United States Department of Agriculture Summer Non-motorized

Forest Service Assessment:

April 2014 Jackson Ranger District

Bridger-Teton National Forest Jackson Ranger District Teton and Lincoln Counties, Wyoming

Executive Summary

Outdoor recreation is the primary way people connect with the National Forest and facilitate this access, providing multiple benefits. The Bridger-Teton National Forest receives approximately 2.2 million visits annually and non-motorized trails are the key facility used. Trails enhance people’s life providing connection with , social bonding, adventure and release. Trails are part of the nation’s wellness infrastructure, promoting physical and mental health. Trails also contribute to the economic vitality of communities supporting outfitter-guide services and are one of the key amenities that draw tourists as well as residents and businesses. To realize these benefits, trails need to be well-maintained and managed.

The Jackson Ranger District currently manages nearly 700 miles of summer trail, most of which provides access to backcountry experiences. This system of trails evolved over time, largely originating from game trails, and thus, was not designed with an eye towards in today’s world. To date, the District has not done a comprehensive assessment to examine how well the current system of trails is working and what changes are needed to better meet the desired spectrum of recreation opportunities, minimize resource and wildlife impacts, and create a system that can be maintained and managed. This assessment is intended to fill this need by providing guidance for a quality future trail system that offers access to diverse opportunities while also meeting the goals of resource, social and economic sustainability.

Why is this Assessment Needed on the Jackson District? Four factors create the need to take a holistic look at the trail system

1. Recreation use is increasing and public desires and expectations are changing: There is more demand for close-to- home, easily-accessed, day use opportunities and more desire for user-specific and higher quality trails; recreation is evolving due to new technology; there is increasing demand for quiet relaxing experiences as well as challenge and social experiences, Occupied Grizzly Bear Habitat and more desire for signing and area-specific information. (Purple area)

2. Wildlife disturbance: As bears and lions expand their territory and recreation use grows, there is concern about potential conflicts that could lead to injured people and pressure to re- locate animals. This same concern exists for moose, especially where sight distance is limited. General concern exists that expanding recreation will increase disturbance and cause wildlife to avoid or leave areas temporarily or permanently.

3. Proliferation of user-created trails: As recreation use grows, more user-created trails emerge. This is particularly true in day- use areas as well as near guest ranches. Some of these trails are becoming popular for a variety of uses, leading to interest in maintaining these trails and adding them to the Forest system. Trail Funding

4. Changing funding picture: Federal budgets are declining and are not expected to rebound (funds have declined 38% since 2009). The Forest deferred maintenance backlog is estimated to be in the millions. Current work relies on grants, partnerships, donations, and volunteers. Grants sources are uncertain into the future and volunteers are often only able to work in easily accessed, day use areas due to limited time availability.

Purpose and Goals of Assessment In response to the needs, this assessment strives to: 1. Create a system that provides improved trail quality for a spectrum of recreation opportunities by designing trails that are consistent with the primary type of use and experience for a particular area. 2. Proactively reduce wildlife disturbance by emphasizing primitive recreation in backcountry areas, avoiding recreation activity in sensitive habitats, incorporating trail design that reduce the potential for conflict, and promoting public education. 3. Protect wild areas by concentrating use in places where additional use can be more successfully managed rather than dispersing use across the landscape. 4. Improve trail sustainability to minimize resource impact and reduce long-term maintenance costs. 5. Provide a framework for the community to engage in all aspects of trail system stewardship.

To structure this assessment, the Jackson Ranger District was divided into nine geographic areas, each of which has unique character, uses, issues, and needs (see next page). The primary product is a set of guidelines for each area regarding the area’s recreation emphasis, the desired development level for trails and priority trail system needs. The guidelines tier to Forest Plan direction and were informed by public input, a focused design workshop, and resource specialist’s analysis. The assessment will be used to “screen” trail proposals and will guide future investment in the trail system (flowchart below). The following points place the role of this assessment into context.

 This assessment is a strategic framework; not a decision document. Site-specific analysis is still necessary to approve a specific trail project or remove a system trail.  With increasing use and evolving types of recreation use, change is inevitable. This assessment will guide where and how trail change occurs over time but will not stop change from happening.  We all desire access and the ability to enjoy the outdoors, yet all recreation use causes impact. Solutions need to focus on our common goals and clearly defined impacts rather than placing blame on any one type of recreation use  Not all areas have the same emphasis; quality trails for every use cannot all be accommodated in the same area.  The focus is on the non-motorized trail system. Motorized trail use is identified where it occurs but this use is covered by the 2009 North Zone Motor Vehicle Designated Route System decision and is not re-examined here.  The focus is on summer use. Winter use is not part of this assessment.  This effort is not about closing trails. However, where trails are largely gone or where significant resource or public safety problems occur and no practical option exists to correct the problem, the trail may be removed from the system and rehabilitated to prevent further damage.

Ten Trail System Tasks Maintaining and managing the trail system involves much more than clearing trees and digging tread….

1. Planning = Identifying actions to address trail needs Vs and use conflicts, conducting environmental analysis for projects, addressing non-system trails

2. Information = Getting accurate trail location data (GPS), producing trail maps, working with guide book authors, providing timely trail condition reports, maintaining website information

3. Access and facilities = Maintaining roads to access trailheads, providing parking and trailhead facilities, acquiring easements 4. Maintenance = Clearing downfall, re-establishing trail treads, maintaining and installing drainage, brushing, repairing bog holes or bridges, removing hazards 5. Re-construction = Re-establishing disappearing tread, re-locating sections of trail 6. Construction = Adding new trail connections, bridges 7. Rehabilitation = Closing and re-planting old trails

8. Signing = Producing and maintaining trailhead information and trail junction signing

9. Education / Use Management = Assisting visitors, emergency response, education about trail ethics, enforcement, responding to complaints and bear/lion concerns 10. Program administration = crew hiring and training and supervision, purchasing materials, recruiting and guiding volunteer groups, grant preparation and reporting, maintaining databases, reports, fundraising/budgeting, agency coordination

Trail System Priorities “Renewing body and spirit: Inspiring passion for the land” 1. Planning and implementation in the Greater Snow King area to address growing use and improve use management (reduce conflict between user groups and potential for wildlife disturbance/conflict) 2. Improve funding and capacity to maintain and manage the trail system including training and skill development with volunteers and partners 3. Improve information available to the public regarding trail opportunities, trail conditions, avoiding wildlife encounters, minimizing impacts, and use ethics to reduce conflict (i.e. “respect for the land and people”) 4. Address areas of concentrated non-system trails especially where resource concerns exist

Rank Area Priority Trail System Needs 1 Greater Snow King Planning Info and use mgmt. Rehabilitation 2 Teton Pass Access / facilities Info and use mgmt. Maintenance 3 Palisades WSA / Snake Range Maintenance Planning (non-system trails) 4 Gros Ventre Wilderness Maintenance Info – bears, wilderness Planning (non-system tr) 5 Wyoming Range / Willow Cr Signing Maintenance Planning (non-system tr) 6 Shadow Mtn / Ditch Creek Planning Bear information Use management 7 JH Mountain Resort Planning Information 8 Munger Mountain Maintenance Info and use mgmt. Weed treatment 9 Mount Leidy Highlands Maintenance Bear information

Shadow Mtn / Ditch Cr Manage for semi-primitive day use to provide opportunity for multiple uses with use separation through trail design. Primary use = horse, hike, some Mount Leidy Highlands motorized, limited bike use on Shadow, lower Ditch Manage for primitive non-wilderness backcountry experience that caters to horse Jackson Hole Mtn. Resort use and with some motorized Manage as high day use destination opportunity in the Gros Ventre corridor. area with accessible visitor services Primary use = horse, some motorized catering to diversity of activities and events for visitors, families, and locals. Primary use = bike, hike

Greater Snow King Area Manage for high day use with emphasis on promoting community stewardship, healthy lifestyles, and connection with Teton Pass nature. Primary use: = bike, hike, limited Manage for high day use with horse use emphasis on serving communities and visitors in Jackson Hole and Teton Valley. Primary use = hike, bike, limited horse use Gros Ventre Wilderness Manage to preserve wilderness character and for primitive wilderness experience that caters to and horse use with Munger Mountain emphasis on multi-day trips. Maintain some areas with no trails. Primary use = Manage as multi-shared-use area on horse, hike north-west side with remaining area managed for wildlife security. Primary use = bike, hike, motorcycle, limited horse use Palisades WSA / Snake Range Manage WSA to maintain existing wilderness character and for primitive experience that caters to hiking, horse use, and hunting. In non-WSA area, provide semi-primitive day use opportunity. Snake River trails managed for high use while protecting river values. Wyoming Range / Willow Cr Primary use = horse, hike Manage for day horse/hike use in front-country portion with emphasis on scenery and fishing. Manage for multi-day horse riding, backpacking, and hunting in backcountry portion. Primary use = horse, hike Area Guidance (Blue = primarily backcountry, wilderness; Yellow = primarily day use, front-country)

Gros Ventre Wilderness Mount Leidy Highlands Wyoming Range / Willow Creek Existing condition: About 200 miles of non- Existing condition: 35 miles of motorized Existing condition: About 75 miles of non- motorized trail. Soils in northern portion and 78 miles of non-motorized trail (not motorized trail but many not actively poor with landslides common. Wild rivers. actively maintained). CDNST. Historical maintained. Trails link to bigger system. Crucial calving and summer habitat for elk, trails. Soils poor, many landslides. Very high Many non-system trails. Wyoming NRT. Wild sheep. Bears expanding range southward. wildlife value, occupied grizzly bear habitat, rivers/fishing. Soils prone to muddiness. Area emphasis: Manage to preserve high potential for bear conflict Area emphasis: Manage for day horse/hike wilderness character and for primitive Area emphasis: Manage for primitive non- use in front-country portion with emphasis wilderness experience that caters to hiking wilderness backcountry experience that on scenery and fishing. Manage for multi- and horse use with emphasis on multi-day caters to horse use and hunting with some day horse riding, backpacking, and hunting trips. Maintain some areas with no trails. motorized opportunity in Gros Ventre in backcountry portion. Primary use = horse, Primary use = horse, hike corridor. Primary use = horse, some motorized hike (bike use not encouraged) Trails: Trails in 6C and 6D zones will be Trails: Non-motorized trails will remain Trails: Wyoming NRT and front-country managed as improved trails (Class 3) with primitive (Class 2) with clearing to allow trails will be managed as improved trails junction signing. Trails in 6B will generally be horse passage. Junction signing minimal. (Class 3). Backcountry trails will be primitive primitive (Class 2) while ensuring horse Low level Class 2 trails will be managed as (Class 2) requiring river-crossing and map- passage. Non-system trails will be closed undeveloped with no junction signing; reading skills. Low level Class 2 trails will be where needed to prevent resource damage outfitters can maintain for safe passage. managed as undeveloped with no junction or to maintain trailless areas. Information Motorized trails and CDNST will be managed signing; outfitters can maintain for safe will promote map-reading skills, wilderness, as improved trails (Class 3). Info on avoiding passage. and avoiding bear conflicts bear conflict will be critical

Palisades WSA / Snake Range Shadow Mtn. / Ditch Creek Munger Mountain Existing condition: About 130 miles of non- Existing condition: 14 miles of motorized Existing condition: About 20 miles of motorized trail (some not actively trail, many non-system trails. Ditch Cr has actively maintained motorized/non- maintained). Steep V-shaped canyons make poor soils, landslides. Occupied grizzly bear motorized trails with motorcycles limited to trails steep and brushy. Some wild rivers. habitat, conflict in Ditch Creek core summer season. Some non-system Area emphasis: Manage WSA to maintain Area emphasis: Manage for semi-primitive trails. Noxious weeds a problem. High existing wilderness character and for day use to provide opportunity for multiple quality habitat for elk calving, owls and primitive experience that caters to hiking, uses with use separation through trail songbirds; aspen expanse. horse use, and hunting. In non-WSA area, design. Horse, hike, some motorized, limited Area emphasis: Manage as multi-shared-use provide semi-primitive day use opportunity; bike use on Shadow, lower Ditch area on north-west side with remaining area Manage Snake River trails to handle high Trails: On Shadow, provide improved trails managed for wildlife security. Primary use = use. Primary use = horse, hike (Class 3) for motorized use and address non- bike, hike, motorcycle, limited horse use Trails: Maintain trails that provide primary system trails focused primarily on horse use Trails: Manage trails as Class 3 improved access as improved (Class 3). Other trails will with limited potential for bike use. In lower trails designed to handle multi-use. Do not remain primitive (Class 2) with some higher Ditch, address non-system trails to provide add trails and remove old trail to lookout. elevation trails undeveloped; tread improved hike/horse trails (with GTNP/ Keep Big Munger loop as advanced trail with indistinct making map-reading skills TSS).Upper Ditch Creek trails will remain challenging climbs. Promote shared use essential. Address non-system trails/rehab primitive (Class 2) with route-finding skills ethics and dog control to avoid wildlife old roads in front-country areas but don’t necessary. Info on avoiding bear conflicts conflicts. Treat weeds. promote bike use. will be critical in this area

Greater Snow King Area Teton Pass Jackson Hole Mountain Resort Existing condition: About 50 miles of non- Existing condition: About 50 miles of non- Existing condition: About 7 miles of non- motorized trail, limited vehicle use on roads. motorized trail with separated use design. motorized trails and larger network of low Heavy hike/bike/dog use – “town trails”. Heavy hike/bike use including DH bike trails. volume roads. Developed infrastructure Intensive management. Good soils. High Regional visitor destination. Rich history – with high degree of visitor services, potential for mountain lion conflict Old Pass Road. Intensive management. Very including lift-service. Recreation events Area emphasis: Manage for high day use good soils. Quality moose habitat. Grizzlies common. Very good soils. High potential for with emphasis on promoting community starting to occupy area; conflict potential. conflict with bears. stewardship, healthy lifestyles, and Area emphasis: Manage for high day use Area emphasis: Manage as high day use connection with nature. Primary use = bike, with emphasis on serving communities and destination area with accessible visitor hike, limited horse use. visitors in Jackson Hole and Teton Valley. services catering to diversity of activities Trails: Update existing plans to design Primary use = hike, bike, limited horse use and events for visitors, families, and locals. system that offers variety of Class 3 loops Trails: No new trails in WSA and no overall Primary use = bike, hike near town focused on hike/bike with some net gain in trail/road mileage. Trails are Trails: Work with resort to add trails separation of use. Focus access to trail improved (Class 3) with user-specific design approved in master plan. Manage trails to system through Snow King Resort portals consistent with separated use designation. high standard providing diversity of with resort offering concentrated use and Focus effort on maintenance, trail repair, opportunities for hiking, running, downhill services. Don’t develop more trails on back and use management (ethics) with frequent bike trails and XC bike trails as well as side of Snow King and seek opportunities to information and field presence. Encourage recreation events. Provide active on-site enhance wildlife security. Limited horse learning, particularly about ethics, avoiding signing, information and presence. trails provide Wilderness access. Focus wildlife conflicts and history. Rehab old Encourage interpretive and learning attention on trail ethics, dog control, roads and manage camping associated with opportunities focusing on sustainable restoration, and avoiding conflicts with trail use. Address parking and trailhead recreation and avoiding wildlife conflict. lions. Provide active patrol presence, needs at Phillips Bench and Phillips Canyon. signing, and regular information updates.

Definitions: System trails: “Those trails that have been determined necessary for the protection, administration and use of National Forest System land.” System trails are numbered National Forest trails that have been included in the Forest transportation system and are eligible to receive maintenance funds. Such trails have often received some level of design and construction effort. Trail Class – “The prescribed scale of development for a trail, representing its intended design and management standards”.

Trail Classes Class 2(low) - Undeveloped Class 2 - Primitive Class 3 - Improved Tread intermittent Tread continuous but narrow, rough Tread continuous and obvious Constructed features non-existent Constructed features limited Constructed features common Obstacles common, often substantial Obstacles may be common, brushy Obstacles may occur but veg cleared Minimal signing and route marking Signing limited to junctions Signing at junction and as needed

Thank You

To Friends of Pathways for crucial assistance to initiate this effort in September 2011

To all the organizations, individuals, businesses, agencies, and elected representatives who contributed their time and constructive input to shape this assessment.

Forest Service Core Team Dale Deiter Tim Farris Linda Merigliano Kerry Murphy