Project Background

Sly Park Recreation Area Master Plan

1.01.0 PROJECT BACKGROUND

Manage operation and maintenance practices 1.1 PURPOSE and costs, The Sly Park Recreation Area (SPRA) is located Mitigate and reduce user conflicts, in the central part of El Dorado County 17 miles east of Placerville and 4 miles south of Pollock Ensure public safety, Pines. SPRA provides diverse recreation Protect cultural and historical resources, opportunities for the surrounding region, including camping, hiking, biking, swimming, Protect and enhance natural resources, fishing, horseback riding, boating and related Work within environmental constraints, and water sports, and access to historical sites. The 1,660-acre SPRA site encompasses Jenkinson Respect private property rights. Lake, which is formed by Sly Park Dam. At The process for developing this Master Plan was 3,600 feet in elevation, Jenkinson Lake is one of designed to concurrently address these objectives the closest and most accessible mountain lakes to while engaging the public, building consensus the Sacramento metropolitan area. among the diverse park visitor groups, and The previous SPRA master planning effort was integrating environmental considerations as completed in 1976 when the park was still owned described under CEQA. by the U.S. Bureau of Reclamation (EARP, 1976). The 2003 transfer of ownership from the 1.2 PROJECT ISSUES U.S. Bureau of Reclamation to the El Dorado A number of issues related to management and Irrigation District (EID) created the impetus for operations of Sly Park Recreation Area were the current Master Plan effort. This Master Plan identified prior to and during preparation of this will provide EID with guidance for developing, Master Plan. These issues, which have helped to redeveloping, maintaining, and managing the define the focus and scope of the planning effort, recreation facility for the next 20 years. An are summarized below. associated Environmental Impact Report (EIR) has been prepared to meet the requirements of the Environmental Impacts California Environmental Quality Act (CEQA). SPRA provides a popular array of outdoor An important function of this Master Plan is to recreation opportunities and attracts visitors from provide a vision which balances multiple local as well as regional markets. Use of the park recreation and resource values that are sometimes tends to be heavily focused on the summer in conflict. These include: season, especially on weekends. Visitors to the park come primarily for the experience of Preserve water quality, recreating in the beautiful natural surroundings, Enhance opportunities for quality recreation, but their continued use of the park over time has resulted in degradation of these resources. While Generate revenue and work within fiscal staff has worked very hard to manage visitation in constraints, a way that prevents negative impacts to the park’s resources, financial constraints have seriously

1.0 PROJECT BACKGROUND 13 Sly Park Recreation Area Admin Draft Master Plan limited the number of staff available for this Lakeside Uses purpose. These impacts include damage to Jenkinson Lake is the focal point of the Sly Park vegetation in and around campgrounds, soil Recreation Area and the overall recreation compaction, and erosion on steep slopes experience. Boating, fishing, swimming, hiking, especially adjacent to creeks and along the picnicking, play, and relaxation on the lakeshore lakeshore. These adverse impacts are problematic are activities that draw large numbers of users to not only because they reduce the scenic quality of the lake. As a result, there is a need for better the park, but also because they have the potential access management, including trail renovation, to threaten the high quality of water in Jenkinson reorganized lakeside picnic and day use areas, Lake if left unmanaged. appropriate access to the shore, and methods for Operations and Management reducing shoreline erosion. The level of staffing at SPRA has not kept pace Marina Operations with user demand for recreation services due to a A significant latent demand for access to lack of financial resources. As a result, facility Jenkinson Lake for boating was identified before maintenance has been deferred and the overall this Master Plan process was started. Although no quality of the park is suffering. Personnel are not Marina expansion has been proposed, a grant always available to provide the level of visitor from the California Department of Boating & management and oversight that is needed to Waterways has been conditionally approved to assure a safe and enjoyable recreation experience. partially fund construction of a new boat trailer In spite of this situation, park staff is extremely parking facility to provide additional parking and dedicated to keeping the park clean and running improved circulation at the Marina. as smoothly as possible with limited resources, and their efforts are much appreciated by visitors. Another limitation on motorized boating on the lake is the need to manage noise levels to prevent The demand for park resources is high during the disturbance of area residents and other park summer months, but the park fee revenues visitors. Park staff has suggested that expanding generated during this period have not been rentals of non-motorized boats, kayaks, and other adequate to fund additional staff and facility water flotation devices could provide additional maintenance, much less new facility revenue and more access to the lake without development. A phased approach to any facility increasing the noise levels. If such rentals are to improvements will be necessary in order to keep be provided, storage and possibly parking will park fees as low as possible while still have to be developed at the Marina and/or the accomplishing required work. Some capital Stonebraker boat rental area. improvements can be funded by grants, but operational and maintenance costs for such Day Use improvements are typically not covered by grants. The primary day use attractions are the lake and Grants may also require matching funds. The related activities, hiking, biking, and equestrian future of SPRA is dependent on EID’s ability to trails. Day users are generally from the local secure significant additional funding through a region and many visit the park on a somewhat variety of reliable and recurring sources. regular basis. Some of these people tend to regard SPRA as the equivalent of a local neighborhood park since it is the recreational facility they live

1.0 PROJECT BACKGROUND 14 Sly Park Recreation Area Admin Draft Master Plan closest to and use most frequently. Any proposed Part of the success of camping at SPRA has modifications to park facilities or operations must historically been attributed to the variety of be sensitive to and preserve the interests of local campgrounds provided throughout park as well as residents. For this reason, the Master Plan public the quality of campsites. Maintaining campsite outreach process emphasized local participation quality and possibly expanding the range of and actively sought local residents’ comments on camping options were identified as important proposed changes or modifications to the day use concerns for the Master Plan to address. Issues areas (as well as all park facilities.) related to the various types of camping options are described below. The lack of adequate and properly designated day use area parking is another critical issue. This Individual Campsites situation causes safety and environmental Over time, many of the individual campsite concerns, as visitors sometimes park vehicles in boundaries have become undefined. This lack of places that create potential traffic hazards or spatial definition reduces the sense of privacy, damage vegetation. can contribute to user conflicts, and can result in Camping expanded areas of compacted soils and trampled or destroyed vegetation. Needed improvements Campers who visit SPRA are from both the local include redefining circulation patterns, defining area and the greater Central Valley and Bay Area campsites using natural, on-site materials, and region, and represent a diversity of age groups, developing a restoration/revegetation approach cultural backgrounds, and recreation preferences. for areas where erosion from overuse is While this user diversity is a strong indicator of occurring. the attractiveness of SPRA camping options to a broad market, it also presents many management Group Campsites and planning challenges. These include the need Group campsites are in high demand for annual for adequate staff to oversee campground family and friends gatherings, as well as special operations, manage user conflicts, and preserve events. They provide a regular income for SPRA campground and environmental quality. Major operations. However, group campers also tend to issues identified prior to the start of this Master contribute significantly to noise levels, resulting Plan were the inability of staff, at current staffing in complaints from and conflicts with other levels, to adequately manage campground use; campers. seasonal demand that routinely exceeds the park’s campground capacity; and concerns about the The physical impacts of group camping are resultant degradation of the quality of the greater on a site due to a greater density of users camping experience. Preserving SPRA’s natural within a limited space. Solutions to group site character, which has proven to be such a issues are similar to those for individual successful draw for its many repeat visitors, was campsites: identify ways to more clearly define also identified as a concern. The Master Plan thus sites, and make adjustments to parking, focuses on how best to make the necessary circulation, and location of site furnishings to changes in park facilities without diminishing the reduce the opportunity for impacts. Resources are scenic quality of the natural surroundings and also needed to help with monitoring campground enjoyment of the camping experience. activities, distribution of educational materials, and communicating behavior expectations to groups at check-in.

1.0 PROJECT BACKGROUND 15 Sly Park Recreation Area Admin Draft Master Plan

Convenience Camping Units Special Focus Camp Facilities Alternatives to tent and RV camping such as The Sugarloaf Fine Arts Camp is proposed as a cabins (solid or tent) and/or yurts are collectively stand-alone music and arts camp facility to referred to as convenience camping units. While primarily serve children. Campers would stay for demand for tent camping at SPRA is high in the a two-week interval over as much as 90 percent May to September period, weather conditions of the year. While at the camp, the children could during the remainder of the year make tent participate in a variety of outdoor activities. It is camping difficult. Even in May and September, proposed that these facilities include tent cabins, night temperatures can discourage tent campers, a cookhouse, and a music area. The Master Plan and snow and icy road conditions in the winter for SPRA includes consideration of the Sugarloaf months can make RV access difficult. Fine Arts Camp and its relationship to other park uses, and the potential for alternative uses when During the non-peak months of October through the camp is not in operation. April there is still much to recommend SPRA as a recreation destination. However, expanded use Girl Scout and Boy Scout Camps during this period has long been a challenge for SPRA is an important resource for local and the park. One way to address this problem is to regional Girl Scout and Boy Scout troops. Scout provide convenience camping units as an Hill and the area known as Flash Mountain are alternative to tent and RV camping. These might used for scout camping trips and day camps. also be well-received during summer months by However, the existing facilities in these areas are aging “baby boomers,” families with small very limited. The Scouts would like to see children, or disabled campers. Capital costs for improvements to the park that would support a developing these facilities would presumably higher level of use and expanded programming, have to be recouped from subsequent fees. Before such as showers, restrooms, group dining areas, making a major investment in this approach, and a campfire circle/amphitheater. These types limited pilot projects are needed to test market of improvements would also increase the demand and provide a benchmark for opportunities for and capacity of SPRA to attract maintenance costs. other youth or adult groups. However, there are Sites for Large Recreation Vehicles significant operations and maintenance issues (RVs) related to providing services for these types of groups. The Master Plan considers the costs and There is universal recognition among recreation benefits of developing such facilities, and the providers of the growing demand for sites that potential for user participation in site restoration can accommodate large RVs. With only a very and enhancement projects. small number of pull- through RV sites available at SPRA, the Master Plan identifies and evaluates New Trail Staging Area and alternatives such as reconfiguring existing sites to Day Use Parking Lot accommodate RVs, limiting the size and location of RVs, and the provision of hookups based on The California Department of Parks & Recreation physical impacts, impacts to adjacent campsites, conditionally awarded a grant in 2003 for the and the economic benefits associated with RV construction of a new day use parking lot at camping. Bumpy Meadows to provide a safe parking and trailhead location for hikers and bicyclists. When

1.0 PROJECT BACKGROUND 16 Sly Park Recreation Area Admin Draft Master Plan this project is completed, it is hoped that parking Historic Properties Management along Mormon Emigrant Trail, which creates a Plan traffic hazard, will be eliminated or substantially In order to satisfy the requirements of the reduced. The amenities to be added to this area Memorandum of Understanding (MOU) for the include restroom facilities, interpretive and trail transfer of SPRA to EID’s ownership, it was signage, and day use picnic facilities. determined that a Historic Properties Trail Network Management Plan (HPMP) should be prepared. The HPMP specifies how historic properties are The existing multiuse trail system is the non- to be managed at SPRA. It indicates how and vehicular circulation backbone that links the when various tasks are to be carried out, entire SPRA together. The main including continued use and maintenance of pedestrian/bicycle trail is separate from the historic properties; protection and preservation of equestrian trail in most areas, but user conflicts historic properties that may be affected by between hikers, horses, and bikers are not shoreline erosion, water conveyance breaches, uncommon. other ground-disturbing activities, looting, and There are also two designated nature trails, the vandalism; consideration and adoption of Miwok Nature Trail and the Liberty Nature Trail, alternatives that would avoid significant effects that provide interpretive opportunities for visitors. on historic properties; consideration and These trails are limited to pedestrian use only. implementation of appropriate treatment; consultation with the State Historic Preservation The alignment of trails and user traffic are Office (SHPO) and Tribes; treatment and contributing to erosion and impacts to vegetation disposition of human remains of Native American in some areas, in particular on steep slopes, creek origin and associated grave goods that may be crossings, and along the lakeshore. There are also discovered; discovery of previously unknown “volunteer” trails that have developed over time properties during project operations; and in places where visitors seek access but no advisability and usefulness of any public designated trail is available. Many of these trails interpretation of historic properties. are not properly aligned for accessibility or to minimize erosion or impacts to vegetation. This Forest Management Plan Master Plan examines opportunities to realign, A Forest Management Plan (FMP) was also add, or eliminate trails, and to maximize prepared as a component of the Master Plan. The interpretation. FMP addresses non-timber related objectives Museum/Visitor Center such as recreation, wildlife, and cultural resources, and provides suggestions for SPRA and the greater Pollock Pines area are rich commercial timber management and fire in natural history and historical and cultural management consistent with these objectives. resources. The possibility of locating a visitor center and/or museum within SPRA was 1.3 PLAN COORDINATION considered during this planning process. This Sly Park Recreation Area Master Plan provides EID with guidance for park operations, maintenance, and management for the next 20 years in a manner that preserves water quality in

1.0 PROJECT BACKGROUND 17 Sly Park Recreation Area Admin Draft Master Plan

Jenkinson Lake and protects the park’s natural SPRA site is located at approximately 3,600 feet and cultural resources. The Master Plan also above mean sea level. It is located within addresses projected costs, funding sources, and Township 10 North, Range 13 East, Sections 3, 8, phasing of plan implementation. 9, Mount Diablo Base & Meridian within the USGS 7.5-minute Sly Park Quadrangle. The The Master Plan, which includes the Forest project is approximately 60 miles east of Management Plan, is one of three documents Sacramento and approximately 50 miles west of intended to collectively guide future recreation South Lake Tahoe, and can be accessed from U.S. facility development and environmental Highway 50 via Sly Park Road. protection and restoration of the park. The other documents are: 1.5 SLY PARK RECREATION The Historic Properties Management Plan to AREA HISTORY guide long-term protection and enhancement Sly Park Reservoir (Jenkinson Lake) was of the park’s valuable natural resources; and constructed as a unit of the U. S. Bureau of The Master Environmental Impact Report Reclamation's vast Central Valley Project (MEIR) to assess the potential environmental authorized by Public Law 356, and enacted by impact of proposed park development and Congress in 1949. Construction of the reservoir use, and to provide recommendations to was completed in 1955, and responsibility for its mitigate these potential impacts according to the California Environmental Quality Act operation and maintenance was transferred to (CEQA). EID under a contractual agreement between the U.S. Bureau of Reclamation and EID. The Together, the Master Plan, Historic Properties reservoir was constructed primarily to supply Management Plan, and Master Environmental water for irrigation and domestic, municipal, and Impact Report provide a comprehensive approach industrial purposes. to future planning decisions and long-term management of Sly Park Recreation Area. Originally, management of the recreation resource was undertaken by the County of El While recommendations in the Master Plan are Dorado, but in 1969 EID assumed responsibility conceptual in nature, they are described in for operations and maintenance of SPRA under a sufficient detail to assess environmental impacts lease agreement. In 2003, ownership of SPRA and costs. It is expected that more specific was transferred to EID by the U.S. Bureau of designs will be developed and refined for each Reclamation, along with other Sly Park Unit proposed park use as part of the phased properties. implementation. If subsequent modifications to project design result in inconsistencies with the 1.6 PREVIOUS PLANNING project as described in the Master EIR, additional environmental analysis may be needed to meet In accordance with U.S. Bureau of Reclamation CEQA requirements. policy, a General Recreation Development Plan was prepared for Sly Park Reservoir in 1969 and 1.4 LOCATION updated in 1976. Even in 1976, it was noted that the reservoir had been a popular recreation area Sly Park Recreation Area is located near Pollock for 20 years due to its excellent water quality and Pines in central El Dorado County, California diversity of recreation opportunities, including (Figure 1-1). The approximately 1,660-acre

1.0 PROJECT BACKGROUND 18 Sly Park Recreation Area Admin Draft Master Plan camping, hiking, swimming, boating, fishing, and Consideration be given to the development of water skiing. Recreation use was consistently an equestrian facility to provide park users high, frequently attaining maximum levels during with an alternative to water-oriented the summer months, primarily on weekends. activities. Between 1962 and 1974, annual attendance Interpretive programs be established increased from 68,000 to 130,796 (EARP, 1976). including self-guided nature trails and a visitor center. Development within Sly Park has been and will continue to be limited by the small size of the Several small shower and washroom facilities lake and the limited amount of moderately flat be developed and located to serve the various camping areas (as opposed to one large unit). land surrounding the lake. The 1976 General Recreation Development Plan indicated that size Existing programs for the redistribution of and slope limitations coupled with highly erosive camping facilities, soil and moisture soils would be a constraint to extensive additional conservation be continued. development of camping areas and access roads. Because of the high erosion potential of the soils In the 1976 plan, the U.S. Bureau of Reclamation found at Sly Park, specific measures were taken determined that previous plans proposed a level to reduce soil erosion and compaction. At that of development considered to be excessively high time, EID had been participating with the U.S. and beyond the optimum capacity of the area. As Bureau of Reclamation in a soil and moisture a result, a policy was established to guide conservation program. This program consisted of development and operations stating that spreading wood chips in camping areas and “high recreation facilities at Sly Park Reservoir should wear” foot traffic areas, stabilization of all road be developed (and redeveloped) in a manner that cuts and active erosion areas, construction of satisfied user demands while preserving the adequate ditching and culverts on all roads to natural environment and protecting existing handle storm runoff, providing paved parking resources. areas for vehicle parking, the redesign of camping Objectives in the 1976 plan were developed to areas to reduce the concentration of sites and soil serve as a "yardstick" to evaluate future compaction, and managing access to established development and operations planning trails with signs and barricades. It was alternatives. Objectives included: recommended that these programs continue as ongoing management practices to preserve soil Additional developments be designed and integrity. However, many of these practices were located to minimize additional water surface suspended before current staff took over park use demand. management, and staff resources have not been Improvements to the existing access and adequate to fully resume them. interior traffic circulation systems be made to improve safety and reduce soil erosion and compaction. Additional development be directed toward facilities that would reduce overcrowding or competition for use of existing facilities. Development along the south shore be held to a minimum to preserve its scenic value.

1.0 PROJECT BACKGROUND 19 Sly Park Recreation Area Admin Draft Master Plan

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1.0 PROJECT BACKGROUND 20 PROJECT SITE

POLLOCK PINES 50

DETAIL AREA

EL DORADO 5 COUNTY

USGS 7.5 Min. Sly Park, Riverton, Pollock Pines & Stump Spring Quad Township 10N, Range 13E, Section 8,9,10,16,17 & 18

preparation of the Master Plan including four 1.7 THE MASTER PLAN public workshops and a participatory design PROCESS session or charette.

The Master Plan process comprised a number of Two sets of workshops were held in both Pollock discrete tasks each of which produced critical Pines and Shingle Springs to maximize the information about SPRA and established the opportunity for public participation. The first two framework for successive refinement of plan meetings involved a presentation to the audience ideas and direction. The major tasks included: of the overall project including the purpose, tasks, Review existing information and schedule. The audience was then invited to prioritize the reasons they visit the park to gauge Establish planning boundaries the quality of the experience they were looking Develop goals and objectives for. The latter two meetings focused on plan goals and objectives and solicited further input from the Conduct facility opportunities and constraints public on issues and opportunities they wanted to assessment see addressed in the Master Plan. Conduct public workshops and design Additionally, stakeholder interviews and ‘charette’ numerous meetings with EID staff were held Prepare Historic Properties Management Plan during preparation of the Master Plan. The Master Plan was available for public review and Prepare Forest Management Plan comment concurrently with the Draft MEIR. The Prepare Market & Economic Analysis Master Plan and MEIR included recommendations gathered throughout the public Conduct aerial photogrammetry & topographical mapping. review process and were presented to the EID Board of Directors for final approval. Once the major elements of the Master Plan began to coalesce, analysis for the Master EIR was started. This process ensured that opportunities to reduce environmental impacts through thoughtful design were identified early during the planning process, and made it possible for the two documents to proceed concurrently through the Administrative and Draft releases.

1.8 PUBLIC PARTICIPATION The successful development, redevelopment, maintenance, and management of SPRA facilities depends heavily on how well the Master Plan reflects the needs and values of the local communities and user groups. The public has had numerous opportunities to participate in a creative and interactive process during

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1.0 PROJECT BACKGROUND 23