles of Stagecoach State Park, and adjacent to the Sarvis Creek State Wildlife Area, both of which are managed by Colorado Parks and Wildlife. It is also adjacent to the Sarvis Creek Wilderness Area, which is managed by the Routt National Forest, Yampa Ranger District.
The cabin has recently been renovated to meet building code requirements. Improvements made to date include replacing doors and windows, new propane appliances, new greywater disposal system, new Americans with Disabilities Act (ADA) accessible patio, as well as structural and loft improvements. Pending improvements include outdoor ADA-accessible vault toilet, upgraded picnic tables, and other outdoor amenities.
The Sarvis Creek Cabin lies within the area covered by the Sarvis Creek Area Plan (Plan). The Plan was developed in 1996 with public input and in partnership with private landowners, Colorado Parks and Wildlife, Routt County Commissioners, US Forest Service and BLM, and was re-ratified in 2017. The mission of the Sarvis Creek Area Plan is to develop a plan for proper management of a unique and undeveloped ecosystem in the context of private lands intermixed with public lands administered by the BLM, US Forest Service, and Colorado Parks and Wildlife. It includes recommendations for: implementing the Plan, cooperative management, land acquisitions, roads and utilities, land use, agricultural use, management of recreational activities, wildlife and fisheries, archaeological sites, and the Sarvis Creek Wilderness Area.
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Purpose and Need for Action The purpose of this project is to develop a fee-based recreation cabin rental program, with local community and public input, for recreational use of the Sarvis Creek Cabin. This site-specific proposal aims to achieve multiple objectives that are primarily geared towards protecting and enhancing the cultural, riparian, natural resources, and interpretive values, provide for public health and safety, and to facilitate public access to BLM public lands and related waters. The project is needed for establishment of a recreational cabin rental program so that public may make use of the facility and fulfill goals established when the BLM acquired the cabin and its surrounding land parcel. Decision to be Made Based on the analysis contained in this EA, the BLM will decide whether to approve or deny the recreation fee proposal and if so, under what terms and conditions. Under the National Environmental Policy Act (NEPA), the BLM must determine if there are any significant environmental impacts associated with the Proposed Action warranting further analysis in an Environmental Impact Statement (EIS). The Field Manager is the responsible officer who will decide one of the following: • To approve the recreation fee proposal with design features as submitted; • To approve the recreation fee proposal with additional mitigation added; • To analyze the effects of the recreation fee proposal in an EIS; or • To deny the recreation fee proposal. Conformance with the Land Use Plan The Proposed Action is subject to and is in conformance (43 CFR 1610.5) with the following land use plan: Land Use Plan: Little Snake Record of Decision and Approved Resource Management Plan (ROD/RMP) Date Approved: October 2011 Decision Language: (Section 2.15, Recreation, page RMP-42 and RMP-43) “Goal A: Provide a diversity of outdoor recreational opportunities, activities, and experiences for various user groups, unorganized visitors and affected communities, there residences, economies, and the environment. Objective for achieving this goal include:
• Provide legal public access opportunities for recreational uses. • Manage for special recreation permit services.” “Goal B: Provide visitor services including interpretive and educational information. Objectives for achieving this goal include:
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• Provide developed facilities in heavy-use areas where such use is impacting resources and experiences.
• Use education as a means to further resource protection.
• Enhance recreational experiences by such actions as providing boundary signing and information and managing campsites and access.” “Goal C: Support tourism efforts for local economic diversification associated with public land resources. Objectives for achieving this goal include:
• Continue coordination with local and regional recreation economic development organizations, such as BLM community partners and community organizations.” 2. PUBLIC INVOLVEMENT The BLM uses a scoping process to identify potential significant issues in preparation for impact analysis. The principal goals of scoping are to identify issues, concerns, and potential impacts that require detailed analysis. Scoping is both an internal and external process. Internal scoping was initiated when the project was presented to the Little Snake Field Office (LSFO) interdisciplinary team on 11/25/2019. External scoping was conducted by posting this project on the LSFO’s on-line National Environmental Policy Act (NEPA) register on June 10, 2019. A public scoping comment period was held from June 10 to July 9 for the proposed Draft Sarvis Creek Cabin Business Plan, which resulted in 15 comment letters. Substantive scoping comments are included in Appendix B. In addition, the BLM met with members of Routt County’s Road and Bridge and Public Works Departments on August 27, 2019 to discuss the proposed project and issues related to road use and sanitation. 3. PROPOSED ACTION AND ALTERNATIVES
Proposed Action (Alternative A) 3.1.1. Project Components and General Schedule The BLM proposes to establish a cabin rental program with nightly fees, and regulations for day and overnight use of the site.
3.1.2. Design Features • Recreation use fees would be applied for overnight use of the Sarvis Creek Cabin. The specific fee amount would be determined through development of a business plan. • Use of the cabin would be limited to 15 people at one time for day or overnight use from June 1 to November 30. o Five beds in the cabin may comfortably sleep up to six people. o Exterior grounds would be available for tents, or interior floor space would allow for overflow accommodation up to 15 people at one time.
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• Use of the cabin would be limited to six people at one time from December 1 to May 31, due to snow closure of access roads and limited winter parking. • Day use in excess of 15 people at one time would be considered on a case-by-case basis, under a separate NEPA process. Overnight use by more than 15 people at one time would not be allowed. • Length of stay is limited to seven nights. • Facility use stipulations/expectations from visitors o All trash will be packed out by the renter. o Renters will be responsible for cleaning the cabin and grounds, as well as restocking firewood prior to leaving. o Wash and sanitize dishes, pots, and pans with wash basins and sanitizer provided; strain and dispose of greywater through greywater disposal system. o Pack in all water. Water collected onsite (from Yampa River or snowmelt) requires treatment and/or filtration. o Provide own linens/bedding. o Campfires are limited to the outdoor steel fire ring provided. ▪ Fires must be attended at all times. ▪ Fires must be cold to the touch with the bare hand when left unattended. ▪ Fires are prohibited when local fire bans/restrictions are in effect. • The following are provided: o Pots, pans, plates, utensils, wash basins, greywater strainer, dish sanitizer o Propane for heating, cooking, lighting and refrigeration o Five beds o Vault toilet on grounds o Greywater disposal system o Toilet paper, paper towels o Refrigerator o Broom and dustpan o Snow shovel o Firewood • The following are not provided: o No potable water, no towels, linens or blankets, no electricity • Season of use o County Road 18E is closed to wheel-to-ground motorized vehicles from the time of snow closure through approximately June 1 annually by Routt County. Dates vary due to snow conditions. o Public access when the road is closed is non-motorized or by snowmobile, as conditions allow. o Winter access via snowmobile would be allowed through the canyon north of the cabin only when snow depth is greater than or equal to 24”. o Winter overnight parking on CR18E at end of maintained route north of cabin may support parking by more than one vehicle; however, vehicles left parked
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overnight could become blocked in by snowplowing activity and could be subject to ticketing if parked in a manner that interferes with snowplowing operations. • Parking/Access o Parking onsite, including campers and trailers, is limited to the graveled area provided (5 vehicles maximum) o Total vehicle length is restricted to no greater than 28 feet. • Reservations would be managed through Recreation.gov or through the Little Snake Field Office. • Regulations established for use of developed recreation sites, defined in 43 CFR 8365.2 would apply to use of the Sarvis Creek Cabin and grounds. • Disposal or abandonment of game carcasses or carcass parts would be prohibited within 300 feet of the cabin, parking area, or restroom. Moving game carcasses or carcass parts beyond 300 feet may not be accomplished by motorized vehicles. • The public is prohibited from cutting of live or dead standing trees within developed recreation sites. o Dead and/or hazard trees on the parcel would be removed by BLM employees or contractors at regular intervals (up to annually); and this material would be utilized to provide firewood for cabin rentals. • Cabin grounds would remain available for free, public day use from dawn to dusk. Summer/Fall Rental Alternative (Alternative B) Under this alternative, the Sarvis Creek Cabin would only be available for rent from June 1 through November 30 or through the end of the last big game rifle season on public lands as set by Colorado Parks and Wildlife (CPW). All other aspects of the Proposed Action would remain the same. No Action Alternative (Alternative C) The No Action Alternative constitutes denial of the Proposed Action. Under the No Action Alternative, none of the proposed project components described in the Proposed Action would take place. The Sarvis Creek Cabin would not be available for public overnight rentals. The cabin itself would be largely unused, and the lands on which the cabin sits would continue to be available for fee-free recreational uses, such as fishing, hiking, picnicking, and dispersed camping. Use of the cabin and grounds for events and group day use could still be considered on a case-by-case basis. 4. ISSUES The CEQ Regulations state that NEPA documents “must concentrate on the issues that are truly significant to the action in question, rather than amassing needless detail” (40 CFR 1500.1(b)). While many issues may arise during scoping, not all of the issues raised warrant analysis in an environmental assessment (EA). Issues will be analyzed if: 1) an analysis of the issue is necessary to make a reasoned choice between alternatives, or 2) if the issue is associated with a significant direct, indirect, or cumulative impact, or where analysis is necessary to determine the
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significance of the impacts. The following sections list the resources considered and the determination as to whether they require additional analysis. Issues Analyzed The following issues are analyzed in detail in this EA (Section 5): Recreation: How would the proposed cabin rental program affect visitor satisfaction? The proposed cabin rental program would be likely to increase the number of users of the Sarvis Creek Cabin property. User conflicts and congestion may decrease a sense of recreational satisfaction. Recreation impacts are analyzed in section 5.5. Public Access and Transportation: How would the Proposed Action impact parking, access, and transportation? Routt County Road (RCR) 18 is designated by Routt County as a low- volume road with minimal maintenance. Establishment of a fee rental program for the Sarvis Creek Cabin would be likely to draw additional visitors to the area, increasing use of the road. Winter and spring seasonal closure of RCR 18 would limit wheel-to-ground motorized access to the cabin. Parking along RCR 18 at its winter closure is limited, and overnight parked vehicles could interfere with County snowplowing operations, subjecting guests to possible ticketing. Winter use could increase snowmobile presence on RCR 18. Impacts to access and transportation are analyzed in section 5.6. Issues Considered but not Analyzed The LSFO Interdisciplinary Team determined that these resources or issues are not present within the project area and will not be analyzed further: solid mineral authorizations, special status plant species, wild horses, livestock grazing, Lands with Wilderness Characteristics, Areas of Critical Environmental Concern, Wild and Scenic Rivers, and Scenic Byways. The following resources may be present within or near the project area, but would not be expected to be impacted by the proposed action or alternatives, and will not be analyzed further: Air Quality: There would be no measurable impact to air quality under the proposed action. Paleontological Resources: There would no impact to paleontological resources. There are no surface disturbing activities and there are no known paleontological sites. The bedrock is Precambrian granitic and gneissic rocks that would not contain fossils. Wildlife: The general area provides habitat for a variety of wildlife species, including big game, migratory birds and small mammals. The proposed cabin rental program may slightly increase traffic along RCR 18, however this is not expected to be significant and would only occur when the road is open to vehicle travel. Increases in disturbances to wildlife may occur with an increase of traffic and/or human presence in the vicinity of the cabin. Increased use would be more likely to impact animals in the winter months, when habitat is limited. Since CR 18 is already utilized as area for snowshoeing, cross country skiing and dog walking, this slight increase in winter use is not expected to be disruptive enough to warrant in-depth analysis.
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Invasive Species: Invasive species are present within the project area but would not be affected by the Proposed Action to a degree that requires analysis. Lands and Realty: The proposed cabin rental program would have no impact to existing realty authorizations. There are no proposed changes to land tenure in the area of the proposed cabin rental program. Cultural Resources: The Section 106 Process of the National Historic Preservation Act has been completed for the cabin itself and a surrounding area. The BLM recorded the cabin as 5RT3481 and determined that it is not eligible to the National Register of Historic Places with concurrence from the State Historic Preservation Officer. In 2018, a cultural resource survey of an area surrounding the cabin was completed with negative results. No further work is needed for cultural resources. Native American Concerns: Sites of the kind known to be of concern to Native Americans are not known to be present at the cabin. Information about the proposed federal undertaking was supplied to the three Ute tribes in the fall of 2019. To date, no tribe has expressed concerns related to the Proposed Action. Environmental Justice: A review of U.S. Census Bureau 2018 population estimates for race and Hispanic origin (U.S. Census Bureau 2019a), indicates that Routt County, where the proposed action may occur, does not meet the criteria of having a minority population that is five percentage points greater than the State of Colorado. Additionally, none of the counties had a percent of population in poverty that was five percentage points higher than for the State of Colorado (U.S. Census Bureau 2019b). Thus, no environmental justice populations were identified. Tribal consultations are documented elsewhere. Hazardous or Solid Wastes: There are no known existing hazardous or solid waste issues within the project area. A vault toilet would be installed prior to initiating the rental program, and greywater disposal system that exists on the property would provide for sanitary disposal of human waste and greywater. These facilities would be properly cared for and maintained. Dishwashing and sanitizing supplies would be provided in the cabin. Trash would be packed out by renters. Under these conditions, the project would not be expected to add or contribute to hazardous or solid waste issues. Fire Management: The BLM-managed lands surrounding the Sarvis Creek Cabin do not currently have any restrictions on use of campfires, other than seasonal restrictions that may be imposed associated with high fire danger. Campfires are commonly in use in the vicinity, at the Stagecoach State Park Campground, at numerous private residences in the vicinity, and at dispersed campsites within the Routt National Forest and Sarvis Creek Wilderness Area. Under the Proposed Action, a steel fire ring would be provided at the Sarvis Creek Cabin, and campfire use would be restricted to the fire ring provided, which would help reduce the risk of escaped campfire over existing conditions. Fires would be required to be attended at all times and would be prohibited during restrictions that ban fires in developed recreation sites. The proposed cabin rental program would not affect fire management.
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Forestry and Woodland Products: Although forest resources are present within the project area, the Proposed Action is unlikely to directly or indirectly affect forest resources. Recent bark beetle infestation has resulted in heavy tree mortality in the vicinity. It is expected that BLM employees or contractors would continue to cut down dead and otherwise hazardous trees around the cabin and other adjacent BLM-managed lands. Fuelwood stipulations would be followed, such as cutting stumps to 6” or lower; scattering of slash; keeping roadways and ditches free of slash, felled trees and vehicles; and not creating roads or trails through use. Visitors may collect slash or other material that is on the ground for fuelwood/firewood use. Visual Resources: The Sarvis Creek Cabin parcel is surrounded by an area designated for VRM Class III Objectives, and would, by default fall into that same classification. The parcel has not been subject to inventory of visual resources, since the parcel was acquired after the LSFO RMP designated VRM classes field office wide. However, the parcel may exhibit an increased level of scenic quality valuable to recreational users. The LSFO expects to conduct new VRM inventories in the future and will incorporate the Sarvis Creek Cabin parcel into that process to determine the appropriate VRM class designation and manage for that classification in the future. The current proposal to designate a fee- based cabin rental program would have no impact on the existing visual qualities. Wilderness and Wilderness Study Areas: Cabin rentals have the potential to introduce new visitors to the project site and adjacent Sarvis Creek Wilderness Area. Forest Service trail counters show that use of the Sarvis Creek Trail is not at or near capacity for Forest Service Wilderness management objectives. The additional visitors would not be likely to cause use to meet or exceed capacity. Additional analysis is not necessary.
5. AFFECTED ENVIRONMENT AND ENVIRONMENTAL CONSEQUENCES
General Setting & Access to the Project Area The project is located in a narrow valley along the Yampa River in western Routt County, at an elevation of approximately 7,000 feet. The site is mostly forested, containing mature mixed conifer species, with adjacent meadow and a strip of riparian species along the Yampa River. Access to the site is provided by RCR 18, which is seasonally closed from approximately snow- closure in the fall/winter until approximately June 1 (depending on snow levels and spring runoff events) each year. The site is adjacent to private agricultural land, Routt National Forest, and the Sarvis Creek State Wildlife Area, and within two miles of Stagecoach State Park. Routt County Assessor’s Office shows the nearest residence to be 1.4 miles north of the Sarvis Creek Cabin. Residences to the southwest are a minimum of 1.9 miles away. Cumulative Impacts
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Cumulative effects are defined in the CEQ regulations (40 CFR 1508.7) as “...the impact on the environment that results from the incremental impact of the action when added to other past, present, and reasonably foreseeable actions regardless of what agency (Federal or non-Federal) or person undertakes such other actions.” Within the last decade, annual visitation within the LSFO has fluctuated, with dispersed camping, OHV and mountain biking activities on the rise, while other types of use have decreased. BLM’s acquisition in 2014 of the Sarvis Creek Cabin and associated 45 acres created additional public land angler and hunter access in an area known for abundant wildlife and fish. In 2018, the Colorado General Assembly passed the Future Generations Act, which has a goal to increase the number of hunters and anglers in the state. Growing population and changing demographics have also increased the demand for recreational opportunities. Past actions include livestock grazing and associated range improvement projects, invasive weed inventory and treatments, and hazard tree removal. Past, current and future recreation use includes camping, fishing, hiking, picnicking, mountain biking, cross country skiing, horseback riding, snowshoeing, and hunting. Recent construction activities on Sarvis Creek Cabin and grounds include foundation repair, and addition of a greywater disposal system, construction of a concrete patio. Reasonably foreseeable actions in the project area include ongoing hazard tree removal, construction of a firewood shed, installation of a CXT concrete vault restroom on the property, wildfires, and prescribed burns. At some time in the future there could be a need to develop tent pads on the cabin grounds if impacts from camping are identified, or off-site parking for winter access, if the proposed action is selected, and especially if issues arise around winter parking and access. Access and Transportation 5.3.1. How would the establishment of a fee-based cabin rental program affect access and transportation? Affected Environment Access to the Sarvis Creek Cabin from the north and south is via RCR 18. This road has been designated by the Routt County Road Maintenance Plan as “Low Volume”. Low Volume roads are defined as passable, with few improvements. Travel on this road may at times be difficult. Four-wheel drive vehicles are recommended; two-wheel drive cars and low riding vehicles may not be appropriate. It favors alternative methods of transportation, and at times may be restricted to certain forms of travel. Routt County does not plow snow on this section of road. In the winter months, users are required to park in designated areas and use alternative forms of transportation, in order to protect wintering elk in the area. The elk winter closure begins after RCR 18 through the canyon has snowed shut, and wheel-to-ground motor vehicle travel through the canyon is not possible. The seasonal spring closure begins when the snowmelt has progressed to a point where vehicles may begin to attempt to drive through the canyon. The spring seasonal closure extends from the cattleguard below the dam at Stagecoach Reservoir north to Pleasant Valley.
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The Sarvis Creek Area Plan helps guide land development and management in this area of Routt County. It states that RCR 18 will be managed in a manner consistent with the desire to keep the area primitive, but accessible, without encouraging additional vehicle traffic through the canyon. Low Volume management techniques are favored over traditional practices. Importation of gravel and advanced drainage installations are used sparingly and only as necessary. The Low Volume status results in the road being maintained as passable to high clearance, four-wheel drive vehicles. Routt County’s Master Traffic Count Summary from 2016 (the most recent available online) indicates that the segment of RCR 18 where the Sarvis Creek Cabin exists (“north of Sarvis Creek in the canyon”) receives a Weekday Average Daily Traffic (ADT) count of 96 vehicles, and a weekend ADT of 146 vehicles. Vehicle counting occurred from July 2 through July 14, 1994 (see table, Appendix A, Figure 3). A majority of the existing traffic through the Sarvis Creek canyon along the unpaved section of RCR 18 is likely to be recreation-related traffic, since the nearest residences are in Pleasant Valley, just north of the canyon, and other recreation facilities exist south of the cabin, including parking for Sarvis Creek State Wildlife Area and a Sarvis Creek Wilderness Area Trailhead, with Stagecoach State Park just beyond that. RCR 18 serves as a primary access route to these recreation opportunities from Steamboat Springs. Parking There is a small, graveled parking area adjacent to the cabin on the BLM parcel, which would be designated for all vehicle parking on the cabin property. There are no designated parking areas along RCR 18 and the road experiences some parking issues. Approximately ¼ mile south of the parcel is a designated parking area maintained by CPW on the Sarvis Creek State Wildlife Area. Another parking area exists approximately ½ mile south of the parcel, which is managed by the U.S. Forest Service for users of the Sarvis Creek Wilderness Area. RCR 18 to the south/west of Sarvis Creek Cabin is closed to motorized vehicles during the winter season at its intersection with RCR 14. For winter access from the south/west, visitors would be required to purchase a State Parks Pass for every day of their visit, park in a designated area at the State Park, and use non-motorized forms of transportation on RCR 18 to reach Sarvis Creek Cabin. Alternative A (Proposed Action) – Direct and Indirect Effects Access to the Sarvis Creek Cabin during the summer and fall seasons, when RCR 18 is typically open would most likely occur by wheeled, motorized vehicles, and vehicles would be parked on the graveled parking area provided on the cabin grounds. When the road is closed and a minimum of 24” of snow exist on the road, access to the cabin would be limited to snowmobile or non-motorized forms of transportation from the point of road closure, approximately 1.75 miles north of the cabin, or via non-motorized access from the west, with purchase of daily passes from Stagecoach State Park.
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Because RCR 18 is under management by Routt County, the BLM cannot control the condition of the road and must adhere to county-imposed seasonal closures. The proposed cabin rental program would be likely to result in a small increase in wheel-to-ground motorized traffic as the recreating public uses the area. An increase in vehicles may result in more turnouts along the road, as the road is only wide enough for one vehicle. When two vehicles meet along the road, one must immediately find a wide enough spot and pull over or be forced to back up until a wide spot is located. These types of actions may increase damage to the road and roadside vegetation, and result in increased maintenance requirements. Appendix A, Figure 2, presents a table that considers a range of how many additional vehicles might be expected based on varying occupancy, length of stay, and number of rental periods over the course of the summer/fall and winter/spring seasons. It shows that the greatest number of additional vehicles using RCR 18 would be reached as a result of a larger number of shorter- period rentals. If the site were rented at maximum capacity (15 people), travelling in six vehicles, for two-day rentals on all but one day of the summer/fall season for 27 weeks, then 564 additional vehicles would be using the road as a result of rental of the Sarvis Creek Cabin over the course of the summer/fall season. Accounting for one trip in, and one trip out, RCR 18 would have an additional 1,128 trips per summer/fall season, or six vehicles per day. That would increase the Weekend ADT from 146 to 152, or an increase of approximately 4%. The Weekday ADT would increase from 96 to 102, or an increase of approximately 6%. It is unlikely that the cabin’s capacity would always be maximized during every rental period, and it is also unlikely that the cabin would be rented every day of the summer/fall season. The actual rental period is likely to vary, with some renters staying for up to seven days, therefore, the actual increase in traffic is likely to be less than that projected. Overall, additional traffic would be minimized if the cabin were used by smaller groups of people, travelling in fewer vehicles, and staying for longer periods of time. Winter parking at the point of road closure is limited and coincides with the turnaround provided for snow plowing operations. Guests staying overnight would risk having their vehicle(s) blocked in by plowed snow. If parked vehicles interfere with Routt County’s snow plowing operations, there could be risk of being ticketed, according to Routt County Road and Bridge Department. Appendix A, Figure 2 shows that if the cabin were rented at maximum occupancy (six people), travelling in three vehicles, for two-day rental periods for all but one day of the winter/fall season, then an additional 324 vehicles would be parked at the winter closure over the course of 25 weeks, and would result in three additional vehicles at one time parked at the winter closure every day. If each of those parked vehicles carried a snowmobile for access to the cabin, than an additional three snowmobiles per day would be accessing the area of the cabin. This impact is not known, since neither the existing level of snowmobile use, nor the ratio of renters who would access the cabin via snowmobiles vs. other forms of transportation is known. During the spring period of closure and during periods of insufficient snow depth, access to the Sarvis Creek Cabin would be limited to access by foot, horse, bicycle, and Class 1, 2, and 3 e- bikes.
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Alternative B (Summer/Fall Only Alternative) – Direct and Indirect Effects Direct and indirect effects of this alternative would be similar to those of the Proposed Action, except that the cabin would not be available for rental from the end of the last big game hunting season, typically late November or early December, until June 1. There would be no concern related to snowmobile use or winter parking issues.
Alternative C (No Action Alternative) – Direct and Indirect Effects Under the no action alternative, the cabin would not be available for public overnight rentals or overnight use. The site would still be available for casual public day uses, such as fishing, picnicking, and hiking. The site could be available for events such as weddings, or organized group use, as considered on a case-by-case basis and analyzed under a separate NEPA process. Cumulative Impacts The cumulative impact of an additional six vehicles per day using RCR 18 in the context of existing Weekday ADT of 96 and Weekend ADT of 146 or an increase of 6% and 4% respectively, would not be expected to have a significant effect on the amount or type of road maintenance undertaken by Routt County. The impact from an additional three snowmobiles per day is not known, since current level of snowmobile use in the area is not known, and the number of renters who would access the cabin via snowmobile vs. other types of transportation is also not known. Mitigation Measures and Residual Impacts Setting a minimum number of nights’ stay for rental of the cabin, such as three nights would reduce the likely number of additional vehicles using RCR 18 beyond existing use. Setting a smaller maximum capacity for the cabin, such as ten or 12 people per night, or identifying a maximum number of vehicles allowed at the cabin would reduce the likely number of additional vehicles using RCR 18 beyond existing use. 5.6 Recreation 5.3.2. How would the establishment of a fee-based cabin rental program affect visitor satisfaction related to recreational experiences? Affected Environment Observed recreational use of the Sarvis Creek parcel includes fishing, hunting, hiking, picnicking, camping, and wildlife viewing. The cabin property includes approximately 1,500 feet of the Upper Yampa River, and the adjacent BLM property to the north of the Sarvis Cabin parcel holds approximately 2,900 feet of river front access. Recreational visitors access BLM properties by parking motor vehicles along RCR 18 and continuing by foot along the riverbank to BLM, US Forest Service and State of Colorado parcels, and access by foot the cabin site via a gated two track route that spurs off RCR 18. Access to BLM parcels is also gained from the Sarvis Creek State Wildlife Area parking approximately ¼ mile to the south. Most of the recreational activity takes place during the times of the year when vehicle access is permitted,
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however, this section of river lies in the tailwaters of Stagecoach Reservoir and the waterway stays open during winter months, attracting fishermen year-round. Non-guided user information for this area has not been formally tracked. Steamboat Flyfisher and Bucking Rainbow are two permittees that actively guide on the Yampa River on the Sarvis Creek Cabin parcel and the adjacent BLM 200-acre parcel to the north of the Cabin. The permittees offer fly-fishing guiding services to approximately 175 combined annual clients. These fly-fishing guiding services take place year-round. Alternative A (Proposed Action) – Direct and Indirect Effects Under the Proposed Action alternative, allowing nightly rentals and its associated use may lead to increased recreational opportunities. Visitors to the area may view the opportunity to occupy the Sarvis Cabin as a benefit to their overall satisfaction level of an outdoor experience on public lands. Under the Proposed Action alternative, allowing nightly rentals and its associated use may also lead to an increase in activity and increased visitor numbers that occupy the Sarvis Cabin parcel and surrounding properties. This increased recreational user presence may lead to a lost sense of satisfaction by visitors of this area due to a loss of feeling of being away from crowded conditions compared to existing conditions. Also, the potential for user conflict due to additional visitors using a finite resource may lead to perceived and real conflict interactions between individuals. While any cabin rental use is does not indicate exclusive use of the grounds and river surrounding the cabin, a casual day user may perceive the use of the cabin grounds as an exclusive right of the renter, leading to the perceived loss of public access and availability of public property. Visitor satisfaction in the area may be impacted by the visual presence of parked vehicles in the designated parking area not previously present. Permittees’ clients may see an increase of non-guided fishermen on the river during guiding activities. This may lead to dissatisfaction in their experience, ultimately leading to possible loss of clients and therefore loss of income for the permittee. Permittees’ clients may also value the option of renting a nightly cabin adjacent to the site where their fishing will be guided. Alternative B (Summer/Fall Only Alternative) – Direct and Indirect Effects Direct and indirect effects of Alternative B would be like those of the Proposed Action; however, the cabin would not be available for rental from approximately November 30th until June 1. This alternative would disallow cabin use to winter users such as snowmobilers, cross country skiers, or snowshoers, leading to a lack of opportunity for these visitors. General day use activity during these dates would most likely go unchanged from current recreation trends.
Special Recreation Permit guided clients would not feel an increased non-guided user presence during this time period but may still feel an impact during the summer and fall months detailed in the Proposed Action. Additionally, guided clients would not be able to make use of the cabin during this time period.
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Alternative C (No Action Alternative) – Direct and Indirect Effects Under the No Action Alternative, the Sarvis Cabin would not be made available for nightly rentals. There would be no new recreational opportunities, so any benefits to visitors that would result from cabin rentals would not be realized. Apart from any normal increase in population and potentially increased visitation associated with the growing popularity of outdoor recreation activities, visitation numbers, guiding activities, and visitor/visitor interaction would be unchanged. Cumulative Impacts Across Colorado and Routt County there is an increased desire to enjoy year-round outdoor recreation opportunities. The proposed action would add quality to the outdoor recreation options for visitors to BLM-managed parcels and cater to a recreational activity niche not offered in the immediate area. The Proposed Action would add increased visitor use to the daily number of visitors, but cumulative impacts created by increased visitor numbers would be expected to climb initially with the added use but remain static over time unless maximum lodging occupancy is increased. Mitigation Measures and Residual Impacts To mitigate the effects of allowing nightly occupancy at the Sarvis Cabin, setting a smaller maximum capacity for the cabin, or identifying a maximum number of vehicles allowed at the cabin would likely reduce the likelihood of overcrowding at the Sarvis Cabin Site and subsequently the feeling of loss of overall recreational satisfaction by non-renters. Additionally, educating renters that the BLM property is open to recreation by other visitors, and that river access and all areas apart from the cabin and its immediate grounds are free to be used by casual recreational users could mitigate conflicts.
6. SUPPORTING INFORMATION
List of Preparers
Name Title Area of Responsibility Date Signed
Air Quality, Soil Resources, Surface and Ground Water Quality, Eric Scherff Hydrologist Floodplains, Hydrology, Prime and 1/13/2020 Unique Farmlands, Wetlands and Riparian Zones
Recreation and Visual Resources, Park Ranger, Project Lands with Wilderness Gary Keeling 02/03/2020 Lead Characteristics, Recreation, Scenic Byways
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Name Title Area of Responsibility Date Signed
Geology and Minerals; Jennifer Maiolo Mining Engineer 12/17/2019 Paleontology
Special Status Animal Species, Desa Ausmus Wildlife Biologist Migratory Birds, Aquatic and 3/2/2020 Terrestrial Wildlife
Rangeland Aimee Huff Special Status Plant Species 12/23/2019 Management Specialist
Rangeland Christina Rhyne Invasive, Non-Native Species 12/3/2019 Management Specialist
Cultural Resources, Native Brian Naze Archaeologist 2/24/2020 American Concerns
Forest Management, Forest and Raechel Owens Forester 01/23/2020 Woodland Products
Fire Management Michael St. Martin Fire Management 01/13/2020 Specialist
Environmental Justice, Social and Amy Stillings Economist 01/21/2020 Economic Conditions
Janell Corey Realty Specialist Realty Authorizations 12/17/2019
Rangeland Mark Lowrey Livestock Grazing 1/28/2020 Management Specialist
Planning & Public Access and Transportation, Maribeth Pecotte Environmental Hazardous or Solid Wastes, NEPA 3/17/2020 Coordinator Compliance
Tribes, Individuals, Organizations, or Agencies Consulted Tribal consultation for this project was initiated in October 2019, at the face-to-face meeting with representatives of the Northern Ute, Southern Ute, and Ute Mountain Ute tribes. A copy of the consultation package was also provided to the Eastern Shoshone tribe in Wyoming. To date, none of the tribes have raised any concerns related to the proposal. The BLM met with Routt County Public Works department on August 27, 2019 to discuss the proposal and received feedback related to road use and sanitation issues. The BLM inquired with John Anarella of the USFS, Yampa Ranger District regarding potential impacts to the Sarvis Creek Wilderness as a result of the Proposed Action.
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References U.S. Census Bureau, 2019a. Table PEPSR6H: Annual Estimates of the Resident Population by Sex, Race, and Hispanic Origin for the United States, States, and Counties: April 1, 2010 to July 1, 2018. Release date June 2019. U.S. Census Bureau, 2019b. 2018 Poverty and Median Household Income Estimates - Counties, States, and National. Small Area Income and Poverty Estimates Program. Release date December 2019.
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APPENDIX A. FIGURES Figure 1. Map of Sarvis Creek Cabin Location
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Figure 2. Table displaying number of potential vehicles using or parking along RCR 18 for access to the Sarvis Creek Cabin, based on varying occupancy, length of stay, and number of visits per year.
Occupancy Length # Total rental Percent of Total Vehicles of Vehicles periods season Stay rented Summer/Fall rental period - June 1 – Nov. 30 – maximum people at one time = 15 15 people 7 days 6 27 7-day stays 100% 162 vehicles x round-trip = 324 vehicles per summer/fall 15 3 6 54 3-day stays 86% 324 vehicles x round-trip = 648 vehicles per summer/fall 15 3 6 27 3-day stays 43% 162 vehicles x round-trip = 324 vehicles per summer/fall 15 2 6 81 2-day stays 86% 486 vehicles x round-trip = 927 vehicles per summer/fall 15 2 6 94 2-day stays 99% 564 vehicles x round-trip = 1128 vehicles per summer/fall
Winter/Spring rental period Dec. 1 to May 31 – maximum people at one time = 6 6 people 7 days 3 25 7-day stays 100% 75 vehicles parked at seasonal closure per winter/spring 6 3 3 50 3-day stays 86% 150 vehicles parked at seasonal closure per winter/spring 6 2 3 77 2-day stays 99% 231 vehicles parked at seasonal closure per winter/spring Source: BLM
Figure 3. Routt County Traffic Count Summary for RCR 18, October 2016 report
Source: Routt County Road and Bridge http://co.routt.co.us/DocumentCenter/View/5361/TrafficCountSummaryOct2016?bidId=
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APPENDIX B. SCOPING COMMENTS A draft Business Plan for fee-based rental of the Sarvis Creek Cabin was released for public comment on June 10, 2019. Fifteen comment letters were received. Many of those comments expressed support for the proposed cabin rental program, or had questions about the proposed fee rate, which is outside the scope of this EA (fees would be determined through a Business Plan, not through analysis in this EA), or questioned the legality of short-term rentals by the BLM in rural Routt County. The remaining substantive comments expressed concern about a variety of issues, of which a summary is included below. These substantive comments assisted the LSFO in developing issues and alternatives analyzed in this EA. 1. S. Cowman, Routt County Director of Environmental Health:
• For the long term we recommend installation of a 3-compartment sink, wash tubs, and a countertop with storage for pots/pans and other supplies. Along with a sink we recommend a drain to a greywater disposal system; such as a trench with washed rock and perforated pipe buried beneath the frost level or other similar system (schematics/diagram included). o Although it is illegal to dump any amount of greywater on the ground, I understand BLM may be exempt from those regulations and there might be financial limitations in the first few years. o Why is it illegal to dump greywater? It has the potential to harbor dangerous bacteria and viruses that can be harmful to human health. Microorganisms present in untreated greywater and potential buildup of phosphates from soap can cause damage to foliage. Also, if the cabin is busy greywater disposal on the ground could eventually get messy and attract pests. • From a food safety and sanitation standpoint we recommend at a minimum, providing as part of your supplies three plastic tubs, a strainer, biodegradable soap, and bleach along with cleaning and sanitizing instructions or signage (attachment included). • I hate to say it, but $90/night feels low. You might be better off charging more and being able to provide more services. You might also consider charging more on weekends. We were thinking$120-$150/night might still be viable. • Supplies: Checklist for arrival and departure, instructions for operations of stove and lights, refrigerator, cleaning requirements, trash disposal and general ethics (leaving chopped wood), matches, extra mantles for gas-powered lighting, towels (cloth or paper), a log book, cutting boards, pots and pans, utensils, sanitizing solution, shovel, broom and dustpan, mouse traps, coffee pot… • Consider developing a volunteer system for hut/cabin tenders o This way you might be able to have top sheets and a regular interval to replace them, make sure the place is clean and equipment is working properly, restock other supplies, shoveling, etc… • Secure fire pit/grate/ring – ideally with a patio or hardened area • Recommend folks come prepared with additional lighting • Would also like to see a deck (partially covered and screened)
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2. M. Hagenbuch Trust: The area where the Sarvis Creek Cabin is located is and has been governed by the Sarvis Creek Area Plan. Adopted by the Routt County Commissioners in 1996 and recently re-ratified in 2017, the plan clearly states policy goals that are important to our community and to which the Sarvis Creek Cabin Plan run contrary. As a result, our concerns include these, but are not limited to:
• Traffic and increased use of RCR 18, a road that has been designated by Routt County and the Sarvis Creek Area Plan as a low-volume, minimum maintenance road. The area where the cabin is located is remote, but is accessed by a public road. The proposed Sarvis Creek Cabin Business Plan will make the area more accessible to more people, and could increase the amount of traffic and noise exposure to our community. As a new commercial endeavor in the Sarvis Creek Area, the Sarvis Creek Cabin Plan spells out that this type of activity is NOT compatible. SARVIS CREEK AREA PLAN: “Recommendations Regarding Land Use: Policy #1: The desirable land uses for the Sarvis Creek management area are agriculture, wildlife, and public recreation on public lands or on private lands held by landowners willing to lease for public or private use.” Action #2: Restrict commercial development and activities that are not compatible, ie: motorized vehicles. Additionally, we are quite concerned about a concept referred to in the June 20th edition of the Steamboat Pilot: using funds from the nightly rental of the cabin to improve ‘nearby roads.’ We can only assume this means RCR 18. We have fought to keep RCR 18 primitive for several reasons, the number one reason being to keep people traveling SLOWLY through this area and make it safer for wildlife, cattle, moving and trailing livestock, hikers, bikers, fishermen, etc. To propose improving the road with these dollars goes against the desires of the area landowners, the community that uses the road for non- motorized travel, and is in direct contrast to the Sarvis Creek Area Plan, to which the BLM is a party.
• Snow, causing unusable motor vehicle access for much of the year, will increase the use of snowmobiles during winter in the area. Our property is bisected by RCR 18 and when the road is closed from January 1-April 1 yearly, all snowmobile traffic to the Stagecoach tailwater is via RCR 18 from Pleasant Valley and through our property. We are concerned that increased snowmobile traffic on RCR 18 for another use (the Sarvis Creek Cabin) will further diminish the wilderness values we appreciate of the area. Wildlife in the area is significantly impacted by snowmobile traffic currently, and further exacerbating the issue is not appropriate. SARVIS CREEK AREA PLAN:
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“Sarvis Creek Wilderness Area: Policy #1: The management of the Sarvis Creek Plan Area should be compatible with that of the Sarvis Creek Wilderness Area. Action #2: Commercial and recreational activities should not detract from the wilderness experience”
• In general, we are concerned that the Sarvis Creek Cabin Business Plan is a boiler-plate proposal that doesn’t take into account the unique aspects of this property when compared to other BLM properties in NW Colorado: a remote, montane location that includes river, is adjacent to wilderness, and for all of its remoteness, is all-too-accessible given its location off of a county road and just a short distance to a state park.
• We are concerned that there seems to be no acknowledgement by the BLM that this cabin lays squarely in the Sarvis Creek Area Plan and makes no reference or consideration to the guiding principles of that planning document. As we understand it, no Routt County officials, no local community, nor adjoining landowners were consulted or contacted before the Draft Plan was released to the public. A more-solid plan could have been put forth if this would have been done in advance.
• In closing, we’d like to make this clear: we don’t flat-out object to the idea of leasing the cabin to the public. We look forward to the second draft of the plan and will comment on what we hope are positive changes that better take into account the Sarvis Creek Area Plan and the context under which it was created. We hope, too, that we can continue being good neighbors and work through issues of interest to us both. 3. R. Lile: Thanks for the opportunity to comment on the proposal to begin nightly rentals of the Sarvis Creek Cabin. I frequently fish and hike in the Sarvis Creek Wilderness. It is a unique and valuable area and great care should be taken to prevent its degradation. I feel nightly rentals would not serve this purpose. The proposal for a firepit is very concerning and should be rejected out of hand due to fire risk. The cabin is an excellent venue for the occasional group function for conservation and youth groups and should be reserved for that purpose. 4. M. Mordi, Routt County Road and Bridge Department:
• The Sarvis Creek Cabin is accessed from County Road 18. Currently, a portion of CR 18 is a minimal maintenance road and any maintenance is guided by the Sarvis Creek Area Plan. The County will seasonally shut down the road to traffic to preserve the road surface. The BLM will need to plan on addressing the seasonal road closures for guests to the cabin that may need a vehicle to access the cabin. Guests be required to adhere to the seasonal closure of CR 18.
• In the winter the road to Sarvis Creek Cabin is closed and a berm of snow is plowed up in front of it to restrict traffic. Snowmobiles are allowed on the road for it is not maintained.
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However, the parking area in front of the gate also serves a turnaround for County plow equipment. The BLM will need to plan on addressing guests who may get plowed in if they are parking in this area during the winter when regular winter maintenance is occurring. The parking area is within the CR ROW so technically, guests can be ticketed for interfering with maintenance operations.
• It is proposed that the cabin will have a pit or vault toilet. These pits/vaults will need to be pumped to ensure proper function. This toilet maintenance will not occur in the winter months due to the road being blocked and no winter maintenance occurring on the road. In the fall and spring when the dirt portion of the road is most vulnerable, the pump truck will do damage to the road to pump out the toilets. The BLM will need to address how toilets and greywater sinks will drain and get maintained with the restrictions that get placed on the road. It is recommended that the BLM work with the Routt county Environmental Department to address this.
• The BLM will need to address the situation where a guest does not access the cabin via a high clearance vehicle and the road becomes impassable due to rain or snow overnight. Damages to the road from the guests getting out or a tow truck getting the guests out while the road is impassable will need to be addressed.
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