Transportation Analysis Process

Transcription

1 National Forests in North Carolina Mike Wilkins, District Ranger (828) Nantahala Ranger District 90 Sloan Road Franklin, NC Transportation Analysis Process for the Haystack Restoration Project USDA Forest Service Nantahala Ranger District Nantahala National Forest August 2011 Haystack Travel Analysis 1

2 Introduction Background In August 1999, the Washington Office of the USDA Forest Service published Miscellaneous Report FS-643 titled Roads Analysis: Informing Decisions about Managing the National Forest Transportation System. The objective of travel (roads) analysis is to provide decision makers with critical information to develop road systems that are safe and responsive to public needs and desires, are affordable and efficiently managed, have minimal negative ecological effects on the land, and are in balance with available funding for needed management actions. In October 1999, the agency published Interim Directive authorizing units to use, as appropriate, the road analysis procedure embodied in FS-643 to assist land managers making major road management decisions. The Rocky Mountain Region of the Forest Service then published a travel analysis guidance document as a supplement to Appendix 1 of FS-643. This document provides guidance concerning the appropriate scale for addressing the travel analysis. In November 2005 the U.S. Department of Agriculture promulgated the final rule for Travel Management: Designated Routes and Areas for Motor Vehicle Use (36 CFR 212), otherwise known as the Travel Management Rule. In 2008, the National Forests in North Carolina updated the Motor Vehicle Use Maps in accordance with the Travel Management Rule. The maps identify National Forest System Roads (NFSR) and National Forest System Trails (NFST) within an administrative area. The maps are produced to be used as a legal document depicting NFSRs and NFSTs that are open for motorized use. The map for the area addressed in this analysis can be found at: and is incorporated into this report by reference. Final travel management directives, as well as a revision to the 2005 Travel Management Rule, became effective January 8, Process Pursuant to Forest Service Handbook (FSH) , Chapter 20, the Transportation Analysis Process (TAP or Travel Analysis) is a six-step process. The steps are designed to be sequential with the understanding the process may require feedback and iteration among steps over time as an analysis matures. The amount of time and effort spent on each step differs by project based on specific situations and available information. The process provides a set of possible issues and analysis questions, the answers for which are intended to inform choices about road system management. Decision makers and analysts determine the relevance of each question, incorporating public participation as deemed necessary. Additional information about the Transportation Analysis Process can be found in FSM Travel Analysis Steps: Step 1: Setting up the Analysis Step 2: Describing the Situation Step 3: Identifying Issues Haystack Travel Analysis 2

3 Step 4: Assessing Benefits, Problems, and Risks Step 5: Describing Opportunities and Setting Priorities Step 6: Reporting Products The product of a Travel Analysis is a report for decision makers and the public that documents the information and analyses used to identify opportunities and set priorities for the future management of the National Forest Roads System. Included in the report is a map displaying the inventoried road system for the analysis area and the risks and opportunities for each road or road segment, identification of the minimum road system needed for safe and efficient travel and for administration, utilization, and protection of National Forest System (NFS) lands [36 CFR 212.5(b)(1)], and designation of roads, trails and areas for motor vehicle use [36 CFR ]. A report may also include other maps and tables necessary to display specific priorities and changes in a road system, and may be updated as needed. There are two types of TAPs those done at the Forest-level and those done at a smaller level including the sub-watershed and project-level. This Report This report documents the travel analysis for the Haystack Restoration Project Travel Analysis Area (TAA). This area is in the northern part of the Haystack Restoration Project area. The TAA is roughly bounded by NFSR 437 to the south, US 64 to the east, the Appalachian Trail to the northeast, and Fire Gap Ridge and Roaring Fork to the west-northwest. The travel analysis area includes administrative compartments , 107, 108, and 109 on the Nantahala Ranger District, Nantahala National Forest in Macon County, North Carolina. See Appendix A: Maps for detailed maps of the Travel Analysis Area. Step I - Setting Up the Analysis Purpose and Products The Purpose of this Step is to: 1. Establish an Interdisciplinary Team (ID team) that includes specialists from relevant disciplines; 2. Develop a list of data needs, and a schedule for completing the analysis; 3. Identify the appropriate scope of analysis. The scope of analysis refers to the range of potential actions to be considered, for example, whether only additions to the existing forest transportation system will be considered, whether only the existing forest transportation system will be analyzed, or whether only motorized trails will be considered for changes; 4. Identify the appropriate scale of analysis; Haystack Travel Analysis 3

4 5. Establish a complete and accurate inventory of National Forest System (NFS) roads and NFS trails managed for motor vehicle use in the portion of the forest transportation system under analysis; 6. Identify the appropriate depth for travel analysis based on the skills and resources available and the complexity and scope of the issues prompting the analysis; 7. Consider opportunities to integrate travel analysis with any watershed analysis or landscape assessments. 1.1 Interdisciplinary Team Members The Travel Analysis was conducted by an Interdisciplinary Team (ID Team). The ID Team consisted of the following members: Joan Brown (District Silviculturist) Eric Pullium (GIS Specialist) Max Riddle (Engineering Technician) Steverson Moffat (NEPA Team Leader) Heather Luczak (Assistant Forest Planner) Katie LaJeunesse (Natural Resources Specialist) 1.2 Data Needs Data needed for the analysis include: Forest Plan Direction for roads and motorized trails in the TAA; Inventory of all authorized (system) NFSRs and motorized use NFSTs within the TAA; Determination of future needs for access to the area. 1.3 Scope of Travel Analysis This travel analysis will evaluate the existing condition of the transportation system and potential additions/deletions to it, and will make recommendations for action. Pursuant to FSH , Chapter 20.2, the objective of this travel analysis is to: Conduct travel analysis to inform decisions related to: a. Identification of the minimum road system needed for safe and efficient travel and for administration, utilization, and protection of NFS lands per 36 CFR 212.5(b)(1); b. Designation of roads, trails and areas for motor vehicle use per 36 CFR Additionally, the scope of this analysis includes: Identification of needed and unneeded authorized/unauthorized roads; Identification of road associated environmental and public safety risks; Prioritization of recommended changes. Haystack Travel Analysis 4

5 1.4 Scale of Travel Analysis Pursuant to FSH , Chapter 21.1, the responsible official must Determine the appropriate scale [for the TAP] based on the issues to be addressed. In order to thoroughly analyze the Haystack Restoration Project Travel Analysis Area and provide detailed information about the existing transportation system to facilitate future management decisions, it was determined that the appropriate scale for the travel analysis includes: Only roads that are within the Haystack Restoration Project and north of US 64 and SR Only compartments adjacent to compartment 106, the compartment that includes the proposed change to the road system. This scale includes the roads that currently are on the forest road system in the project TAA and those that would need to be added to access the proposed sites where appropriate. By focusing on the TAA, the TAP can provide more detailed and specific data than a watershed-, district-, or Forest-wide analysis. After conducting a full inventory of roads in the larger Haystack Restoration Project Area (Appendix B), the roads systems in the northern and southern halves of the analysis area where examined separately. The boundary between the northern and southern halves is a tract of non-forest System land that intersects the larger Haystack Restoration Project area. This privately-owned land is east of the Clay County-Macon County line, and includes the town of Rainbow Springs, North Carolina, a corridor along US 64, and a corridor along the Nantahala River. The road system of the Haystack Restoration Project south of US 64 and the corridor of private land is significantly different than the northern area. The southern area includes a high density of roads at the Standing Indian Campground, as well as the low to zero density of roads in the Southern Nantahala Wilderness, Little Indian Roadless Area, and Big Indian Roadless Area. Thus it was determined that not all compartments of the Haystack Restoration Project would be appropriate to included in the Transportation Analysis Area because the majority of the roads in the Haystack Restoration Project Area (which are in the south) will not be affected by proposed changes to the forest road system. The boundaries of the TAA have been chosen in order to include all roads and administrative units that are connected to the proposed change in the forest road system. The boundaries are as described below: National Forest System Road 437 NFSR 437 bounds the entire south-southeastern edge of the TAA. Within the TAA, most of this road is off of Forest Service land. State Route 1448 and US 64 Haystack Travel Analysis 5

6 The southern boundary of the TAA includes NRSR 437 to where it intersects with US 64, then US 64 to where it intersects with SR SR 1448 serves as a rough southern boundary out of the TAA, where it intersects the Appalachian Trail. Appalachian Trail and the Appalachian Trail Corridor The eastern edge of the Appalachian Trail Corridor bounds the TAA roughly on the east and northeast, except where NRSR 7131A occurs east of the Appalachian Trail. The corridor is managed by the Appalachian Trail Conservancy. Fire Gap Ridge Fire Gap Ridge is the northern edge of the TAA. The north-northeast edge of the TAA has a border that is north of Roaring Branch along Fire Gap Ridge, until, going east, Fire Gap Ridge turns slightly north and the TAA border continues east to the Macon County Clay County line. 1.5 Inventory of Roads and Motorized Trails in the Haystack Restoration Project Analysis Area See Table 1.1: Inventory of Forest Service Roads and Motorized Trails in the Haystack Restoration Project Travel Analysis Area, and Appendix A: Maps. Haystack Travel Analysis 6

7 Table 1.1: Inventory of Forest Service Roads and Motorized Trails within the TAA. Miles determined from INFRA for Forest System Roads, and by GIS for non-system roads and roads managed by other agencies. See Appendix C for a guide to Road Management Objectives (RMO). Road # Road Name Begin End Management Areas Total Road Length (Miles) Maintenance Level Objective/ Operational Surface Lanes RMO Open?* National Forest System Roads 437 Rainbow Springs US 64 SR1310 2a, 3b, 4d /4 Aggregate 1 B1 yes 437A Jarrett Knob FDR 437-4d /1 Native 1 D1 no Material 7130 Trough Branch US 64-3b /1 Aggregate 1 D1 no 7131 Moore Creek US 64-3b, /1 Aggregate 1 D1 no 7131A Panther Gap FDR b, /2 Aggregate 1 D1 no 7131A1 Upper Moore Ck A Dead End 3b, /1 Aggregate 1 D1 no 7131C Lower Moore Creek FDR b /2 Aggregate 1 D1 no 7131C1 Angel Mountain 7131C Dead End 3b /1 Aggregate 1 D1 no 7131C2 Lower Moore Creek Spur FDR 7131 C - 3b /2 Aggregate 1 D1 no 7131D Swinging Lick Gap FDR b /2 Aggregate 1 D1 no 7131E Upper Bryson Branch FDR b /2 Native 1 D1 no Material 7131F Lower Bryson Branch FDR b /2 Native 1 D1 no Material 7131G Factory Branch 7131 Dead End 3b /1 Aggregate 1 D1 no 7283 Roaring Fork NFSR b, 4d /1 Aggregate 1 D1 no 7283A Roaring Fork Ridge NFSR 7283 Dead End 4d /1 Aggregate 1 D1 no Roads not managed by the U.S. Forest Service SR1448 State Route 1448 N/A N/A 13, 14 unknown Paved 2 N/A yes US64 U.S. 64 N/A N/A 3b, 14 unknown Paved 2 N/A yes *Year-round or seasonally open to the public for use with personally owned vehicles Haystack Travel Analysis 7

8 1.6 Appropriate Depth for this Analysis The TAP is conducted at a sufficient depth to adequately identify the minimum road system needed for safe and efficient travel and for administration, utilization, and protection of National Forest System (NFS) lands [36 CFR 212.5(b)(1)], and designation of roads, trails and areas for motor vehicle use [36 CFR ]. According to FSH , Chapter 21.1, the Responsible Official will: Identify the appropriate depth for travel analysis based on the skills and resources available and the complexity and scope of the issues prompting the analysis. For less complex and comprehensive questions, analysis may consist of no more than a judgment by the interdisciplinary team on the issues presented. At other times, the complexity, scope, and scale of the issues or the potential severity of effects may be sufficient to justify using the latest analytical tools. Interdisciplinary teams should conduct travel analysis that is as simple and cost-effective as possible and still produces sufficient information for decisionmaking. For this TAP, analysis consists of a GIS analysis of roads, trails, streams, political and administrative boundaries, topography, and Forest Service management units (Management Areas, Compartments, and Stands). The current and potential future uses, risks, and benefits of each system and non-system road were analyzed by the ID team to find opportunities to improve compliance with the Forest Plan. 1.7 Opportunities to Integrate this Transportation Analysis with any Watershed or Landscape Assessment The TAA was analyzed as part of the Haystack Project Environmental Assessment in July It was also included in the Pisgah and Nantahala National Forest Roads Analysis Process Report, 2003, and that report is incorporated by reference. No other travel analyses are being conducted in the vicinity at this time. Step II: Describing the Situation Products and Purpose The Purpose of this Step is to: 1. Summarize current land management and travel management direction; 2. For the portion of the forest transportation system under analysis, produce: a. A map; b. An inventory of NFS roads and NFS trails and areas on NFS lands managed for motor vehicle use; c. An assessment of motorized and non-motorized uses; d. A description of public and administrative access needs; e. An assessment of motorized recreation opportunities; Haystack Travel Analysis 8

9 f. Information about environmental, social and other issues; g. A summary of existing travel management decisions; h. An assessment of available resources to maintain and operate the forest transportation system; i. A summary of available applicable accident and law enforcement data; 3. Consider motor vehicle use both on the part of the forest transportation system under analysis and on adjacent or connecting authorized transportation systems; 4. Consider the effects of motor vehicle use on the portion of the transportation system under analysis, using the general and specific criteria for designating NFS roads, trails, and areas on NFS lands for motor vehicle use (36 CFR ; FSM ). 2.1 Current Land Management and Travel Management Direction Current land management and travel management direction includes the Land and Resource Management Plan; Amendment 5; Nantahala and Pisgah National Forests Management Areas (MAs), Road Maintenance Levels, and Road Maintenance Objectives (RMOs). See Appendix C: Applicable Land and Travel Management Direction for details, road management definitions, and Management Area standards. Table 2.1: Comparison of Current Road Density and Forest Plan Direction within MA blocks within the TAA*. MA type Current area in TAA (mi 2 ) Length of all open roads (including non-nfsr) in the TAA (mi) Density of all open roads (including non-nfsr) in the TAA (mi/mi 2 ) Length of open NFSR in the TAA (mi) Density of open NFSR in the TAA (mi/mi 2) Forest plan direction for max. density of open NFSR (mi/mi 2 ) Meets forest plan standards for density of open NFSR? 3b yes 4d yes yes None n/a n/a * The Forest Plan states that Some standards are stated as approximations or desired densities However, some latitude is given to allow for on the ground decisions necessary to implement the standard in an economically and environmentally sound manner (p.iii-8) 2.2 Analysis Area The TAA is further described in the following subsections. 2.2a Map of Analysis Area See Appendix A: Maps for detailed maps of the Analysis Area. Haystack Travel Analysis 9

10 2.2b Inventory of Roads and Trails used for Motorized Travel National Forest Service Roads See Table 1.1: Inventory of Forest Service Roads and Motorized Trails within the TAA. 2.2c Assessment of Motorized and Non-Motorized Uses Motorized: The following motorized uses are present in the TAA: Public access to trails and recreation opportunities outside of the TAA; Administrative access for management activities, including timber, wildlife, and fire protection and; Access for commercial timber sales. Non-Motorized: The following non-motorized uses are present in the TAA: Hiking, biking, and equestrian use; Dispersed recreation activities, including, hunting, fishing, and camping; Gathering firewood and permitted forest products. 2.2d Description of Public and Administrative Needs Public Needs The following public access needs are present in the TAA: Access to recreation opportunities on Forest Service lands, including trails and dispersed recreation. Administrative needs: The following administrative access needs are present in the TAA: NC Wildlife Resource Commission access to Federal/State Game Lands for enforcement and wildlife habitat management; Forest Service access for resource management activities, which may include: o Commercial or non-commercial timber harvest; o Maintenance of roads, structures, wildlife openings, or other facilities; o Management of wildlife, fish, plant, or bird populations or habitat; o Identification or inventory of resources; o Wildfire prevention or prescription burning; o Law enforcement; o Other management activities consistent with the Forest Plan, Forest Service directives, and applicable laws and regulations. 2.2e Assessment of Motorized Recreation Opportunities Haystack Travel Analysis 10

11 There are no trails or areas designated for motorized recreation use within the TAA. 2.2f Information about Environmental, Social, and Other Issues Environmental, social, and other issues in the TAA include: Horseback riding and biking also occurs throughout the TAA; Roads are used to access opportunities for dispersed use, including hunting, fishing, camping, and gathering of firewood and other permitted forest products. 2.2g Summary of Existing Travel Management Decisions January 13, 2003, Nantahala/Pisgah National Forests Road Process Report evaluated all 424 open roads in the current Forest System for the Nantahala and Pisgah National Forests. January 01, 2008, Motor Vehicle Use Map (MVUM) shows the National Forest System, roads, National Forest System trails and the areas on National Forests System lands in the Nantahala National Forest that are designated for motor vehicle use pursuant to 36 CFR The MVUM also contains a list of those designated roads, trails, and areas and enumerates the types of vehicles that are allowed on each route and in each area, and any seasonal restrictions that apply on those routes and in those areas. 2.2h Assessment of Available Resources to Maintain and Operate the Forest Transportation System There are several methods for performing road maintenance in the TAA: Annual Road Maintenance Funds: Annual maintenance funding (CMRD) is used to maintain roads. Funds are used for road maintenance including grading, aggregate replacement, culvert replacement, ditching, mowing, brushing, gate installation and maintenance, and signage. Co-op Roads Funds from Timber Sale receipts: These funds (FSRM) are generated from timber sales receipts to cover maintenance of National Forest System Roads not included to be maintained in the timber sale contract. Funds are used for road maintenance including aggregate replacement, road blading, culverts replacement, mowing and signage. North Carolina Wildlife Resources Commission: The NCWRC assists in maintaining linear wildlife openings within the TAA. Maintenance includes seeding, brushing, and mowing. Road Maintenance for NFSR 437, which is open to motorized vehicles, is approximately $500 per mile per year for regular maintenance, which includes mowing and two gradings per year. The remainder of the roads in the TAA are maintained as linear wildlife openings. The North Carolina Wildlife Resources Commission funds and conducts the annual maintenance on these wildlife openings, and the Forest Service mows these wildlife openings once every three years. Haystack Travel Analysis 11

12 The average annual cost per mile to the Forest Service for this mowing is $133. Table 2.2 shows the estimated maintenance cost for the National Forest System Roads in the TAA based on the length of each road. Table 2.2: Annual Estimated Maintenance Costs for System Roads in the Haystack TAA. NFSR# Road Name Length within the TAA* (miles) Road open to motorized vehicles? Estimated USFS Maintenance Cost per year 437 Rainbow Springs 5.77 Yes, open $2, A Jarrett Knob 0.01 No, linear wildlife opening $ Trough Branch 1.56 No, linear wildlife opening $ Moore Creek 7.82 No, linear wildlife opening $1, A Panther Gap 0.93 No, linear wildlife opening $ A1 Upper Moore Ck. 0.2 No, linear wildlife opening $ C Lower Moore Creek 0.89 No, linear wildlife opening $ C1 Angel Mountain 0.34 No, linear wildlife opening $ C2 Lower Moore Creek Spur 0.3 No, linear wildlife opening $ D Swinging Lick Gap 0.96 No, linear wildlife opening $ E Upper Bryson Branch 0.52 No, linear wildlife opening $ F Lower Bryson Branch 2.14 No, linear wildlife opening $ G Factory Branch 0.54 No, linear wildlife opening $ Roaring Fork 3.18 No, linear wildlife opening $ A Roaring Fork Ridge 0.32 No, linear wildlife opening $42.56 *Road lengths are based on the most recent Forest Service GIS records 2.2i Summary of Available Applicable Accident and Law Enforcement Data Law Enforcement concerns in the TAA include: Drug and alcohol use; Local trash dumping; Enforcement of hunting and fishing regulations, especially during hunting season. 2.3 Motor Vehicle Use on the Part of the Forest Transportation System Under Analysis and on the Adjacent or Connecting Authorized Transportation Systems The following motor vehicles uses occur on the Forest Transportation system: There is only one open system road, NFSR 437, which provides motorized access for the public. The road provides an alternate route between US 64 and State Route 1310 north of the TAA; The remainder of the NFSRs in the TAA area closed roads that can be used as trails and access to wildlife openings; Open and closed roads within the TAA are used by the Forest Service to provide access for management actions and commercial timber sales. Haystack Travel Analysis 12

13 2.4 Effects of Motor Vehicle Use on the Portion of the Forest Transportation System Under Analysis In designating NFS roads, NFS trails, and areas on NFS lands for motor vehicle use, consider, as applicable, both the general and specific criteria in 36 CFR (a) through (c). The general criteria in 36 CFR (a) apply to roads, trails, and areas. The specific criteria in 36 CFR (b) apply to trails and areas. The specific criteria in 36 CFR (c) apply to roads (FSM ). See Appendix E: Criteria for Designating Roads and Trails General Criteria for Roads, Trails, and Areas a: In designating NFS roads, NFS trails, and areas on NFS lands for motor vehicle use, consider effects on NFS natural and cultural resources, public safety, provision of recreation opportunities, access needs, conflicts among uses of NFS lands, the need for maintenance and administration of roads, trails, and areas that would arise if the uses under consideration are designated, and availability of resources for maintenance and administration. Natural and Cultural Resources All National Forest Service System roads are assigned a Roads Management Objective (RMO) which corresponds to management direction in the Forest Plan for the Nantahala and Pisgah National Forests. To protect cultural resources, Heritage Resource inventories are conducted before any major reconstruction or realignment of System Roads takes place. This is done by an Archeologist and reviewed by the NC State Historic Preservation Office (SHIPO). Public Safety All Forest System Roads in the National Forests in North Carolina are maintained under Federal Highways Administration regulations, which provide standards for road design and signage. Roads are designated with RMOs which allow for them to be maintained in a manner consistent with their intended use. Provision of Recreation Opportunities Portions of the Forest System roads within the TAA are maintained as open to public for access and other recreation opportunities. The roads within the TAA provide access for hiking, biking, and equestrian use, and dispersed recreation in accordance with management area direction from the Forest Plan. Access Needs: NFSR 437 provides access to private land within the TAA. Most of the roads within the TAA are used for non-motorized recreation and used by the Forest Service for management actions. Conflicts among Users of National Forests Lands: The transportation system in the TAA is designed to meet management objectives spelled out in the Forest Plan with open road management for recreation areas and closed road management for resource areas. Haystack Travel Analysis 13

14 Conflict between different user types is minimized by the appropriate use of RMOs to meet the intended uses of the Transportation System. The need for Maintenance and Administration of Roads, Trails, and Areas that would arise if the uses under consideration are designated: Each Forest System road is currently maintained for the use designated by the assigned RMO in accordance with the Forest Plan b: Consider combinations of uses (such as motorized and non-motorized, different vehicle classes, and highway-legal and non-highway-legal vehicles) on NFS roads and NFS trails. The best way to minimize conflicts among uses may be to provide separate routes for each use. A decision to allow motorized mixed use on an NFS road must be informed by engineering analysis (FSH , ch. 30). The Forest Road System in the TAA contains one road that is open to public vehicle use and the rest of the roads are closed to public vehicle use. Road 437, which is open to public vehicle use, has a Maintenance Level of 4. Roads that are closed to public vehicle use have a Maintenance Level of 1 or 2. There are no roads, trails or areas open for Off Road Vehicle (ORV) use within the TAA c: While important, the scarcity or abundance of resources to maintain and administer designated roads, trails, and areas should not be the only consideration in developing travel management proposals. In accordance with FSM and 36 CFR 212.5(b)(1), this TAP [Identifies the] minimum road system needed for safe and efficient travel and for administration, utilization, and protection of National Forest System (NFS) lands. For information regarding maintenance costs and funding, see Table 2.2 and section 2.2h, above, and Appendix D: Generalized Road Maintenance Costs, Nantahala Ranger District Specific Criteria for Trails and Areas In addition to the general criteria in FSM , paragraph 1, when analyzing motor vehicle use on NFS trails and areas on NFS lands, consider the effects on the following, with the objective of minimizing: a. Damage to soil, watershed, vegetation, and other forest resources. Consider best management practices (BMPs) established by states as a standard for considering effects on these resources; b. Harassment of wildlife and significant disruption of wildlife habitats; c. Conflicts between motor vehicle use and existing or proposed recreational uses on NFS lands or neighboring federal lands; d. Conflicts among different classes of motor vehicle uses on NFS lands or neighboring federal lands. Haystack Travel Analysis 14

15 Compatibility of motor vehicle use with existing conditions in populated areas, taking into account sound, emissions, and other factors, such as traffic-generated dust and the proximity of residences, parks, and schools. There are no motorized National Forest System Trails or Areas within the TAA, nor does the TAP recommend any for future designation Specific Criteria for Roads In addition to the general criteria in FSM , paragraph 1, consider the following for NFS roads: a: Speed, volume, composition, and distribution of traffic on roads Speed, volume, composition, and distribution of traffic on NFS Roads within the TAA are managed by each road s RMO. Open roads are provided with signage in compliance with Federal Highways Administration regulations. Closed roads are used by USDA Forest Service and North Carolina Wildlife Resources Commission personnel with State and Federal driver licenses. Contractors also use closed roads for resource work such as timber hauling, reforestation, and timber stand improvement activities. These users must have current driver licenses; vehicles must meet contract specifications; and they are required to post signage along the section of road impacted by their work b: Compatibility of vehicle class with road geometry and road surfacing. Consider existing road management objectives before making designations that would add vehicle classes. NFS arterial and collector roads (at Operational Maintenance Level 3, 4, or 5) may provide primary access to NFS lands for passenger cars and commercial haulers. It may not be appropriate to make some of these roads part of an NFS road or NFS trail loop that has off-highway vehicle recreation as a primary objective (FSH , ch. 30). All system roads within the TAA are assigned RMOs consistent with their intended uses and Forest Plan direction. All roads which are being proposed changes to the road system in this TAP would also be assigned RMOs consistent with their new intended uses. Step III: Identifying Issues Purpose and Products The Purpose of this Step is to: 1. Identify key issues affecting the portion of the forest transportation system under analysis. Use appropriate public involvement to identify these issues. 2. To identify key issues, determine in the context of the analysis: Haystack Travel Analysis 15

16 a. The primary public concerns related to travel management; b. The primary management concerns related to travel management; c. The primary legal constraints on travel management; d. The amount of resources and skills available to conduct the analysis; 3. Determine the data needed to analyze the key issues and whether the data are available or must be obtained. 3.1 Identify Key Issues Affecting the Portion of the Forest Transportation System Under Analysis Issues identified by the Forest Service ID team disclosed in Sections 3.2a and 3.2b below. The entire Haystack Restoration Project was discussed at Rapid Assessment public meetings at the Nantahala Ranger District office on March 25, 2008, October 14, 2008, and on October 8, The project was scoped with the public in December of 2010 and January of A project Scoping Record with maps and a proposed activity list was posted on the National Forests in North Carolina internet website in order for people to comment on the project proposal. In addition, hard copies were mailed to several individuals and groups on our district mailing list. Responses to the Scoping Record for the Haystack Project Environmental Assessment that addressed travel issues included representatives of the Southern Appalachian Forest Coalition, North Carolina Department of Environment and Natural Resources, and Wildlaw. In addition, the project has been listed in the National Forests in North Carolina Schedule of Proposed Actions, which is distributed to several hundred individuals and groups throughout the United States. 3.2 To Identify Key Issues, Determine in the Context of the Analysis Individuals of the ID Team participated in gathering information and in developing draft and final reports. Required information was gathered through field visits, collective knowledge of ID Team members, and review of GIS data, individual Road and Trail Management Plans, and past Road and Trail Assessments. Road management issues that surfaced during public scoping for the Haystack Restoration Project are considered in the analysis. 3.2a Primary Public Concerns Related to Travel Management Concern that the new proposed road will disrupt the integrity of a relatively mature forested area. Concern that additional road construction may provide a vector for invasive species to colonize the area. Concern that constructing additional roads may be detrimental to plant and animal species. 3.2.b Primary Management Concerns Related to Travel Management Haystack Travel Analysis 16

17 Concern that the current road system does not meet Forest Plan objectives to Plan the road system to progressively access all lands suitable for timber production (Forest Plan p. III-62 to III-76). 3.2.c Primary Legal Constraints on Travel Management Applicable laws and regulations. Existing agreements with private landowners, including Rights-of-Way and Easements. 3.2.d Resources and Skill Available to Conduct Analysis Resources available to conduct the analysis include: The ID team for the TAP is identified in section 1.1, above; National Forests in North Carolina INFRA reports, to provide needed information on National Forest System Roads, including: o RMO; o Maintenance Level; o Mileage; o Beginning and ending points to determine connectivity with other transportation systems; o Current road condition (open or closed); An ArcGIS specialist capable of producing maps and performing geospatial analysis of the TAA Transportation System. 3.3 Data Needed To Analyze Key Issues Data needed to analyze key issues include: An inventory of existing system roads and their uses within the TAA; o Obtainable from INFRA and existing GIS data; Cost of maintenance of current NFS roads within TAA; o Annual maintenance costs estimated from National Forests in North Carolina Engineering generalized road work data and specialist knowledge; Knowledge and location of any wildlife or plant species that may be affected by new road construction and/or reconstruction; o Obtained from Biological Evaluation by wildlife, aquatic, and botanical specialists compiled for the Haystack Restoration Project. Impacts to possible Historic sites; o Obtained from assessment by archeology specialist conducted for Haystack Restoration Project Step IV: Assessing Benefits, Problems, and Risks Purpose and Products Haystack Travel Analysis 17

18 The Purpose of this Step is to: 1. Examine the major uses and environmental, social, and economic effects of the portion of the Forest transportation system under analysis. Analyze the risks and benefits associated with the current situation. 2. Consider the general criteria for designating NFS roads, NFS trails, and areas on NFS lands (36 CFR (a); FSM , para. 1). Consider, with the objective of minimizing, the effects of motor vehicle use on the specific criteria for designating NFS trails and areas on NFS lands (36 CFR (b); FSM , para. 2), and consider the specific criteria for designating roads (36 CFR (c); FSM , para. 3). 4.1 Major Uses and Environmental, Social, and Economic Impacts See Table 4.1: Risks and Benefits of Current Forest Transportation System, Haystack Restoration Project Analysis Area, below. Haystack Travel Analysis 18

19 Table 4.1: Risks and Benefits of Current Forest Transportation System, Haystack Restoration Project TAA. Road # Road Name Major Use Social Effects Economic Effects Risks Benefits 437 Rainbow Springs General motorized access. Access for all members of the general public between US 64 and SR Mostly on private land within the TAA. 437A Jarrett Knob 7130 Trough Branch 7131 Moore Creek 7131A Panther Gap 7131A1 Upper Moore Ck. 7131C Lower Moore Creek 7131C1 Angel Mountain 7131C2 Lower Moore Creek Spur 7131D Swinging Lick Gap 7131E Upper Bryson Branch 7131F Lower Bryson Branch 7131G Factory Branch 7283 Roaring Fork 7283A Roaring Fork Ridge Linear Wildlife Opening Non-motorized uses discouraged, but not prohibited. Public access for hunting. Provides income to regional economy from tourism, timber products, hunting permits and special forest products gathering. Provides income to regional economy from hunting. High risk of resource damage, high maintenance, law enforcement, and emergency response costs due to public access. Low risk, low maintenance. Administrative access for management activities. Recreational access. Recreational and administrative access. Wildlife habitat. Haystack Travel Analysis 19

20 4.2 General Criteria for Designating NFS Roads, Trails, and Areas General and specific criteria for designating roads, trails, and areas are disclosed in section 2.4. See Table 4.2: General Criteria for Designating Roads, below. Table 4.2: General Criteria for Designating Roads. Road # Road Name Effects on Natural and Cultural Resources 437 Rainbow Springs Potential for erosion, non-native invasive species dispersal, and impacts to local plants and wildlife. Access for timber, wildlife, and fire management. Access for recreation. 437A Jarrett Knob 7130 Trough Branch 7131 Moore Creek 7131A Panther Gap 7131A1 Upper Moore Ck. 7131C Lower Moore Creek 7131C1 Angel Mountain 7131C2 Lower Moore Creek Spur 7131D Swinging Lick Gap 7131E Upper Bryson Branch 7131F Lower Bryson Branch 7131G Factory Branch 7283 Roaring Fork 7283A Roaring Fork Ridge Provides access for timber and wildlife management. Maintained as a linear wildlife opening by the NCWRC to provide a source of permanent grass/forbs for wildlife. Provides access for timber and wildlife management. Public Safety Open gravel road with turnouts, signed to FHA standards No public vehicle access. Minimal public safety concerns. Recreation Opportunities Scenic driving, hiking, equestrian, biking, hunting, fishing, dispersed recreation. Hiking, hunting, fishing, dispersed recreation Access Needs Access to private land. Local access for recreation and management. Local access for recreation and management. Conflicts Among Users Potential for conflict between different recreational uses, or between recreational use and resource management. Potential for conflict between different recreational uses, or between recreational use and resource management. Haystack Travel Analysis 20

21 Step V: Describing Opportunities and Setting Priorities Products and Purpose The Purpose of this Step is to: 1. Identify management opportunities and priorities and formulate proposals for changes to the forest transportation system that respond to the issues, risks, and benefits identified in the preceding steps; 2. Compare motor vehicle use of the portion of the forest transportation system under analysis with desired conditions established in the applicable land management plan, and describe options for modifying the forest transportation system that would achieve desired conditions; 3. Identify any unauthorized roads and trails that should be considered for designation based on the analysis in paragraph Management Opportunities and Proposals Inventory of the TAA using ArcGIS shows that no unauthorized roads exist within the TAA. All system roads for which no changes are recommended would stay on the Forest Transportation System at their current RMOs (see section 2.2b, above). Approximately 0.7 mile of new system road is proposed, to be given the number 7331G1, onto existing system road #7131G to access Stand This new road segment will facilitate efficient access for fire management, prevention, and suppression as well as access for law enforcement. It will also facilitate management actions in the future. 5.2 Current and Desired Motorized Use See Table 2.1, above. Current mileage of open FS Roads in Management Areas in all management areas meets Forest Plan desired road density, and will still meet the desired road density with the proposed addition. No reductions in the road system are necessary to meet the desired road densities. 5.3 Unauthorized Roads and Trails Considered for Designation No unauthorized roads are known to exist in the TAA. Step VI: Reporting Products and Purpose The purpose of this step is to: Haystack Travel Analysis 21

22 Document travel analysis in a report including: 1. A list of the key issues; 2. A prioritized list of the risks and benefits associated with changing the part of the forest transportation system under analysis; 3. A prioritized list of opportunities for addressing those risks and benefits; 4. If applicable, a prioritized list of actions or projects that would implement the minimum road system; 5. If applicable, a list of proposed changes to the current travel management direction, including proposed additions to or deletions from the forest transportation system. The report provides the basis for developing proposed actions to implement the minimum road system and/or to change existing travel management decisions. These proposals are subject to appropriate public involvement and environmental analysis under NEPA before travel management decisions are made. Site specific environmental analysis should build on and incorporate relevant information developed during travel analysis. 6.1 List of Key Issues Concern that the new proposed road will disrupt the integrity of a relatively mature forested area. Concern that additional road construction may provide a vector for invasive species to colonize the area. Concern that constructing additional roads may be detrimental to plant and animal species. Concern that non-system roads do not sufficiently protect soil, water, and other resources. Concern that the current road system does not meet Forest Plan objectives to Plan the road system to progressively access all lands suitable for timber production (Forest Plan p. III-62 to III-76). 6.2 Prioritized list of the risks and benefits associated with changing the part of the forest transportation system under analysis Risks: The transportation system in the TAA poses very few risks, because most of the Forest System roads are being maintained as linear wildlife openings and are not open to the public for motorized vehicle use. Any proposed changes would not open up addition roads to public motorized vehicle use. The single road that is open to the public, NFSR 437 Rainbow Springs, occurs almost entirely outside of the Forest Service boundary in the TAA. If there were proposed changes to this road, the risk of resource damage and increased maintenance damage would be high because of the public use. Benefits: The roads in the TAA provide the following benefits to the TAA, ranked below by priority: Haystack Travel Analysis 22

23 High Priority: Administrative access for management activities, including fire management, prevention, and suppression. High Priority: Wildlife Habitat. Medium Priority: Recreational access for non-motorized uses. 6.3 Prioritized list of opportunities for addressing those risks and benefits See Section 5.1, above, for a prioritized list of management opportunities. 6.4 Prioritized List of Actions or Projects that would implement the minimum road system The minimum road system is and will be in place, following the direction of the Forest Plan and applicable travel management regulations. 6.5 List of Proposed Changes Including Additions and Deletions Approximately 0.7 mile of new system road is proposed, #7331G1, onto existing system road #7131G to access Stand This new road segment will facilitate efficient access for fire management, prevention, and suppression as well as access for law enforcement. It will also facilitate management actions in the future. With the addition of the new system road, the road density will be less than the Forest Plan maximum density of 0.5 miles per square mile in Management Area 3b. Haystack Travel Analysis 23

24 Appendix A: Maps Haystack Travel Analysis 24

25 Appendix B: Inventory of Forest Service Roads and Motorized Trails within the entire Haystack Restoration Project Area. The TAA was a subcomponent of the Haystack Project Restoration Area, and roads included in the TAA are listed in bold italic font. Miles determined from INFRA for Forest System Roads, and by GIS for non-system roads and roads managed by other agencies. Road # Road Name Begin End Managem ent Areas Total Road Length (Miles) National Forest System Roads 67 Upper Nantahala Old US 64 Albert Mountain 3b, 4d, 5, Section lengths (miles) Maintenance Level Objective/ Operational Section 1 Tower 12, 13, /5 BST 1 A2 yes Section /4 AGG 1 B1 yes 67A Big Indian Creek FDR 67-5, /1 NAT 1 D1 no 67B Long Branch FDR 67 Dead End 3b, Section /3 AGG 1 B1 yes Section /2 AGG 1 D1 yes Section /2 AGG 1 D1 no 67C Little Rock Br. 67 Dead End 4d /1 AGG 1 D1 no 67D Thomas Br. FDR 67-3b /2 AGG 1 D1 no 67H Curtis Creek FDR 67-3b /2 AGG 1 D1 no 67J Little Indian FDR 67-3b, /1 IMP 1 D1 no 67K Bear Pen FDR 67-3b, /1 IMP 1 D1 no 67L Bear Pen Mountain FDR 67-3b /1 IMP 1 D1 no 67M Yellow Patch FDR 67-3b, /1 IMP 1 D1 no 67M1 Yellow Patch Spur 67 Dead End /1 IMP 1 D1 no 67N Betty Creek FDR 67-3b /1 IMP 1 D1 no 67P Bear Pen Creek FDR 67-3b, /1 IMP 1 D1 no 67Q Yellow Bald FDR 67-3b, /2 AGG 1 D1 no 69 Wayah Bald SR 1310 Wayah Bald 2a, /4 AGG 1 B1 yes Tower and Appalachian Trail 69A Shot Pouch FDR /2 AGG 1 D1 no 69B Wine Spring Bald FDR 69 Dead end at /4 AGG 1 B1 yes turnaround 69C Middle Ridge FDR 69-2a, /1 NAT 1 D1 no Surface Lanes RMO ** Open?* Haystack Travel Analysis 25

26 Dead End with 4d, Deep Gap Old US 64 turnaround /4 AGG 1 A1 yes 83 Ball Creek SR 1110 FDR 67 3b, 7, Section /3 AC 2 A2 yes Section /3 AC 2 A2 yes Section /3 AGG 1 C3 yes 424 Standing Indian FDR 67 Kimsey Creek 3b, 12, /5 BST 2 A1 yes Bridge 424A Standing Indian Loop A FDR 424 End Loop, JCT FDR /5 AC 1 A1 yes B Standing Indian Loop B FDR 424 Loop /5 AC 1 A1 yes 424C Standing Indian Loop C FDR 424 Loop /5 AC 1 A1 yes 424C1 Kimsey Creek Group Camp FDR 424C Group Section 1 Campground /3 AC 1 C1 yes Section /2 AGG 1 C1 yes 424D Standing Indian Loop D FDR 424 Loop 4d, Section /3 AC 1 A1 yes Section /3 AGG 1 A1 yes 424D1 Lower Trail Ridge FDR 424D Dead End 4d, /1 NAT 1 D1 no 424E Standing Indian Loop E FDR 424 Loop /5 AC 1 A1 yes 424F Standing Indian Picnic Loop FDR 424 Loop /5 AC 1 A1 yes 437 Rainbow Springs US 64 SR1310 2a, 3b, 4d /4 AGG 1 B1 yes 437A Jarrett Knob FDR 437-4d /1 NAT 1 D1 no 437B Tyler Branch FDR 437-4d /1 NAT 1 D1 no 437C Roaring Fork FDR 437-4d /1 IMP 1 D1 no 437D Jarrett Flats FDR 437 Dead End 4d /1 AGG 1 D1 no 711 Hurricane Creek FDR 711-1b, 2a /1 IMP 1 D1 no 711B Dirty John Shooting Range FDR 711 Shooting Range 1b /3 AGG 1 B1 yes 711D1 McDonald Ridge FDR 711D - 1b, 2a /1 IMP 1 D1 no 7130 Trough Branch US 64-3b /1 AGG 1 D1 no 7131 Moore Creek US 64-3b, /1 AGG 1 D1 no 7131A Panther Gap FDR b, /2 AGG 1 D1 no 7131A Upper Moore Ck A Dead End 3b, /1 AGG 1 D1 no C Lower Moore Creek FDR b /2 AGG 1 D1 no Haystack Travel Analysis 26

27 7131C1 Angel Mountain 7131C Dead End 3b /1 AGG 1 D1 no 7131C2 Lower Moore Creek Spur FDR 7131 C - 3b /2 AGG 1 D1 no 7131D Swinging Lick Gap FDR b /2 AGG 1 D1 no 7131E Upper Bryson Branch FDR b /2 NAT 1 D1 no 7131F Lower Bryson Branch FDR b /2 NAT 1 D1 no 7131G Factory Branch 7131 Dead End 3b /1 AGG 1 D1 no 7164 Robin Branch FDR 69-1b, 2a /2 AGG 1 D1 no 7215 Park Gap NFSR 71-4d /2 AGG 1 D1 no 7215A Kimsey Bald NFSR d /2 NAT 1 D1 no 7215B Park Creek NFSR d /2 NAT 1 D1 no 7215C Park Gap Spur NFSR d /2 NAT 1 D1 no 7216 Penland Gap FDR 71-4d /1 NAT 1 D1 no 7217 Hurricane Creek NFSR b /2 AGG 1 D1 no 7217A Middle Hurricane Creek NFSR b /2 NAT 1 D1 no 7217B Upper Hurricane Creek NFSR b, /2 NAT 1 D1 no 7217C Upper Yellow Bald NFSR 7217 Dead End 3b /1 AGG 1 D1 no 7218 Kimsey Divide FDR 71-4d /1 NAT 1 D1 no 7219 Little Lyman Creek FDR 71-4d /2 IMP 1 D1 no 7280 Jarrett Creek SR 1310 Dead End 2a, 4d, Section /3 AGG 1 C3 yes Section /2 AGG 1 D1 no 7280A Siler Bald NFSR 7280 Dead End /1 NAT 1 D1 no 7280B Lower Jarrett Ck. NFSR 7280 Dead End 2a, 4d /1 AGG 1 D1 no 7280C Chestnut Knob NFSR 7280 Dead End 4d /1 AGG 1 D1 no 7282 Blackwell Gap NFSR 67-3b, /2 AGG 1 D1 no 7282A Sassafras Ridge NFSR b /2 NAT 1 D1 no 7282B Upper Curtis Creek NFSR b /2 NAT 1 D1 no 7282C Upper Long Branch NFSR b /2 AGG 1 D1 no 7283 Roaring Fork NFSR b, 4d /1 AGG 1 D1 no 7283A Roaring Fork Ridge NFSR 7283 Dead End 4d /1 AGG 1 D1 no 7304 Middle Gap SR d, /2 AGG 1 D1 no Roads not managed by the U.S. Forest Service SR1103 State Route 1103 N/A N/A none unknown N/A yes SR1310 State Route 1310 N/A N/A 1b, 2a, 14 unknown N/A yes SR1448 State Route 1448 N/A N/A 13, 14 unknown N/A yes Haystack Travel Analysis 27