United States Department of Environmental Agriculture
Forest Assessment Service
May 2012 Cabin Creek Road 207 Realignment and Reconstruction
Sawtooth National Recreation Area Sawtooth National Forest Blaine County, Idaho
T 7 N, R 14 E, Section 17 and 20, B.M.
Cabin Creek Road 207, May, 2007 For Information Contact: Mark Moulton Sawtooth National Recreation Area 5 North Fork Canyon Road Ketchum, ID 83340 (208) 727-5000 http://www.fs.fed.us/r4/sawtooth USDA FOREST SERVICE MISSION STATEMENT
The mission of the USDA Forest Service is to sustain the health, diversity, and productivity of the Nation’s forests and grasslands to meet the needs of present and future generations. The U.S. Department of Agriculture (USDA) prohibits discrimination in all its programs and activities on the basis of race, color, national origin, age, disability, and where applicable, sex, marital status, familial status, parental status, religion, sexual orientation, genetic information, political beliefs, reprisal, or because all or part of an individual’s income is derived from any public assistance program. (Not all prohibited bases apply to all programs.) Persons with disabilities who require alternative means for communication of program information (Braille, large print, audiotape, etc.) should contact USDA's TARGET Center at (202) 720-2600 (voice and TDD).
To file a complaint of discrimination, write to USDA, Director, Office of Civil Rights, 1400 Independence Avenue, S.W., Washington, D.C. 20250-9410, or call (800) 795- 3272 (voice) or (202) 720-6382 (TDD). USDA is an equal opportunity provider and employer. Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction Table of Contents
Abbreviations and Acronyms ...... ii CHAPTER 1 – Introduction ...... 1 Background ...... 1 Purpose and Need for Action ...... 2 Proposed Action ...... 4 Decision Framework ...... 4 Management Framework ...... 4 Public Involvement ...... 5 Issues ...... 6 Chapter 2 – Alternatives ...... 6 Actions Common to All Alternatives ...... 6 Alternative 1 – No Action ...... 7 Elements Common to Action Alternatives ...... 7 Alternative 2: New Road – Proposed Action ...... 8 Alternative 3: No New Road ...... 13 Construction, Planning, Design, and Monitoring Features ...... 13 Alternatives Eliminated from Detailed Study ...... 16 Implementation ...... 16 Comparison of Alternatives ...... 18 CHAPTER 3 – Affected Environment and Environmental Consequences ...... 19 Overview of Affected Area ...... 19 Issue: Stream/Fisheries ...... 19 Issue: Road Use ...... 32 Issue: Visitor Experience (Recreation) ...... 35 Issue: Unauthorized Routes ...... 50 Other Resources ...... 54 Consultation and Coordination ...... 70 References ...... 71 Appendix A – Response to Review EA Comments ...... A-1 Appendix B – Substantive Changes Between Review Version And Final ...... B-1 Abbreviations and Acronyms ESA Endangered Species Act NEPA National Environmental Policy Act NFS National Forest System NFSR National Forest System Road NRA National Recreation Area MIS Management Indicator Species MPC Management Prescription Category PL Public Law RCA Riparian Conservation Area ROS Recreation Opportunity Spectrum SOPA Schedule of Proposed Actions TEPC Threatened, Endangered, Protected and Candidate (species) TES Threatened, Endangered, and Sensitive (species)
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Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
CHAPTER 1 – INTRODUCTION
The Sawtooth National Recreation Area proposes to realign a ¾ mile segment of the Cabin Creek Road 70207 (Road 207) from a lengthy crossing of the extensive wetland associated with lower Cabin Creek, north and west of Alturas and Perkins Lakes. The new route would align entirely within dry uplands except at a single crossing of Alturas Lake Creek over a new bridge. We are also considering an alternative to the proposed action that would close and remove this same segment of Road 207 that passes through the wetland, but construct no realignment. Instead, continued access to the current destinations served would rely on the existing connection with Highway 75 at the opposite end of Road 207 (Figure 2). We have prepared this Environmental Assessment in compliance with the National Environmental Policy Act (NEPA) and other relevant Federal and State laws and regulations. This Environmental Assessment discloses the direct, indirect, and cumulative environmental impacts that would result from the proposed action, as well as from the alternative to the proposed action. Additional documentation, including more detailed analyses of project area resources, may be found in the project file located at the Sawtooth National Recreation Area, Ketchum, Idaho. Background ______The extensive wetland complex north and west of Alturas and Perkins Lakes is fed primarily by Cabin Creek, and is situated on its low, wide, alluvial fan. Road 207 was constructed in the late 1950s and passes through ½ mile of this wetland, climbing nearly parallel with the drainage slope of the alluvial fan (Figure 3). Meanwhile Cabin Creek, in this highly complex alluvial fan/wetland setting, spreads in several channels and side channels and attempts to cross Road 207 in multiple locations. However, the roads position on the topography forces a large portion of water (particularly at high flows) to run parallel to the road against the fill slopes until it reaches a cross culvert or overtops the road (cover photo). This causes routine, chronic, and extensive scour to the roadway and sedimentation to Cabin Creek and Alturas Lake. In addition, the culverts serving this condition are undersized, both individually and collectively, to handle the typical snowmelt, and all have been identified as possible barriers to fish passage. Both Cabin Creek and Alturas Lake are designated critical habitat for fish currently protected under the Endangered Species Act. The need for major repairs (and investment) to this segment of road has also been routine (most recently in 2008), but the fundamental challenges with this complex condition persist with little improvement. Annually, both during and after the snowmelt period, the road and water situation can present intimidating hazards for road users (Photo 2). In some seasons the conditions have deteriorated to a point that closure of the route has been required for a period. There are also other closely related situations in the area, including additional authorized and unauthorized roads (Figure 3), and a non motorized winter recreation area (Figure 5).
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Figure 1: Location Map Figure 2: Vicinity Map
Purpose and Need for Action ______The purpose of the proposed Cabin Creek Road 70207 Realignment and Reconstruction project is to address the unsustainable and damaging location of the existing road alignment where it passes through the broad wetland habitats north and west of Alturas and Perkins Lakes (Photo 3). There is a need to address these chronic resource and infrastructure impacts while providing continued safe access to the destinations served by the route. This need has been recognized for some years, and maintenance efforts have attempted, unsuccessfully, to address the situation. The more comprehensive need was considered and action recommended within an analysis of the transportation network within the area in 2006 (Sawtooth NRA 2006). Action is necessary now to resolve these chronic conditions, as well as address both general and specific goals and objectives outlined in the Sawtooth National Forest Land and Resource Management Plan, as amended (Forest Plan, USFS 2003), and help move the Management Area toward the desired conditions described within the Plan.
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Photo 1: Cabin Creek Road, May, 2003 Photo 2: Cabin Creek Road damage, July, 2008
Photo 3: Proposed new bridge site at Alturas Lake Creek
Photo 4: Cabin Creek fan, wetland, and road Photo 5: Job Creek Road removal, October, 2007
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Proposed Action ______Under the proposed action, a new route would be established to the east of Perkins Lake connecting Road 207 with Road 205 (Alturas Lake Road) via a new bridge over Alturas Lake Creek near the existing crossing of the electrical power line (Figure 4). The route would consist of approximately 0.6 miles of new road construction, and 0.5 miles of reconstruction/upgrade to Road 442. With these changes, the existing segment (0.7 miles) of Road 207 between its junctions with the Alturas Road 205 and the Road 438 (Cabin Creek Camp) would be removed. Cabin Creek, as well as the wetland and upland habitats the roadway formerly occupied, would be restored to natural conditions. The existing buried phone lines would also be relocated to follow this new alignment. This fundamental change would also necessitate the reconfiguration, extension, or closure and rehabilitation of short segments of road associated with the existing connecting routes in the area. Finally, the proposed action would also designate and adopt approximately 2.3 miles of currently unauthorized routes in the area into the managed travel system. A detailed description of the proposed action is provided in Section 2.2. Decision Framework ______We have prepared this document to describe the purpose and need for the action and to discuss and disclose the details of the proposed action, including the potential effects. Given the purpose and need, the deciding official will review this assessment, and the project record, in order to make the following decisions: • Whether the proposed activities would accomplish the Sawtooth National Forest Land and Resource Management Plan, as amended (USDA Forest Service 2003) objectives and meet the purpose and need for the project. • Whether the proposed activities comply with Public Law 92 400. • Whether or not to approve implementation of the proposed action, or an alternative to the proposed action. • If implementation of an action is approved, what operating standards, design features, and monitoring activities should take place before, during, and after the activities occur. The deciding official will also decide if further analysis in an Environmental Impact Statement will be required. Management Framework ______The Sawtooth National Recreation Area (Sawtooth NRA) was created in 1972 from National Forest System lands, and remains the largest NRA in the National Forest System. Enabling legislation (Public Law 92 400 1972) states the special designation is given “ to assure the preservation and protection of the natural, scenic, historic, pastoral, and fish and wildlife values and to provide for the enhancement of the recreation values associated therewith. ” These are key values to be considered for all Sawtooth NRA management activities. The Sawtooth Forest Plan serves as the guiding direction for on the ground project planning and implementation. In addition to Forest wide standards and guidelines, the Sawtooth Forest
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Plan also provides specific management direction within local management areas, as well as specific to the Sawtooth NRA which provides the land allocation and resource decisions for management directed by PL 92 400. The proposed project falls within an area designated by the Sawtooth Forest Plan as Management Area 2, Upper Salmon River Valley . Within Management Area 2, the project falls under a specific management prescription of: Active Restoration and Maintenance of Aquatic, Terrestrial and Hydrologic Resources . The objective of this prescription is to actively restore or maintain conditions for fish, wildlife, and botanical resources, through a combination of management activities and natural processes. The proposed project has been designed to achieve the goals and objectives described in the Forest Plan. The resource analysis in Chapter 3 reviews the proposed action against specific Forest Plan direction. Public Involvement ______The proposed project has been continually listed in the quarterly Sawtooth National Forest Schedule of Proposed Actions (SOPA) since October, 2010. The SOPA provides the public a list of proposals that are undergoing environmental analysis. The SOPA is posted on the world wide web ( http://www.fs.fed.us/sopa/forest level.php?110414 ).
In December, 2010, sixty one information letters were mailed to individuals, organizations, agencies, and area landowners and permittees, describing the action under consideration, and requesting comments. Feedback from staff and the public (25 individuals or organizations) was received and is included in the project record. Specific dialogs with groups or individuals occurred through the summer of 2011 as opportunities occurred. For example, we were invited to present the proposal and answer questions at the Valley View Summer Home Owners Association at their annual meeting in July. The feedback received from all these efforts was reviewed and considered by the interdisciplinary team and the deciding officer. As a result, the proposed action was further refined and clarified, alternatives to the proposed action were considered, and issues for the analysis were identified. The Review Environmental Assessment was distributed for a 30 day Notice of Proposed Action period on January 10, 2012 with notification published in the local newspaper, The Challis Messenger . Copies of the EA were mailed to those individuals who had provided initial comments a year earlier, and a notification letter of the Review EA’s availability were mailed to 55 other individuals, organizations, agencies, and area landowners and permittees with possible interest in the project. The document was also posted available on the Sawtooth National Forest website. The notification letter highlighted the developments in the action and analysis since initially introduced in 2010. Twenty three individual responses were received. Some were similar to feedback received during the initial comment period, however many provided perspectives regarding the additional alternative (Alternative 3) considered in the Review EA. Many comments recognized and echoed the potential effects from the various alternatives already included within the Review EA. Some provided expanded perspectives on the issues or effects contained within the analysis. The feedback received was reviewed and considered by the interdisciplinary team and the deciding officer. No comment raised perspectives or considerations that required fundamental reconsideration,
5 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction revision, or expansion of the analysis contained within the Review EA, although minor corrections and revisions for clarity were made. The synthesis and disposition of the comments received is contained within Appendix A. Issues ______Through review of the internal and external feedback received regarding the proposal, key issues considered central to the analysis were identified.
• Stream/Fisheries : Relocating the existing Road 207 alignment as proposed may result in impacts to Alturas Lake Creek. o measure : Number of road stream crossing structures affecting Cabin Creek and Alturas Lake Creek. • Road Use : Changes to the existing alignment may alter the current road use patterns and travel convenience within the Alturas area. o measure : Time required to travel to and from common destinations currently served by the route. • Visitor Experience : Changes to the existing alignment may alter winter recreation opportunities and experiences within the Alturas area. o measure : Relative probability and frequency of illegal motorized incursions into the existing Alturas Lake Nordic Ski Area. • Unauthorized Routes : Recreation use in the Alturas area relies, in part, on existing, but unauthorized, vehicle routes. By adopting such routes into the managed system, and thus to be shown and recognized on travel maps, visitor uses along such routes could change. o measure : Miles of unauthorized routes serving managed dispersed recreation and camping. o measure : Changes to the summer recreation experience. Feedback to the initial proposal also identified other considerations that helped refine the action and frame the analysis, though not specifically issues. Also, based on the feedback received, it was determined that, beyond the resources associated with the key issues, public disclosure of the potential effects to other Forest uses and resources, such as botanical and wildlife, was also important. As such, they have been analyzed in detail in specialist reports within the project record, and are summarized here in Chapter 3 under Other Resources .
CHAPTER 2 – ALTERNATIVES Actions Common to All Alternatives ______The Visual Quality Objectives (VQOs) within the vicinity of the project area would be corrected through a non significant amendment of the Forest Plan. Project level ‘truthing’ occurs to ensure that VQO mapping, completed at a Forest scale, is accurate for the site. A site specific review of the current VQOs in the area identified a need to change two areas within the project from either Retention or Partial Retention to Modification , thereby bringing the project area into compliance with Forest wide direction regarding the scenic
6 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction environment. The analysis for this update is discussed in Chapter 3, Visual Resources. The decision to implement this amendment would be made by the Sawtooth National Forest Supervisor, following a determination of significance regarding the proposed change. The VQO change would be issued as a separate decision from all other proposed project elements. Alternative 1 – No Action ______Under the No Action alternative, current conditions would remain. Current management plans and existing authorities would continue to guide management of the subject roadways. Specifically, the alignment of Road 207 would remain unchanged, including its passage through the wetland complex north and west of Alturas and Perkins Lakes and its crossings of Cabin Creek. Figure 3 depicts the current configuration of the existing infrastructure. The condition and maintenance challenges present within this segment would continue to be addressed on a case by case basis by the Sawtooth National Forest as funding and priorities allow. None of the existing, but unauthorized, routes in the area would be adopted into the managed travel system. No change would occur to the existing Midvale Telephone Exchange phone line buried within Road 70207. As such, the No Action Alternative would not address the purpose and need of action. Elements Common to Action Alternatives ______Both action alternatives fundamentally address the purpose and need with the removal of Road 207 through the wetland north and west of Alturas and Perkins Lakes. Specifically, both alternatives would remove the existing segment (0.6 miles) of Road 207 between its junctions with Road 205 (Alturas Lake) and the Road 438 (Cabin Creek Camp). At the same time Cabin Creek, as well as the wetland and upland habitats it formerly occupied, would be restored to natural conditions. These restoration objectives would utilize the same methods proven at several similar projects in recent years. Utilizing heavy equipment, the existing fill that currently elevates the roadway above the wetland would be removed entirely and either utilized for construction purposes elsewhere, or returned to an existing active or abandoned materials source site (see Photo 5). The underlying former wetland soils would then be conditioned and native plants re established. These restoration activities would occur during the late summer or fall when site conditions would be expected to be at their driest. The current winter use special order for the area would be revised slightly to reflect these changed landscape features to read such as: Alturas Lake Ski Area is described as the area bounded by the Southern edge of Forest Road 207 at Township 7 North, Range 14 East, SW ¼ Section 4 (approximately 800 feet west of the junction of Highway 75 and Forest Road 207), then southeasterly (parallel to Highway 75) approximately 1 ¼ miles to the groomed Alturas Lake Cross Country Ski Trail at Township 7 North, Range 14 East, SE ¼ Section 9, then southwesterly approximately 3/10 mile to Forest Road 205 (Alturas Lake Road) at benchmark 7049, then continuing southwesterly along Forest Road 205 approximately 2 miles, then northwesterly along Forest Road 205 approximately ½ mile to the intersection of Forest Road 205 with the Section 19/20 section line, then northerly to the southern terminus of Forest Road 207 approximately ½ mile, then northeasterly along Forest Road 207 two miles , then easterly along Forest Road 207 approximately ¾ mile back to the point of beginning.
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Though the Sawtooth NRA is the lead agency for the action, as necessary to achieve project objectives, the action alternatives also include the authorization and issuance of any permits by the US Army Corp of Engineers or the Environmental Protection Agency as required under Section 404 of the Clean Water Act, or Section 10 of the River and Harbor Act of 1899. Alternative 2: New Road – Proposed Action ______The proposed action would directly address the purpose and need by providing a safe new travel way for road users that avoids the complex wetland north and west of Alturas and Perkins Lakes. Natural processes would return to these important and sensitive habitats, and fish passage would be assured. The proposed action would also designate and adopt several short existing road segments into the managed travel system. Figure 4 depicts the elements described for Alternative 2.
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Figure 3: Current Conditions (Alternative 1), as well as the overhead power lines within the Project Area
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Figure 4: Alternative 2 (Proposed Action), as well as the existing riparian conservation areas within the Project Area
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Figure 5: Alternative 3, as well as the non-motorized Alturas Nordic Ski Area within the Project Area
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With the removal of the wetland segment of the current Road 207 alignment (see Elements Common to Both Action Alternatives ), a new route would be establish to the east of Perkins Lake connecting Road 207 with Road 205 (Alturas Lake Road) via a new bridge over Alturas Lake Creek . The route would consist of approximately 0.6 miles of new construction, and 0.5 miles of reconstruction/upgrade to Road 442. The new bridge over Alturas lake Creek would be located near the existing crossing of the electrical power line, ¼ mile northwest of Camp Perkins (Photo 3). The new roadway would be constructed and managed to the same development level as the existing segment of Road 205 (i.e. maintenance level 3 1) with a corresponding width and gravel surface. The new route would pass over gentle topography, through almost exclusively upland sagebrush openings. As such, very few trees would likely need to be removed for the new alignment, and these would be available for use in restoration objectives. Construction of the new alignment would occur during summer or fall once site conditions have dried. The new bridge would be single lane, with abutments outside the active bankfull channel, though a single pier may be placed within the channel. The location of the pier would be located and designed to minimize the influence to in channel conditions. For example, conditions at the specific site considered for the bridge span may present an opportunity, through design, to locate the mid span pier outside the thalweg (typical low flow channel) on a grassy protrusion that extends into the channel, as can be seen in Photo 3. The construction of the new bridge would occur during the late summer or fall when stream flows would be low and site conditions at their driest. The removal of the wetland segment of Road 207 would necessitate the relocation of the existing Midvale Telephone Exchange phone line, currently buried within the roadway. The replacement line would follow and be buried within the new alignment, attaching to the new bridge for the crossing of Alturas Lake Creek (Figure 4). Segments providing the current connection to the Cabin Creek Camp would remain. The proposed action would also anticipate and accommodate safe connections for existing authorized roadways (Cabin Creek Trailhead, Cabin Creek Organization Camp, Camp Perkins) to the new road alignment. This could require short segments of road reconfiguration, extension, or closure and rehabilitation associated with the existing routes. Similarly, roughly 0.5 miles of Road 440 would also be closed and rehabilitated since it would otherwise provide redundant access to that of the new alignment on the north side of Alturas Lake Creek. The proposed action would also designate and adopt approximately 2.3 miles of currently unauthorized routes in the area into the managed travel system. These routes were determined to serve management purposes when considered in the 2006 Alturas to Yellowbelly Roads Analysis , and were recommended for inclusion. Finally, no change to the geographic bounds of the existing winter use designations would result (see Elements Common to Both Action Alternatives ).
1 An operational maintenance level 3 road is identified as a road that is opened and maintained for travel by a prudent driver in a standard passenger car. User comfort and convenience are not considered priorities. Roads in this maintenance level are typically low speed, single lane with turnouts and spot surfacing. (Forest Service Handbook 7709.58, Chap. 10).
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Alternative 3: No New Road ______Alternative 3 would include most aspects of the proposed action, except that the new road alignment and bridge would not be constructed. That is, the same 0.6 mile segment of Road 207 at Cabin Creek would be closed, removed, and wetlands restored (see Elements Common to Both Action Alternatives ), but access to the destinations to the north of the closure would occur via Road 207 from its opposite end junction with Highway 75, 2½ miles northeast of the project area (Figure 2). As such, the alternative would address the purpose and need by maintaining access to the existing uses in the area while avoiding the complex wetland north and west of Alturas and Perkins Lakes. Under Alternative 3, no new routes would be constructed, and Road 440 would not be closed or rehabilitated, since the access it provides would still be required. The alternative would designate and adopt the same approximately 2.3 miles of currently unauthorized routes in the area into the managed travel system, as recommended in the 2006 Alturas to Yellowbelly Roads Analysis . Figure 5 depicts the elements described here for Alternative 3. No change to the geographic bounds of the existing winter use designations would result (see Elements Common to Both Action Alternatives ). The removal of the wetland segment of Road 207 would necessitate the relocation of the existing Midvale Telephone Exchange phone line, currently buried within the roadway. The replacement line would follow, and be buried, within the existing alignment of Road 440, then within the existing route (to be adopted) leading southwest to the existing power line crossing. Here the phone line would be suspended over Alturas Lake Creek from the existing Salmon River Electric Cooperative power poles. On the south side it would resume an underground alignment within the existing Road 442. Segments providing the current connection to the Cabin Creek Camp would remain. Construction, Planning, Design, and Monitoring Features ______Both action alternatives include elements that would result in impacts to ecological and social conditions. The following considerations and practices are intended to reduce or minimize the potential impacts, or the risk of such.
Alt2 Alt3 Feature General: The construction and/or restoration objectives of the action will be implemented under the direction and oversight of managers experienced with such treatments. Photo points will x x characterize pre-project conditions, and follow-up monitoring (typically in years 1 and 5) will assess the success of the project in achieving the objectives. The existing alignment would remain open until the new route and bridge are complete and x open for travel. To minimize the potential for introducing hazardous material to the aquatic system, a spill x prevention and control countermeasures plan will be prepared by the construction contractor and approved by the USFS prior to project implementation.
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Alt2 Alt3 Feature Construction and Staging: Excess fill removed from the former roadway, when closed and rehabilitated, would be returned x x to the original source pits (T7N, R14E, Sec 8, NWNE) or to existing gravel pits such as the Champion Pit (T8N, R14E, Sec 21, NW½). Staging will be not be located within RCAs, or within topographic lows where water may x x concentrate during snowmelt periods. Source material for the new alignment would come from existing gravel sources such as those within the Champion Creek (T8N, R14E, Sec 21, NW½) or Elk Creek (T11N, R13E, Sec 9, SE½) pits. x Prior to use, the source area(s) pits on National Forest would be inspected for noxious weeds. If found, infestations would be avoided or treated, per then currently approved Forest policies and practices, prior to use. In-stream and Riparian Provisions: If needed, water drafting sites will be pre-identified through coordination with an aquatics x specialist to avoid spawning and key rearing areas. All drafting equipment and operations will meet screening criteria of openings ≤ 3/32” with approach velocities < 0.40 feet per second. Where new construction occurs within RCAs, existing vegetation will be protected to the extent x possible, and disturbed areas promptly rehabilitated. Where road construction, reconstruction or obliteration occurs within RCAs, or in areas where x x water may concentrate during snowmelt periods, standard sediment and pollutant prevention and retention practices would be utilized (e.g. silt fence, wattles). When actions are conducted instream or on streamside areas during potential spawning periods, fish avoidance surveys will be conducted over a minimum of 600 feet downstream and x x 400 feet upstream to confirm the absence of any spawning activity and/or redds. If redds of ESA protected salmonids are identified, the appropriate agencies would be contacted to determine if or how the project may proceed. Fuel storage would occur only within staging areas, and refueling will not occur within Riparian x x Conservation Areas (e.g. 150 feet from Cabin or Alturas Lake Creeks). Engine and hydraulic fluids will be monitored for leaks. All equipment used for instream rehabilitation work will be cleaned of external oil, grease, dirt x x and mud, and leaks repaired, before entering streams or areas that drain directly to streams or wetlands. Spill packs will also be on hand for minor leaks/spills. If a crane is used, and on-site refueling is required within the RCA, a permanent fuel x containment basin, capable of 110% of the crane’s fuel capacity, would be established around the crane. Should pumping be required to vacate groundwater inflow from the abutment excavations, the pumped outflow will occur at sufficient distance, or with sufficient methods, to assure flows are x clear and free of sediments should they reach the creek. Pumps will reside within a containment with at least 110% fuel capacity (e.g. tub or lined depression), as far from the creek as is practical . When paving the travel surface for the new bridge, methods will be utilized to prevent asphalt x or road oils from entry into water or wetlands. No side casting shall take place during brooming operations. No concrete pours will occur in-water. Should concrete pours be required within RCAs, methods will be utilized to assure no uncured concrete enters water or wetlands. Discharge of uncured x excess concrete, and the washing of tools and equipment, will occur only within staging areas where there is no potential for effluent to reach surface waters.
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Alt2 Alt3 Feature Construction timing will anticipate constructing the instream pier during the late season when x it would be expected to be outside of the flowing low-water channel. Bridge construction would be began and completed within the same season, likely within 4-6 weeks with diligent focus. Should the climatic conditions of a particular year result in minimal flows still occupying the intended bridge pier site in late season, the work area will be coffered and de-watered. Coffers x will not be constructed of native materials (e.g. stream gravels), but rather of engineered elements. Vegetation and Wildlife Habitat Provisions: An agency botanist will review the site and identify specific conditions to be noted, addressed, x x or avoided during or prior to implementation (e.g. noxious weeds, TES plant populations). If an agency botanist determines such actions are warranted, noxious weeds within and/or x x adjacent to the project sites will be avoided or treated for eradication prior to implementation. For 2 -3 growing seasons following implementation, areas disturbed would be monitored for x x noxious weeds. All noxious weeds would be treated for eradication. When needed, noxious weed treatments will be by hand, or via Agency approved chemicals, practices, limitations, and terms existing at the time of intended use. As such, no use of x x herbicides will occur without prerequisite consideration of the potential effects to TES species, and/or Section 7 consultation, either as tiered to a programmatic analysis, or project specific analysis. All heavy equipment used will be high pressure washed to remove all visible plant parts, dirt, x x and material that may carry noxious weed seeds, and/or invasive life forms, prior to entry into the project area. The same equipment will be cleaned again prior to leaving, if warranted. Materials used for sediment retention, restoration, rehabilitation, and stabilization (e.g. sediment barriers) will be certified weed-free and comply with the 1996 “Weed Free Hay Order” x x (IDAPA 02.06.31) and the Final Supplementary Rules Requiring the Use of Certified Noxious- Weed-Free Forage and Straw (Federal Register Volume 76, Number 140, 8/21/2011). Where live conifer trees are utilized for project restoration objectives, they will generally be x x between 7 and 12 inches diameter. Likewise, standing trees with cavities or with raptor or raven nests will not be used. Activities that require removal of vegetation will not occur until after August 15 and before x x December 1, and monitoring will precede any activities that may crush vegetation during the breeding season of ground nesting birds. Scenic and Recreation Provisions: Lodgepole pine that have encroached into the natural meadow opening on the west side of Road 207, near its crossing of Cabin Creek, would be removed and utilized within the x x restoration efforts in order to establish a sufficient and clear opening for snowmobiles to pass (± ½ acre). Signs may also be posted as necessary to clearly redirect motorized users from the Ski Area closure. The Ski Area closure boundary, in the vicinity of the closed and rehabilitated former Road 207, would be posted Closed , as necessary, along the west margin of the rehabilitated roadway to x x strengthen visitor understanding of the boundary location, and regular patrols of this area would be conducted, as funding is available. Ensure that design details for the bridge include complimentary form/line/color/texture relative to the characteristic landscape to as great an extent as is practical. Although the proposed site x is located within a setting amply screened by existing vegetation, a low profile (i.e. ‘thin’) design is preferred due to potential views from adjacent travel routes.
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Alternatives Eliminated from Detailed Study ______Some feedback received provided recommendations that would have us consider retaining the problematic Road 207 segment in place, with additional management or physical treatments. These potential alternatives included: Reconstruct the road in place ; Implement a seasonal closure , and; Close to vehicles but leave the roadway for trail use. As described within Background , it is the unsuitable and unsustainable presence and configuration of the roadway within this complex meadow setting that constitutes the need for the action. The multiple channels of the Cabin Creek alluvial fan feed an extensive wetland. Road 207 currently passes through this setting, climbing nearing parallel to the slope of the fan. The roads position on the topography forces a large portion of water (particularly at high flows) to run parallel to the road against the fill slopes until it reaches a cross culvert or overtops the road (cover photo). This results in road and resource impacts annually. Temporary closures have been required in some years when the route is unsafe for use. Extensive maintenance needs have been routine on this segment, and several attempts to improve the condition have been attempted over the decades, including increasing the size of the cross culverts, ditch enlargement, and further elevating the roadway with additional fill. That is reconstruction and even seasonal closures have been attempted on several occasions in the past. These have proved incapable of addressing most of the fundamental maintenance challenges, or in diminishing the inherent resource impacts. Closing the route to vehicles, but leaving the roadway for trail use, would retain all the maintenance challenges and expense, but with diminished utility of the roadway. As such, these various options for the existing route are essentially ongoing currently, and considered within the No Action Alternative (Alternative 1). Nevertheless, in response to the desire for north↔south trail access to Alturas Lake similar to that currently provided by Road 207, other options were explored for such a route. However, no feasible options were identified. The extensive wetland/meadow extends east↔west from the outlet of Perkins Lake to just west of Luther Heights Bible Camp. To avoid this broad wetland complex, a trail would either need to extend to, and pass around, the east and south sides of Perkins Lake (as essentially proposed with the new road alignment in Alternative 2) or pass directly through the Luther Heights Bible Camp. The Camp occupies the narrow strip of dry topography between the wet meadow and the steep mountainside. An elevated boardwalk was also considered unsuitable due to the known challenges and costs of maintaining such extensive facilities within wetlands, and the impacts to other resources such as winter recreation use, wildlife, and scenery that would result. Implementation ______If either action alternative were approved, activities would not begin any earlier than the fall of 2012. With the engineering and design requirements of the proposed action, implementation of Alternative 2 would likely not begin until at least 2013. Table 1 describes a possible implementation sequence for the action alternatives, dependent on funding and other considerations.
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Table 1: Implementation Sequence
YEA ALTERNATIVE 2 ALTERNATIVE 3 R Construct new alignment; Relocate phone line to the alternative Construct new bridge; route; 1 Relocate phone line to the new roadway; Remove and rehabilitate closed segment Close and rehabilitate former Road 440 of Road 207 Remove and rehabilitate closed segment 2 ~ of Road 207
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Comparison of Alternatives ______Table 2 provides a summary of the effects of implementing each alternative relative to the issues and measures identified. Chapter 3 contains further description and discussion of these conclusions, as well as additional contrasts of the potential effects to other resources and uses. Table 2: Comparison of Alternatives.
Alternative 1 (No Action) Alternative 2 Alternative 3
Issue: Stream/fisheries
Measure: Number of road stream 5 culverts 1 culverts 1 culvert crossing structures affecting Cabin 1 foot bridge 1 foot bridge 1 foot bridge Creek and Alturas Lake Creek. 1 vehicle bridge 2 vehicle bridges 1 vehicle bridge Issue: Road use Measure : Time required to travel by vechile between common destinations currently served by the route. Jct Road 438 / Road 207 (Cabin Creek Org Camp) to existing jct of 1.0 minutes 4.2 minutes 11.7 minutes Road 207 and Alturas Road 205. Jct Road 318 / 207 (Valley View Rec Residences) to existing jct 4.5 minutes 6.8 minutes 8.4 minutes Road 207 and Alturas Road 205.
Issue: Visitor Experience
Multiple motorized incursions Summer use of the new occur within the ski area alignment of Road 207 and closure each winter. bridge may increase the Without the construction of Violations occur when likelihood that snowmobilers the new alignment of Road snowmobilers enter the ski would also use the route in Measure : Relative probability and 207 or bridge, additional area to shortcut travel, or play winter – crossing the closed frequency of illegal motorized violations to the motorized in the large open and ski area and impacting skier incursions into the existing Alturas closure beyond those untracked areas. These experiences. Increased Lake Nordic Ski Area. currently occurring incursions disturb non- violations of motorized use in (Alternative 1) would not be motorized users who desire to the ski area would likely lead expected. escape the noise, smell, to more conflict between non- speed and tracks of motorized and motorized snowmobiles. users.
Issue: Unauthorized routes
Measure : Miles of unauthorized routes serving managed dispersed 2.3 miles none none recreation and camping. Existing experiences would Use on these routes may be expected to continue Same as Alternative 2, increase slightly as a result of unless, at some future time, except that the potential them being adopted into the policy directs strict increase on routes north of managed system and shown Measure : Changes to the summer enforcement of travel Alturas Lake Creek could be on visitor and travel maps. recreation experience. regulations within the project offset by a possible This could potentially displace area, which would preclude reduction in use resulting some current users of the access to many exsiting from less convenient dispersed campsites and day summer dispersed recreation access. uses destinations along them. sites.
18 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
CHAPTER 3 – AFFECTED ENVIRONMENT AND ENVIRONMENTAL CONSEQUENCES
This chapter summarizes the existing environment of the affected project area and discloses the potential effects of implementing the alternatives presented in Chapter 2. The analysis that follows primarily considers effects in relation to the key issues identified in Chapter 1, but also the effects to the key values intrinsic to the purpose of the Sawtooth NRA. Typically, within each topic, the conditions of the particular resource that may be affected (i.e. affected environment) is described first, including relevant Forest Plan direction, followed by consideration of the potential effects to the particular resource. To avoid redundancy, some analysis builds on that which precedes it. As such, the analysis is intended to be considered in its entirety for a full understanding of the potential effects. Within each topic, the No Action alternative is described first, providing a baseline for evaluation and comparison of the Action alternatives that follow. The analysis presented is a summary of the specialist report findings. The project record contains the reports in full, as well as a “substantial impairment review” which provides specific consideration of compliance with PL 92 400. Overview of Affected Area ______The project area is located immediately north of Perkins Lake and the outlet end of Alturas Lake as shown in Figure 3, containing approximately 1,300 acres. The prominent landscape features are primarily the result of past glaciation (Borgert et al 1999). Alturas and Perkins Lakes reside behind terminal moraines within a glacial trough. Alturas Lake is important to the lifecycle of several native fish species, including populations of sockeye and Chinook salmon, steelhead, and bull trout. Likewise, inlets to the lake provide key habitats to these species. Vegetation and structure in the area are diverse, consisting predominantly of lodgepole with natural dry openings of sagebrush, grasses, and forbs, and wet meadows of shrubs and grasses. Riparian habitats exist along the streams and lakeshores within the project area. The Alturas Lake recreation complex is primarily accessed via State Highway 75 and the main, paved, Alturas Lake Road 205. Access is also possible from Highway 75 via the Cabin Creek Road 207. Vehicle, pedestrian, and bicycle traffic occurs along the roads and trails throughout the summer months. Facilities in the complex include trails and trailheads, three developed campgrounds, three picnic/day use areas, four organization camps, and a boat ramp. The nearest community to the project area is Sawtooth City, Idaho, located about 3 miles to the west. Issue: STREAM/FISHERIES ______The stated purpose of the proposed Cabin Creek Road 70207 Realignment and Reconstruction project is to address the unsustainable and damaging location of the existing alignment where it passes through the broad network of channels of Cabin Creek and
19 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction associated wetlands. As such, the reversal of chronic impacts to fish, stream, and riparian resources is fundamental to the proposed action. Nevertheless, stream physical and biological conditions can be altered and diminished by the presence of manmade infrastructure, as well as through heightened and concentrated use facilitated by the improved access. The proposed action would remove crossings from Cabin Creek and construct a new bridge over Alturas Lake Creek. With these potential actions, an issue with respect to the proposed action has been identified: Relocating the existing Road 207 alignment, as proposed, may result in impacts to Alturas Lake Creek. The potential effects are considered both qualitatively and quantitatively and reflected within the summary measure: Number of road stream crossing structures affecting Cabin Creek and Alturas Lake Creek. In addition, the effects water quality, riparian conservation areas (RCAs), and TES fish species were analyzed and the results are also summarized in this section. For the bulk of this analysis, the principle affected waters include Cabin Creek from its emergence onto the alluvial fan (adjacent to the Cabin Creek Organization Camp) southeast through the extensive network of channels and wetlands to Alturas and Perkins Lakes. It also includes Alturas Lake Creek from its outlet from Perkins Lake downstream roughly ¼ mile. Sawtooth Forest Plan Applicable Direction The Forest Plan specifically identifies the Alturas and Cabin Creek watersheds as priorities for active restoration of aquatic, terrestrial, and hydrologic resources 2. In addition to this clear restoration emphasis, many other goals, objectives and standards for riparian, water, and fish resources from the Forest Plan apply. Of these, the following Management Area 2 direction is particularly applicable:
Number Management Direction Description
Road construction or reconstruction may only occur where needed: a) To provide access related to reserved or outstanding rights, or, b) To respond to 0230 statute or treaty, or, c) To support aquatic, terrestrial, and watershed restoration activities, or, d) To address immediate response situations where, if the action is not taken, unacceptable impacts to hydrologic, aquatic, riparian or terrestrial resources, or health and safety, would result.
Remove human-caused migration barriers and resolve instream flow and habitat quality conflicts, primarily related to the numerous irrigation diversions to assist in the restoration of depressed populations and degraded fish habitat for listed species. Work 0243 cooperatively, or assert existing fee title interest, with landowners to help achieve this objective on private lands. Priorities are in the Beaver Creek, Fourth of July Creek, Champion, and Iron-Goat subwatersheds.
2 Management Prescription Category 3.2 – Active Restoration and Maintenance of Aquatic, Terrestrial, and Hydrologic Resources; a high priority within the Forest Plan Aquatic Conservation Strategy (ACS); and a high priority for the Watershed and Aquatic Recovery Strategy (WARS), with an emphasis on active restoration actions. The ACS (of which WARS is an element) provides direction to restore and maintain characteristics of healthy, functioning watersheds, riparian areas, and associated fish habitats. In essence, this strategy integrates many of the goals and objectives of both the Endangered Species Act and the Clean Water Act.
20 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
Number Management Direction Description
Modify localized portions of roads and trails within Salmon River headwaters, Frenchman Creek, Pole Creek, Fisher Creek, Alturas Lake Creek, Boundary Creek, Nip 0249 and Tuck Creek, Iron Creek, and Fourth of July Creek drainages to reduce accelerated contributions to instream sediment, eliminate impairments to proper floodplain function, and restore water quality and geomorphic integrity.
Provide riparian woody and hydric vegetation composition, age class structure, and pattern, that restores or maintains stream bank stability, low width/depth channel 0250 ratios, and provides for a properly functioning condition along the main stem Salmon River, Valley Creek and significant tributaries.
Within the Sawtooth Valley sub-populations, maintain the strong local populations of bull trout within Alturas Lake Creek, Yellowbelly Lake Creek, and Fishhook Creek. 0255 Initiate restoration of watershed conditions and fish habitat within Valley Creek to help strengthen the bull trout populations.
Reduce impacts to soil, water, riparian and aquatic resources associated with off-road vehicle use within the Salmon River headwaters, Alturas Lake Creek, Pole Creek, Smiley Creek, Pettit Lake 0275 Creek, Frenchman Creek, Elk Creek, Nip and Tuck Creek, upper Valley Creek, Fisher Creek, Fourth of July Creek, Iron Creek, and Crooked Creek.
Affected Environment The topography of the Cabin Creek drainage heads within a classic glacial cirque, passing through a confined canyon below. As Cabin Creek leaves the canyon confinement it enters a broad landscape derived from glaciation within the main Alturas valley bottom. The core of the project area lies on landtypes are characterized by gentle slopes and relatively deep soils, with low inherent erodibility and high fertility (Rahm and Larson 1972). In contrast, the granite hillslopes and watershed above are easily disturbed and erosive, particularly where the hill slope steepens or vegetative cover diminishes. As such, the wet meadows and floodplains on the valley floor serve as agents in streamflow regulation, providing channel bank storage and moderation to the extremes of the annual flows. They also serve as buffers and filters for sediments spilling from the more active landtypes above. Cabin Creek originates along a high divide of the Sawtooth Mountains, and the vast majority of the Cabin Creek system lies upstream of the Road 207 wetland crossing. At its mouth, Cabin Creek is both more complex, as well as altered, than is represented on published maps. Shortly after emerging from its canyon confinement, Cabin Creek naturally divides into multiple channels spreading across its broad alluvial fan. At approximately ¼ mile down the fan, wet conditions accumulate to initiate the complex wetland conditions below. Aerial photography in the mid 1950s show several principle channels branching and feeding the complex wetlands. These channels extend, intersect, and the then reconsolidate through several penetrations of the moraine topography associated with the Alturas Lake Creek outlet and the shorelines of Alturas and Perkins Lakes (Figure 3). This sloping wetland of diverse and complex habitats is relatively unique within the Sawtooth Valley.
21 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
One of the earliest physical changes to this complexity occurred in 1912 when an irrigation diversion was established on Cabin Creek that delivered water to a homestead within the upland meadows to the northeast. The water right associated with the diversion (5.8 cfs), if consistently used, likely dewatered Cabin Creek below the point of diversion through much of the summer irrigation season. In the mid 1950s the current alignment of Road 207 was established running diagonal through the core of the wetland. Later, in 1964 to 1966, the new alignment of the main Alturas Road (205) was constructed and paved. A key objective of this new alignment was to provide greater separation and avoid the congestion in the vicinity of the private Alturas Lake Lodge (Cisco 1964), located near the outlet (now Alturas B Picnic Area). To do so required filling the natural inlet of Cabin Creek into Alturas Lake (located east of the Lodge), and constructing a new inlet west of the Lodge. This new inlet was feed by 2,000 feet of constructed drainage ditch that was aligned to intercept and gather all the channels of Cabin Creek and route them, via the ditch, to the single, newly constructed, inlet west of the Lodge. Wetlands below the ditch, and the other inlets along Alturas Lake Creek and Perkins Lake were immediately cut off from surface flows. A rear (eastern) entrance to Luther Heights Camp also eventually captured several channels of Cabin Creek within a short gully that scoured sediments annually into the wetland below. In 1968 and 1969 all the private lands in the vicinity were acquired by the United States and incorporated into the National Forest System. Deliberate irrigation of the former homestead was discontinued, but the diversion works were never plugged nor rehabilitated. As a consequence, water continued to enter the former ditches where it would annually scour ditches and intercepted roads and trails, and deliver these water and sediment into Alturas Lake Creek well below Perkins Lake. This inadvertent diversion of waters also reduced late season flows in lower Cabin Creek, both through the direct diversion of summer flows into the ditch, but also via the diversion of snowmelt waters away from the meadow where they could not be stored within the wetland for later release. As a result, much of lower Cabin Creek routinely remained dry in late summer and fall in most years. These accumulating and chronic impacts to the lower Cabin Creek system persisted for many decades. Stream and wetland communities changed with the altered hydrologic regimes. Then in 2006, the Sawtooth NRA implemented several straight forward objectives to attempt a reversal of some of these chronic impacts: the historic diversion intake was plugged; the gullied route from the east into Luther heights was closed and the severed channels reconnected; and approximately 700 feet of the wetland drainage ditch was filled on the east end, and those former branching wetland channels also reconnected. Positive responses to stream and wetland conditions have been apparent with water feeding and reinvigorating the wetland complexity, including those leading to the lost inlets along Alturas Lake Creek and Perkins Lake. Though some channel segments, in the mid fan area of Cabin Creek, have continued to dry in late summer, the lowest segments, where it accumulates before entering the Alturas Lake, have flowed continuously since the 2006 projects were implemented. These beneficial results are assumed to come from a rejuvenation of the storage and release functions of the wetland in those segments where waters again branches and spreads during snowmelt.
22 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
Meanwhile, Road 207 has remained much as it was constructed in the 1950s. Its slice, parallel to the slope, through the wetland has continued to result in much alteration to stream and wetland functions. As stream flows intersect the roadway, sloping in the same direction, they naturally flow down the road, or down the scoured ditchlines, in an attempt to cross. Ditchlines, as well as culvert inlets and outlets have scoured considerably in some segments. During the highest flow periods/years, substantial sediments have been scoured from the road surface itself. This considerable sediment load fills some habitats downstream, and alters stream functions. Finally, a field assessment conducted in 2003, of culvert crossings throughout the Sawtooth NRA, concluded that all the existing road culverts associated with Cabin Creek are likely barriers to some fish during some flow conditions, particularly juveniles. Streams Approximately 10 miles of perennial and intermittent streams are shown on 1:24,000 maps within the Cabin Creek drainage. The much larger Alturas Lake Creek drainage holds roughly 60 miles of streams upstream of Alturas Lake. Cabin Creek, within its final reaches functions as a low gradient response reach – receiving and integrating all upstream conditions within the watershed. Alturas Lake Creek within the project area cuts through former the glacier moraines responsible for Alturas and Perkins Lakes then immediately slows within a extensive meandering backwater whose downstream base level is also defined by yet another former terminal moraine (Borgert et.al., 1999). Despite intensive historic sheep grazing, much of the Cabin Creek watershed, and its stream system, is believed to be functioning appropriately, at near natural conditions. The exception occurs as it emerges onto its alluvial fan and encounters the many past and present influences and impacts described above. Alturas Lake Creek within the project area is also primarily in good condition, except at site specific locations where intensive existing uses are focused (e.g. dispersed camping) or past impacts linger. Until recently, where access was physically possible, vehicles seeking recreation, fuelwood, or other purposes routinely travelled off road, sometimes initiated a route that others would follow and establish. Some routes/sites were located in very damaging and unsustainable locations. Comprehensive changes initiated during the last decade began to reverse this trend, by closing the most damaging or risky routes. In 2006, vehicle barriers were also installed to define the streamside limits of vehicle access at several dispersed campsites along Alturas Lake Creek. Though occasional penetration of these treatments has occurred from time to time, monitoring has shown the effectiveness of treatments to protect and improve these sensitive environments. Idaho DEQ has assigned designated beneficial uses for all waters of the state. If a waterbody does not have uses specifically designated, then the general uses apply. All waterbodies within the project area are considered Undesignated Waters and are protected for Cold Water Biota and Primary or Secondary Contact Recreation. IDEQ has assessed water quality at one location within the project area (within Cabin Creek) in 1998 and concluded that beneficial uses were fully supported. As such, no waters within the project area are included IDEQs most recent 2010 Integrated Report of impaired waterbodies (i.e. 303 (d)) (IDEQ 2011).
23 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
Riparian Conservation Areas (including wetlands) Riparian Conservation Areas (RCAs) are portions of watersheds where riparian dependent resources receive primary emphasis, and management activities are subject to specific goals, objectives, standards, and guidelines. RCAs include riparian habitats and their upland influence corridors associated with perennial and intermittent streams, wetlands, lakes, springs, reservoirs, and other similar areas. Here proper riparian functions and ecological processes are crucial to maintenance of the area’s water, sediment, woody debris, and nutrient delivery systems, and associated biotic communities and habitat (Spence et al. 1996, Quigley and Arbelbide 1997). RCAs within the project area are primarily associated with the broad wetland meadows situated within the glacial derived topography. They also exist around the margins of Alturas and Perkins Lakes as well as along Cabin and Alturas Lake Creeks. Riparian vegetation within these areas consist of sedges and grasses, as well as willow, alder, birch, and similar shrubs. Trees and/or large wood are also an important component of these complex habitats, and is supplied by an overstory of conifer trees, almost exclusively lodgepole pine, both within and adjacent to the hydric habitats. Using guidance provided within the Sawtooth Forest Plan (USFS 2003), RCA areas were defined and delineated for the core analysis area (see Figure 4). Essentially, the core of these RCAs are the sensitive stream, lake, and wetland habitats within the complex. In addition, the RCA bounds typically extend approximately 150 feet (roughly equal to twice the maximum height of lodgepole pine) from streams, and 75 feet (one tree height) from the margins of the lake and wetlands. Improving the functional condition of the complex wetland associated with Cabin Creek constitutes a primary purpose of the action. Wetlands are defined as those areas that are inundated by surface or ground water with a frequency sufficient to support, or under normal circumstances do or would support, a prevalence of vegetation or aquatic life that requires saturated or seasonally saturated soil conditions for growth and reproduction. Wetlands are a subset of RCA areas. There is roughly 7.8 miles of existing authorized and unauthorized vehicle travel routes within the project area. Approximately 1.1 miles pass within RCAs. At a minimum, these routes diminish such areas by simply occupying the former native habitats. However, for many, on the gentle topography characteristic of the area, their direct influence has little additional effect. That is, sediments may sometimes scour form those that cross or are very close to surface waters, but otherwise the flat topography and dense riparian vegetation typically provides adequate buffer to potential sediment pollutants. Some however, facilitate notable indirect effects through the access they provide to uses that can be damaging when they occur within or in close proximity to sensitive habitats – e.g. dispersed camping, fuelwood harvest, and ATV use. In contrast, Road 207 results in striking effects to the Cabin Creek fan/wetland where it passes through. In addition to the extensive and chronic alteration and effects to the hydrologic regime described earlier, the roadway directly occupies nearly an acre of wetland habitats. When initially constructed (and as frequently required with maintenance) substantial supplementary fill has been imported onto the roadway in order to elevate and provide a foundation upon which the travelway can be used and maintained (Photo 4). In addition,
24 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction these fills impede and modify the spatial and temporal movements of water. Maintenance efforts also frequently exacerbate these effects with further necessary wetland alterations and impacts (e.g. berms, shoulder and leadoff ditches, drop inlets, and wetland shrub removal). This situation constitutes the most severe impacts to these sensitive wetland and riparian habitats remaining within the project area. Several objectives have been implemented in the last decade within RCAs along Alturas Lake Creek that have eliminated or substantially reduced existing effects and the risks of expanding future impacts. In 2001 a well established, unauthorized vehicle network was closed that had penetrated throughout the extensive wetland east of Perkins Lake. A authorized route, in a similar setting on the opposite side of Alturas Lake Creek, was also closed in 2006. Fish All four fish species that are Federally listed for protection under the Endangered Species Act within the upper Salmon River, are associated with streams within the project area: Snake River sockeye and Chinook salmon, Snake River steelhead, and Columbia River bull trout. Westslope cutthroat trout (a USFS sensitive species) is also present. Alturas Lake Creek is designated critical habitat for sockeye and Chinook salmon, steelhead, and bull trout, and Cabin Creek is designated critical habitat for Chinook, steelhead, and bull trout. Non native eastern brook trout dominate all stream habitats within the project area. Some cutthroat share habitats within Cabin Creek, A juvenile Chinook was observed just above the mouth in 2006, and a single observation of bull trout was documented in 1998. Roughly 4 miles are believed naturally accessible to fish within the Cabin Creek drainage prior to the steep cascades/falls segments in the headwaters. At its mouth, historically, the many channels within the Cabin Creek wetland likely served as an extensive and high quality nursery habitat for juvenile salmonids. However, currently, all road culvert crossings of Cabin Creek are believed to be barriers to some fish during some flow conditions, particularly juveniles. The hydrologic alteration associated with Road 207 has also undermined the function and quality of this habitat. No comprehensive sampling of Alturas Lake Creek within the project area has occurred recently. Though concentrated elsewhere, since 2000 some spawning by Chinook salmon has been documented within Alturas Lake Creek in the lower end of the project area. Though none has been documented, limited spawning by steelhead is also equally likely in the same segments. As such, both adults and juveniles of both species are likely present at times within Alturas Lake Creek within the project area. This segment of Alturas Lake Creek constitutes designated critical migratory habitat for sockeye salmon, though no natural sockeye escapement currently occurs to Alturas Lake. Currently, sockeye juveniles from the captive broodstock program are reintroduced to Alturas Lake annually and rear in pelagic waters within the lake interior. Outmigration of sockeye salmon smolts occurs in the spring. Bull trout are identified within the Sawtooth National Forest Plan as a Management Indicator Species (MIS). Cabin Creek occurs within the Upper Salmon Core Area, as defined in the USFWS draft bull trout recovery plan. There are only a few local populations of bull trout considered strong within the Upper Salmon Core Area, of which the adfluvial population
25 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction within Alturas Lake and inlet is one. Nevertheless, currently a reproducing population of bull trout within Cabin Creek is believed absent. Biologically Cabin Creek, with its branching mouth, may tie to both Alturas Lake as well as Perkins Lake. Baseline conditions, as considered using the Matrix of Effects Pathways and Indicators, for these watersheds concludes that they are Functioning at Risk, primarily as a result of continuing impacts on private lands and lingering effects from past uses and conditions on National Forest System lands (e.g. Road 207). Nevertheless, restoration of compromised conditions has been an emphasis for the last two decades, and much improvement has occurred on both public and private lands.
Environmental Consequences Alternative 1 – No Action Direct and Indirect Effects Measure Number of road crossing structures affecting Cabin Creek and Alturas Lake Creek : Five culverts would remain on lower Cabin Creek. The existing footbridge at the Cabin Creek Camp, and the main Road 205 bridge at the outlet of Alturas Lake would remain, which serve to concentrate some visitor use and establish social trails. Streams The compromised conditions described within the purpose and need and affected environment, particularly those associated with lower Cabin Creek, would persist. The chronic impacts and influences to stream and wetland conditions associated with the problematic alignment of Road 207 through the lower fan/wetland of Cabin Creek would remain unresolved. Extensive sediments would be scoured and mobilized annually from ditches, lead off channels, and the roadway surface to Cabin Creek (Photo 1). Riparian Conservation Areas Approximately 1.1 miles of existing vehicle routes would remain within RCAs influencing riparian functions through occupancy of native conditions. The most severe of these chronic impacts would remain along 0.4 miles of Road 207 within the RCA of Cabin Creek where it passes through the lower fan/wetland, including those resulting from continued operation and maintenance efforts.
26 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
Fish Five culverts, all believed to be barriers to some fish during some flow conditions, particularly juveniles, would remain on lower Cabin Creek. The chronic impacts to habitat conditions in lower Cabin Creek as described within the affected environment would persist. The sediment sources from Road 207 would continue to contribute to diminished habitat quality downstream. Cumulative Since there are no direct effects as a result of not implementing the proposed action, there are no cumulative effects either. Consistency With Sawtooth Forest Plan The No Action alternative would be in compliance with the Forest Plan, but would not contribute towards attainment of Forest Plan goals and objectives for streams, fish, and RCAs. As such, it would be inconsistent with the MPC 3.2 prescription, as well as with the goals and objectives, including the ACS and WARS priority emphasis. Failure to take action to address a known chronic impact to RCAs and threats to fish populations and habitats (including ESA protected), as described in the affected environment, would fail the stewardship commitments and emphasis prescribed for the watershed: Active Restoration and Maintenance of Aquatic, Terrestrial, and Hydrologic Resources . It would also fail to implement the specific Forest Plan objectives 0243 and 0249. The potential for bull trout reestablishment (an MIS species, and ESA Threatened) within Cabin Creek would remain diminished under the No Action alternative as a result of effects described. The No Action Alternative would maintain the status quo, which currently appears to preclude bull trout. Alternative 2 – Proposed Action Direct and Indirect Effects Measure Number of road crossing structures affecting Cabin Creek and Alturas Lake Creek : Four of 5 culverts would be removed with the Road 207 crossing of lower Cabin Creek. One problematic culvert would remain at Road 205. The existing footbridge at the Cabin Creek Camp, and the main Road 205 bridge at the outlet of Alturas Lake would remain, and another would be constructed just below the outlet of Perkins Lake. Bridges in areas of recreation use typically serve to concentrate some visitor use, and can result in impacts from vehicle and pedestrian trampling, social trails, and similar uses. Such uses are already established at both road bridge sites (existing and proposed), and barriers have been installed to confine and preclude damaging vehicle use from streamside areas. As such, with construction of a new bridge, only minor changes to the existing habitat influences would be expected.
27 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
Streams The proposed action would relocate the southern end of Road 207 to a suitable and sustainable location. Removal of the former alignment would continue the stream and wetland restoration initiated with the 2006 objectives along Cabin Creek, and address fundamentally the most chronic and damaging impact. Nevertheless, some temporary and short term effects would be experienced until vegetation can re establish within the area formerly occupied by the roadway. The prescribed methods, including the construction, planning, and design provisions, would be expected to reduce these effects. Monitoring within the Sawtooth NRA of several very similar projects, using essentially identical methods, has shown that these effects are most pronounced during the first snowmelt season, then diminish rapidly thereafter as vegetation quickly establishes in such moist and productive environments. Fully functional habitats typically return within 3 to 5 years. Moving the alignment to the new proposed location would completely avoid Cabin Creek, and the wide wetland at its base, but require a new bridge crossing of Alturas Lake Creek. The bridge would be constructed at the pinch point where uplands associated with a former terminal moraine are cut by Alturas Lake Creek. Existing vehicle routes lead to either side of the proposed bridge site, and dispersed camping and visitor use is well established, and appears near social capacity during much of the summer season. Streamside social trails are common on both sides of the creek. The new bridge, with improved access, would likely lead to a slight increase in this use. However, the indirect influence that would be expected to stream conditions resulting from this slight change would be inconsequential, given the physical constraints already in place to confine vehicle use (i.e. the most damaging use). This analysis assumes the bridge design would require a mid channel pier. Under many circumstances, piers can be a mechanism that initiates impacts to the stream segment where they reside. Piers inherently reduce channel capacity, and if not anticipated and accommodated elsewhere in the design, can result in fundamental changes – typically a reduction in approach velocities and upstream deposition. If wood accumulates (or is allowed to accumulate) on the face of the pier, the effect can be even more acute. These effects are particularly apparent in unconfined reaches with substantial bedload sediment. Alturas Lake Creek has neither. This particular stream segment is deprived of bedload sediment as a result of two lakes immediately upstream serving as sediment sinks, and is well confined as it passes through a former terminal moraine. Once installed, a modern bridge design would be expected to have little long term influence to hydrologic functions of this segment of Alturas Lake Creek. The bridge surface and immediate approaches from either side would be paved, avoiding long term sediment effects that would result from a native or gravel tread. Temporary effects to Alturas Lake Creek resulting from the installation of the new bridge would also be expected to be minimized through careful application of the construction, planning, and design provisions. Though a single pier may be required within the bankfull channel, the abutments on either end would be outside the channel. The natural site conditions would also help minimize the potential effects. At baseflows (beginning late July), streamflow is contained within a thalweg channel pressed against the south side of the channel, drying more than half the channel width. As such, the installation of a mid channel pier during this same expected construction period could require no work within flowing water, greatly simplifying the containment of construction disturbance, and minimizing the
28 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction effects ultimately realized. Nevertheless, despite all the conditions applied to minimize the effects, a temporary, but inconsequential, effect to water quality would be expected during first snowmelt season following construction. Riparian Conservation Areas Approximately 0.4 miles of Road 207 would be removed from RCAs. One tenth of a mile of new road would be constructed within RCAs associated with the new bridge, and 0.8 miles within RCAs would remain unchanged within the project area – or roughly a 18% reduction in roads within RCAs. However, the portion removed (Road 207) is by far the most impactive length of road of any within the project area. The functionality of as much as an acre of wetland would be directly restored when exposed from under the former road fill. In addition, basic wetland functions and habitats would also be restored where the fills have impeded or modified the spatial or temporal movements of water. These indirect wetland effects range from stark to subtle, but an informed estimate suggests that as much as 14 additional acres would see improved functionality as a result of Alt 2. Nevertheless, these initial changes resulting from the proposed action would be expected to create a net temporary reduction in RCA conditions until functional riparian features can return to the former Road 207 crossing of Cabin Creek. With the active restoration efforts prescribed, many of the functional elements would be immediately in place, and others only awaiting the growth of wetland vegetation. Monitoring and observation of similar efforts elsewhere would indicate this riparian growth would initiate immediately and be well established within five years. Fish Four of 5 culverts, believed to be barriers to some fish during some flow conditions, particularly juveniles, would be removed with the Road 207 crossing of lower Cabin Creek. One problematic culvert would remain at Road 205. As such, the action would result in less challenge for fish to access approximately four miles of suitable and accessible habitat upstream in Cabin Creek. The action may also encourage, and at least better accommodate, the potential refounding of these habitats by TES fish. Habitat conditions within the Cabin Creek wetland would see considerably less influence by sediment, and would be restored, with time, to near natural conditions to provide more complex and productive rearing habitat. Only minor and/or temporary effects to fish habitat would be expected at the proposed new bridge over Alturas Lake Creek as described in Streams above. No Chinook spawning has ever been documented in the reach proposed for the new bridge. Nevertheless, prescribed provisions would provide assurance of protection during the construction period. Currently, the stream segments crossing the Cabin Creek Road are dry, or nearly so, during late summer and fall. This condition would help to control and minimize, and possibly avoid, the temporary effects to fish that would be inherent to the road removal. Cumulative Beyond the proposed action, the existing infrastructure and uses would continue within the project area – primarily recreation uses and the roads that access and service them. Developed recreation infrastructure within the project area consists of two day use picnic
29 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction areas, two organization camps, and one trailhead. Nearby, at Alturas Lake, are two more organization camps, 3 campgrounds, a boat launch, and day use beach. Dispersed recreation occurs throughout the project area, with concentrations (i.e. dispersed campsites) typically adjacent to water, and along roadways. Overall, the intensity of use has remained roughly constant within the developed sites, but is increasing generally within dispersed sites. This when combined with the recent mortality of the lodgepole pine forests in the area, has resulted in some expanding localized effects to soil and water resources as sites and uses expand without the forest encumbrance. Nevertheless, the overall trend of effects from recreation uses has likely diminished within the last decade principally due to the removal of roughly 3¼ miles of unauthorized vehicles routes, and associated dispersed campsites – many within RCAs. However, it is reasonable to expect that along Alturas Lake Creek, where access would be somewhat improved and more convenient with the new alignment, that existing dispersed sites may enlarge, and additional sites may be established in the area. It could also lead to renewed incentive for visitors to pioneer new vehicle routes. There have been no recent treatments of forest vegetation, except as associated with specific hazards within developed facilities. Sheep are currently authorized to use approximately 190 acres in the northwest corner of the project area as part of the Smiley Creek Sheep Allotment. Former glacial moraines define the landscape features of this area, and no streams drain it. As such, and with the use permitted, the area experiences little influence from the annual grazing. The Alturas Lake watershed has been a focus of restoration activities for several decades, including both major and minor objectives. The following describes the major accomplishments. In 1992 several miles of wetland drainage ditches were fill and wetland hydrology restored within the Vat Creek wetland. In 1996, 1997, and 2000 man made barriers to fish were removed from Pettit Lake Creek, Alturas Lake Creek, and Yellowbelly Lake Creek respectively. Alturas Lake Creek was returned to approximately ¼ mile of historic channel where captured by Road 205 in 2000, and in 2006, in the same vicinity, a ford through Alpine Creek by Road 205 was closed and rehabilitated where a similar capture was threatening. In 2001, 2006, and 2007 several miles of authorized and unauthorized vehicle routes were removed from sensitive areas. Road 206 was completely removed from the wet riparian bottom of Alturas Lake Creek in 1999. Several more miles of roads within the headwaters, above Alpine Creek, was converted to single track trail in 2006 and 2007. A deteriorating sheep bridge, with several in channel piers, that had been authorized and used for a winter ski bridge, but also used by unauthorized summer ATVs, was removed and replaced by a new winter only ski bridge in a much more suitable location in 2010. Also in 2010, a deteriorating shoreline at the Alturas A Picnic Site was rehabilitated. Several restoration objectives were specifically implemented within lower Cabin Creek in 2006, as described in the affected environment, that were intended to partially restore both temporal and spatial function to the hydrologic regime. As a result, at the mouth of Cabin Creek, perennial flow has been present ever since the 2006 projects were completed where it had previously been routinely dry in late summer and fall. The cumulative effect from the proposed action would be expected to only build on these positive and encouraging results. It is conceivable, though not ‘foreseeable’ at this time that a resolution to the final barrier culvert at Road 205 on Cabin Creek would be addressed in the future. As with similar
30 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction projects that have been implemented, is would be expected that such a treatment would result in temporary impacts, to be followed by immediate and growing benefits. Consistency With Sawtooth Forest Plan The proposed action is directly applicable to, and motivated by, the clear restoration emphasis of MPC 3.2 and the ACS for the Management Area, as well as the many other goals, objectives and standards for riparian, water, and fish resources within the Forest Plan. The action would address known threats to fish populations (including ESA protected), and water dependent resources, and fully address stewardship commitments and emphasis prescribed for the watershed: “Active Restoration and Maintenance of Aquatic, Terrestrial, and Hydrologic Resources”. It would also directly implement the specific Forest Plan objectives 0243 and 0249. While achieving the principle objective of road removal from a narrow strip of wetland, it is anticipated that temporal and spatial benefits would extend throughout the wetland ecosystem in both anticipated and unanticipated ways. The potential for bull trout reestablishment (an MIS species, and ESA Threatened) within Cabin Creek would be bolstered by the action. Though some limiting conditions would remain, the action would address the fundamental core of the current threats. Alternative 3 – No New Road Direct And Indirect Effects The effects anticipated with implementation of this alternative (Alternative 3) are a subset of those already articulated with the proposed action (Alternative 2). The alternative would implement much of the restoration objectives, but without the corresponding development within the proposed action. As such, only conditions that contrast these differences will be discussed further. Measure Number of road crossing structures affecting Cabin Creek and Alturas Lake Creek : Four of 5 culverts would be removed with the Road 207 crossing of lower Cabin Creek. The existing footbridge at the Cabin Creek Camp, and the main Road 205 bridge at the outlet of Alturas Lake would also remain. Streams, Fish, and RCAs The temporary and short terms effects associated with the removal of the Road 207 roadway would occur, to be followed by a rapid return to unimpaired functional wetland and stream systems. Four of 5 culverts, believed to be barriers to some fish during some flow conditions, particularly juveniles, would be removed with the Road 207 crossing of lower Cabin Creek. The temporary effects associated with the construction of the new bridge under proposed action, and the effects of use and maintenance would not occur with Alternative 3. The slight indirect impacts that would have resulted under Alternative 2 from improved visitor access to the streamside areas near the bridge would not occur.
31 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
A total of 0.6 miles of roadway would be removed, of which 0.4 miles would be from the Cabin Creek wetland. Since no new road would be constructed, Alternative 3 would have slightly less (0.1 miles) length within RCAs than Alternative 2, or roughly a 27% reduction of roads within RCAs of the project area. Cumulative The cumulative effects for Alternative 3 would be similar to those associated with Alternative 2, except the principle indirect cumulative impacts would be substantially reduced. Without the construction of a new roadway, access to existing campsites along Alturas Lake Creek would remain unchanged on the south and likely become even less convenient on the north. As a result, the overall visitor pressure at sites within RCAs would be expected to diminish. However, for at least the short term, during the social transition, this may be offset by a heightened risk of user created ATV or vehicle routes established through or around the Cabin Creek meadow to Alturas Lake. Consistency With Sawtooth Forest Plan The motivation, focus, and outcome of Alternative 3 would present the same consistent and direct link to Forest Plan direction described for Alternative 2. For water dependent resources Alternative 3 would provide the greatest gains in prescribed restoration without the small offset of new development that would be inherent with the proposed action. Issue: ROAD USE ______The proposed action would relocate the south end of Road 207 from its current location to a new junction with the Alturas Road near Camp Perkins. With these potential changes, an issue with respect to the proposed action has been identified: Changes to the existing alignment may alter the current road use patterns and travel convenience within the Alturas area . The potential effects in this regard are considered quantitatively and reflected within the summary indicator: Time required to travel to and from common destinations currently served by the route . Affected Environment Roads 207 (Cabin Creek Road) and 442 (Camp Perkins Road) currently have operational maintenance levels of 3 (per Forest Service Handbook 7709.58, Chap. 10). An operational maintenance level 3 road is identified as a road that is opened and maintained for travel by a prudent driver in a standard passenger car. User comfort and convenience are not considered priorities. Roads in this maintenance level are typically low speed, single lane with turnouts and spot surfacing. Some roads may be fully surfaced with either native or processed material. The current features of these roads consist of a graveled surface with an average travel way width of 15 feet with no designed turnouts. Road 440 is a maintenance level 2 road. A road with a maintenance level of 2 is typically a single lane road that is open for use by high clearance vehicles but in some cases a passenger car can travel on a level 2 road. Traffic is normally minor, usually consisting of one or a
32 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction combination of administrative, permitted, dispersed recreation, or other specialized uses. Road 440 is mainly used to access dispersed recreation along Alturas Lake Creek. The unauthorized roads proposed to be added to the system are roads that were identified in the 2006 Alturas Yellowbelly Roads Analysis (Sawtooth NRA 2006) as being recommended to be added to the system as maintenance level 2 roads. The main reason for recommending these roads be added to the system is that they provide access to areas with established dispersed campsites or areas suitable for such. A traffic counter in 2011, located at the south end of Road 207 near its junction with Road 205, recorded typical traffic patterns associated with recreational use (Figure 6). From July 28 to September 21, the counter recorded 2,506 vehicles passing in either direction. The pronounced peak occurred on August 6 with 176 (assumed associated with an specific gathering or event), and recorded a low of 0 vehicles on 5 days. Sixty percent of the traffic over the period occurred on weekends (Fri Sun).
Figure 6: Traffic at South end of Road 207 July 28 to September 21, 2011
200
160
120
80 vehicles passing
40
0
Analysis Methods In order to analyze the potential changes to travel times to and from common destinations currently served by the route, two such destinations were selected as indicators: Valley View Recreation Residences and the Cabin Creek Organization Camp. To analyze the different travel times from these sites, a common travel ending point was chosen: the current intersection of Road 207 with Road 205 (Alturas Lake Road). The estimated average speed used to calculate the time to reach the designated ending point was 35 mph on the forest system roads and 55 mph on the state highway. The distances used for each route/alternative were acquired from a computer geographic information system. Figure 2 provides an overview of the network on main roads within the vicinity, and Figures 3, 4, and 5 display the full existing road network, and those of the alternatives, within the project area. Similarly,
33 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
Table 3 summaries the miles of road within the project area, by maintenance level, for the alternatives, including the current situation. The proposed changes to Road 440 and the adoption of the unauthorized roads has no influence on travel times and thus no travel time analysis was completed for these road segments.
Environmental Consequences
Table 3: Road network changes, by alternative, within the project area Road Class Current ( Alt 1 ) Alternative 2 Alternative 3 Maintenance Level 4 and 5 3 3. 3 no change no change Maintenance Level 3 3.4 3.4 2.8 Maintenance Level 2 1.5 3.3 3.8 Unauthorized routes 2. 3 0 0 Total 10. 5 10.0 9.9 Table 4: Calculated travel distance and times from select locations (start point) to the current junction of Road 205 with Alturas Lake Road 205 (end point). Travel Route, Distance, and Time Difference from Current Current (Alt 1) Alternative 2 Alternative 3 Alternative 2 Alternative 3 Start Point route miles min route miles min route miles min miles min miles min Cabin Cr Camp 1C 0.60 1.03 2C 2.42 4.14 3C 7.39 11.73 2.36 3.11 6.79 10.70 (jct Road 438 and Road 207) Valley View Rec Residences 1V 2.62 4.49 2V 3.95 6.77 3V 5.47 8.44 1.33 2.28 2.85 3.95 (jct Road 318 and Road 207) Routes: 1C: Travel south on Road 207 to end point. 2C: Travel north on existing Road 207, then southeast on the new alignment of Road 207, then westerly on Road 205 to end point. 3C: Travel north on Road 207 to 318 jct, then east to Hwy 75, then south to Alturas Road 205, then westerly on Road 205 to end point. 1V: Travel south on Road 207 to end point. 2V: Travel south on existing Road 207, then southeast on the new alignment of Road 207, then westerly on Road 205 to end point. 3V: Travel east on Road 207 to Highway 75, then south to Alturas Road 205, then westerly on Road 205 to end point.
Alternative 1 – No Action Measure Time required to travel to and from common destinations currently served by the route : Under the No Action alternative there would be no change to the current travel time for residents accessing the identified end point from Cabin Creek Camp and the Valley View Recreation Residences. These current baseline travel times are shown in Table 4. Alternative 2 – Proposed Action Measure Time required to travel to and from common destinations currently served by the route : Using the new alignment of Road 207, at the average speeds indicated in the methodology,
3 Maintenance Level 4 and 5 roads are the most developed roadways, designed for all vehicles, with comfort and convenience a priority. Within the project area these include the main Alturas Road 205 and the short spurs within the Alturas developed recreation sites.
34 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction the change would add 1.8 miles, and 3.11 minutes to the travel time for the Cabin Creek Camp, and 1.3 miles, and 2.28 minutes for the Valley View Recreation Residences. Under Alternative 2, a new route would be constructed from the east of Perkins Lake connecting Road 207 with Road 205 via a new bridge over Alturas Lake Creek. The route would consist of approximately 0.6 miles of new construction, built to maintenance level 3 standard, and 0.45 miles of reconstruction to Road 442. With the addition of the new route, the existing segment Road 207, between its junctions with Road 205 and Road 438, would be decommissioned.
Alternative 3 – No New Road Measure Time required to travel to and from common destinations currently served by the route : Without the southern connection of Road 207 with the Alturas Road 205, at the average speeds indicated in the methodology, the change would add 6.8 miles, and 10.7 minutes to the travel time for the Cabin Creek Camp, and 2.9 miles, and 3.95 minutes for the Valley View Recreation Residences. Under Alternative 3 no new routes would be constructed. The existing segment Road 207, between its junctions with Road 205 and Road 438, would be decommissioned. Issue: VISITOR EXPERIENCE (Recreation) ______Changes to the existing alignment of Road 207 may alter visitor uses, opportunities, and experiences within the Alturas Recreation complex. Of particular concern are winter uses. The potential effects to existing winter recreation opportunities and experiences were identified as an issue for the analysis. The measure selected for contrast within the analysis is: Relative probability and frequency of illegal motorized incursions into the existing Alturas Lake Nordic Ski Area . The issue of Visitor Experience is inherently tied to the Recreation resource, and several other potential effects to the recreation resource were also considered within the analysis and the results are also summarized here. The project record contains the full reports addressing the recreation resource. The Sawtooth NRA is an internationally recognized recreation destination with heavy recreational use, particularly during the summer season. The project area includes developed recreation that primarily centers around the morainal lakes of Alturas, Pettit, and Perkins. The Pettit Lake complex has a campground, picnic area, boat ramp, two trailheads, and two summer home tracts (Valley View and Pettit Lake). Alturas Lake complex has three campgrounds, four organizational camps (Cabin Creek, Luther Heights, Camp Perkins, and Smokey Lodge), a boat ramp, picnic areas, and two trailheads. There is also a privately operated recreation facility, Camp Stanley, on state land near the junction of Alturas Road 205 and Highway 75. The Road 205 serves as the primary access into the Alturas complex and branches to include the Cabin Creek Road (207), with connections to Road 440, the Cabin Creek Trailhead, Valley View Recreation Residences, and eventually Highway 75.
35 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
There are several dispersed campsites off of Road 440 and Road 442. The Cabin Creek Trailhead is located just off the Cabin Creek Road and the Alturas Lake Road terminates at Alturas Lake Creek Trailhead. Both trailheads access the Sawtooth Wilderness. There is also a popular non system trail that follows the lakeshore around Alturas Lake. The Sawtooth Ski Club grooms 16 miles of Nordic ski trails within the area between Highway 75 on the east, Alturas Lake Road on the south, and Road 207 to the west and north. This area, known as Alturas Nordic Ski Area, is closed to motorized use from December 1 through April 30, and will be referred to as the “Ski Area” (see Figure 5). Outside of the ski area boundary snowmobilers enjoy riding off trail and use the project area as an ungroomed corridor connecting Stanley and Smiley Creek. Forest Plan Direction for the Recreation Resources Forest Plan direction that applies to all Recreation includes:
Number Forest-wide Management Direction Description
Manage, operate, and maintain a year-round recreation program that offers a broad REG001 range of developed and dispersed recreation opportunities and experiences in a range of settings as reflected by the Recreation Opportunity Spectrum (see Appendix F for descriptions of ROS classes). Address current and emerging recreation conflicts, while maintaining recreation REGO03 opportunities when possible. Manage motorized and non-motorized travel and travel-related facilities to: a) Provide for public safety, REG005 b) Meet resource objectives and access needs, c) Mitigate road and trail damage, and d) Minimize maintenance costs and user conflicts. Provide an array of winter recreation experiences, while mitigating conflicts between REGO06 motorized and non-motorized use and wintering wildlife. Utilize the Recreation Opportunity Spectrum (ROS) to evaluate and tailor proposed REOB02 projects and activities in order to maintain desired recreation opportunities and the quality of recreation experiences. Inform the public in a timely manner about management actions affecting their REOB07 recreation opportunities at appropriate locations, including roads, trails, and at developed sites. Monitor recreation resource conditions, visitor use levels, types of uses, and visitor REOB10 expectations to guide recreation management actions. Provide networks of marked and designated snow machine, cross-country ski, and REOB22 other winter travel routes and trailhead facilities, while meeting other resource goals and objectives. Provide winter recreation user information to educate users of wildlife needs and REOB23 promote backcountry safety. Provide opportunities for backcountry winter recreation in areas without wintering REOB24 wildlife conflicts. Support winter trail management through cooperative agreements with other agencies REOB25 and groups. When proposed management actions may affect dispersed recreation sites, those REGU06 potential effects should be evaluated during project-scale analysis. During the winter season, motorized use may be allowed to set cross-country skiing REGU11 tracks or skating lanes within the Semi-Primitive Non-Motorized areas.
36 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
Number Management Area 2 Direction Description Winter recreation opportunities should be managed to provide for user safety and to minimize user conflicts. Winter recreation management should recognize that some REGU25 activities are not compatible in the same locations and should be separated when needed to maintain user safety and quality recreation experiences. When resolving conflicts between winter recreation user groups, appropriate REGU26 consideration and protection should be given to capital investments such as groomed and/or designated trails. Manage recreation site developments at morainal lakes to provide for a variety of recreation opportunities and levels of site modification. Care should be taken not to 0286 over-develop. Keep development at the following levels: c) Little Redfish Lake, Alturas Lake , Stanley Lake – Development Level 3, moderate site modification. Manage recreation use at backcountry lakes and travel corridors to address impacts to 0288 soil, water, vegetation, riparian, and aquatic resources
Manage recreation use in key wildlife, fish, and rare plant habitats, including TEPCS and MIS species habitat to avoid or minimize recreation use impacts to these habitats. Key 0289 habitats include, but are not limited to, mountain goat habitat, wolverine denning habitat, big game winter range, guardian buckwheat and Stanley whitlow-grass habitat, and fish spawning habitat Achieve or maintain the following ROS strategy 4: Percent of Mgt. Area ROS Class Summer Winter Primitive 1% 1% 0296 Semi-Primitive Non-Motorized 36% 10% Semi-Primitive Motorized 12% 80% Roaded Natural 26% 9% Roaded Modified 22% 0% Rural 3% 0%
Management activities on National Forest System lands should meet desired recreation settings. Impairment of the recreation values may occur when an action creates a change in the desired recreation setting by one ROS class of any area on the SNRA and occurs over a time period of greater than six months cumulatively. Substantial impairment of the recreation values may occur when an action creates a long term or 02108 permanent change in the desired recreation setting by one or more ROS class and that effects 2 percent or more of the acreage in that individual ROS zone. Substantial impairment may also occur when cumulatively an ROS classification across the entire SNRA is altered by more than 1 percent as a result of smaller changes within individual ROS zone designations.
Maintenance or rehabilitation of existing recreation sites should be considered before 02109 committing to construction of new sites
4 These reflect current travel regulations, and may change as a result of future travel regulation planning.
37 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
Sawtooth National Forest Recreation Niche – 2005 to 2015 The project area resides within a USFS Intermountain Region Recreation Niche defined in 2005 as Sharp Scenery : The Sawtooth National Forest is a place of awe-inspiring beauty. Jagged peaks and rolling pastoral valleys are connected by forested terrain. This contrast in landscapes, coupled with the contrast in seasons, creates winter wonders and summer scene- sations. Trails weave through the Forest providing opportunities for people to connect with the land and find solitude. For generations these picturesque settings have enhanced the quality of life for visitors and communities. The project area principally resides within the Niche setting defined as Pastoral West , but also includes, or is adjacent to, areas applicable to the settings of: Backcountry Travel ; Community Connection ; and Remote Peaks and Lakes . The Pastoral West setting is intensively managed and used. Lakes serve as primary destinations and areas of high development. Facilities include destination resorts, campgrounds, picnic sites, overlooks, and interpretive sites. Scenic Byways offer viewing opportunities and staging to more remote portions of the NRA to hike, mountain bike, view wildlife, and catch fish. Backcountry Travel sees a focus of OHV riding, snowmobiling, motor bike riding, and viewing scenery beyond the main travel corridors. Community Connection facilitates access along the main travel corridors to the scenic mountain settings to support mountain biking, skiing, hiking, climbing and lakeside camping. The Remote Peaks & Lakes sees low development to emphasize spectacular scenery, solitude, discovery, challenge, and exploration.
Recreation Opportunity Spectrum Within the Recreation Opportunity Spectrum (ROS), the project area is classified Roaded Natural except for the Cabin Creek Trail which has 3 miles in Semi-Primitive Non-Motorized and 0.5 miles in Primitive , and Alpine Lake Creek Trail which has 1.5 miles in Semi- Primitive and 1.5 miles in Primitive . ROS is the framework used to define the types of recreation opportunities appropriate for individual areas. Summer and winter ROS conditions are mapped separately. The Project Area shifts to Semi-Primitive Motorized for winter, but within the motorized closure for the Alturas Nordic Ski Area, management shifts to Semi- Primitive, Non-motorized for winter use. The Forest Plan defines these ROS settings as: Primitive: These areas provide for primitive recreation opportunities in unroaded and non motorized settings. Unmodified and natural appearing settings dominate….they offer opportunities for solitude, remoteness and risk…Encounter with other users, and signs of other users are minimal (Forest Plan, Volume 2, F 1). Semi Primitive, Non motorized: “These areas provide for non motorized recreation opportunities in unroaded and non motorized settings. A natural appearing setting dominates the physical environment with only subtle or minor evidence of human caused modifications….Generally, snowmobile, ATV and other OHV uses are inconsistent with this ROS class. A number of setting inconsistencies may be present during winter periods in this classification. These inconsistencies consist mainly of roads or road prisms, minor structures and developed recreation features...whose presence becomes far less obvious during winter snow cover” (Forest Plan, Volume 2, F 2).
38 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
Semi Primitive Motorized: “These areas provide for motorized recreation opportunities in semi primitive settings. In areas seen from travelways, a natural appearing setting dominates the physical environment with only subtle or minor evidence of human caused modifications…. A number of setting inconsistencies may be present during winter periods in this classification. These inconsistencies consist mainly of roads or road prisms, minor structures and developed recreation features...whose presence becomes far less obvious during winter snow cover” (Forest Plan, Volume 2, F 2). Roaded Natural: Roaded Natural provides for a wide range of recreation activities that are generally focused along motorized travel routes….Scenic values are often emphasized. A wide range of management activities and objectives may occur, generally being guided by the adopted visual quality objectives. Landscape modifications due to resource management activities, where evident, harmonize with the natural setting….There may also be a wide range of facilities and structures to support other Forest uses such as telecommunication facilities, power lines, and administrative sites. Cross country snowmobile use may occur…in accordance with current travel management plan…There may be areas, trails, or roads within this ROS class where motorized use is prohibited or restricted to enhance recreation experiences.
Affected Environment The project area is a popular recreation destination for all seasons. While it draws users from around the world, many visitors are local, from Stanley/Sawtooth Valley and the Wood River Valley (only an hour’s drive away). The Alturas Lake/Cabin Creek area provides a less crowded alternative to Redfish Lake and is popular with campers, both in developed and dispersed sites; day users enjoying boating, swimming and picnicking; OHV riders; hikers and backpackers; and visitors to organization camps. Fall brings hunters and firewood gatherers to the project area. In the winter groomed Nordic ski trails and snowmobiling draw visitors. Winter Recreation Experience This entire project area has been popular with Nordic skiers since the 1980’s when Busterback Ranch began operating as a destination cross country ski resort and started grooming ski trails. Though the Busterback Ranch ceased operations in 1992, currently, the Sawtooth Ski Club (Ski Club) grooms some of the same trails under agreement with the Forest Service and Blaine County Recreation District. The area receives reliable snowfall and the rolling hills provide a relatively easy alternative to Galena Lodge’s challenging trail system. There are 16 miles of ski trails groomed under agreement with the Sawtooth Ski Club. The Alturas Nordic Ski Trail system is one of only two such areas in the Sawtooth Valley/Stanley Basin portion of the Sawtooth National Recreation Area. Skier and snowshoer numbers are increasing annually as word gets out about the quality experience provided by the trail system. The area within the Ski Area boundary is classified as Semi-Primitive Motorized within the Recreation Opportunity Spectrum (ROS) system, but is managed as Semi Primitive, Non motorized for winter use. This shift is because the area has been closed to motorized use
39 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction from December 1 through April 30 since November, 2000. This closure occurred as a result of a recommendation from a collaborative community group 5 which struck an agreement between skiers and snowmobilers. Meanwhile, snowmobiling has been, and remains, a popular winter pastime in Sawtooth Valley, including travel to Alturas Lake, since the early 1970’s. Snowmobile use has generally increased substantially nationwide during the period, a trend that appears to be continuing in Idaho, and has been observed, including within the project area (L.Dean, personal obs; D.Keiski, ski trail groomer, per comm.; Cook and O’Laughlin, 2008). Despite the winter use agreement for the area, conflicts still occur between user groups. Multiple motorized incursions occur within the closure area each winter. Violations take place when snowmobilers cross the ski area to shortcut travel or play in the large open and untracked areas within the Ski Area, disturbing non motorized users who desire to escape the noise, smell, speed and tracks of snowmobiles. Salmon River Electric Co op is permitted to check and maintain their power lines within the motorized closure during the winter via snowmobile. These tracks then encourage illegal incursions. Smiley Creek Lodge is located at the southern end of Sawtooth Valley, three miles southeast of the project area. The Lodge has overnight accommodations, a full service restaurant, and rents snowmobiles in winter. The Salmon River Snowmobile Club grooms a snowmobile trail on the east side of Sawtooth Valley from the Lodge to the town of Stanley, approximately 25 miles north. No other formally designated and groomed snowmobile routes exist within the southern end of Sawtooth Valley; however concentrated use occurs in many areas. As such, the summer route of Road 207 is used in winter by snowmobilers from the north to access Alturas Lake and as a western route to connect users, including Valley View Recreation Residences, to the Smiley Creek Lodge. Developed Recreation Significant developed recreation opportunities exist in the Alturas Lake Complex, which is immediately adjacent to the project area. Given that this project does not affect these opportunities in any way, they will not be analyzed within this document.
Trails / Trailheads (Summer) Cabin Creek Trailhead provides recreation access to Cabin Creek Trail 191, a 3.5 mile trail that is popular with day hikers, backpackers and horseback riders. At three miles the trail enters the Sawtooth Wilderness. Alturas Lake Creek Trailhead provides recreation access to Alpine Creek Lakes and Alturas Lake Creek trails. The Alpine Creek Trail 094 is popular with day hikers and backpackers, but is closed to stock use. At 1.25 miles the trail enters the Sawtooth Wilderness. Alturas Lake Creek Trail 034 is popular with motorcycles, bicycles, horseback riders, day hikers and backpackers. It accesses the Eureka Gulch Trail and Johnson Creek trails, as well as the Sawtooth Wilderness at six miles, at the approach to Mattingly Divide. Motorized use and mechanized conveyances are prohibited within Sawtooth Wilderness. A non system trail follows the lakeshore of Alturas Lake. This trail is well used and popular with campers, day users and visitors to organization camps. 5 Sawtooth Community Winter Recreation Partnership
40 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
Dispersed Recreation Activities (Summer/Fall) Camping, fishing, water play, recreational driving and off highway vehicle (OHV) riding are all popular pastimes with summer visitors to this area. Road 207, via Road 440, and Road 442, via Road 205, provide access to dispersed campsites along Alturas Lake Creek. These sites are occupied through most of the summer. Hunting and firewood cutting are the predominant activities that take place in the fall with limited associated dispersed camping. An unauthorized spur road accesses a summer beach on the east shore of Alturas Lake; popular with swimmers, picnickers and dog owners.
Recreation Special Uses Concentrated groups of recreation users, under special use permit, occur within the project area. There are four organizational camps and one recreation residence tract that are affected by the proposed project. The organization camps are in close proximity to the south end of the Cabin Creek Road, while the recreation residence tract lies to the north via the connected Road 318. All were established more than 50 years ago. The Camp Perkins Lutheran Outdoor Ministries (aka Camp Perkins ) and the Intermountain Lutheran Heights Bible Camp (aka Luther Heights ) are managed similarly with emphasis on hosting events and activities for summer youth camps, while also providing accommodations and services for retreats or gatherings for both congregational and non congregational groups. Summer constitutes their busy season, but operation and use extends year long, particularly at Camp Perkins. Both are managed and supervised by trained staff. The average stay is between 2 to 5 days, and during the last decade, use of these camps has been steadily increasing at up to 3% in some years. Planned and permitted recreational uses of these camps outside their permit boundaries, that could be affected by the proposed action, include: hiking and biking on nearby roads and trails, canoeing on Alturas and Perkins Lakes, walk in overnight camping nearby, and cross country skiing, snowshoeing, and snowmobiling nearby. Cabin Creek and Smokey Lodge Organizational Camps are both operated by the Church of Latter Day Saints, LDS Recreational Properties LLC. Visitor use was low prior to 2007, but has experienced an increase of up to 30% since then due to a new emphasis by the LDS Church to increase use at the camps, particularly by young women. The average stay is 3 to 4 days during the summer season, June through September. Some winter use occurs on a very limited basis. Events consist of young women camps, family reunions, family camps, father son outings, ward campouts, scout camps and weddings. Non congregational groups also occasionally utilize the camps for training and retreats. While a summer manager/caretaker typically resides at these LDS camps, groups utilizing the camps are typically self directed/supervised. Planned and permitted recreational uses occurring outside the permit boundaries, that could be affected by the proposed action, include: swimming and canoeing at Alturas lake, and hiking nearby roads and trails. Valley View Recreation Residences is a tract of public land on the Sawtooth NRA comprised of 34 lots with each lot ranging from 0.51 acres to 1.25 acres in size. Each of the 34 occupied lots support a privately owned cabin with auxiliary facilities that are utilized under
41 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction special use permit. The Valley View Recreation Tract is three miles from the project site in T7N, R14E, Section 7 and is accessed by way of Road 318 from the Cabin Creek Road 207. Use of 0.5 miles of Cabin Creek Road 207 by Camp Perkins, Luther Heights, Cabin Creek, Smokey Lodge, and the Valley View Recreation Residences by vehicles can be limited in some years during spring runoff when flows in Cabin Creek are high and the road is flooded and/or temporary closed.
Environmental Consequences Effects Common to all Alternatives The project area is outside of Idaho Roadless Areas, Research Natural Areas, and Wilderness. The summer ROS classification would also remain unchanged by all alternatives. The project area lies within the Roaded Natural ROS and would not be affected under any alternatives. Segments of two trails (Cabin Creek and Alpine Lake Creek), within the broader area of potential impact, pass through segments of Semi-Primitive, Non- Motorized and Primitive ROS and will not be affected. All alternatives would also remain consistent with existing ROS winter classifications of Semi-Primitive Motorized and Semi- Primitive, Non-motorized . None of the alternatives would change existing recreation sites in terms of development level, though how they are accessed would differ by alternative. None of the alternatives would affect how winter access is managed. Present cross country ski trails would continue to be groomed. Existing closures will remain in effect. Forest Plan direction for winter recreation would be met. All alternatives are also consistent with forest wide Forest Plan direction REOB07 and REOB10. All alternatives would also be consistent with the Sawtooth NF Recreation Niche, however, some alternatives support the niche more than others. Alternative 1 – No Action Direct and Indirect Effects Measure Relative probability and frequency of illegal motorized incursions into the existing Alturas Lake Nordic Ski Area : There would be no effect to the measure – the existing ski area closure to motorized uses would remain the same. Some snowmobile violations of the ski area closure would continue to occur annually as described within the affected environment. Winter Recreation Experience Under this alternative, there is no change to the experience of winter recreationists using the Alturas Lake/Cabin Creek area from what they currently encounter. The existing motorized use closure for the Alturas Nordic Ski Area would remain the same. Snowmobile use would continue on non groomed routes. Winter access to organization camps would continue on oversnow vehicles.
42 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
The existing ski trail system supports the Sawtooth NF Recreation Niche by providing winter trails that connect people with the landscape and link communities to the Forest yearlong. Motorized use is supported in the project area outside the Ski Area where snowmobilers explore the forest away from main travel corridors. The Sawtooth Ski Club is under agreement to help deliver quality winter recreation opportunities. The No Action Alternative is consistent with Forest Plan direction related to the winter recreation experience. Trails / Trailheads (Summer) Under this alternative, there would be no change to the experience of recreationists using the Alturas Lake/Cabin Creek area from what they currently encounter (see Affected Environment). The No Action Alternative is consistent with Forest Plan direction related to recreation resources. Dispersed Recreation (Summer/Fall) Under the No Action alternative, the purpose and need of the project would not be met. Resource needs and associated road damage relative to continuation of travel through wetlands on Road 207 would continue. None of the existing, but unauthorized, routes in the project area would be adopted into the managed travel system, and so legal access to existing dispersed sites would not be possible. Therefore, this alternative does not move towards Forest Plan REG005 direction. Recreation Special Uses Under the No Action alternative use by affected organizational camps, and recreation residences would continue as described within the Affected Environment. Use of 0.5 miles of Cabin Creek Road 207 by these camps and cabin residents would remain seasonally limited during periods of high water. Cumulative Effects Since there are no direct effects as a result of not implementing the proposed action, there are no cumulative effects either.
Alternative 2 – New Road Direct and Indirect Effects Measure Relative probability and frequency of illegal motorized incursions into the existing Alturas Lake Nordic Ski Area : Summer use of the new road and bridge may increase the likelihood that snowmobilers would also use the route in winter – crossing the Ski Area and affecting skier experiences negatively. Recreationists present when violations take place would be affected by the noise and smell of snowmobiles. Skiers who use the area after the snowmobiles have left would be affected by the snowmobile tracks that remain, as evidence of motorized travel, until there is sufficient snowfall to cover them. Increased violations of
43 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction motorized use in the ski area would likely lead to more conflict between non motorized and motorized users. These conflicts could be reduced with the treatments and signs that are prescribed in the Construction, Planning, Design, and Monitoring Features section. These efforts would direct snowmobilers to use a route paralleling the former Road 207. The ski area boundary would also be posted closed to the east of this route, including the relocated Road 207 and regular patrols of this area would continue as funding is available. Winter Recreation Experience This alternative would establish a new summer travel route to the east of Perkins Lake connecting Road 207 with Road 205 (Alturas Lake Road) via a new bridge over Alturas Lake Creek. This route would bisect the non motorized closure and cross an established ski trail to Alturas Lake. The potential effects to uses within the Ski Area are discussed in the Measure section immediately above. Snowmobilers who currently follow Road 207 as an unmarked trail connecting Pettit Lake north to Smiley Creek may experience some initial frustration in finding their way past the restored segment on the south end of the route, through the meadow, where willow and other natural materials have been placed. These treatments could make over snow travel difficult in some conditions if attempting to follow the former roadway. However, lodgepole pines that have encroached into the natural meadow opening on the west side of the former route would be removed with the restoration, establishing sufficient opening for a new ungroomed route, with posted signs redirecting users for the first few years until the route is known and established. The new bridge across Alturas Lake Creek may provide an additional opportunity for ungroomed ski or snowshoe trails using the new bridge as access. No disruptions would occur to winter recreation from road construction or restoration efforts. The Sawtooth NF Recreation Niche success factors of increased visitor satisfaction and support for local communities may be compromised if violations to the winter Ski Area closure increase and, initially, for snowmobilers who would have to adjust their travel route from former Road 207. Although there may be impacts to the winter recreation experience of users as a result of the removal of the segment of Road 207, the impacts are limited in scope and therefore the proposed action is consistent with Forest Plan direction. Trails / Trailheads (Summer) This alternative would relocate Road 207 to the east of Perkins Lake, connecting with Road 205 (Alturas Lake Road) via a new bridge over Alturas Lake Creek. Safe connections for existing authorized roadways (Cabin Creek Trailhead, Cabin Creek Organization Camp, Camp Perkins) to the new road alignment would be accommodated. Forest visitors would continue to access the Alturas Creek and Cabin Creek Trailheads as before, except that vehicle travel times could increase up to 3 minutes if utilizing the new alignment of Road 207, depending on the origin of travel and the destination.
44 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
The non system trail that follows the lakeshore around Alturas Lake would continue to be utilized by lake visitors and organization camps. No changes, other than national trends, are anticipated to the use of trailheads or trails under this alternative. Disruption to summer trail recreation use would be minimal since the existing alignment would remain open until the new route and bridge are complete and open for travel. This alternative best supports the Sawtooth NF Recreation Niche by continuing to provide trail systems that link communities to the Forest yearlong; supporting hiking, climbing, horseback riding and lakeside camping. Although there would be impacts to recreation users at trails and trailheads as a result of the removal of the segment of Road 207, the impacts are limited in scope and therefore the proposed action is consistent with Forest Plan direction. Dispersed Recreation (Summer/Fall) This alternative would relocate Road 207 to the east of Perkins Lake, connecting with Road 205 (Alturas Lake Road) via a new bridge over Alturas Lake Creek. Safe connections would be provided to existing authorized roadways to the new road alignment. Roughly 0.5 miles of Road 440 would also be closed and rehabilitated. Approximately 2.3 miles of currently unauthorized routes would be designated and adopted into the managed travel system. Disruption of access for dispersed recreation use would be minimal as the existing alignment would remain open until the new route and bridge are complete and open for travel. However, the immediate bridge construction area would be unavailable to recreationists, and noise and traffic from construction would affect dispersed campers and day users in the vicinity. The construction period would likely coincide with the late summer/fall low recreation season. Users may experience some initial uncertainty as they adapt to the new alignment of Road 207. However, all existing destinations and general opportunities legally open to full size vehicle and OHV travel would remain available. Circulation changes would result in limited change in use patterns by dispersed campers, lake visitors, OHV users and firewood cutters. Access to existing dispersed campsites would be slightly rerouted with the removal of Road 440 and the construction/reconstruction of the new bridge and road realignment. Existing user created routes off of Road 440, 442 and on the south side of Alturas Lake Road 205 would be adopted into the road system and displayed on travel and Forest maps. Use on these routes may increase slightly as a result, potentially displacing some current users. In addition to dispersed campers, the road access on the south side of Alturas Lake Road 205 also supports day use to a small walk in beach on the east shore of Alturas Lake. This site has long been popular with users seeking a less crowded and restricted experience than the developed sites on the lake. It is also popular with dog owners since dogs here allowed to be off leash. This beach has seen an increase in use since the implementation of user fees at the Inlet Beach and use could be expected to increase with the inclusion of the access road on Forest maps.
45 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
The project area is heavily used by firewood cutters. Existing areas open to firewood collecting would not be affected by this alternative. No effects are anticipated from the proposed action to these forest users. The Sawtooth NF Recreation Niche is supported under the proposed action by continuing to provide access to travel activities in this project area, including OHV riding, motor bike riding, and viewing scenery. Success factors for being environmentally sound are maximized under this alternative, and in Alternative 3, since both would remove roads from RCAs. By removing the proposed segment of Road 207 it would restore 0.7 miles of roadway to natural conditions while retaining visitor access. The need for Road 207 maintenance would also be reduced, improving the financial sustainability long term over the No Action alternative. Although there would be impacts to dispersed recreation users as a result of implementing Alternative 2, the impacts are limited in scope and therefore the proposed action is consistent with Forest Plan direction. Recreation Special Uses It is anticipated that the effects to recreation special uses would result from the proposed new route connecting Road 207 with Alturas Lake Road 205 via a new bridge over Alturas Lake Creek, and that removal and restoration of 0.7 miles of the former alignment of Road 207. Camp Perkins would have an improved junction off of Road 205 and into their camp that would better direct traffic into their facility. They would also have a more direct vehicle access to the Cabin Creek Trailhead. However, an increase in vehicle traffic on this new Road 207 alignment may lead to more vehicle traffic noise and dust adjacent to the camp. The increased traffic may also cause the camp to change or move authorized activities that occasionally fall outside of the permit boundary, such as overflow parking and recreational games/activities. Luther Heights would have continued cross country pedestrian access to the Cabin Creek Trail 191 near their camp, as they currently do (C. Olsen, manager, per comm), as well as the option to drive groups to the Trailhead via the new road and bridge. If driven, an additional 3 minutes would be required for travel time as compared to the No Action alternative. They would also continue to have the same cross country pedestrian access to the new and unchanged segments of Road 207, as well as the primitive roads off Road 207, for short day hikes, mountain biking, and overnight camping. Access to permitted activities around Alturas Lake, or west on Road 205, for the organizational camps would remain unchanged, with the exception of the Cabin Creek Organizational Camp, which would require approximately 3 additional minutes (one way) to travel by vehicle via the new alignment of Road 207. However, the distance/time for pedestrian access for the Cabin Creek Camp would increase substantially, depending on the season of access and the destination. The Valley View Recreation Residents, when utilizing Road 207, would also require roughly 3 additional minutes of travel time to access the Alturas Lake area.
46 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
Cumulative Effects Use numbers for Nordic skiing and snowshoeing have increased at Alturas Nordic Ski Area (L.Dean, personal observation; D.Keiski, ski trail groomer, per comm). Annual registration of snowmobiles has held steady in South Central Idaho (IDPR 2011). In recent years no additional trails for snowmobiling or skiing have been added, nor are any actions foreseeable that would add or remove trail miles. The effects of these social changes are not measurable, and no other foreseeable changes are anticipated. The ford of Road 205 through Alpine Creek was closed, and natural conditions restored, in 2006. The route beyond was replaced with 4.4 miles of road that was converted to single track motorized trail. A new and drier location for the Alpine Creek Trailhead was also established, leading to a new bridge crossing of Alpine Creek. The Pole Creek Travel Management project (currently being analyzed separately) is approximately six miles east of the project area. The project proposes to improve as necessary and designate approximately 8.5 miles of existing unauthorized two track trails, as National Forest system trails open to all terrain vehicles (ATVs). A dispersed camping area would be designated near the Pole Creek Corrals. The remaining unauthorized tracks in the area would be obliterated and rehabilitated, as would some existing dispersed camping areas. Approximately 10.6 miles of roads (mostly unauthorized) have been obliterated, with another 4.4 miles of road converted to trail, in recent decades within the broad vicinity of Alturas Lake. No additional changes, beyond those considered in the action, are foreseeable. No changes are also anticipated to the amount of trails and trailheads in the vicinity, and all opportunities to access trailheads would remain available. The effects of these actions on trail use are not measurable, and no other foreseeable changes are anticipated. National and state trends show a sharp increase in OHV use. This increase may contribute to increased use in the project area overall. As a result, there may be some minor changes in the experience of dispersed users, and their overall opportunities would be immeasurably changed in the upper Sawtooth Valley. Use numbers at the beach area on the east shore of Alturas Lake have increased because of restrictions to dogs on beach and fees in other sites. Under Alternative 2 use can be expected to continue to increase at this beach, displacing some users seeking solitude. The effects of these social trends and management actions on dispersed recreation are not measurable, and no other foreseeable changes are anticipated. No applicable changes to the permits or operations of the organization camps and recreation residences in the area are foreseeable. Access to the existing recreation opportunities in the Alturas complex would also be maintained for other organizational camps and recreation residents outside the project area. Alternative 3 – No New Road This alternative fundamentally differs from Alternative 2 only in that the new alignment and bridge for Road 207 would not be constructed. As such, many of the effects associated with Alternative 2 are shared by Alternative 3. The effects presented here principally focus on the effects that would differ under Alternative 3 from those discussed with Alternative 2.
47 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
Direct and Indirect Effects Measure Relative probability and frequency of illegal motorized incursions into the existing Alturas Lake Nordic Ski Area : Without the construction of the new alignment of Road 207 or bridge, additional violations to the motorized closure beyond the existing condition would not be expected. The remaining conflicts between motorized and non motorized uses could be further reduced with the treatments and signs that are prescribed in the Construction, Planning, Design, and Monitoring Features section. These efforts would direct snowmobilers to use a route paralleling the former Road 207. The ski area boundary would also be posted closed to the east of the former route, including the relocated Road 207, and regular patrols of this area would continue as funding is available. Winter Recreation Experience With Alternative 3 no new summer travel route would bisect the winter Ski Area closure, thus avoiding the potential effects of such a route that are articulated with Alternative 2. The remaining potential effects to the Ski Area and experience are discussed in the Measure section immediately above. As with Alternative 2, snowmobilers who currently follow Road 207 as an unmarked trail connecting Pettit Lake north to Smiley Creek may experience some initial frustration in finding their way past the restored segment on the south end of the route, through the meadow, where willow and other natural materials have been placed. The mitigations to these changes and their potential effects would be identical to Alternative 2. Alternative 3 would not present the opportunity for ungroomed ski or snowshoe use across a new bridge of Alturas Lake Creek, as would exist within Alternative 3. Otherwise, the potential effects to winter use from Alternative 3 would be identical to Alternative 2, and it would remain consistent with the Sawtooth Forest Plan and Recreation Niche. Trails / Trailheads (Summer) Trail users from developed sites at Alturas Lake would have to travel approximately an additional 10 minutes to access Cabin Creek Trailhead, potentially causing frustration for visitors accustomed to existing travel routes. As a result they may refocus their use to Alpine Lakes Creek Trail. This trail is managed for maximized solitude and an increase in use may affect wilderness values negatively. Use numbers at Cabin Creek Trail may see some slight reduction as a result of the additional drive miles. This reduction may provide more opportunities for solitude. The change at both trailheads would be anticipated to be minimal. This alternative supports the Sawtooth NF Recreation Niche by continuing to provide trail systems that link communities to the Forest yearlong; supporting hiking, climbing, horseback riding and lakeside camping. Success factors for visitor satisfaction may be reduced because of the inconvenience of access to Cabin Creek Trailhead from Alturas Lake.
48 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
Although there would be impacts to recreation users at trails and trailheads as a result of the removal of the segment of Road 207 under Alternative 3, the impacts are limited in scope and therefore it is consistent with Forest Plan direction. Dispersed Recreation (Summer/Fall) Under Alternative 3 Road 440 would not be closed or changed in any way, but, as with Alternative 2, approximately 2.3 miles of currently unauthorized routes within the project area would be designated and adopted into the managed travel system. With the proposed removal of the Road 207, dispersed users, including OHV, campers, and firewood cutters, would have to drive up to an additional 10 minutes (depending on their origin of travel and destination) to access their dispersed recreation sites, or Alturas Lake from their dispersed recreation sites. However, all existing destinations and general opportunities legally open to full size vehicle and OHV travel would remain available. Circulation changes would result in some change in use patterns by dispersed campers, lake visitors, OHV users, and firewood cutters. Access to dispersed campsites would have less convenient access from Alturas Lake with the removal of Road 207, which may reduce use. Users seeking solitude would benefit from this change, while others may experience some frustration because these sites would now be less convenient to Alturas Lake. As with Alternative 2, unauthorized user created travel routes would be adopted into the managed road system and displayed on travel and forest maps, and use of these routes may increase as a result, potentially displacing some current users. However, this increase may offset the potential reduction in use discussed immediately above due to a change to access convenience. The Sawtooth NF Recreation Niche is supported under Alternative 3 because maintenance needs on Road 207 would be reduced, and no new road would be constructed, improving the financial sustainability long term over the No Action Alternative and Alternative 2. Success factors for being environmentally sound are maximized under this alternative, with the Road 207 segment removed from RCAs, but visitor satisfaction may be reduced because of the reduction in access convenience. Although there would be impacts to dispersed recreation users as a result of implementing Alternative 3, the impacts are limited in scope and therefore the proposed action is consistent with Forest Plan direction. Recreation Special Uses Access to the organizational camps and permitted activities around Alturas Lake would remain unchanged with Alternative 3 except as it would have formerly utilized the south end of Road 207 for access. That is, for example, up to an additional 10 minutes, one way, would be required for vehicle access for Camp Perkins, Luther Heights, and Smokey Lodge to reach the Cabin Creek Trailhead, or for Cabin Creek Camp to reach Alturas Lake, via existing connections with Highway 75. These access changes for the camps could alter their permitted use of areas or destinations based on convenience. For example, Luther Heights and Camp Perkins may focus their use at
49 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
Alpine Creek Trail rather than make the longer drive to Cabin Creek Trail, and Cabin Creek Camp may focus their use at the closer Cabin Creek Trail. However, these specific activities/destinations that fall outside of the permit boundary are currently managed through their operating plans, with use limits, and would continue to be managed as such. These constraints would limit shifts in use to acceptable levels, and well as provide a mechanism to consider and manage change if it is determined necessary. Valley View Recreation Residences would require 4 additional minutes one way to drive to Alturas Lake via Highway 75. Otherwise, uses and conditions at the camps and recreation residences would be unaffected by the implementation of Alternative 3. Cumulative Effects The effects from applicable past, present, and foreseeable recreation actions, permits, or uses described in Alternative 2 apply equally to Alternative 3. A subtle difference would be that a more extended effect to the recreation experience from the permanent disconnection of Road 207 from Alturas Road 205. A former experience would be unavailable to those who may typically recreate outside the Alturas complex, but formerly would have driven Road 207 for pleasure or convenience as a connecting through route. Issue: UNAUTHORIZED ROUTES ______Existing summer recreation use in the project area relies, in part, on existing, but unauthorized, vehicle routes. By adopting such routes into the managed system, and thus to be shown and recognized on travel maps, visitor uses along such routes could change. The measures selected for contrast between the alternatives is: 1) Miles of unauthorized routes serving managed dispersed recreation and camping , and 2) Changes to the summer recreation experience. Though possibly established by various users, means, and/or objectives through time, these existing unauthorized routes persist almost exclusively due to the various recreation activities that continue to utilize them. As such, the analysis of this issue is intimately tied to the Recreation Experience issue, as well as similarly to the Road Use issue. The effects common to these issues are focused here, but also referenced to the more extended discussion contained within these other issue sections. For a full perspective of this issue, all three of these sections should be reviewed.
Affected Environment The 2.3 miles of unauthorized roads proposed to be added to the managed transportation system within the project area (Figure 3) are existing roads that were identified, analyzed and recommended within the Alturas Yellowbelly Roads Analysis (Sawtooth NRA 2006). The principle reason the routes were recommended for inclusion is that they provide access for appropriate dispersed recreation uses in locations that are sustainable, as well as compatible with other resources and uses. All reside within uplands on gentle topography. Routes in the area that were not so, or provided redundant access, were recommended for closure and rehabilitation. Subsequent planning and actions have implemented these removal recommendations (approximately 2.7 miles within the project area, including roughly ½ mile
50 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction from wetlands). The proposed action would implement the recommendation to adopt and manage those determined appropriate and desirable. These existing routes were also specifically examined and found in good condition, with no additional reconstruction needed to bring them up to the Maintenance Level 2 standard intended. Motorized travel within the Sawtooth National Forest is limited to routes designated on the Sawtooth NF Motor Vehicle Use Map (MVUM). Routes shown on the MVUM also stipulate the size/class of vehicle legal for use on the route, as well as the season of use. Within the project area, there is currently 8.1 miles of managed road system. Portions or full route lengths of Roads 205, 207, 324, 328, 438, 439, 440, 441, 442, and 442A are all designated for motorized travel. All are open to all motorized vehicles except Road 205, which is open to highway legal vehicles only. No motorized trails are located within the project area. The 2.3 miles of additional unauthorized routes within the project area are not designated on the MVUM, and are therefore not currently legal for motorized use. Nevertheless, it is recognized that these routes are well established and consistently used by visitors and managers, with a variety of motor vehicles, throughout the summer season. This presents an annual dilemma for visitors who might otherwise adhere to the MVUM, as well as to law enforcement attempting to administer the Forest’s legal requirements. All these unauthorized routes are located on flat to gently sloping terrain with one ¼ mile exception in the north end of the project area, which includes some short segments of moderately steep conditions. All are also located within upland conditions: however, approximately 0.4 miles are located with the RCAs adjacent to streams, lakes, or wetlands (see Figure 3). The MVUM also recognizes and authorizes motor vehicles traveling up to 300 feet from designated roadways for the purpose of dispersed camping. Such user established pullouts and short spurs exist within the project area, but are typically not designated nor managed as part of the travel system since their use is already consistent with the MVUM. Both action alternatives would maintain this status for these minor routes. Forest Plan direction applicable to the Unauthorized Routes issue:
Number Forest-wide Management Direction Description
FRGO01 Provide and maintain a safe, efficient Forest transportation system that meets resource management and access needs, while mitigating degrading resource effects. Analyze road system needs and associated resource effects in accordance with the FROB01 established agency policy direction for roads analysis. During fine-scale analyses, identify opportunities to reduce road-related degrading FROB04 effects to help achieve other resource objectives. Identify roads and facilities that are not needed for land and resource management, FROB06 and evaluate for disposal or decommissioning. Roads shall be constructed to a standard appropriate to their intended use, considering FRST04 safety and concerns for resource degradation.
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Number Forest-wide Management Direction Description Travel management should be used, as needed, to accomplish the following: a) Provide for the safety and welfare of the users. b) Protect threatened and endangered species and their habitat. c) Protect Forest resources, such as wildlife, soil, vegetation, and water. d) Provide a diversity of recreational experiences and reduce user conflicts. FRGU09 e) Protect road and trail investments. f) Comply with Forest contracts or permits, cooperative agreements, road purchase agreements, easement deeds, or other formal documents of the Government requiring that road use be controlled. g) Coordinate hunting and fishing opportunities with State agencies.
Environmental Consequences Alternative 1 – No Action Direct and Indirect Effects Measure Miles of unauthorized routes serving managed dispersed recreation and camping : 2.3 miles of unauthorized, un designated, travel routes would remain within the project area, with uses inconsistent with the MVUM. Changes to the summer recreation experience : Existing experiences would be expected to continue unless, at some future time, policy directs strict enforcement of the MVUM requirements within the project area. If this change were to occur, dispersed recreation opportunities within the project area would be diminished substantially. Cumulative Effects Since there are no direct effects as a result of not implementing the proposed action, there are no cumulative effects either. Alternative 2 – New Road Direct and Indirect Effects Measure Miles of unauthorized routes serving managed dispersed recreation and camping : There would be no known unauthorized travel routes within the project area. Motorized travel to managed uses would be consistent with the MVUM and compliant with Forest Plan direction. Changes to the summer recreation experience : Use on these routes may increase slightly as a result of them being shown on visitor and travel maps, potentially displacing some current users of the dispersed campsites and day uses destinations along them (see Visitor Experience, Alternative 2, Dispersed Recreation).
52 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
Cumulative Effects Additional user created routes are likely to develop in the future within the project area, but could be more consistently addressed, once a designated baseline is established, with enforcement actions and closures. Approximately 10.6 miles of travel routes (mostly unauthorized) have been obliterated, with another 4.4 miles of road converted to trail, in recent decades within the broad vicinity of Alturas Lake. The Pole Creek Travel Management project (currently being analyzed separately) is approximately six miles east of the project area. The project proposes to similarly designate approximately 8.5 miles of existing unauthorized two track trails, as National Forest system trails open to all terrain vehicles (ATVs). The remaining unauthorized tracks in the area would be obliterated and rehabilitated, as would some existing dispersed camping areas. Many of these prior or foreseeable actions listed above are intended to address the restoration goals and objectives of the Forest Plan, including the Management Prescription for the area: Active Restoration and Maintenance of Aquatic, Terrestrial and Hydrologic Resources . Many of these actions, though improving conditions for these resources, also further constrain the traditional access of visitors seeking such amenities as separation, waterfront, or vistas. Users have found travel routes incrementally closed to vehicle use, and sometimes entire areas that were formerly accessible (legally or not). Similarly, dispersed campers have found campsites they formerly used moved or separated further from the creek, or removed altogether. Alternative 2 would relocate Road 207 and add to this cumulative change to visitor access in the watershed and to similar actions throughout the Sawtooth NRA. At the same time, Alternative 2 would specifically adopt 2.3 miles of currently unauthorized travel routes, adding security and legitimacy to their persistent use by future visitors. Alternative 3 – No New Road Direct and Indirect Effects Measure Miles of unauthorized routes serving managed dispersed recreation and camping : There would be no known unauthorized travel routes within the project area. Motorized travel to managed uses would be consistent with the MVUM and compliant with Forest Plan direction. Changes to the summer recreation experience : Use on these routes could increase slightly as a result of them being shown on visitor and travel maps, potentially displacing some current users of the dispersed campsites and day uses destinations along them. However, this outcome could be offset for those designated north of Alturas Lake Creek by a possible reduction in use resulting from less convenient access (see Visitor Experience, Alternative 3, Dispersed Recreation). Cumulative Effects These effects would be identical to those considered with Alternative 2.
53 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
OTHER RESOURCES ______The issues identified for consideration and analysis did not encompass all uses or resources occurring within the area. However, based on the feedback received, it was determined that consideration and public disclosure of the potential effects to these uses and resources was also important. As such, the uses and resources considered in this section have typically been considered in detail in individual reports contained within the project record, and are summarized here.
Lands Special Uses Affected Environment Midvale Telephone and Salmon River Electric Cooperative (SREC) own and operate utility lines within National Forest System Lands of the Sawtooth NRA under special use permits. The proposed action includes the relocation of a short segment of the buried Midvale Telephone line, and SREC’s operation and maintenance may also be influenced. Midvale Telephone’s trunk line into the Alturas complex follows Road 207 south, with approximately 1.5 miles within the project area. This line branches at the junction with Road 205 and includes another 1.4 miles within the project area along Roads 205 and 442 (Figure 3). This line, and special use permit, provides telephone service to the organizational camps in the area: Camp Perkins, Luther Heights, Cabin Creek, and Smokey Lodge. SREC’s overhead supply powerline to the area follows a similar southerly course roughly parallel, but offset, with Road 207. Roughly ½ mile north of Road 205 the line branches to the various power destinations in the area (Figure 3), which is principally the organizational camps. There are approximately 3 miles of branching power lines within the project area. Environmental Consequences The no action alternative would maintain the status quo for both utilities described above. With the removal of the southern end of Road 207, both Alternatives 2 and 3 would require the relocation of 0.6 miles of telephone line that is currently buried within the roadway. Alternative 2 would require approximately 1 mile of new line to be established along the new alignment attaching to the new bridge for the crossing of Alturas Lake Creek (Figure 4). Alternative 3 would require approximately 1.2 miles of new line to be established: within Road 440 and an adopted route to the existing power line crossing for the crossing of Alturas Lake Creek, then suspended over Alturas Lake Creek from the existing SREC power poles, then underground again in Road 442 to Road 205 (Figure 5). No influence to the day to day operation and maintenance of SREC’s existing overhead powerline would be expected from either of the action alternatives. However, design and construction of the new alignment of Road 207 under Alternative 2, where it currently closely follows Road 442 for ¼ mile, could conceivably require some minor changes such as pole or guy wire relocations. No other lands special uses would be affected by the action, nor any other resulting cumulative effects.
54 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
Botanical Affected Environment Forested vegetation within the Cabin and Alturas Creek area is lodgepole pine ( Pinus contorta ) forest. A recent and natural infestation of mountain pine beetle has caused a major die off of the lodgepole overstory, however, seedling trees are abundant in the understory as well as elk sedge ( Carex geyeri ) Ross sedge ( C. rossii ) among scattered perennial forbs. Upland non forest vegetation is primarily mountain big sagebrush ( Artemisia tridentata vaseyana ) with native bunch grass and forbs such as Idaho fescue ( Festuca idahoensis ), Wheeler’s bluegrass ( Poa nervosa ), bottlebrush squirreltail ( Sitanion hystrix ), Sanburg’s bluegrass ( Poa secunda ), and bluebunch wheatgrass ( Pseudoroegneria spicata ), pussytoes (Antennaria microphylla ), sandwort ( Arenaria capillaries ), balsamroot ( Balsamorhiza sagittata ), silky lupine ( Lupinus sericieus ), sego lily ( Calochortus nuttallii ), and yarrow (Achillei millefolium ), several species of buckwheats ( Eriogonum sp ), and numerous genera of Asteraceae including, Senecio , Erigeron , Hieracium , and Symphyotrichum species. The area is a popular recreation location for dispersed camping and motorized recreation as well as firewood cutting. As a result, patches of bare soil are common in the area, as well as exposed soils associated with the many unauthorized roads through lodgepole and sagebrush. Cabin Creek, is an alluvial fan/wetland that spreads in several channels and side channels. Road 207 disrupts the natural flow in multiple locations. Cabin Creek riparian area is vegetated with a variety of shrub species and hydric grasses and sedges. Alturas Lake Creek riparian area is vegetated by woody species ( Pinus contorta, Vaccinium uliginosum, Salix drummondiana ) and hydric grasses and sedges ( Carex aperta, C. rostrata, C. viridula, C. aquatilis, Juncus balticus, Calamagarostiscanadensis ) Non native invasive and noxious species such as cheatgrass ( Bromus tectorum ), smooth brome ( Bromus inermis ), crested wheatgrass ( Agropyron cristatum ), intermediate wheatgrass (Thinopyrum intermedium ), alfalfa ( Medicago sativa ), field brome ( Bromus arvensis ), bulbous bluegrass ( Poa bulbosa ), yellow sweet clover ( Melilotus officinalis ), false or scentless chamomile ( Tripleurospermum perforatum ), and mullein ( Verbascum thapsus ), spotted knapweed ( Centurea stoebe ), yellow toadflax ( Linaria vulgaris ), and Canada thistle (Cirsium arvense ) exist in small infestations within the project area, or within potential borrow sources, material storage sites, or along travel routes that access the project area. The State of Idaho operates an organization camp within one half mile of the project area and also operates and maintains the right of way of Highway 75, which typically includes brushing, herbicide application, and snowplowing. Approximately 500 acres of private land occur within the Alturas Lake Creek watershed. Structures and activities associated with the private lands include residential homes, diversions and irrigation, and livestock grazing. Portions of the State and private lands within the Alturas watershed have noxious weed infestations. There are no known occurrences of any ESA plant species, nor Regional Forester’s Sensitive or Forest Watch plant species, within State or private lands within the Alturas watershed. On federal lands within the Alturas Lake Creek watershed, the primary activities that have impacted plant species of concern and their habitats are domestic sheep
55 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction grazing, developed recreation, system and nonsystem roads, recent timber harvesting, dispersed recreation, organization camps, recreation residences, Nordic skiing on groomed trails, snowmobiling, firewood cutting, insecticide application, and hazard tree removal. Commercial harvest of mountain pine beetle infested killed trees on approximately 160 acres has occurred over the past decade within the watershed. In addition, from 2004 to 2008 carbaryl insecticide was sprayed on specific trees within developed sites to protect them from mountain pine beetle. Pesticide application to control noxious weeds occurs annually. Several restoration activities have taken place within the watershed over the past two decades. These activities have focused on riparian and wetland habitats. Approximately 10.6 miles of roads (15.4 acres) have been obliterated (mostly nonsystem) with another 4.4 miles of road converted to trail. Approximately 3.3 miles of irrigation ditch, mostly within sagebrush habitat, and approximately 1.7 miles of drainage ditch within wetlands have been removed. Barriers to fish movement were removed in Alturas Lake Creek, Pettit Lake Creek and Yellowbelly Lake Creek. The Alpine Creek ford was restored and replaced with a bridge crossing, trail reroute, and new and drier location for the Alpine Creek Trailhead. Within Inlet Campground, sites located in riparian areas were relocated outside of riparian areas and fence was constructed to encumber general foot traffic thereby providing relief to the suppressed streamside vegetation. Within Cabin Creek, a diversion ditch was plugged to allow more flow into the natural channel of Cabin Creek. In response to excessive day use at Alturas Lake outlet, approximately 100 feet of logworm fencing was erected along the shoreline near the outlet in order to encumber the general foot traffic continuing in the area. Shoreline transplants were then added to these protected areas. Past management activities and disturbances have contributed to the establishment and distribution of non native invasive and noxious plant species in the Alturas watershed. Past forest activities, such as grazing, vegetation treatments, recreation uses, road maintenance and travel along roadways, including gravel and paved roads, has probably affected the abundance and distribution of noxious or invasive weeds in the project area. However, without consistent mapping of the distribution of non native invasive and noxious plant species, the sources and mechanisms of their introduction remains unclear and/or difficult to verify. The foreseeable future actions within the Alturas Lake Creek watershed with potential effects to plant species of concern include ongoing recreation uses, road maintenance, and pesticide application. The botanical analysis focus on the potential effects to three classes of plant species: 1) ESA listed species, 2) Regional Forester’s Sensitive and Forest Watch species, and 3) non native invasive noxious (weed) species. Sawtooth NRA GIS datasets, as well as the results of botany field observations within areas that could be affected by the proposed action were used to consider and describe the effects and existing conditions. Comprehensive surveys for non native plant species have not been conducted recently within the project area. The analysis relies on existing information. Additional areas occupied by non native plant species may now be present, but unidentified, and areas formerly identified may have been treated and eliminated, or reduced in extent.
56 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
Environmental Consequences ESA Threatened, Endangered, and Candidate Species There are no known occurrences Ute ladies' tresses ( Spiranthes diluvialis ), nor any other plant species listed under the Federal Endangered Species Act, within the project area.
US Forest Service Sensitive and Forest Watch Species Alternative 1 Alternative 1 may impact park milkvetch ( Astragalus leptaleus), slender moonwort (Botrychium lineare ), least moonwort ( Botrychium simplex), Stanley thlaspi mustard (Nocceae idahoensis var. aileeniae), and bugleg goldenweed ( Pyrrocoma insecticruris), but would not likely contribute to a trend towards federal listing or cause a loss of viability to the population. Potential habitat of these species is being impacted and would continue to be impacted by the ongoing road maintenances, recreational use, and unauthorized cross country travel. No impact would occur to tall swamp onion ( Allium validum), Buxbaum’s sedge (Carex buxbaumii), pale sedge (Carex livida), spoon leaved sundew ( Drosera intermedia, giant helleborine orchid ( Epipactis gigantea) , and Blandow’s Helodium ( Helodium blandowii) given that currently no disturbances occur in potential habitat in Alturas Lake Creek where the potential habitat for the aforementioned species occurs. The No Action Alternative 1 has the least impact to Sensitive and Forest Watch Plant species. Alternative 2 Alternative 2 may impact tall swamp onion ( Allium validum), p ark milkvetch ( Astragalus leptaleus), slender moonwort ( Botrychium lineare ), least moonwort ( Botrychium simplex), Buxbaum’s sedge (Carex buxbaumii), pale sedge (Carex livida), spoon leaved sundew (Drosera intermedia, giant helleborine orchid ( Epipactis gigantea) , and Blandow's Helodium ( Helodium blandowii) Stanley thlaspi mustard ( Nocceae idahoensis var. aileeniae), and bugleg goldenweed ( Pyrrocoma insecticruris), but will not likely contribute to a trend towards federal listing or cause a loss of viability to the population. Potential habitat would be impacted by the construction of the new alignment, bridge construction, removal of Road 207, recreation uses, unauthorized cross country travel, and ongoing maintenances associated with the project. These effects would also increase the cumulative past, present, and foreseeable effects to these species. The Proposed Action, Alternative 2, has the greatest amount of ground disturbance associated with implementation of all three alternatives, and therefore the greatest short term impacts to Sensitive and Forest Watch Plant species. In the long term a successful implementation and restoration would benefit the habitat for the aforementioned plant species. Alternative 3 Alternative 3 may impact park milkvetch, ( Astragalus leptaleus), slender moonwort (Botrychium lineare ), least moonwort ( Botrychium simplex), Stanley thlaspi mustard (Nocceae idahoensis var. aileeniae), and bugleg goldenweed ( Pyrrocoma insecticruris), but will not likely contribute to a trend towards federal listing or cause a loss of viability to the population. Potential habitat would be impacted by the removal of Road 207, ongoing
57 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction recreational use, unauthorized cross country travel, and ongoing road maintenance. These effects would also increase the cumulative effects to these species. No impact would occur to tall swamp onion ( Allium validum), Buxbaum’s sedge (Carex buxbaumii), pale sedge (Carex livida), spoon leaved sundew (Drosera intermedia, giant helleborine orchid ( Epipactis gigantea) , and Blandow's Helodium ( Helodium blandowii) given that no disturbances would occur in potential habitat in Alturas Lake Creek, and Alternative 3 does not propose any activities in the areas where the potential habitat for the aforementioned species occurs. Alternative 3 has more ground disturbance associated with the implementation than the No Action, but less than the Alternative 2. In the long term a successful implementation and restoration of Alternative 3 would benefit the habitat that is present for the aforementioned plant species.
Indirect Impacts Effects could result from all alternatives to all the above mentioned species and/or potential habitat, through the introduction and spread of non native invasive and noxious plant species. Non native plant species change community composition, diversity, successional pathways, and compete for scarce resources with other species. The road maintenance that include chemicals to abate dust or cohere the road surface, and pesticide applications to treat noxious plant species, could be toxic to plant pollinators, soil microbes, and mycorrhizal fungi associated with the above mentioned species. This could result in eliminating pollinators from the area that would change reproduction and/or changing affiliated soil conditions that would create unsuitable habitat conditions. Non-Native Invasive Noxious (Weed) Species Alternative 1 Current levels of risk of introduction or spread of non native invasive and noxious plant species would continue to exist, under the no action alternative. This includes ongoing road maintenances, permitted recreation uses, and unauthorized cross country travel. Treatment of noxious weeds within the project area would continue as it has in the past. The No Action Alternative has the least amount of risk for spread and introduction of noxious weeds. Alternative 2 Activities resulting in the removal of native vegetation, ground disturbances, and areas of bare soil, increase suitable habitat for colonization and expansion non native invasive and noxious plant species. Utilizing heavy equipment mobilized from other locales, and transporting borrow and waste material from areas where noxious weeds currently exist also present risks of their introduction. Alternative 2 has the greatest amount of risk for spread and introduction of noxious weeds.
Alternative 3 Alternative 3 would result in less new ground disturbance than Alternative 2, and therefore less risk for the spread and introduction of non native invasive and noxious plant species, but more than the No Action Alternative.
58 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
Indirect Impacts The invasion of non native species and the displacement of native plant communities would reduce biological diversity and simplify complex communities, threaten rare species habitats, replace wildlife forage, increase management problems, potentially increase fire hazard, reduce quality of recreational experience, and alter community successional pathways. Road maintenance material and chemicals, and chemical herbicides used to treat noxious species could be toxic to plant pollinators and reduce their numbers or eliminate them from the area which would change the reproductive cycles of the plant species they pollinate.
Forest Plan Consistency All alternatives would be consistent with Forest Plan Direction regarding plant species of concern and non native invasive noxious (weed) species. Wildlife Affected Environment The dominant forest overstory community in the project area consists predominantly of lodgepole pine with Douglas fir, Engelmann spruce, subalpine fir, and aspen present as well. Wetlands associated with the alluvial fan of Cabin Creek occur within the project area. Other wetland areas associated with Alturas Lake Creek occur in the area as well. Vegetation consists of willow, and various sedges, grasses, and forbs. Sagebrush meadows occur within the project area interspersed among the forest and wetland areas. There are also closely related situations to the proposed action in the area. Over the past eight years, approximately 8 miles of unauthorized routes have been restored to natural conditions within the Alturas Lake Creek watershed. However, approximately 6 miles of inventoried unauthorized roads remain in the watershed. There is a groomed winter ski trail system in the area closed to motorized use. There are also four organizational camps in the area, including one of which accesses their camp and transports visitors in the winter via a snow coach/van. Timber management activities have taken place within much of the developed facilities (campgrounds, picnic areas, organizational camps) of the project area over the past five years in response to mountain pine beetle infestations, including tree thinning and hazard tree removal. These activities have greatly reduced stem densities. Firewood cutting has also reduced stem densities in some locations. Natural openings of sagebrush, grasses and forbs occur in the area as well. The riparian area of Alturas Lake Creek within the project area is composed of mixed forest conifer and meadow/shrub species. Several restoration activities focused on riparian and wetland areas have taken place over the past two decades. For consideration of potential cumulative effects to several wildlife species, State, private, and federal past, present, and foreseeable future actions within the north end of the Sawtooth National Forest, or within the Sawtooth NRA for others, are also considered. Approximately 37,500 acres of private land and 2,900 acres of state land occur within the north end of the Sawtooth National Forest. State activities on these lands include: highway operation
59 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
(material sources, highway right of way maintenance, clearing, drainage cleaning and installation, herbicide application, sanding, and snowplowing); and operation of the Sawtooth Fish Hatchery, a fish weir on Redfish Lake Creek, and Camp Stanley. Private activities on these lands include: mining operations; livestock grazing operations (on both state and private lands); residential and commercial developments; recreation facilities; private land fuels reduction projects; diversions and the associated irrigation; and operation and maintenance along utility rights of way, including vegetation management. These lands, both forested and nonforested, provide lynx, wolverine, and sage grouse habitat. State land occurs within ½ mile of the project to the southeast, and private lands within ½ mile of the project to the east. The Highway 75 right of way passes within one half mile to the east of the project area. Approximately 500 acres of private land occur within the Alturas Lake Creek watershed. Structures and activities associated with the private lands include vacation homes, diversions and irrigation, and livestock grazing. Most of the state and private lands within this LAU are non forest and not lynx habitat. Approximately 175 acres of state and private lands could be considered lynx habitat. All of these lands are wolverine habitat including approximately 80 acres in the upper watershed (patented mining claims). Approximately 420 acres of these lands are sage grouse habitat. The full and diverse aspects of the past and present multiple uses, developments, and activities on National Forest System Lands on the north end of the Sawtooth National Forest have impacted terrestrial species of concern and their habitats (e.g. system and non system roads, livestock grazing, pesticide and herbicide applications, summer and winter recreation and non recreation activities and facilities, water diversion, timber harvest, and mining). The cumulative effects area contains many potential human caused sources of mortality for birds such as window strikes, power line collisions, fence collisions, vehicle collisions, house cat predation, and pesticide exposure. Within the Alturas Lake Creek watershed, the primary federal activities that have impacted wildlife species of concern and their habitats are domestic sheep grazing, developed and dispersed recreation, roads, 160 acres of recent timber harvesting, organization camps, recreation residences, 11.2 miles of groomed Nordic ski trails, snowmobiling, firewood cutting, insecticide application, and hazard tree removal. Of these activities, the recent timber harvests, hazard tree removal, roads, and developed and dispersed recreation activities have altered habitat for species of concern in the area by removing or degrading potential foraging, denning, and nesting habitat. Insecticide applications have likely had some negative effect on insect availability for migratory birds and woodpeckers. Several restoration activities, focused on riparian and wetland environments, have been implemented within the watershed over the past two decades as described throughout this document (e.g. preceding Botanical, Affected Environment). These restoration activities have improved habitat for species that use riparian and wetland habitats including the bats, fisher, bald eagle, peregrine falcon, and spotted frog. There are no foreseeable future actions within the Alturas Lake area with potential effects to wildlife species of concern.
60 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
Environmental Consequences The timeframe for effects from the action alternatives of this project are expected to be permanent where the new roads or bridge would be located. The wetland restoration would be long term (>15 years) due to the time necessary for regrowth of vegetation to occur. The following summarizes potential direct, indirect, and cumulative effects to wildlife species of concern. Note that for many of the species considered here, the conversion of habitat to roadways typically results in direct and indirect impacts. However, user created (aka ‘unauthorized’) routes, such as those within the project area, can occur indiscriminately on the landscape irrespective of any management decision, and may or may not be known, let alone inventoried, at any given time. As such, they may or may not be included within the known baseline conditions for any given species considered here. Regardless, for consistency, the effects conclusions here typically treat the adoption of the unauthorized roads (2.3 miles) within the project area as new changes to the landscape (as if they were being established new), though many of the potential effects of these routes are existing currently with the unauthorized travel routes. ESA Threatened, Endangered, and Candidate Species The Sawtooth NRA provides habitat for Canada lynx (Lynx canadensis ), an ESA listed species, and three candidate species: wolverine (Gulo gulo ), greater sage grouse (Centrocercus urophasianus ), and yellow billed cuckoo (Coccyzus americanus ). No lynx populations have been documented recently within the Sawtooth NRA. In 1998 lynx tracks were identified within the Alturas Lake Creek drainage above Alturas Lake (2.7 miles from the project area). Trapping records from the 1960's and 1970's show that lynx occurred throughout the Salmon River watershed on the Sawtooth NRA. The project area is located within the Hell Roaring Alturas Lynx Analysis Unit (LAU). The population trend for wolverine is unknown within the Sawtooth NRA, but individuals are known to occur in all the mountain ranges in the Sawtooth NRA. Numerous observations of animals and tracks have been reported in the Alturas Lake area. The entire project area contains wolverine habitat but not reproductive denning characteristics. A small, remnant population of greater sage grouse is present within the Sawtooth Valley. Home range size of this population averaged 900 acres for males and 1,470 acres for females. The status of this population is unknown, but thought to be small and stable to declining. Observations of greater sage grouse have been reported within 2 miles of the project area in the Sawtooth Valley as recently as 2005 (R. Garwood, pers. obs.). Brood rearing habitat occurs within the project area where sagebrush and wetland areas are present. It is unknown if yellow billed cuckoos occur on the Sawtooth NRA. Portions of the NRA contain habitat for the western subspecies of the yellow billed cuckoo within riparian woodlands along the Salmon River below Stanley where cottonwood trees occur. An unconfirmed sighting of yellow billed cuckoo in 2003 was reported in the Fisher Creek drainage approximately 8.5 miles northeast of the project area. No potential habitat for this
61 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction species occurs within the project area due to the lack of contiguous deciduous forests along streams. As such, none of the alternatives would affect yellow billed cuckoo. Alternative 1 There would be no change from existing condition to any terrestrial ESA Threatened, Endangered, and Candidate Species. The Hell Roaring Alturas Lynx LAU contains approximately 19,387 acres of lynx habitat including 2,398 of denning habitat. The project area contains approximately 695 acres of lynx habitat including approximately 30 acres of denning habitat. Existing system roads occupy approximately 15.5 miles of lynx habitat (31 acres). Unauthorized roads, including the 2.3 miles within the project area, result in similar effects though they are not accounted for within the existing LAU baseline of habitat conditions. The system and unauthorized roads, and associated human activity in the project area, have resulted in reduced habitat quality and quantity for lynx. There are approximately 26 miles of system roads (62 acres) and 6 miles (8.7 acres) of unauthorized roads within the Alturas Lake Creek watershed in wolverine habitat. The use of the roads and associated developments can result in both avoidance and attraction by wolverines – avoid human activity but attracted by human food. There are approximately 10.7 miles (25.2 acres ) of system roads and 3.1 miles (4.5 acres) of unauthorized roads within the Alturas Lake Creek watershed within sage grouse habitat. The travel routes, and their use, have degraded sage grouse habitat from loss of habitat, human disturbance, and spread of invasive species into sagebrush communities.
Table 5: Within habitat effects to lynx
Alternative 2 Alternative 3 Acres of Habitat Permanent Unsuitable * 2.4 1.9 Acres of Habitat Restored 0.2 0.2 Acres of Permanent Habitat Change -2.2 -1.7
Miles of road added* 1.5 1.3 Miles of road removed 0.1 0.1 Chang e in miles of road +1.4 +1.2 *Approximately 1.2 miles (1.8 acres) already exist as unauthorized routes. Alternative 2 The human disturbance and developments under Alternative 2 would not likely result in a lower probability of lynx using this area than currently exists. There would be a decrease of approximately 2.2 acres of lynx foraging habitat under Alternative 2 (Table 5), though most of this area would be associated with the existing unauthorized travel routes that would be adopted into the managed road system. These effects would be cumulative to those currently occurring within the north end of the Sawtooth National Forest. No lynx denning habitat would affected. Alternative 2, when combined with recent harvest and fire changes to habitat, would not exceed the established threshold (i.e. greater than 30% of predicted lynx habitat in unsuitable condition). Alternative 2 would not result in a change to the effects to lynx
62 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction associated with current winter travel management. Summer time visitor use patterns of the Alturas Lake area would change, but no increase in visitor numbers would be expected as a result of Alternative 2. Overall, these effects would be expected to be slight. Under Alternative 2 there would be an approximately 2.5 acre decrease in wolverine habitat and an increase in system roads of approximately 1.8 miles (Table 6) in the long term. These amounts of long term habitat change would not likely result in a change in wolverine prey numbers or measurably change foraging habitat condition in relation to the size of a wolverine home range. No disturbance within reproductive denning habitat would occur. As such, Alternative 2 would not be expected to contribute cumulative effects to wolverine within the north end of the Sawtooth National Forest.
Table 6: Within habitat effects to wildlife species
Alternative 2 Alternative 3 Effect Forest Sagebrush Wetland Total Forest Sagebrush Wetland Total Acres of Habitat Permanent Unsuitable 2.4 2.8 0 5.2 1.9 1.6 0 3.5 Acres of Habitat Restored 0.1 1.8 0.8 2.7 0.1 0.8 0.8 1.7 Acres of Permanent Habitat Change -2.3 -1.0 +0.8 -2.5 -1.8 -0.8 +0.8 -1.8
Miles of road added 1.5 1.5 0 3.0 1.3 1.1 0 2.4 Miles of road removed 0.04 0.9 0.3 1.24 0.04 0.3 0.3 0.64 Chang e in miles of road +1.46 +0.6 -0.3 +1.76 +1.26 +0.8 -0.3 +1.76 Under Alternative 2 there would be an approximately 0.2 acre decrease in habitat (sagebrush and wetland) for greater sage grouse and an increase in system roads of approximately 0.3 miles (Table 6) in the long term. These minimal long term habitat changes would likely maintain the existing conditions and not contribute cumulative effects to greater sage grouse within the Sawtooth NRA. Alternative 3 The potential effects to lynx under Alternative 3 would be the same as under Alternative 2 except that less lynx foraging habitat would be removed since no new alignment of Road 207 would be constructed (Table 5). However, this small difference would not be meaningful. For wolverine, the potential effects under Alternative 3 would be the same as under Alternative 2 except that there would be a 1.8 acre decrease in habitat in the long term, rather than 2.5 (Table 6). For greater sage grouse, the minimal potential changes from Alternative 3 would also maintain existing conditions. US Forest Service Sensitive Species The Sawtooth NRA provides habitat for 19 wildlife species on the USFS Regional Forester's sensitive species list. Table 7 lists the species and their current status within the project area. Table 6 provides a summary of the potential effects to habitat types by alternative. Alternative 1 Under the No Action alternative, there would be no change from existing condition.
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Table 7: US Forest Service Sensitive Species and their current status within the project area. Species Current status within the project area Mammals: Foraging habitat is present in the project area, but no documented sightings have been made on Spotted Bat ( Euderma maculatum ) the Sawtooth NRA. Townsend's Big -eared Bat Foraging habitat is present in the project area, but no documented sightings have been made on (Corynorhinus townsendii ) the Sawtooth NRA. Pygmy Rabbit The project area provides pygmy rabbit habitat where large patches of sagebrush occur. No (Brachylagus idahoensis ) observations of pygmy rabbits have been made on the Sawtooth NRA. Since re -introduction, several packs have established within the Sawtooth NRA and sightings are Gray Wolf ( Canis lupus ) common within the project area. The entire project area contains wolverine habitat but not reproductive denning characteristics. Wolverine ( Gulo gulo ) Numerous observations of animals and tracks have been reported in the Alturas Lake area. The Alturas Lake area contains fisher habitat, particularly along Alturas Lake Creek and the Fisher ( Martes pennanti ) associated wetlands. Fisher are thought to still occur in the Alturas Lake area based on a remote camera photograph taken in 2007 near Alturas Lake. The project area does not contain the characteristics of bighorn sheep habitat. Populations are Bighorn Sheep ( Ovis canadensis ) currently limited to the Boulder-White Cloud Mountains, however, individual bighorn sheep could move through the area. Birds: The shorelines of Alturas Lake and Perkins Lake contain common loon nesting habitat, though no breeding is known to occur within the Sawtooth NRA. Common loons use the lakes in the spring Common Loon ( Gavia immer ) and fall during migration when less human activity occurs. Though common loon habitat exists within adjacent lakes and shorelines it is not located anywhere within the project area where project objectives are proposed. The population trend has been positive within the Sawtooth NRA over the past 25 years. Bald Bald Eagle eagles use Alturas and Perkins lakes in the spring and fall during migration. Currently the (Haliaeetus leucocephalus ) developments and associated human activity within the vicinity of Alturas Lake and Perkins Lake may preclude bald eagle nesting in the area. Northern Goshawk The population trend is thought to be stable within the Sawtooth NRA. The project area provides (Accipter gentilis ) year round habitat, and one goshawk territory is known within the project area. Peregrine Falcon The project area provides falcon foraging habitat but not nesting or wintering habitat. The closest (Falco peregrinus ) known eyrie to the project area is approximately four miles away. Mountain Quail ( Oreortyx pictus ) The Alturas Lake area does not contain mou ntain quail habitat. The project area contains habitat for great gray owls in forest and wetland areas. Great gray owls Great Gray Owl ( Strix nebulosa ) have been observed within 2.5 miles of the project area but the closest confirmed nesting is 20 miles distant. No surveys or observations for flammulated owls have been conducted in the project area, Flammulated Owl however, the project area contains nesting and foraging habitat within large Douglas-fir forest (Otus flammeolus ) stands. Boreal owl habitat exists within spruce -fir, Douglas -fir, and mixed conifer within the project area, Boreal Owl ( Aegolius funereus ) and owls have been detected. White -headed Woodpecker The Alturas Lake area does not contain white-headed woodpecker habitat. (Picoides albolarvatus ) The mature forests within the project area contain northern three -toed woodpecker habitat, Northern Three-toed Woodpecker particularly those with outbreaks of bark beetles. There have been numerous three-toed (Picoides dorsalis ) woodpecker observations within the Alturas Lake area and the project area. Amphibians: The Alturas Lake area has a relatively high amount of spotted frog habitat due to the extensive Spotted Frog ( Rana luteiventris ) wetlands within the watershed. Several spotted frogs were observed in several locations within the project area in surveys as recently as 2002.
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Alternative 2 Alternative 2 would have no impact on common loon, mountain quail, or white headed woodpecker, since there is no habitat for these species within the project area. There would also be no impact to bighorn sheep from Alternative 2 since the actions would not hinder ability of sheep to move through the project area. With minimal new disturbance Alternative 2 would not influence reproductive success or survival of spotted bat, Townsend’s big eared bat, pygmy rabbit, gray wolf, wolverine, fisher, northern goshawk, peregrine falcon, greater sage grouse, great gray owl, flammulated owl, boreal owl, and northern three toed woodpecker. Since there would be no effect to these species from Alternative 2, there would be no additive effect to their cumulative effects either. Alternative 2 may impact individuals of bald eagles and spotted frogs. The project may remove a few potential nest trees for bald eagles within the vicinity of Alturas Lake, while spotted frogs may be impacted during the construction of the bridge over Alturas Lake Creek and during removal of the section of Road 207 within the wetland. Alternative 2 would have a beneficial effect to spotted frogs in the long term from the restoration of the wetland. As such, these effects would contribute to the current cumulative effects to these species, including the long term beneficial effects to spotted frog. Alternative 3 Alternative 3 would have very similar potential effects to those described with Alternative 2. However, unlike Alternative 2, Alternative 3 would also have no impact to bald eagles, since no potential nest tees would need to be removed. The potential effects to spotted frog would also be less, since no impacts would be necessary for the construction of the new alignment, as in Alternative 2. As such, the cumulative impacts would also be diminished for spotted frog, while the full long term benefits would still be realized. Migratory Bird Species The Migratory Bird Treaty Act prohibits taking of migratory birds, their parts, nests, eggs, and nestlings. Executive Order 13186 directs federal agencies to protect migratory birds. Additional protective direction is contained within the Memorandum of Understanding (MOU) between USDA Forest Service and USDI Fish and Wildlife Service. As described in the Affected Environment, vegetation and structure in the area are diverse, consisting predominantly of lodgepole with some large openings of wetland meadows, sagebrush, grasses and forbs, and riparian areas of mixed conifer and shrub species, and quaking aspen. The area provides habitat for several bird species of concern that breed or migrate through the area are listed in Table 8. These require varying types of forest structure, sagebrush, and/or riparian/wetland areas for all or part of their habitat needs during the year. Alternative 1 Under the No Action alternative, there would be no change from existing condition. There are approximately 26 miles (61.7 acres) of system roads and 6 miles (8.7 acres) of unauthorized roads within the Alturas Lake Creek watershed. The roads and human activity
65 Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction in the project area have resulted in reduced quality and quantity of habitat for migratory birds. Table 9 displays the amount of roads by habitats.
Table 8. Bird species of concern that occur or have habitat in the project area and their habitat. Species Habitat Northern goshawk Conifer forest Swainson's hawk Open forest adjacent to sagebrush, meadow Peregrine falcon Cliffs near meadows and wetlands Greater sage -grouse Sagebrush, wet meadows Sandhill crane Sagebrush, meadows, wetlands, riparian areas Long -billed curlew Meadows, wetland meadows Short -eared owl Sagebrush, meadows, wetlands Great gray owl Forest near wet meadows Flammulated owl Forest, mixed conifer Boreal owl Forest, mixed conifer Calliope hummingbird Riparian areas Rufous hummingbird Riparian areas Red -naped sapsucker Aspen and conifer forests Williamson’s sapsucker Aspen and conifer forests Three -toed woodpecker Conifer forest Olive -sided flycatcher Conifer forest Dusky flycatcher Conifer forest, open woodland Willow flycatcher Riparian areas Clark's nutcracker Conifer forest Mountain bluebird Open woodland near meadows Sage thrasher Sagebrush Brewer's sparrow Sagebrush Cassin's finch Conifer forest
Alternative 2 Under Alternative 2 there would be an approximately 2.3 acre decrease in forest habitat, an approximately 1 acre decrease in sagebrush habitat, and an approximately 0.8 acre increase in wetland habitat in the long term (Table 6). These habitat changes would be detrimental to bird species of concern that require forest habitat and sagebrush habitats, but beneficial to those that require wetlands (Table 8). That is, habitat changes would reduce the quality, or possibly eliminate, 1 2 breeding territories of olive sided flycatcher, Cassin’s finch, dusky flycatcher, sage thrasher, and Brewer’s sparrow. These impacts would be cumulative to those currently occurring within the Sawtooth NRA. However, habitat quality would increase for sandhill cranes, long billed curlews, hummingbirds, and willow flycatchers, contributing positive cumulative effects to these species. Tree falling for construction and restoration of roads would take place late summer and fall, outside of the bird nesting season to avoid effects to active nests. The alternative complies with Executive Order 13186.
Table 9: Existing roads within migratory bird habitats within the Alturas watershed. System Roads Unauthorized Roads Habitat Miles Acres Miles Acres Forest 15.3 36.5 2.9 4.2 Sagebrush 9.3 21.6 2.8 4.1 Wetlands 1.4 3.6 0.3 0.4 Total 26 61.7 6 8.7
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Alternative 3 Under Alternative 3 there would be similar, but slightly less effect to migratory bird habitat in the long term than with Alternative 2 (Table 6).
Management Indicator Species Pileated woodpecker ( Dryocopus pileatus ) and greater sage grouse (Centrocercus urophasianus ) serve as management indicator species (MIS) for terrestrial wildlife within the Sawtooth Forest Plan. The project area contains habitat for both. Potential effects to greater sage grouse are addressed within the Wildlife, ESA Threatened, Endangered, and Candidate Species section. The population trend of pileated woodpeckers within the project area is unknown, though they have been detected in point count surveys near the project area 2004 to 2010. For the Sawtooth Forest overall, the trend data for this period is roughly stable.
Alternative 1 Under this alternative, there would be no change from existing condition. There are approximately 15.3 miles of system roads (36.5 acres), and 2.9 miles (4.2 acres) of unauthorized roads, within the Alturas Lake Creek watershed in pileated woodpecker habitat. The roads and human activity in the project area has resulted in reduced quality and quantity of foraging habitat of pileated woodpecker. Pileated woodpeckers often tolerate human activity near their nests, so human activity does not necessarily preclude their use of an area. Alternative 2 Under Alternative 2 there would be an approximately 2.3 acre decrease in habitat and an increase in system roads of approximately 1.5 miles in the long term. These amounts of long term habitat change would not measurably change foraging habitat condition in relation to the size of a pileated woodpecker home range. Tree falling for construction and restoration of roads would take place late summer and fall, outside of the woodpecker nesting season.
Alternative 3 Alternative 3 would result in slightly less long term effect to habitat of pileated woodpecker than with Alternative 2 (1.8 acre decrease in habitat and an 1.3 mile increase in system roads), and these would not likely result in a change in prey numbers or measurably change foraging habitat condition in relation to the size of a their home range. Forest Plan Consistency All alternatives would be consistent with Forest Plan direction applicable to wildlife species, including Management Prescription Class, Management Area 2, and Forest wide direction.
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Visual Resources The goal of landscape management on all NFS lands is to manage for the highest possible visual quality, commensurate with other appropriate public uses, costs, and benefits. Since the mid 1970’s, the Forest Service has utilized the Visual Management System to measure the inherent scenic quality of any forest area as well as a measurement of the degree of alteration for use in inventory and management. Inclusive in the visual analysis completed for the proposal is a project level review of the adopted Visual Quality Objectives (VQOs). Project level ‘truthing’ of VQOs occurs to ensure that mapping, completed at a Forest scale, is accurate at the site scale. A site specific review of the current VQOs in the area identified a need to change the VOQ in two small areas within the project from either Retention or Partial Retention to Modification , thereby bringing the project area into compliance with Forest wide direction regarding the scenic environment. When reviewed at the project scale, it was recognized the appropriate VQO for the existing organization camps within the project area (Camp Perkins and Cabin Creek) is Modification due to their associated structures/developments, and that they occupy space within the immediate foreground (<300’) of a use area. This change would reflect the existing recreational developments in the area, as well as Forest Plan VQO direction for managing such areas. If the revised VQO is adopted as a non significant Forest Plan amendment, the Forest VQO map will be modified accordingly.
Table 10: Proposed non-significant Forest Plan amendment of VQOs in the project area
Location Currently Mapped VQO Proposed VQO Cabin Creek Organizational Camp permit area Retention Modification Camp Perkins Organizational Camp permit area Partial Retention Modification
Affected Environment The project area includes those portions of the travel routes and use areas: Road 207, Road 205, Alturas Lake Creek (including dispersed camping), Perkins Lake, Camp Perkins, Road 442, Road 438, Cabin Creek Trailhead, Cabin Creek Organizational Camp, and the Alturas Ski Trails. These are generally bounded by Alturas Lake to the south, Cabin Creek Organizational Camp to the west, Alturas Road 205 to the east, and Alturas Lake Creek just downstream of Perkins Lake to the north. The project area characteristic landscape can be generally distinguished as either dense riparian, open sage upland, or lodgepole forest. Forest Plan direction applicable to the visual resource
Number Forest-wide Management Direction Description
Assign VQOs to the classifications of eligible, suitable, and designated Wild and Scenic River corridors as follows: WSST02 a) Preservation to a Wild classification, b) Retention to a Scenic classification, c) Partial Retention to a Recreational classification.
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The Visual Quality Objective (VQO) for the project area is Partial Retention 6along the Alturas Lake Creek corridor – ¼ mile from the creek, an eligible Recreational Wild and Scenic River. Other than the VQO update described, the existing conditions are compliant with adopted VQOs.
Environmental Consequences The no action alternative would remain compliant with the VQO objectives when amended. Likewise, the major proposed elements of both Alternative 2 and 3, such as the rerouted/constructed road and bridge, and/or the associated road obliterations and site rehabilitations, with mitigations, would be in VQO compliance. Generally, as is the case on site currently, this level of road development is consistent with a Partial Retention VQO. Correcting the mapping errors through the minor update to the VQO would not affect how these recreation sites are managed from a visual resource standpoint, but rather simply permit the Forest Service to maintain consistency with Forest Plan direction, and in administering and operating these areas in the future, much as they have in the past.
6 Partial Retention provides for management activities which remain visually subordinate to the characteristic landscape. Activities may repeat form, line, color or texture common to the characteristic landscape but changes in their qualities of size, amount, intensity, direction, pattern, etc., remain visually subordinate.
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CONSULTATION AND COORDINATION
The Forest Service consulted the following individuals, Federal, State, and local agencies, tribes and non Forest Service persons during the development of this environmental assessment: Interdisciplinary Team Members: Mark Moulton Water and Fisheries, Team Leader, Writer/Editor Shawn Robnett Engineering Liese Dean Recreation Stacey Clark Special Uses Matt Phillips Visual Resources Deb Taylor Botany Robin Garwood Wildlife Bret Guisto Cultural Resources Agency Advisors: Barbara Garcia, Deputy Area Ranger, Sawtooth NRA Carol Brown, NEPA Coordination Federal, State, Local, and Tribal Entities: US Fish and Wildlife Service National Marines Fisheries Service Idaho State Historic Preservation Office Blaine County Shoshone Bannock Tribes Idaho Department of Fish and Game Others: Valley View Summer Home Association MTE Communications Church of Jesus Christ of Latter Day Saints
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REFERENCES
Borgert, J.A., Lundeen, K.A., and Thackray, G.D., 1999, Glacial Geology of the Southeastern Sawtooth Mountains, in Hughes, S.S., and Thackray, G.D., eds., Guidebook to the Geology of Eastern Idaho: Pocatello, Idaho Museum of Natural History, p. 205 217
Cisco, R. 1964. Alturas Lake Road Impact Report. Memo to Forest Supervisor. On file, Sawtooth National Forest Supervisor’s Office
Cook, P., O’Laughlin, J., 2008, Off Highway Vehicle and Snowmobile Management in Idaho, Report No. 27, Policy Analysis Group, College of Natural Resources, University of Idaho, p. 7
Daugherty, C. 1954. Letter from Chas. I. Daugherty, Forest Supervisor, to Theo H. Wegener, Intermountain Lutheran Bible Camp Association, Inc. On file, Sawtooth National Recreation Area, Ketchum, Idaho
IDPR 2011. Idaho Snowmobile Registration Designation Statistics 2007 2011. On file, Sawtooth National Recreation Area, Ketchum, Idaho
IDEQ 2011. Idaho’s 2010 Integrated Report – Final. State of Idaho, Department of Environmental Quality
Quigley, Thomas M. and Sylvia J. Arbelbide, Tech. Eds ., 1997, An Assessment of Ecosystem Components in the Interior Columbia Basin and Portions of the Klamath and Great Basins, Vol. III, Chapter 4, Broadscale Assessment of Aquatic Species and Habitats, General Technical Report PNWGTR 405, Portland, Oregon, USDA Forest Service, Pacific Northwest Research Station
Rahm, G. and K. Larson. 1972. Land characteristics and soil and hydrologic evaluation for the Sawtooth, White Cloud, Boulder, and Pioneer Mountains. USDA Forest Service, Intermountain Region
Sawtooth Community Winter Recreation Partnership. 2011. Map and Guide, Sawtooth Valley and Stanley Basin, Idaho, Winter Recreation. On file, Sawtooth NRA, Ketchum, Idaho.
Sawtooth Forest. 2003. Sawtooth National Forest Land and Resource Management Plan (revised). Two volumes. USDA Forest Service
Sawtooth NRA 2006. Alturas to Yellowbelly Roads Analysis. On file, Sawtooth NRA, Ketchum, Idaho
Spence, Brian C., Gregg A. Lomnicky, Robert M. Hughes, Richard P. Novitzki, 1996, An Ecosystem Approach to Salmonid Conservation, TR 4501 96 6057, ManTech Environmental Research Services Corp., Corvallis, OR (available from the National Marine Fisheries Service, Portland, Oregon)
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APPENDIX A – RESPONSE TO REVIEW EA COMMENTS
The following is a summary of letters, emails, and phone calls received during the 30 day Notice of Proposed Action public comment period. The notice of the availability of the Review Environmental Assessment (Review EA) was mailed to 62 individuals, organizations, agencies, and area landowners and permittees on January 16, 2012, with notification published in The Challis Messenger newspaper. Copies of the Review EA were included in the mailings to those who provided feedback during the initial comment period in 2010, and mailed or provided, upon request, to anyone else during the period. Copies of the document were also available at the Sawtooth National Recreation Area headquarters office and at the Stanley Ranger Station. The Review EA was also posted on the Sawtooth National Forest web site.
Twenty three individual responses were received to the 30 day Notice of Proposed Action . Some comments were similar to feedback received during the initial comment period in 2010. However, several new perspectives surfaced regarding the additional alternative (Alternative 3) considered in the Review EA. Most commenters agreed that action was needed, and identified a preference between the alternatives considered. Many comments recognized and echoed the potential effects from the various alternatives already included within the Review EA. Some provided expanded perspectives on the issues or effects contained within the analysis. The feedback received was reviewed and considered by the interdisciplinary team and the deciding officer. No comment raised perspectives or considerations that required fundamental reconsideration, revision, or expansion of the analysis contained within the Review EA, although minor corrections and revisions for clarity were made motivated, in part, by the comments received. This appendix includes both the comments received, as well as a response to the comment, including any further clarification to the analysis as necessary.
The comment statements below are either as excerpted from the original source to represent the essence of a specific comment, or they represent a common theme found within several comments. The exact content of the comments received can be read in the original letters contained within the project file. Comments simply expressing a preference for a particular alternative, or general concerns with the implied cost of implementing the alternatives, are not included here, nor discussed further. Cost is not specifically addressed within this Environmental Assessment , though it is certainly taken into consideration by the decision maker in choosing a course of action. Otherwise, this appendix is intended to synthesize all the comments received. Finally, since most comments are specific to an Alternative, see Chapter 2 of the EA for the Alternative descriptions.
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Comment/Comment Theme Response Access Convenience, Travel, and Safety Considerations
Alturas Lake is a popular destination for The importance of the current Road 207 access to Alturas Lake are recognized and discussed recreationists residing to the north, such as within many sections of the EA, including as one of the Issues identified in Chapter 1 to be the Valley View Recreation Residences and specifically addressed within the analysis: Changes to the existing alignment may alter the current the Cabin Creek Camp. Road 207 currently road use patterns and travel convenience within the Alturas area . The potential effects are provides this important recreation access. considered in Chapter 3, under Issues: Road Use and Visitor Experience . Maintaining access to and from the various destinations at either end, and along the length of the existing Road 207 route is a key objective identified within the Purpose and Need. The alternatives considered within the EA all meet this objective, though the convenience and character of this access would be different with each. Alternative 3 would result in the most stark change to the existing condition by eliminating the through route of Road 207, and rely instead on Highway 75 from the north end of Road 207 as the connecting route. Within the comments received, this change in access that would result under Alternative 3 was one of the more common considerations mentioned. While a few responses objected to this potential change, most commenters supported the change, noting that access would still exist to these destinations, though obviously less convenient. This contrast in access convenience between the alternatives is discussed in several sections of the EA, and is summarized in Table 2: Comparison of Alternatives as shown, excerpted, below: Issue: Road use Measure : Time required to travel to and from common destinations currently served by the route. Alternative 1 (No Action) Alternative 2 Alternative 3 Jct Road 438 / Road 207 (Cabin Creek Org Camp) to 1.0 minutes 4.2 minutes 11.7 minutes existing jct of Road 207 and Alturas Road 205. Jct Road 318 / 207 (Valley View Rec Residences) to 4.5 minutes 6.8 minutes 8.4 minutes existing jct Road 207 and Alturas Road 205. Under Alternative 3, access to Alturas Lake According to the Idaho Transportation Department all roadways are designed to ensure that local, for users who formerly used Road 207, state, and American Association of State Highway and Transportation Officials (AASHTO) would require the use of Highway 75, standards are met or have been approved for exception. The AASHTO design standards for minor presenting safety hazards as vehicles are roads intersecting a two lane highway posted with a 65 mph speed limit requires a driver in a required to more frequently merge and leave passenger car to have a clear sight distance of 645 feet of the intersection. This sight distance allow drivers to perceive the presence of potentially conflicting vehicles and to have sufficient time for a
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Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction the Highway. motorist to stop or adjust their speed, as appropriate, to avoid colliding in the intersection. The AASHTO design standards also provide sight distances of drivers of stopped vehicles at intersections with two lane highways. This sight distance, which is also based on the posted speed limit, allows the driver enough time to decide when to enter the highway or to cross it. In the case of a highway design speed of 65 mph, the sight distance for drivers turning left onto the highway is 720 feet and for drivers turning right onto the highway is 625 feet. The sight distances at the intersections with Highway 75 of the Alturas Lake Road 205 and the Cabin Creek Road 207 greatly exceed the minimum designed sight distance of 720 feet. This extra sight distance further enhances the safe operations of vehicles at these intersections. The Idaho Transportation Department (ITD) reports no vehicle accidents at either of these two intersections during 2007 and 2008 (the only years reported within their online database: http://gis.itd.idaho.gov /highwayinfo), nor any fatal crashes in the years reported (2004 to present). The local current and former ITD maintenance foremen also report no problem with sight distance at these two intersections (S. Cole and R. Robinson, ITD, per comm).
Alternative 3 would eliminate the existing The potential effects to the safety of the public and cabin owners regarding emergency egress were alternative escape route for recreation users not specifically addressed in the EA. Fire managers reviewed the proposed actions and advised the in the event of forest fire – both south from deciding official that the topic did not warrant detailed analysis. While multiple access/egress the Valley View Recreation Residences and routes are obviously desirable and preferred when needed, many variables must be considered north from the Alturas recreation complex. when determining the necessity of having and maintaining multiple routes for such specific purposes. Variables such as road width and surfacing (e.g. for two way traffic), the availability and distance to safety zones, fuelbreaks, firebreaks and/or improved roadways. The fuel profiles in the area, including fuel loading, horizontal continuity, vertical arrangement and vegetation type/flammability, all assist in determining the need for multiple access/egress routes. Similarly, consideration is given to the anticipated fire behavior for a representative fuelbed under a worst case scenario. Given the variables considered, fire managers believe there is no need to maintain the connection between the Road 207 network and the Alturas Road 205 road network. The safety of the access/egress conditions under Alternative 3, in the absence of a connection between these road networks, would remain similar or better to many other areas served by single roadways within the Sawtooth National Forest.
Keep Road 207 open with a seasonal Within the Background, and Purpose and Need sections, the EA explains that, after decades of closure, or reconstruct in place. maintenance, repairs, and attempted improvements to the Road 207 segment through the Cabin Creek wetland, it has become apparent that the setting is unsuitable and unsustainable for a roadway. Reconstruction and closures has proved unsuccessful since the inherent challenges and
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complexities of the setting remain. These reconstruction efforts have been ongoing over the years, and, as such, are represented by the No Action Alternative . Additional discussion has been amended within the final EA to address these considerations in the section: Alternatives Eliminated from Detailed Study .
Adopting the existing, but unauthorized, The unauthorized routes to be adopted have been in existence for many decades. The proposal to routes into the managed travel system would adopt the routes into the managed travel system is not a matter of acquiescing to newly established establish an expectation that new user uses, but rather from a formal analysis of the established travel system consistent with the Travel created routes would also be adopted and Rule (36 CFR 212). These routes were identified, analyzed, and recommended within the Alturas thus encourage additional route pioneering. Yellowbelly Roads Analysis (Sawtooth NRA 2006). The same analysis identified a number of both authorized and unauthorized roads that were determined incompatible with other resources, and/or in unsustainable locations, or were redundant with other routes. Approximately 2.7 miles of such routes have been closed and rehabilitated within the project area since 2006.
Recreation Opportunities
Alternative 2 would offer greater ATV Changes to summer motorized recreation opportunities are discussed in the EA, Chapter 3, under travel opportunities than Alternative 3 for Issue: Visitor Experience , element, Dispersed Recreation (Summer/Fall). However, the analysis users accessing along Road 207 from north was not specific to those accessing from the north. Currently (i.e. Alternative 1) all legal access for of Alturas Lake Creek. ATVs using Road 207 from the north terminates at the junction of Road 207 with the main paved Alturas Road 205, or at the southern tip of Road 440. Changes to legal ATV access would remain bounded within the Project Area under either of the action alternatives (i.e. no alternative would establish a legal ATV connection to an extensive road or trail system elsewhere). Within the Project Area, ATVs would continue to be legal on all authorized roadways except the main paved Road 205. The difference in legal ATV travel opportunities within the project area are: Alt 1 Alt 2 Alt 3 Miles of roadways legally open to ATVs 4.3* 7.1 4.5 accessing from the north along Road 207. * Does not include the existing, but unauthorized, routes that would be adopted with Alts 2 and 3.
Instead of closure of more roads and trails The effects of changes to the travel opportunities in the extended vicinity surrounding the project for the public to recreate on we should be are addressed in the EA, as a Cumulative Effect within Chapter 3, under the Issue: Visitor thinking of areas and trails we can keep Experience . The analysis discloses the extent of recent and foreseeable, closures, revisions, and open and maintain…to increase recreational additions to the travel networks, including a pending management decision to provide additional opportunities. motorized ATV opportunities within the Pole Creek drainage.
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Instead of adopting the existing, but A demand for designated walk in recreation sites is not apparent within the project area. Indeed, unauthorized, routes into the managed travel opportunities for walk in undesignated recreation are abundant and only minimally utilized in system, an alternative should be considered select locations. In contrast, demand for dispersed sites, accessible by vehicle, is very apparent in that would narrow and convert some to trails the Alturas Lake area. These existing routes were identified, analyzed, and recommended for leading to designated day use or overnight adoption into the travel system, to serve these purposes, within the Alturas Yellowbelly Roads sites. Analysis (Sawtooth NRA 2006).
Winter Recreation
The new road and bridge with Alternative 2 This specific potential outcome is a focal consideration within the analysis. It is included as one of would significantly increase the probability the Issues in Chapter 1 to be specifically addressed within the analysis, with a specific measure and frequency of illegal motorized assigned: Relative probability and frequency of illegal motorized incursions into the existing incursions into the existing Alturas Lake Alturas Lake Nordic Ski Area. It is addressed at length within Chapter 3, under the Issue: Visitor Nordic Ski Area. Experience. For this measure, under Alternative 2, the analysis concludes: Summer use of the new road and bridge may increase the likelihood that snowmobilers would also use the route in winter – crossing the Ski Area and affecting skier experiences negatively. Recreationists present when violations take place would be affected by the noise and smell of snowmobiles. Skiers who use the area after the snowmobiles have left would be affected by the snowmobile tracks that remain, as evidence of motorized travel, until there is sufficient snowfall to cover them. Increased violations of motorized use in the ski area would likely lead to more conflict between non-motorized and motorized users.
Alternative 2 may increase the likelihood of The potential effects to winter recreation are discussed at length within the EA, Chapter 3, under winter snowmobile use of the same route, the Issue: Visitor Experience . While the analysis specifically recognizes the potential for an which would encourage Wilderness increase in motorized incursions into the established Alturas Lake Nordic Ski Area (specifically incursions. identified as an Issue), no influence to the security of the Sawtooth Wilderness is identified or anticipated. Currently snowmobile access is authorized generally in the area except within the Ski Area and Wilderness boundaries. This includes the current route of Road 207 and adjacent lands that bisects these two closures – Ski Area to the east, Wilderness to the west. This constitutes an established snowmobile use/travel area, and would remain open under all alternatives. As such, any potential change resulting from the proposed realignment of the Road 207 summer route (Alternative 2), with or without the possible incursions into the Ski Area, would be anticipated to have negligible, if any, influence on snowmobile incursions into the Wilderness further to the west.
Alternative 2 would result in a negative The potential effects to winter recreation are discussed at length within the EA within Chapter 3, under the Issue: Visitor Experience , including the potential Cumulative Effects . The effect to
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Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction experience to winter tourism. regional tourism is not specifically considered. While it is possible that local and specific effects resulting from the action alternatives to the winter recreation, as described within Chapter 3, could influence regional tourism, it is expected that such influences would be very small (un measureable) overall.
Aquatic, Riparian, Botanical, and Wildlife Resources
The new road and bridge associated with This potential outcome is a focal consideration within the analysis. It is included as one of the Alternative 2 would seriously impact Issues in Chapter 1 to be specifically addressed within the analysis: Relocating the existing Road Alturas Lake Creek as a result of an increase 207 alignment as proposed may result in impacts to Alturas Lake Creek . It is addressed at length in use from heightened visibility and within Chapter 3, under the Issue: Stream/Fisheries , as well as under Other Resources: Botanical motorized access convenience to the creek. and Wildlife . Potential effects to Alturas Lake Creek that could result with implementation of These impacts would occur to wildlife, Alternative 2 are acknowledged and described. botanical, and aquatic resources from effects due to conditions or activities such as: road maintenance, streamside dispersed recreation sites, and streambank and instream activities.
Adopting the existing, but unauthorized, The use and legitimacy of the remaining network of unauthorized roads within the project area is a routes in the Alturas Lake and Perkins Lake focal consideration within the analysis. It is included as one of the Issues in Chapter 1 to be area into the managed travel system with the specifically addressed within the analysis: Unauthorized routes: Recreation use in the Alturas area action alternatives would contribute to relies, in part, on existing, but unauthorized, vehicle routes . The potential effects of adopting these sedimentation, firewood cutting along routes into the authorized travel system are also addressed at length within Chapter 3, under Issues: streams, noxious weed establishment, and Stream/Fisheries , Visitor Experience , Unauthorized Routes , and Other resources . These routes habitat fragmentation, and detract from the were identified, analyzed and recommended for adoption within the Alturas Yellowbelly Roads natural and scenic values of the Sawtooth Analysis (Sawtooth NRA 2006). NRA. Instead, these routes should be closed The rationale for their proposed inclusion into the travel system is described at length within and natural conditions restored. Chapter 3, under Issue: Unauthorized Routes . They were found to provide access to appropriate management uses in sustainable and compatible locations (e.g. all within uplands on gentle topography). Since 2006, 2.7 miles of routes that were found to be unacceptable or unsustainable, or that provided redundant access, have been closed and rehabilitated within the project area, including roughly ½ mile within wetlands. The analysis concludes that by authorizing these remaining routes, appropriate and desirable uses would be maintained, resources would be adequately protected, and law enforcement could be applied more effectively than under the current unauthorized but used scenario. The adoptions of these existing routes would consistent with
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Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
direction provided within the Travel Rule (36 CFR 212).
The use of construction machinery, fuel, and The Sawtooth NRA has extensive experience with restoration efforts identical to the methods the efforts associated with the closure and proposed with the action alternatives. Chapter 3, under Issues: Stream/Fisheries , discloses the restoration of Road 207 would produce short term effects associated with the disturbance inherent with removing a roadway from a impacts offsetting the intended benefits. wetland. It also reports the consistent monitoring results that demonstrate “fully functional habitats typically return within 3 to 5 years” . These conclusions support the premise of the proposed action to tradeoff the chronic effects of Road 207 as it now exists for the temporary impacts of the restorative actions of its removal – which would rapidly transform to fully functioning habitats.
Alternative 2 would accelerate the The recognized threat of invasive species as a result of the proposed action is addressed in several introduction and successful growth of both places within the analysis. Various Construction, Planning, Design, and Monitoring Features are land based and aquatic invasive species. prescribed specifically to minimize the risks from invasive species associated with the These effects would occur due to conditions implementation aspects of the alternatives. Nevertheless, the EA acknowledges some risks remain, or activities such as road maintenance and including those from changes to visitor use. The threats by alternative from invasive weed species dispersed recreation activities. are discussed within Chapter 3, under Other Resources: Botanical, Non-Native Invasive Noxious (Weed) Species , which itself is a brief summary of more extensive analysis contained within the Botanical Specialist’s Report within the project file. It concludes: Alternative 2 has the greatest amount of risk for spread and introduction of noxious weeds .
Construction associated with the action It was the intent of the Action alternatives including the Construction, Planning, Design, and alternatives could harm ground nesting Monitoring Features that such harm would be avoided. An included practice has been amended and birds. clarified to read: Activities that require removal of vegetation will not occur until after August 15 and before December 1, and monitoring will precede any activities that may crush vegetation during the breeding season of ground nesting birds.
Organizational Camps
Alternatives 2 or 3 would diminish the main The EA recognizes that, with either action alternative, the Cabin Creek Organization Camp would attraction to the Cabin Creek Organization be the most directly impacted facility/group operating under permit within the area in regards to Camp. access to and from the principle recreation opportunities in and around Alturas Lake. This change of access was identified as one of the Issues in Chapter 1 to be specifically addressed within the analysis: Changes to the existing alignment may alter the current road use patterns and travel convenience within the Alturas area . The effects are discussed within Chapter 3, under the Issue: Road Use and Visitor Experience, Recreation Special Uses , and summarized in Chapter 2, Table 2.
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Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
This consideration is also largely addressed in the response to a similar comment within the Access Convenience, Travel, and Safety Considerations section of this Appendix. In Chapter 3, Trails / Trailheads (Summer) , the EA summarizes the analysis of potential effects to pedestrian travel/use within the area. The Recreation Specialist Report includes qualitative conclusions regarding potential pedestrian access changes to the Cabin Creek Organization Camp. Some pedestrian access is known to occur between the Cabin Creek Organization Camp and Alturas Lake currently via Road 207. With Alternatives 1 and 2 the changes to the formal, point to point pedestrian travel routes and distance to Alturas Lake are the same as those shown for vehicles in Chapter 2, Table 2, since pedestrian access would continue to rely on roadways. However, under Alternative 3, no practical roadway for pedestrian access would exist, and no suitable nor practical option for a trail was identified (see EA: Alternatives Eliminated from Detailed Study ). However, options for dispersed, seasonal, cross country pedestrian travel to Alturas Lake would remain, as well as optional destinations, as considered within the Recreation Specialist Report . The EA does not specifically address the effects to the “ attraction ” of the various camps that would result from the alternatives. Such effects under either of the action alternatives would be anticipated to be negligible to all but the Cabin Creek Organization Camp. It is conceivable that with reduced access convenience between the Camp and Alturas Lake, a principle amenity formerly associated with the Camp would also be diminished. However, the Cabin Creek Organization Camp does not operate as a fee based destination , but rather as an assigned and available opportunity to a specific Latter Day Saint Stake (i.e. group of congregations) for a period of years. That is, there is no direct or implied competition between LDS camps for camp visitors – the Stake currently assigned utilizes the camp (D. Forbush, LDS Rec Property Manager, per comm). As such, while it is recognized that an amenity of the Camp could be diminished slightly by the potential changes to the convenience of access to Alturas Lake, it would not be expected to affect the prescribed use of the Camp by the LDS Church, or its operational feasibility.
Access to Camp Perkins would need to Other than momentary delays, the ability to access Camp Perkins would not be affected during remain open through the core summer construction of Alternative 2. For the construction that would be anticipated under Alternative 2, season (May 28 to mid August) during local access could be easily maintained with standard provisions within the construction contract. construction of the new road under Such access needs are typically considered and prescribed during the design process and would be Alternative 2. coordinated with established road users such as permittees (e.g. Camp Perkins and Cabin Creek Organizational Camps).
What would be the nature of the road No change would be anticipated to the current Road 207 design maintenance level or schedule. As maintenance and signage near Camp Perkins currently scheduled, Road 207 is maintained (e.g. blading) at least once annually. Signing of the
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Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction with the new alignment of Alternative 2? new section of road would be established per Forest Service standards and guidelines. It is anticipated that the signage would include typical warning signs and guide signs. The signage needs of the organization camps (e.g. Camp Perkins and Cabin Creek Organizational Camps) along the route would be considered and addressed through the design process.
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Environmental Assessment Cabin Creek Road 70207 Realignment and Reconstruction
APPENDIX B – SUBSTANTIVE CHANGES BETWEEN REVIEW VERSION AND FINAL
In Chapter 1, the Public Involvement section was amended to include the recent public involvement associated with the 30 day Notice of Proposed Action .
The following intended practices in Chapter 2 were revised to reflect the latest intent and/or direction:
Materials used for sediment retention, restoration, rehabilitation, and stabilization (e.g. sediment barriers) will be certified weed free and comply with the 1996 “Weed Free Hay Order” (IDAPA 02.06.31) and the Final Supplementary Rules Requiring the Use of Certified Noxious Weed Free Forage and Straw (Federal Register Volume 76, Number 140, 8/21/2011).
Activities that require removal of vegetation will not occur until after August 15 and before December 1, and monitoring will precede any activities that may crush vegetation during the breeding season of ground nesting birds.
Also in Chapter 2, the narrative within the Alternatives Eliminated from Detailed Study section was revised for clarity.
Appendices added:
Appendix A – Response to Review EA Comments
Appendix B – Substantive Changes Between Review Version and Final
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