Sweetwater Non-Motorized Winter Trail Environmental Assessment

Transcription

1 Baldwin/White Cloud Ranger District, Huron-Manistee National Forests United States Department of Agriculture Forest Service Sweetwater Non-Motorized Winter Trail Environmental Assessment Baldwin/White Ranger District, Huron-Manistee National Forests, Lake County, Michigan November 2014 Photo: The start of a Great Lakes Sled Dog Association race. Photo courtesy of the Great Lakes Sled Dog Association. For More Information Contact: Pamela Repp, District Ranger Baldwin/White Cloud Ranger District Huron-Manistee National Forests PO Box Drawer D Baldwin, MI Phone: (231) pamelamrepp@fs.fed.us Fax: (231) 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) (voice and TDD). To file a complaint of discrimination, 1

2 Sweetwater Non-Motorized Winter Trail write to USDA, Director, Office of Civil Rights, 1400 Independence Avenue, SW., Washington, DC , or call (800) (voice) or (202) (TDD). USDA is an equal opportunity provider and employer. Introduction We are proposing to close specific Forest Service Roads to motorized vehicles, including snowmobiles, in a consolidated area between U.S. Highway 10 and Wingleton Road (Figure 1) from December 1 through March 31. No Forest Service Road would be closed that provides access to private property within the project area. Existing County Roads, such as Stearns Road and Dexter Road, would remain open as they are under the jurisdiction of the County Road Commission and not the Forest Service. The County Roads would continue to provide motorized access through the project area. The Forest Service Roads that would be closed from December 1 through March 31 would be converted to a non-motorized winter trail system for such activities as dog sledding, skijoring, snowshoeing, cross-country skiing or hiking. Motorized vehicles would be allowed on the trails only to conduct trail grooming over the snow. Temporary signs and snow fences would be installed each winter by placing them in the snow to alert Forest users of the areas closed to motorized vehicles. In addition, an existing car parking area and trailhead near the intersection of Wingleton Road and Forest Service Road 6458 would be maintained by non-profit organizations from December 1 through March 31. From April 1 through November 30, the Forest Service Roads affected by this action would remain open to motorized vehicles, as is currently displayed on the Motorized Vehicle Use Map. No construction, ground disturbance, or permanent signage would be necessary. Specifically, the following Forest Service Roads (FSR) would be closed to motorized vehicles from December 1 through March 31: FSR 6463 from U.S. Highway 10 south to intersection with FSR 6677 FSR 6459 from one half mile south of U.S. Highway 10 to Wingleton Road FSR 6462 in its entirety FSR 6680 from approximately one quarter mile south of U.S. Highway 10 to FSR 6608 FSR 6608 in its entirety FSR 6458 in its entirety FSR 5459 in its entirety FSR 6677 from approximately one quarter mile north of Wingleton Road to FSR 6463 We prepared this environmental assessment (EA) to determine whether creation of a nonmotorized winter trail system using an existing Forest Service Road network may significantly affect the quality of the human environment and thereby require the preparation of an environmental impact statement. By preparing this EA, we are fulfilling agency policy and direction to comply with the National Environmental Policy Act (NEPA). For more details of the proposed action, see the Proposed Action and Alternatives section of this document. The Project is subject to 36 CFR 218 parts A and B. 2

3 Baldwin/White Cloud Ranger District, Huron-Manistee National Forests Proposed Project Location The project area lies between U.S. Highway 10 and Wingleton Road on the Baldwin/White Cloud Ranger District of the Huron-Manistee National Forests (Figure 1) in: T18N, R14W, Sections 21, 22, 23, 24, 25, 26, and 27 of Sweetwater Township, Lake County, Michigan. T18N, R13W, Sections 29, 30, and 32 of Webber Township, Lake County, Michigan. Figure 1. Vicinity map Need for the Proposal This proposal is needed because the Forest Service has received numerous requests for special use permits to allow dog sledding events, and to provide for a safe environment for such events as well as regular use by dog sledders, in this particular area on the Baldwin/White Cloud Ranger District, for which there are no currently designated trails 3

4 Sweetwater Non-Motorized Winter Trail systems that meet this need. The Village of Baldwin and the Lake County area has historically been used by dog sledders since the 1960s. The Forest Service first issued a 5-year Special Use Permit for dog sled events in this area in 2008/2009 and then reissued another permit for the same activities in In 2014, the Forest Service also implemented a weekend-only winter closure to allow for the safety of dog teams and sledders by excluding motorized vehicles in this area to prevent potential safety hazards (sled dog/motorized vehicle interactions). The Forest Service did not receive any complaints/objections regarding this special closure. In addition, the Forest Service Roads in the project area are not plowed by the Forest Service in the winter and therefor offer limited access to motorized vehicles in the winter, especially under deep snow conditions. However, snowmobilers are known to use the area, but are not, by policy, allowed on non-designated trails on the Forest, including this project area. As stated in the Desired Future Condition for Management Area (MA) 4.2 in the Forests Land and Resource Management Plan, as amended, the Forest Service wants to provide roads and trails appropriate for motorized and non-motorized uses, and road closures will be evident in this location (MA 4.2) of the Forest. However, there is no system of roads currently useable by dog sledders that do not co-exist with motorized vehicles in MA 4.2, and dogs are excluded from many cross-country ski trails on the Forest. In addition, most Forest Service Roads are not wide enough to allow safe passage of both motorized vehicles and sled dog teams and motorized vehicles often create ruts in the snow that are dangerous to fast-moving dog sled teams. In 2009, with the approval of the Forest Service and through a Michigan Department of Natural Resources Off-Road Vehicle Damage Restoration Grant, a non-profit group restored a section of non-motorized trail through the forest that is within the project area. It could be interconnected with the proposed winter trail system to provide a safe route suitable for winter trail enjoyment, training of sled dogs in a safe environment, and hosting special use events such as sled dog races which could provide a local economic benefit to the communities in Lake County, Michigan. Several non-profit groups developed and continue to maintain a parking area adjacent to the proposed winter trail system and pay for and maintain a port-a-jon at the parking area. Public Involvement and Tribal Consultation The Forest Service uses public involvement and resource specialists to determine the issues of concern and to develop possible solutions to those issues of concern. Opportunities for public comment enables concerned citizens, resource specialists from other agencies, and local governments to express their ideas and viewpoints. A scoping letter dated September 19, 2014, was mailed to approximately 100 interested parties, including County and Township officials, members of the general public, property owners within the Project Area, environmental groups, and Tribal representatives. The scoping letter outlined the Sweetwater Non-Motorized Winter Trail Proposed Project. Public involvement for the project also included listing of the project 4

5 Baldwin/White Cloud Ranger District, Huron-Manistee National Forests in the Huron-Manistee National Forests Schedule of Proposed Actions as well as publishing the Comment Request in the Lake County Star on September 25, During the 30-day scoping period, four responses were received. Two were in favor of the project, one was concerned that the trail would trespass on his property (although it would not), and one did not want any government involvement or changes in the project area. The comments can be found in Appendix A. Proposed Action and Alternatives The Proposed Action and following alternatives were considered: Proposed Action The Proposed Action is to close specific Forest Service Roads to motorized vehicles in the area between U.S. Highway 10 and Wingleton Road (Figure 1) from December 1 through March 31; snowmobiles are already precluded by policy. The Forest Service Roads would convert to a non-motorized winter trail system for such activities as dog sledding, ski-joring, snowshoeing, cross-country skiing or hiking during this timeframe. Motorized vehicles under Special Use Permit would be allowed on the trails only to conduct trail grooming over the snow. Temporary signs and snow fences would be installed each year by placing them in the snow to alert Forest users of the areas closed to motorized vehicles. In addition, an existing car parking area and trailhead near the intersection of Wingleton Road and Forest Service Road 6458 would be maintained from December 1 through March 31. Trail signage, snow fencing, trail grooming and trailhead maintenance will be accomplished by non-profit organizations. From April 1 through November 30, the Forest Service Roads affected by this action would remain open to motorized vehicles, as is currently displayed on the Motorized Vehicle Use Map. Specifically, the following Forest Service Roads (FSRs) would be closed to motorized vehicles from December 1 through March 31: FSR 6463 from U.S. Highway 10 south to intersection with FSR 6677 FSR 6459 from one half mile south of U.S. Highway 10 to Wingleton Road FSR 6462 in its entirety FSR 6680 from approximately one quarter mile south of U.S. Highway 10 to FSR 6608 FSR 6608 in its entirety FSR 6458 in its entirety FSR 5459 in its entirety FSR 6677 from approximately one quarter mile north of Wingleton Road to FSR

6 Sweetwater Non-Motorized Winter Trail No Action Alternative All Forest Service Roads proposed to be closed to motorized vehicles from December 1 through March 31 described above under the Proposed Action would remain open yearround as per the current Motor Vehicle Use Map. The area would also likely continue to be used by dog sledders and other winter trail users as there is a tradition of use in this area. Depending on interest, non-profit organizations may or may not continue to maintain the trailhead at the intersection of Wingleton Road and Forest Service Road Alternative Considered but Eliminated from Further Study The Forest Service considered the original request by non-profit organizations to permanently close the Forest Service Road system considered in this EA and to establish those roads as non-motorized trails only. At this time, the Forest Service does not believe this Alternative is necessary to meet the needs of winter recreationists and would reduce access to the National Forest during the non-winter months to other Forest users. This Alternative will not be considered further in this EA. Environmental Impacts of the Proposed Action and Alternative Under both the Proposed Action and No Action Alternative, there would be no ground disturbing impacts as the Forest Service Roads are currently in place and the Proposed Action would simply restrict motorized vehicles within these road prisms from December 1 through March 31. All grooming would occur over the snow under the Proposed Action Alternative. If non-profit organizations chose to groom under the No Action Alternative, this too would occur over the snow to reduce ruts created by motorized vehicles. All fencing and signage under the Proposed Action would occur by placing stakes in the snow; no permanent signs, fencing or trail markers would be installed in the ground or on trees. Maintenance of the trailhead would continue at the discretion of nonprofit organizations, as under the No Action Alternative, which includes snowplowing the trailhead to allow parking and maintenance of a port-a-jon. Under both Alternatives, the Forest Service would continue to conduct routine road maintenance activities, as needed and funding allows. Heritage Resources The consideration of effects to cultural resources located within the Proposed Action has been addressed through field survey or determinations of no potential to effect. Forest Service Roads 6459, 6458, trailhead parking area and 6463 have received complete survey. The other Forest Service Roads within the Proposed Action area have been determined to have no potential to effect cultural resources because the proposed trail routes are to be established on existing Forest Service Roads with no additional ground disturbing activities. There are two known cultural resources located within the Proposed Action and Alternatives. Neither cultural resource would be affected by the Proposed Action. Snowplowing, a potential ground disturbing activity would occur at the trailhead and has been found to have no potential to effect cultural resources for this Proposed Action. 6

7 Baldwin/White Cloud Ranger District, Huron-Manistee National Forests Fish, Wildlife and Plant Resources To determine if threatened or endangered species or their designated critical habitat might occur within the Project Area, the District Wildlife Biologist and Botanist queried the Forest Service NRIS Wildlife database, the Forest Service NRIS TESP Plant database, Michigan Natural Features Inventory database, and Huron-Manistee National Forests Endangered, Threatened and Sensitive species database. Data collected during annual surveys conducted for the Karner blue butterfly, bat echolocation surveys, and bald eagle surveys also were reviewed. The Forest Service Roads and trailhead under consideration have all previously been surveyed for federally threatened and endangered species, and Regional Forester s Sensitive Species (RFSS). Surveys for the federally proposed northern long-eared bat have not been conducted; therefore, the species is assumed to use the Project Area during the non-hibernating period and non-volant bats may be present in roost trees from approximately June through July due to the occurrence of suitable roosting habitat. The following RFSS have been found within the Project Area: American marten, red-headed woodpecker, and eastern box turtle. Because no new ground disturbing activities would occur, no federally listed or proposed species or other sensitive species would be directly affected by either Alternative. Some sensitive animal species, such as northern goshawk and American marten, may occur in the Project Area between December and March. However, these species are not likely to be differentially indirectly affected (such as by noise and human presence) by activities on the roads from either motorized vehicle use under the No Action Alternative or non-motorized trail use and occasional trail grooming under the Proposed Action Alternative. Under both Alternatives, the potential for disturbance of sensitive species in late winter/early spring is likely immeasurable because: 1) most sensitive animal species would not be active in the Project Area; that is, they would be hibernating/estivating under the snow or have not established breeding territories in the Project Area; 2) under minimal snow depths there would not be a lot of anticipated use of the Forest Service Road system by motorized vehicles or recreational winter trail users, thereby reducing potential effects to sensitive species from disturbance, if present; or 3) under heavy snow conditions, use of the area would be most likely from recreational trail users only under both Alternatives which is not anticipated to disturb sensitive species, if present in the Project Area. There would be no direct or indirect effects to sensitive plants under either Alternative as there would be no new ground disturbance and all activities would occur over the snowplow or in an already cleared parking area. Sweetwater Creek is a productive brook trout and sculpin stream and there is a stream course running along FSR6459, but this stream course does not connect to Sweetwater Creek or any other larger stream system. No sensitive fisheries would be affected by either Alternative due to the lack of new ground disturbing activities and road/trail stream crossings in the Project Area. Native wildlife such as deer, turkey, grouse, squirrels, etc. would be expected to be similarly affected by both Alternatives, in that limited disturbance is likely under both Alternatives. Wildlife, such as deer, that may occur in the Project Area year-round may experience disturbance from the use of the Forest Service Roads by motorized vehicles under the No Action Alternative, especially under light snow conditions when vehicular access is possible. However, when snow depths preclude legal vehicular traffic there is an increase in snowmobile traffic which likely disturbs non-hibernating wildlife in the 7

8 Sweetwater Non-Motorized Winter Trail Project Area. The Proposed Action Alternative would allow occasional trail grooming via a snowmobile and barking dogs from sled dog teams may disturb wildlife to some degree, the relative effects are difficult to differentiate between the Alternatives. Wetlands There are no wetlands that would be directly or indirectly affected by the change in use of Forest Service Roads between the No Action and Proposed Action Alternative. Fuel Wood The Proposed Action may reduce the availability of firewood in the Project Area, especially under light snow conditions, as compared to the No Action Alternative. Under the No Action Alternative, fuel wood can be collected year-round under an authorized permit in the Project Area. Under the Proposed Action Alternative, fuel wood collection from December 1 through March 31 would be restricted by the closure of the Forest Service Roads to motorized vehicles. However, from December 1 through March 31, access to firewood in the Project Area is limited by snow depth and the resulting lack of access by motorized vehicles under the No Action Alternative. From past experience with the issuance of Special Use Permits in this area, fuel wood collection during this timeframe in the Project Area has not been a predominate use. Therefore, implementing the Proposed Action Alternative may have a slight negative effect on the availability of access to firewood, but it may also protect wildlife using dead trees as dens or roost sites. Firewood collection would still be allowed on Forest Service property along the County roads in the Project Area. Hunting and Trapping The Proposed Action will reduce vehicle access in the Project Area during several hunting and trapping seasons (furbearer, rabbit and hare, crow, archery for deer, muzzle loader, late antlerless firearm, ruffed grouse and squirrel seasons). Some hunters and trappers may prefer this situation and others may not. From past experience with the issuance of Special Use Permits in this area, hunting and trapping from December 1 through March 31 in the Project Area has not been a predominate use. Therefore, implementing the Proposed Action Alternative may have a slight negative effect on the availability of hunting and trapping via limited vehicular access, but it may create better hunting conditions for others that prefer non-motorized areas for hunting. County Roads traversing and enclosing the Project Area would still provide hunting and trapping access to the Project Area. Air Quality and Climate Change Based on past use and requests, implementation of the Proposed Action Alternative will result in greater use of the Project Area by individuals from across and outside of the State of Michigan to compete and train sled dog teams. These recreational users will drive long distances resulting in the consumption of fossil fuels to do so. Because the Project Area offers fairly limited availability to such users, it is not anticipated that the impacts of increased use of fossil fuels would result in measureable changes in air quality or changes in atmospheric conditions contributing to climate change. 8

9 Baldwin/White Cloud Ranger District, Huron-Manistee National Forests Economics Past sled dog events conducted under Special Use Permit in the Project Area resulted in periodic influxes of recreational users in Lake County during times when tourism tends to be low. Implementation of the Proposed Action Alternative is expected to contribute a modest economic benefit to Lake County through recreationists purchasing fuel, food and lodging. Environmental Justice A Civil Rights Impact Analysis was completed in January 2014 to assess the perceived impacts of the 2014 winter closure order associated with the issuance of a special use permit to allow the safe implementation of several authorized dogsled races on the Baldwin/White Cloud Ranger District of the Huron-Manistee National Forest in Lake County, Michigan, on specific user groups to make sure the proposal would not adversely impact any group or individual s civil rights. The Civil Rights Impact Analysis found only a few local residents use this area during the time frame of the Special Use Permit (the same as that proposed in this analysis). There is one location where a few residents go to scout for hunting opportunities and to fire their weapons against a hillside. However, this usually occurs late in the fall when the conditions are not conducive to sled dogging and generally does not overlap the special use permit timeframe, but could. A few residents use some of the roads as tie-through to other mainstream routes, but again these roads are not plowed during the timeframe of the permit/proposal and so use is generally low and no access to private lands or other open roads would be precluded. We received no complaints during the winter of 2014 in the implementation of the special closure. Although the proposed action would close the entire Project Area from December 1 to March 31 as compared to the 2014 winter closure, which was implemented from Friday through Sunday only, we do not believe any group or individual s civil rights would be adversely affected. Finding of No Significant Impact As the responsible official, I am responsible for evaluating the effects of the project relative to the definition of significance established by the CEQ Regulations (40 CFR ). I have reviewed and considered the EA and documentation included in the project record, and I have determined that the proposed Sweetwater Non-Motorized Winter Trail, the Proposed Action, and the No Action Alternative will not have a significant effect on the quality of the human environment. As a result, no environmental impact statement will be prepared. My rationale for this finding is as follows, organized by sub-section of the CEQ definition of significance cited above. Context For the Proposed Action and No Action Alternative the context of the environmental effects is based on the environmental analysis in this EA. The context of the Proposed Action is that it is simply an administrative decision to convert Forest Service Roads not typically used by motorized vehicles (except occasional inappropriate use by snowmobiles) from December 1 through March 31 into a non- 9

10 Sweetwater Non-Motorized Winter Trail motorized winter trail system in an area historically used for such activities but in which conflicts between motorized uses and winter non-motorized uses can be a safety hazard. Intensity Intensity is a measure of the severity, extent, or quantity of effects, and is based on information from the effects analysis of this EA and the references in the project record. The effects of this project have been appropriately and thoroughly considered with an analysis that is responsive to concerns and issues raised by the public. The agency has taken a hard look at the environmental effects using relevant scientific information and knowledge of site-specific conditions gained from field visits. My finding of no significant impact is based on the context of the project and intensity of effects using the ten factors identified in 40 CFR (b). 1. Impacts that may be both beneficial and adverse. A significant effect may exist even if the Federal agency believes that on balance the effect will be beneficial. The effects on the human environment are essentially the same under both Alternatives as the decision is an administrative decision and there would be no ground disturbing effects. All effects described in the EA will result from minor changes in the use of the Project Area which is anticipated to be more use by winter recreationists. The scale of this increased use is limited by the relatively small Project Area and area s ability to accommodate recreational users. Therefore, there are no anticipated significant effects on the human environment. 2. The degree to which the proposed action affects public health or safety. The Proposed Action will eliminate the safety risk of motorized vehicles and winter recreationists using the same trail/road system. The designation of these Forest Service Roads as a non-motorized winter trail system will: 1) eliminate potential motorized vehicle and recreational user accidents, especially for sled dog teams; and, 2) will eliminate rutting in the snow from motorized vehicles thereby providing for a safer road/trail surface primarily for sled dog teams and their drivers. 3. Unique characteristics of the geographic area such as the proximity to historical or cultural resources, parklands, prime farmlands, wetlands, wild and scenic rivers, or ecologically critical areas. There are two known cultural resources located within the Proposed Action. The first is a heritage property known to the recreational users of the area. This site has been surveyed and protective measures developed for the utilization of the road and establishment and continued use of the trailhead. The second cultural resource is located adjacent to the Project Area. The proposed trail system does not cross through this cultural resource and no protective measures are required. The sites will continue to be protected through the Special Use Permit system for organized uses of the area. No ground disturbing activities would occur; therefore these unique characteristics would be protected under all Alternatives. 4. The degree to which the effects on the quality of the human environment are likely to be highly controversial. 10

11 Baldwin/White Cloud Ranger District, Huron-Manistee National Forests Because there are no ground disturbing activities, there are no effects on the quality of human environment that are controversial. 5. The degree to which the possible effects on the human environment are highly uncertain or involve unique or unknown risks. Because there are no ground disturbing activities, there are no effects on the human environment that are uncertain or involve unique or unknown risks. 6. The degree to which the action may establish precedent for future actions with significant effects or represents a decision in principle about a future consideration. The Project Area has been used historically by winter recreationists, particularly dog sledders. There has not been any other such request on the Forest, therefore it is not anticipated that this decision may establish a precedent for future actions or represent a decision in principle about a future consideration. 7. Whether the action is related to other actions with individually insignificant but cumulatively significant impacts. Significance exists if it is reasonable to anticipate a cumulatively significant impact on the environment. Significance cannot be avoided by terming an action temporary or by breaking it down into small component parts. This action is not related to another other action, therefore there will be no cumulatively significant impacts. 8. The degree to which the action may adversely affect districts, sites, highways, structures, or objects listed in or eligible for listing in the National Register of Historic Places or may cause loss or destruction of significant scientific, cultural, or historical resources. This Proposed Action will have no adverse effect to any historic properties. The historic property is known to recreational users of the area and protective measures were developed for both development of the trailhead and trail utilization. This heritage property will continue to be protected through the Special Use Permit system for organized uses of the area. No ground disturbing activities would occur; therefore this historic property would be protected under all Alternatives. 9. The degree to which the action may adversely affect an endangered or threatened species or its habitat that has been determined to be critical under the Endangered Species Act of There are no threatened or endangered species or their designated critical habitat in the Project Area. The northern long-eared bat, a proposed federally listed species, may occur in the Project Area during the breeding season. However, their potential use of the Project Area would not co-occur with the proposed winter trail use time period. Therefore, there will be no effect on any listed or proposed threatened or endangered species. 10. Whether the action threatens a violation of Federal, State, or local law or requirements imposed for the protection of the environment. The Proposed Action would be consistent with all Federal, State and local laws and the Huron-Manistee National Forests Land and Resource Management Plan, as amended. 11

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