United States Department of Agriculture Forest Service MVUM Update Project Environmental Assessment Eagle-Holy Cross Ranger District, White River National Forest, Eagle and Garfield, Counties, Colorado March 2014 For more information contact: Paula K. Peterson, Recreation Staff Eagle-Holy Cross Ranger District 24747 US HWY 24 Minturn, CO 81645 (970) 827-5715 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 for program information (e.g. Braille, large print, audiotape, etc.) please 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, SW., Washington, DC 20250-9410, or call (800) 795-3272 (voice) or (202) 720-6382 (TDD). USDA is an equal opportunity provider and employer. Eagle-Holy Cross Ranger District MVUM Update Project Page i Contents Page (s) Executive Summary 1 Document Structure 2 Proposed Project Location 2 General Description of Project Area 3 Chapter 1: Purpose, Need and Proposed Action Background 3-5 Purpose of and Need for Action 5 Public Involvement 5 Formulation of Alternatives 6 Proposed Action 6-7 Design Framework 8 Chapter 2: Alternatives, including Proposed Action Alternatives Considered in Detail 8-14 Design Features 15 Chapter 3: Environmental Effects of Proposed Action and Alternatives Affected Environment 16-19 Direct, Indirect, and Cumulative Effects 19-25 Chapter 4 Consultation and Coordination 26 List of Figures Figure 1: Vicinity Map Figure 2: Proposed Action Map Figure 3: Flattops Map Figure 4: Derby Mesa Map Figure 5: Cottonwood Pass Map Figure 6: South Eagle Map Figure 7: Red Sandstone – Muddy Pass Map Figure 8: Homestake – Camp Hale Map Figure 9: Developed Recreation Sites Eagle-Holy Cross Ranger District MVUM Update Project Page ii EXECUTIVE SUMMARY The White River National Forest (WRNF or Forest) is proposing to change use designations on multiple roads within the Eagle-Holy Cross Ranger District as part of the WRNF Travel Management Plan (TMP) in order to bring improved balance to the mix of available motorized and non-motorized recreation opportunities. This environmental assessment (EA) has been prepared to determine whether changing use designations on 133 miles of forest system roads currently open to “licensed vehicles only” and 10 miles of forest roads authorized under special use permit to a designation allowing “all motorized vehicles” may significantly affect the quality of the human environment and thereby require the preparation of an Environmental Impact Statement (EIS). Preparation of this EA fulfills agency policy and complies with the National Environmental Policy Act (NEPA). For more details of the purpose of and need for action and the proposed action, please see those relevant sections of this document. In the spring of 2011 the WRNF completed a Final EIS (FEIS) and issued a Record of Decision (ROD) implementing the Forest Travel Management Plan. The TMP defined where licensed, unlicensed, and mechanical vehicles are allowed across the entire WRNF. A Motor Vehicle Use Map (MVUM) is the legal instrument that displays the TMP decisions for motorized vehicles pursuant to 36 CFR 212.51. MVUMs show what type(s) of motorized vehicles (vehicle classes) are allowed on each route and any seasonal restrictions. A decision to implement the proposed action or an alternative described in this EA would result in changes to the 2014 and subsequent Motor Vehicle Use Maps. Terminology used in the TMP, ROD, MVUMs, and in this EA to define different types of motor vehicles is as follows: The term “Unlicensed Vehicles” refers to Off Highway Vehicles (OHVs) which includes All Terrain Vehicles (ATVs), Utility Transport Vehicles (UTVs), and unlicensed motorcycles. The terms “Highway Legal Vehicles” and “Licensed Vehicles” refer to all motorized vehicles that are titled, display a state license plate, and meet the definition and legal requirements to operate on streets and highways. The terms “Mixed Use” and “Roads Open to All Vehicles” are used when referencing use by both licensed and unlicensed motor vehicles. The 2005 Travel Management Rule (TMR) allows individual forests and ranger districts to alter their MVUM to reflect changes made through either administrative and/or National Environmental Policy Act decision processes. This policy allows forests to adapt their travel management system based on changing conditions, new information, and both internal and external input. Since issuance of the 2011 ROD, strong input from individuals, organizations, municipalities, and businesses have indicated that the decision limiting use to Licensed Vehicles only on these 133 miles of system roads and designating 10 miles open only to Special Use Permit holders on the Eagle-Holy Cross Ranger District was overly restrictive. The proposed action was crafted in order to seek improved balance in the system of motorized and non-motorized recreation opportunities. This EA analyzes the effects of allowing unlicensed vehicles on system roads that are currently open only to highway legal vehicles (“mixed use”). The 2011 FEIS thoroughly analyzed and disclosed the effects of motorized use on the designated open road and trail system. Since the proposed action considered in this EA is limited to changing use designation and proposes no new routes, a detailed analysis was only conducted on resources for which there are new or differing effects from those disclosed in the 2011 FEIS. These resources are recreation, law enforcement, and transportation. This EA tiers to and incorporates the remainder of the 2011 FEIS. Eagle-Holy Cross Ranger District MVUM Update Project Page 1 The responsible official is the Eagle-Holy Cross District Ranger. Based upon the effects of the proposed action, the responsible official will decide whether or not to implement the proposed action, or a reasonable alternative. DOCUMENT STRUCTURE This EA was prepared in compliance with the National Environmental Policy Act and other relevant federal and state laws and regulations. This EA discloses the direct, indirect, and cumulative environmental impacts that would result from the proposed action. The document is organized into four parts: • Chapter 1: Purpose, Need and Proposed Action: This section includes information on pertinent background and history, the purpose of and need for action, and the agency’s proposed action for achieving that purpose and need. This section also details how the Forest Service informed the public of the proposal and how the public responded. • Chapter 2: Alternatives, Including the Proposed Action: This section provides a more detailed description of the agency’s proposed action as compared to no action. • Chapter 3: Environmental Effects of the Proposed Action and Alternatives: This section describes the environmental effects of implementing the proposed action contrasted to the existing condition, which represents the no action alternative as set forth in 26 CRF 220.7.(b)(2)(ii). This analysis is organized by resource area where each section has a description of the affected environment followed by the effects of the proposed action compared with no action. • Chapter 4: Consultation and Coordination: This section provides a list of preparers and agencies consulted during the development of this EA. Project Location The project area is located on National Forest lands within Eagle and Garfield Counties, all within the Eagle-Holy Cross Ranger District on the White River National Forest in Colorado. A general location map of the project is shown in Figure 1. The project area that includes the 143 miles of forest system roads is shown in Figure 2. More detailed maps are shown as Figures 3 through 8. Eagle-Holy Cross Ranger District MVUM Update Project Page 2 Figure 1. Vicinity map Routes that are part of this analysis are listed by road number in Appendix A. These routes exist in several areas including the Flat Tops (north of Dotsero), Derby Mesa, Cottonwood Pass, South Eagle, Red Sandstone-Muddy Pass, and Homestake-Camp Hale. The topography along these routes is typical of the Rocky Mountains with steep rocky terrain, wide open meadows, and heavily forested areas. Vegetation includes Engelmann spruce, subalpine fir, lodgepole pine, and aspen forests intermixed with sage, grass, and brush components. Historic use on routes in the project area prior to the 2011 ROD included mixed vehicle use throughout the year, especially on weekends and throughout the fall hunting season (September-November). CHAPTER 1: PURPOSE, NEED, AND PROPOSED ACTION Background In 2011 the White River National Forest signed a Record of Decision that implemented the Forest's Travel Management Plan in compliance with the 2005 Travel Management Rule (CFR 36 Parts 212, 251, 261, 295). The ROD restricted unlicensed vehicles on many road segments open to highway legal vehicles across the Eagle-Holy Cross Ranger District. These restrictions were identified on the District's 2012 and 2013 Motor Vehicle Use Maps. The 2005 TMR allows individual