Sunriver to Lava Lands Paved Path Project Environmental Assessment Bend-Fort Rock Ranger District Deschutes National Forest Deschutes County, Oregon

Transcription

1 United States Department of Agriculture Sunriver to Lava Lands Paved Path Project Environmental Assessment Bend-Fort Rock Ranger District Deschutes National Forest Deschutes County, Oregon Forest Service December 2012 Township 19 South, Range 11 East, Sections and Willamette Meridian For More Information Contact: Scott McBride Deschutes Market Road Bend, OR Phone:

2 The U.S. Department of Agriculture (USDA) prohibits discrimination in all its programs and activities on the basis of race, color, national origin, gender, religion, age, disability, political beliefs, sexual orientation, or marital or family status. (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) (voice and TDD). To file a complaint of discrimination, write USDA, Director, Office of Civil Rights, Room 326-W, Whitten Building, 14th and Independence Avenue, SW, Washington, DC or call (202) (voice and TDD). USDA is an equal opportunity provider and employer. i

3 COMMONLY USED ACRONYMS ABA AASHTO BA BBC BE BMP BO CEQ CFR DBH DEQ EA EIS EPA Architectural Barriers Act American Association of State Highway and Transportation Officials Biological Assessment Birds of Conservation Concern Biological Evaluation Best Management Practices Biological Opinion Council of Environmental Quality Code of Federal Regulations Diameter at Breast Height Department of Environmental Quality Environmental Assessment Environmental Impact Statement Environmental Protection Agency ESA Endangered Species Act of 1973 FHWA Federal Highways Administration FS FSH FSM FSR FSTAG GIS IDT LLVC LRMP MIS NEPA NFS NFMA NNVU NRF ODOT ODFW ORV PAOT PDC RHCA ROS S&Gs TES Forest Service Forest Service Handbook Forest Service Manual Forest Service Road Forest Service Trail Accessibility Guidelines Geographical Information System Interdisciplinary Team Lava Lands Visitor Center Deschutes National Forest Land and Resource Management Plan also referred to as Forest Plan Management Indicator Species National Environmental Policy Act National Forest System National Forest Management Act Newberry National Volcanic Monument Nesting, Roosting, and Foraging Habitat (Spotted Owl) Oregon Department of Transportation Oregon Department of Fish and Wildlife Outstanding Remarkable Value Persons at One Time Project Design Criteria Riparian Habitat Conservation Area Recreation Opportunity Spectrum Standards and Guidelines Threatened, Endangered and, Sensitive Species ii

4 TABLE OF CONTENTS Commonly Used Acronyms... ii Table of Contents... iii Chapter 1: Purpose and Need for Action Introduction Background Project area Description Purpose and Need Proposed Action Management Direction Decision to be Made Issues Key Issues Analysis Issues Chapter 2 Alternatives, Including the Proposed Action Introduction Alternative Development Process Alternatives Considered but Eliminated from Detailed Study Alternative A Do not pave the path Alternative B Do not cut trees over 16 inches diameter at breast height (dbh) or any that display old growth characteristics Alternative C Implement a Sunriver use fee by non-property owners and install gates on bike paths that enter into Sunriver Alternative D Eliminate segments 1 through Alternative E Use existing paths or keep path along existing roads Alternative F Provide at least 40 vehicle slot parking lot and toilets at the Sunriver end Alternatives Considered in Detail Alternative 1 No Action Alternative 2 Modified iii

5 Paved Path Segment Segment Segment Segment Segment Segment Segment Segment Path Construction Roads Benham East Day Use Area Lava Land Visitor Center Parking Lot Comparisons of Alternatives Project Design Elements Resource Protection Measures Recreation Wildlife Fisheries and Water Scenery Noxious Weeds Soils Engineering/Roads Cultural Resources Monitoring Fisheries and Water Cultural Resources Recreation iv

6 Introduction Cumulative Actions and Activities Best Available Science Project Record Alternative Evaluation Recreation Introduction Existing Condition Effects Analysis Direct, Indirect Effects Cumulative Effects Wildlife Introduction Existing Condition for Federally Listed Species Effects Analysis for Federally Listed Species Direct, Indirect, and Cumulative Effects for Federally Listed Species Existing Condition for Sensitive Species Effects Analysis for Sensitive Species Direct and Indirect Effects for Sensitive Species Cumulative Effects for Sensitive Species Exiting Condition for Management Indicator Species Effects Analysis for Management Indicator Species Direct and Indirect Effects for All MIS Species Cumulative Effects for MIS Species Determination for MIS Species Existing Condition for Migratory Birds Effects Analysis for Migratory Birds v

7 Direct and Indirect Effects Cumulative Effects Determination for Migratory Birds Fisheries and Water Introduction Existing Condition Effects Analysis Direct, Indirect and Cumulative Effects Environmental Effects Effects on Listed Fish, Fish Habitat and Sensitive Species Scenery Introduction Existing Condition Effects Analysis Direct, Indirect and Cumulative Effects Botany Introduction Existing Condition Effects Analysis Direct, Indirect and Cumulative Effects Invasive Plants Introduction Existing Condition Effects Analysis Direct, Indirect, and Cumulative Effects Soils Introduction Existing Condition vi

8 Effects Analysis Direct and Indirect Effects Cumulative Effects Heritage Introduction Existing Condition Effects Analysis Direct and Indirect Effects Cumulative Effects Road Engineering Introduction Existing Condition Effects Analysis Direct, Indirect and Cumulative Effects Required and Additional Disclosures and Consistency with Laws, Regulations, Policy and Procedures Forest Plan Amendments Short-term Uses and Long-term Productivity Probable Adverse Environmental Effects that Cannot Be Avoided Irreversible and Irretrievable Commitment of Resources Incomplete and Unavailable Information Energy Requirements National Forest Management Act The National Environmental Policy Act (NEPA) of 1969, as amended Endangered Species Act Clean Water Act Clean Air Act Wetlands and Floodplains Wild and Scenic Rivers, Prime Farmlands, Range Land, and Forest Land vii

9 Inventoried Roadless, Wilderness, Research Natural Area, Experimental Forests Public Health and Safety The American Antiquities Act of Cultural Resources Tribal Treaty Rights Rehabilitation Act of Persons with Disabilities Research Natural Areas, Experimental Forests, Wilderness and Federal State and Local Laws Biological Diversity Executive Orders Executive Order (Invasive species) Executive Order (January 10, 2001), and the Migratory Bird Treaty Act Executive Order Environmental Justice in Minority Populations and Low-income Populations (February 11, 1994) Chapter 4 Consultation and Coordination Public Involvement and Scoping Consultation with Others Recipients of the EA Interdisciplinary Participation viii

10 Chapter 1 Purpose and Need CHAPTER 1: PURPOSE AND NEED FOR ACTION 1.1 INTRODUCTION The Forest Service has prepared this Environmental Assessment (EA) in compliance with the National Environmental Policy Act (NEPA) and other relevant Federal and State laws and regulations. This EA discloses the direct, indirect, and cumulative environmental effects that would result from the proposed action. This document is organized into five parts: Purpose and Need for Action: This section includes information on the history of the project proposal, the purpose of and need for the project, the proposal for achieving that purpose and need, and key issues used to formulate alternatives, develop mitigation, and track effects and other issues that did not drive alternatives but were addressed in this analysis. Alternatives: This section provides a more detailed description of the proposed action as well as alternative methods for achieving the stated purpose. This discussion also includes possible mitigation measures. Environmental Consequences: This section describes the environmental effects of implementing the proposed action and other alternatives. This analysis is organized by resource areas (i.e. silviculture, wildlife, plants). Within each section, the effect of the No Action Alternative that provides a baseline for evaluation and comparison of the other alternatives that follow are described in this section. Consultation and Coordination: This section provides a list of prepares and agencies consulted during the development of the environmental assessment. Appendices: The appendices provide more detailed information to support the analyses presented in the environmental assessment. Additional documentation, including more detailed analyses of project area resources, data specific to the project, public notifications and their responses, and miscellaneous documentation, may be found in the project planning record located at the Bend-Fort Rock Ranger District, Bend, Oregon. 1.2 BACKGROUND Planning for a paved path originally began in 2009 and was very well supported by commenting parties. A decision memo was signed April 30th, After further review of the decision and sitespecific implementation planning, it was decided that changes and additional actions were needed. One such change was adjusting the proposed center line of the path to avoid removing large trees and maintaining a narrower vegetation clearance width for the path (refer to Proposed Action section below). It was decided that an environmental assessment is needed to evaluate the new actions proposed and this decision will supersede the 2010 decision. Local residents, including the Sunriver Homeowners Association and the neighboring community has expressed support for this path. 1

11 Chapter 1 Purpose and Need 1.3 PROJECT AREA DESCRIPTION The Sunriver to Lava Lands Paved Path project is located on the Bend-Fort Rock Ranger District approximately 18 miles south of the City of Bend and directly northeast of Sunriver. The project area includes existing roads and adjacent area between Sunriver, Benham East Day Use Area, and Lava Lands Visitor Center (see Figure 1-1, below). Legal descriptions are as follows: Township 19 South, Range 11 East, Sections 16, 17, 20, 21, 22, 23, 24, 25, and 26. 2

12 Chapter 1 Purpose and Need Figure 1-1: Vicinity map displaying the paved path and the communities of Sunriver and Bend 3

13 Chapter 1 Purpose and Need 1.4 PURPOSE AND NEED The purpose of this project is to provide for existing outdoor recreation use levels on public lands by creating a safe route for bicyclists and pedestrians to travel from the community of Sunriver to Lava Lands Visitor Center and the Deschutes River trail and recreation sites. The need for such a trail has been expressed and supported by local residents and the neighboring community. Trail proposals of this nature shall comply with the applicable provisions of Federal and Forest Service accessibility guidelines and standards (Forest Service Manual 2330). Forest Service Trail Accessibility Guidelines (FSTAG) apply to trails in the National Forest System and these guidelines provide guidance for maximizing accessibility of trails while recognizing and protecting the unique characteristics of their natural setting. The Newberry National Volcanic Monument Management Plan (Monument Plan supports providing diverse, high-quality recreational experiences while providing equal opportunity (including barrier-free access) for all people to enjoy the Monument (pages 7, 43, 66-67). The Monument Plan identified areas of opportunity and planning issues for areas within each management Zone. This proposal overlays Areas 5a and 6 within the Lava Butte Zone. Within these areas, the Plan highlights the opportunity for a trail between Lava Lands Visitor Center and Benham East Day Use area (referred to as Benham Falls day use area in the Plan) (pages 95-97). The Upper Deschutes Wild and Scenic River Management plan supports bicycles use on trails (no offtrail/off-road use within the river corridor) along with trail design to minimize adverse effects on riparian vegetation, stream bank stability, and soils (pages 37, 39). The Wild and Scenic Final Environmental Impact Statement identified a list of probable actions. These are actions which, at the time the plan was prepared, would most likely be needed to achieve the goals or standards and guidelines of this plan. For recreational value within the Wild and Scenic plan a probable action that is envisioned is construction of a surfaced, primary bike trail from Bend Urban Growth Boundary to Sunriver (page 65). A forest-wide management goal in the Deschutes Land and Resource Management Plan (LRMP also referred to as Forest Plan) is to provide equal opportunity to all persons regardless of race, color, creed, sex, marital status, age, handicap, religion or national origin (LRMP 4-2, 4-83). The Forest Plan also supports maintaining existing trail systems and providing additions or modifications to the system which will meet the increasing and changing demands (LRMP 4-32). 1.5 PROPOSED ACTION The Deschutes National Forest proposes to pave an approximate six mile, ten foot wide path from the community of Sunriver to Lava Lands Visitor Center and the Deschutes River trail and recreation sites stemming from Benham East Day Use Area. This path would serve non-motorized visitors including bicyclists and pedestrians. The path and associated facilities would be engineered to be compliant with Forest Service Trail Accessibility Guidelines (FSTAG), Forest Service Outdoor Recreation Accessibility Guidelines (FSORAG) and Architectural Barriers Act (ABA). Mobility devices that meet the definition provided in 36 CFR may use this path. The paved path would be designed to allow for emergency vehicle access. Where feasible, the path would be located in areas that have already experienced disturbance. Winter use would not be encouraged, snow plowing and/or grooming would not occur along or provide access to this path. For project specifics please refer to Chapter 2, Section Alternative 2. 4

14 Chapter 1 Purpose and Need A collection of Forest Service Roads (FSR) would be closed or decommissioned based on this and prior analysis. FSR actions are outlined in detail in table 2-2 in Chapter 2. A power line would be buried in a segment of FSR to energize proposed railroad warning light and arm systems. The existing entrance/exist at Lava Lands Visitor Center would be widened to allow for safer two-way traffic flow. A gate would be installed to allow for access to the northwest parking area when the visitor center is closed. Two large vehicle parking pullouts would also be constructed. Restroom facilities for the trailhead would be constructed at the southwest end of the LLVC parking lot where the paved path connects to the parking area. A three-panel kiosk with a paved access route and connecting sidewalk to the existing Trail of Whispering Pines would be constructed. The Black Rock trail termini would shift approximately 70 yards to the west off of the paved path. A new double vault toilet facility would be constructed and a bike rack would be installed. This project will not amend the Forest Plan. 1.6 MANAGEMENT DIRECTION A majority of the proposed path would traverse through the Newberry National Volcanic Monument (referred to as Monument), which was established in The 1994 Newberry National Volcanic Monument Plan supersedes the 1990 Deschutes National Forest Land and Resource Management Plan and provides management direction for the area. The Monument is divided into zones and this proposed project lies within the Lava Butte Zone. The path is also within a portion (segment 4b) of the Upper Deschutes Wild and Scenic River and State Scenic Waterway Comprehensive Management Plan (M17a), as signed in 1996, which amended the Forest Plan. The 1990 Forest Plan management area 17 provided interim standards and guidelines for the Upper Deschutes River Corridor until completion of this management plan. The Monument Plan and Upper Deschutes Wild and Scenic River Plan have been coordinated for consistency. Where the two plans are concerned, Monument plan direction governs for all lands within the Monument and above the high water mark of the upper Deschutes River s eastern bank. The Monument Plan supersedes any Forest Plan direction that is inconsistent with the purposes for which the Monument was established. The Forest Plan only applies in situations in which the Monument Plan does not speak to a particular issue and Forest Plan direction on that issue is consistent with the intent of the Monument legislation. A portion of the paved path that is not covered by the Monument or Wild and Scenic River plans is within Scenic Views (management area - M9). The Deschutes National Forest Land and Resource Management Plan (Forest Plan) guides all management activities on the Forest. It establishes overall goals and objectives, and standards and guidelines for proposed activities, including specific management area guidance for resource planning. The project area is also within Ryan Ranch Key Elk Area, as designated in the Forest Plan (LRMP 4-56 to 4-58; Appendix 16-2). Elk are found in certain key habitat areas, within which land management is designed to provide conditions needed to support summering and wintering elk. 5

15 Chapter 1 Purpose and Need Figure 1-2: Sunriver to Lava Lands LRMP management area map 6

16 Chapter 1 Purpose and Need 1.7 DECISION TO BE MADE The responsible official for deciding the type and extent of management activities in the Sunriver to LLVC analysis area is the District Ranger of the Bend-Fort Rock Ranger District on the Deschutes National Forest. The responsible official can decide on several courses of action ranging from no action, to selecting one of many possible combinations in the project area. The responsible official will consider the following factors when making a decision: 1. How well the alternative(s) meets the project s purpose and need. 2. How well does the alternative respond to the issue(s). 3. Have public comments been considered during this analysis? 4. What are the likely environmental effects of the proposed action and alternative(s), and have mitigation measures that will apply to project implementation been identified. 1.8 ISSUES The Interdisciplinary (ID) team of Forest Service resource specialists evaluated input from public scoping. All issues raised during the life of this project are addressed in this EA. Issues and concerns are used to formulate and develop alternatives or develop constraints and mitigation measures to reduce or eliminate environmental effects. Issues are generally divided into two groups: key issues and analysis issues KEY ISSUES Key issues are defined as those directly or indirectly caused by implementing the proposed action. Key issues are used to formulate and develop alternatives to the proposed action, prescribe mitigation measures, or analyze and disclose environmental effects. Key indicators (measurements) are developed to evaluate each key issue. Comments brought forth from scoping were evaluated. Of the comments raised, the ID team did not identify any key issues that would be directly or indirectly caused by implementing the proposed action; therefore, no key issues were developed to be analyzed. Public respondents presented concerns that were considered but were determined to be non-key issue because of a variety of reasons, such as, the issue is outside the scope of this project; is already decided by law, regulation or other higher level decision; is conjectural and not support by scientific or factual evidence; is adequately addressed in alternatives (including project design features and/or mitigation measures). The following table (Table 1-1) summarizes issues brought forth in scoping and provides rationale why this issue has been determined to be a non-key issue. 7

17 Chapter 1 Purpose and Need Table 1-1Non-Key Issue Summary and Rationale Issue Number Issue Rationale 1 Several Sunriver homeowners raised concern that users will access the private bike paths of Sunriver. Recommendations to the Forest Service were to inform users that Sunriver paths are private and restricted, to install gates that would prohibit access, and pay for police to monitor for violators using the these paths. This is out of our jurisdiction and in coordinating with the Sunriver Owners Association Board they have stated that Sunriver is a private community open to the public (and) has been for over 40 years. An information board at the Sunriver boundary may be installed to aid in informing potential visitors of the Sunriver regulations. Select Sunriver information may be displayed at other kiosk locations. 2 Concern was raised over merging this paved path with the Black Rock Trail. Rather than merge, the Black Rock trail termini would shift approximately 70 yards to the west along the proposed paved path from where it leaves the LLVC parking area. This nominal conversion of Black Rock single track to paved path would not change the trails overall character. The Black Rock trail s natural character is not realized until the trail separates from the parking lot and Whispering Pines interpretive loop trail, which after the shift, is approximately where Black Rock trail would begin. 3 Some commenters felt that in this economic climate, is funding a paved path the best use of dollars. Funding for this project has been secured by Oregon Department of Transportation (ODOT) who applied for the grant dollars through the Federal Highway Administration s (FHWA) Public Lands Highway Discretionary Program. Grant dollars received are slated for particular purposes such as this proposed trail and are not available to the Forest Service to re-purpose for other Forest or public priorities. If approved, this project would initiate multiple construction contracts and employ local contractors and small businesses. If not approved, the remaining funds would be absorbed back into the FHWA Discretionary Program. 4 Concern was raised over safety in the area and safety of the path. a. Shooting is currently prohibited across Forest development roads or bodies of water and within 150 yards of a residence, building, developed 8

18 Chapter 1 Purpose and Need Issue Number Issue a. This area has been used for target shooting which could put paved path users at risk. b. Paving a path would increase the speed of users making it unsafe for children on the path. Rationale recreation site or occupied area pursuant to 36 CFR (d). b. Following American Association of State Highway and Transportation Officials and FSTAG guidelines for hard, all-weather pavement surfaces are generally preferred over those of crushed aggregate, sand, clay or stabilized earth. Unpaved surfaces provide a lower level of service; it may cause users to more easily loose traction and could potentially need more maintenance. On unpaved surfaces bicyclists and other wheeled users must use a greater effort to travel at a given speed when compared to a paved surface. This pathway is intended to accommodate modest speeds as an alternative transportation route. 5 Some commenters felt that ecological impacts could be minimized by building the path along adjacent paved roads as much as possible The proposed path has been designed to avoid as many trees as possible, especially larger trees, and is mostly aligned on previously disturbed roadbeds. If the path were to be constructed along the FSR 9702, there would need to be a ten foot separation between the road and path. Considering the ten foot buffer and trail clearing limits, there would be approximately 50 feet of vegetation clearing from road edge. A greater number of trees would need to be removed along with more fill material needed in low areas and more excavation would be required in high areas in order to get the desired path grade of 5%. A considerable amount of cover and screening vegetation along the road would be removed which is in conflict with the Monument Management Plan. This wider vegetation clearing in addition to existing road clearing would introduce safety concerns as wider clearing indirectly encourages greater speeds for motorized vehicles. In addition, the character along the road would change and the project would impact an alignment not previously disturbed. If the path was made into a single bike lane along the road, then this project s purpose and need would not be fully met by providing for an alternative to traveling along roadways and a safer experience. Lane construction and additional clearing would need to occur along both sides of the road. Clearing along the north and south side of FSR 9702 would further reduce concentrations of screening and cover, which is critical to 9

19 Chapter 1 Purpose and Need Issue Number Issue Rationale maintain in the area. Aligning the path along FSR 9702 may further facilitate vehicles parking along the roadway. This would likely present conflicts between motorized and non-motorized users, safety concerns and education/enforcement challenges. 6 Concern was raised over the usability of the path that the grade (hills) throughout the path would be too steep for the average users. The proposed path would have no more than 5% grade, at a given point. The path and associated facilities would be engineered to be compliant with Forest Service Trail Accessibility Guidelines (FSTAG) and the Architectural Barriers Act (ABA). As with any trail, visitors need to understand what they are embarking upon and their own personal limitations. Information and maps would be made available for visitors to educate themselves at path termini at Lava Lands, the Sunriver area boundary and the Benham bridge. 7 A commenter mentioned that this path will not provide for scenic views. While providing for scenic views is not part of this project s purpose and need, scenic views are an important experience. There would be opportunities to open views for trail users by selectively thinning tree limbs and/or remove three to four trees along segment 8. This project would provide safe travel and a connection to nature through interpretation and scenic views for bikers and pedestrians as they travel from Sunriver to Lava Lands. Design of the path meets the standards and guidelines for scenic quality such as using material that would blend with the surrounding landscape character. 8 Wildlife impacts such as migration corridors and hiding cover could be impacted by this path Pervious projects have closed roads in and around this project which improves wildlife migration corridors and hiding cover. This project has evaluated whether additional roads could be closed and whether roads that have been closed under other decisions have been effectively enforced on 10

20 Chapter 1 Purpose and Need Issue Number Issue Rationale the ground. Refer to the Alternative 2 modified description in Chapter 2, and the Wildlife and Transportation section in Chapter 3. 9 There was confusion over trees within the project area that were either marked with paint or had been cut. The scoping letter, dated June 29 th, 2012, explained why trees within this project area had been painted and/or cut. Planning for a paved path began in 2009 and a decision memo was signed April 30 th, After further review of the decision and site-specific implementation, it was decided that changes and additional actions were needed; therefore, it was decided to evaluate new actions and changes in this environmental assessment. All trees within the project area have been reevaluated with this analysis. 11

21 Chapter 1 Purpose and Need ANALYSIS ISSUES Analysis issues, as used in this EA, were identified as those that do not drive an alternative, or address the purpose and need, and that can be addressed through standards and guidelines, mitigation, analysis needs or monitoring. These items did not result in differing design elements among alternatives but are important for providing the Responsible Official with complete information about the effects of the project. The following elements were not considered to be key issues but are relevant to the project and tracked through the analysis: 1. Recreation 2. Wildlife a. Management Indicator Species b. Proposed, Endangered, Threatened, and Sensitive Species c. Big Game d. Migratory Birds 3. Water Quality, Fisheries, and Riparian Habitat 4. Scenery 5. Proposed, Endangered, Threatened, and Sensitive Plant Species 6. Invasive Species 7. Soil Quality 8. Heritage Resources 9. Engineering/Access and Travel 10. Safety 11. Standing and Down Woody Material 12. Air Quality and Smoke Management 12

22 Chapter 2 Alternatives CHAPTER 2 ALTERNATIVES, INCLUDING THE PROPOSED ACTION 2.1 INTRODUCTION This chapter describes and compares the alternatives considered for the Sunriver to Lava Lands Paved Path project. This chapter is intended to present the alternatives in comparative form, sharply defining the issues and providing a clear basis for choice among options by the decision maker and the public (40 CFR ). 2.2 ALTERNATIVE DEVELOPMENT PROCESS An ID team evaluated information from public scoping. Of the concerns raised, the ID team did not identify any key issues. Since no key issues were identified an additional action alternative was not created. This chapter outlines project design elements that have been built into alternatives to ensure compliance with Forest Plan standards and guidelines, laws, regulations and other policies. It also includes resource protection measures that are designed to minimize potential resource impacts by the project. 2.3 ALTERNATIVES CONSIDERED BUT ELIMINATED FROM DETAILED STUDY The following alternative options were considered during the development of this analysis but were eliminated from detailed study as described below ALTERNATIVE A DO NOT PAVE THE PATH An alternative which would construct the path without an asphalt surface was considered. This alternative was not analyzed further because this alternative would not meet the purpose and need. In Table 1-1 Non-Key Issue Summary and Rationale issue number 4 further describes the importance and necessity of a paved path for safety and compliance with American Association of State Highway and Transportation Officials (AASHTO) design guidelines and Forest Service accessibility guidelines and standards. AASHTO design guidelines for shared multi-use paths are: Hard all-weather pavement surfaces are generally preferred over those of crushed aggregate, sand, clay or stabilized earth. Since unpaved surfaces provide a lower level of service, it may cause bicyclists to more easily lose traction (particularly bicycles with narrow, higher-pressure tires), and this type of surface may require more maintenance. On unpaved surfaces, bicyclists and other wheeled users must use a greater effort to travel at a given speed when compared to a paved surface. Users, such as in-line skaters, are unable to use unpaved paths. In areas of moderate or steep terrain, unpaved surfaces would often erode and are not recommended. It is important to construct and maintain a smooth riding surface on shared use paths. 13

23 Chapter 2 Alternatives ALTERNATIVE B DO NOT CUT TREES OVER 16 INCHES DIAMETER AT BREAST HEIGHT (DBH) OR ANY THAT DISPLAY OLD GROWTH CHARACTERISTICS An alternative was considered not to remove any trees over 16 inches diameter at breast height (DBH) or that display old growth characteristics. This alternative was not considered in detail because the proposed path design incorporated avoiding large trees to the best of our abilities. The path design, as described in the 2010 Decision Memo, and after further field review would have removed approximately four times more trees than this proposed design. The number of trees that would be felled and/or removed would not change the overall character or the area and the project does not expect to remove trees that display old growth characteristics ALTERNATIVE C IMPLEMENT A SUNRIVER USE FEE BY NON-PROPERTY OWNERS AND INSTALL GATES ON BIKE PATHS THAT ENTER INTO SUNRIVER Implementing a use fee for recreationalists entering into Sunriver and/or installing gates on the bike paths of Sunriver was considered. This alternative was not considered in detail because it is not in FS jurisdiction to implement a fee and/or install gates on bike paths entering into Sunriver. Currently Sunriver is a private community that is open to the public (conversation with Chris Christensen, Sunriver Homeowners Association Vice President). Whether or not to change the rules of Sunriver regarding their bike paths and/or if this community would become a closed community is up to Sunriver. Nothing in this analysis should preclude Sunriver from considering gates and/or user fees ALTERNATIVE D ELIMINATE SEGMENTS 1 THROUGH 5 A comment suggested not including segments 1 through 5 between Sunriver and Benham in order not to encourage more use on the Sunriver trail system. An alternative to not construct segments 1 through 5 was considered but eliminated from detailed study since this would prevent the project from meeting the purpose and need. In addition, it is anticipated that the vast majority of travel between the Forest and Sunriver would stem from Sunriver visitors or residents traveling to the Forest rather than Forest visitors traveling to Sunriver. From May through September, Forest visitors parking at a recreation fee site on the National Forest, such as Benham and Lava Lands, would be subject to a recreation fee. It seems more reasonable that the majority of people wishing to visit Sunriver would prefer to park at Sunriver where there is currently no fee to park ALTERNATIVE E USE EXISTING PATHS OR KEEP PATH ALONG EXISTING ROADS Commenters suggested either using the existing Black Rock trail, expanding it to accommodate twoway flow or to use an alignment following FSR and then converting the Deschutes River trail to the proposed pathway along the river to Benham. This alternative was considered but not brought forward for detailed study for the following reasons. The single-track, native surfaced character of the Deschutes River trail is appropriate for a trail immediately adjacent to and paralleling the Wild and Scenic designated river for this distance, rather than a ten foot paved path. Both trails provide a more primitive trail opportunity and would exist as an alternative for visitors not wishing to utilize the proposed paved path. In addition, to convert either trail, more trees would need to be removed than in the proposed action, which utilizes primarily previously impacted areas comprised of existing or previous road alignments. 14

24 Chapter 2 Alternatives ALTERNATIVE F PROVIDE AT LEAST 40 VEHICLE SLOT PARKING LOT AND TOILETS AT THE SUNRIVER END An alternative that would provide at a minimum of 40 parking slots and toilets at the Sunriver end, segment 1, was considered. This alternative was eliminated from detailed study because the purpose and need of this project was to provide a route for bicyclists and pedestrians to travel from Sunriver to LLVC. The intent of the purpose and need is not to develop a sizeable parking facility or toilet structure at the Sunriver community boundary; it is to provide a connection between Sunriver, the Benham East Day Use and Lava Lands. Based on public comment, modest parking is proposed with an addition of 10 slots to be provided. This would allow for approximately 14 vehicles (existing and proposed parking area) to park at this location. 2.4 ALTERNATIVES CONSIDERED IN DETAIL This EA assesses the potential effects of two alternatives: a no action alternative (Alternative 1) and the proposed action as modified (Alternative 2 modified) ALTERNATIVE 1 NO ACTION This interpretation of the no action alternative is that the proposed action would not take place. Under this alternative a paved path for bicyclists and pedestrians will not connect the community of Sunriver to LLVC and Benham East ALTERNATIVE 2 MODIFIED During the alternative development process, further field reconnaissance and input from the ID team the proposed action was modified. Originally, it was proposed to have two separate entrance/exit points at LLVC parking area, Alternative 2 modified proposes one entrance/exit point at LLVC parking area. This change would meet still meet the purpose and need. The Deschutes National Forest proposes to construct a paved path that would create a safe route for bicyclists and pedestrians to travel from the community of Sunriver to Lava Lands Visitor Center and the Deschutes River trail and recreation sites stemming from Benham East Day Use Area. The path would be approximately ten feet wide and six miles in length to serve non-motorized visitors. The path and associated facilities would be engineered to be compliant with Forest Service Trail Accessibility Guidelines (FSTAG) and the Architectural Barriers Act (ABA), 36 CFR defines a motor vehicle as any vehicle that is self-propelled, other than: Any wheelchair or mobility device, including one that is battery powered, that is designed solely for use by a mobility-impaired person for locomotion, and that is suitable for use in an indoor pedestrian area. Wheelchairs that meet this legal definition may be used anywhere foot travel is allowed. The paved path would be designed to allow for emergency vehicle access. Where feasible, the path would be located in areas that have already experienced disturbance. Winter use would not be encouraged, snow plowing and/or grooming would not occur along or provide access to this path. The proposal includes the following: 15

25 Chapter 2 Alternatives Paved Path Segment 1 The path would end near the Sunriver boundary for potential connection to the Sunriver bike paths. The path would parallel FSR (not immediately adjacent to) and To provide access to the path, existing parking would be expanded off of FSR The parking area would provide space for approximately ten vehicles across from the existing parking area to prevent the need for users to cross the road when accessing the trail. A short section of the existing non-motorized single track trail would be rehabilitated. A three-panel kiosk, which would include a trail map, visitor information and interpretive messaging and directional signs would also be located at the beginning of this segment. Segment 2 FSR connecting to FSR , would be closed to public access by motor vehicle and the path would be constructed over the roadbed. Segment 3 FSR to would be closed to public access by motor vehicle and the path would be constructed over the roadbed. Figure 2-1 Segment 3 of the proposed path at FSR Segment 4 The path would parallel FSR (the road would remain open to public access by motor vehicle). Power for the railroad safety facilities would be buried in the centerline of the roadway in this segment and originate from the Midstate Electric Cooperative overhead power line in the area. Segment 5 16

26 Chapter 2 Alternatives From FSR the path would continue on former FSR until the path intersect with FSR At the intersection of the path (on FSR ) and the FSR 9702 to Benham East Day Use Area there would be a directional sign. Visitors would cross the 9702 road at this point. FSR would continue to be closed to public access by motor vehicle and the path would be constructed over the former roadbed. Segment 6 Paralleling the northeast side of FSR 9702 the path would connect to Benham Bridge near the Benham East Day Use Area. This portion of the path would require excavation (approximately 2000 cubic yards) to make the path level with the road and FSTAG compliant. Currently the Black Rock trail parallels FSR 9702 where the excavation is proposed. To provide for public safety approximately 100 yards of the Black Rock trail would be realigned northeast of the proposed path and the excavated area. Figure 2-2: Segment 6 parallel to FSR 9702 near Benham bridge. Where the paved path intersects with Benham Bridge a kiosk would be installed to provide directional signage and a map. A six foot wide compacted fines path would connect Benham Bridge to Benham East Day Use Area (see the proposed actions at Benham East Day Use Area below). 17

27 Chapter 2 Alternatives Figure 2-3: Deschutes River trail near Benham East Day Use Area that would connect into the path leading down to Benham Bridge. Segment 7 The path would continue adjacent to the northeast side of FSR 9702 from the intersection with the to the railroad crossing. Railroad Crossing A railroad crossing arm, warning lights, barricades and warning signage would be installed at the existing railroad crossing at FSR 9702 to provide for additional public safety for motorized and nonmotorized visitors crossing the railroad tracks. To power the railroad crossing arm and light system, a power line that would connect into the existing above ground power line would be buried in the centerline of the roadway. Segment 8 The path in this segment would largely follow former FSR to Lava Lands Visitor Center and connect into the Visitor Center parking lot. The sections of FSR that are not closed to public motor vehicle use would be closed. To provide for scenic views path some trees would be removed and/or pruned at two locations. A standalone trailhead would be better established at the existing Lava Lands Visitor Center parking lot (see the proposed actions for Lava Lands Visitor Center below). 18

28 Chapter 2 Alternatives Figure 2-4 Segment 8 near Lava Lands Path Construction The path would be paved ten feet wide with one foot compacted gravel shoulders on each side and 20 foot vegetation clearing limits. Directional signage would be installed along the paved path. Turnouts would be constructed along the path to allow visitors a place to rest and enjoy the scenery. Turnouts would be approximately eight feet in width (at the widest point) and 20 feet in length, tapering back into the path. Along the path there would be approximately 14 turnouts or wide spots along the six mile long path. Six would be designed as a turnout and eight are considered wide spots to accommodate signs; however, these wide spots can be utilized by the user to pull off to the side. In areas with turnouts, the total footprint of the path and turnout, at the widest point, would be approximately 20 feet with 30 foot vegetative clearing limits. Benches may be placed in some of these turnouts. To construct the path, trees would need to be felled or removed in some locations. To the extent possible, large trees would be avoided. Approximately 235 trees (Table 2-1), over the six mile length of the path, would be felled. If feasible trees would be removed and sold or if needed in some cases to provide down woody material for wildlife, may remain on site and moved away from the path. 19

29 Chapter 2 Alternatives Table 2-1 Tree Removal Estimates Area Project Segments Estimated Tree Count* Description Segment 1 Segment (12 plus trees at less than 5 Grouped over 0.13 miles inches would be removed ) Sunriver Segment 3 10 Segment 4 45 Intermittent over 1.6 miles Segment 5 22 Benham East Alignments 6 (12 plus trees at less than 5 inches would be removed) Benham Segment 6 7 Segment the gauging station 1 at boat ramp Intermittent over 0.5 miles Lava Lands Segment 8 76 Intermittent over 3.67 miles Lava Lands Visitor Center 19 Total 235 * Tree counts typically identify trees over five inches diameter at breast height Roads 3 at LLVC gate 12 at bus parking/toilet 3 at concrete sidewalk 1 at northwest turning radius FSR , (at the intersection with FSR 9702) and a portion of where closed to public motor vehicle access under previous decisions and would be blocked as a component of this project s implementation. Table 2-2 below outlines road closure actions in more detail. Approximately 1.8 miles of system road would be decommissioned. Decommissioned roads are not needed for future management activities and are not used for administrative needs. Decommissioning involves removing the road from the transportation system and includes subsoiling to make the road impassible to motorized vehicles. Roads identified for closure and decommissioning are listed in Table 3-12 and Segments providing access to those facilities or improvements would not be subsoiled until such time as the facilities or improvements were removed or access no longer required. All roads slated for decommissioning would be subsoiled. 20

30 Chapter 2 Alternatives Table 2-2 Road Closures, Decommissioning, Convert to Path Road Number Mtc. Level From Mile Terminate To Mile Total Miles Close, Decommission, Convert FSR FSR Close FSR FS Boundary Close FSR End of road Convert FSR FSR Close FSR FSR Close FSR FSR Decommission FSR FSR Decommission FSR FSR Decommission FSR FSR Convert FSR FSR Decommission FSR FSR Convert FSR FSR Decommission Benham East Day Use Area The path from Benham Bridge would connect into the existing boat ramp and continue at six feet wide, connecting the restrooms, picnic area and interpretive trail system. The path would be constructed to meet FSTAG standards. The path would be leveled to have no more than a 5% grade, widened to 6 feet with a minor realignment around the existing water monitoring site and the surface would be compacted fines (same material that is currently on the trail). Approximately six trees would be felled, five for realignment around the existing gauging station and one at the boat ramp. A small cluster of trees approximately five inches dbh or less would be removed between the boat ramp and the restroom to facilitate connection to the restroom. Lava Land Visitor Center Parking Lot The existing entrance/exist would be widen to allow for two-way traffic. A new gate would be installed which would allow for access to the northwest parking area when the visitor center is closed. Restroom facilities for the trailhead would be constructed at the southwest end of the Lava Lands Visitor Center parking lot where the paved path connects to the parking area. A three-panel kiosk with paved access route and concrete sidewalk provide access to the existing Whispering Pines trail and existing sidewalk system would be constructed. The Black Rock trail termini would shift from the parking lot to a junction with the proposed path approximately 70 yards west of the parking area. A new double vault toilet facility would be constructed and a bike rack would be installed. Approximately three trees would be felled were the gate installation would take place, 12 trees at the two new large vehicle parking spaces and toilet facility, three at the proposed sidewalk connector and one additional tree to provide a better turning radius for vehicles at the northwest corner of the parking area. 21

31 Chapter 2 Alternatives Figure 2-5 Area behind blue marked tree is proposed location of restroom. Figure 2-6 Lava Lands exit and strip of trees to be removed for two parking spaces. 22

32 Chapter 2 Alternatives Figure 2-7 Paved path project area map 23

33 Chapter 2 Alternatives Figure 2-8 Paved path detailed project map 24

34 Chapter 2 Alternatives 2.5 COMPARISONS OF ALTERNATIVES Table 2-3 Alternative Comparison Alternative Elements Alternative 1 Alternative 2 Paved Path Characteristics Estimated Trees to be Removed (tree numbers represent trees over 5 inches dbh and are an estimate) Path Width (feet) 0 10 Clearing Limits (feet) 0 20 Path Length (miles) 0 6 Number of Turnouts/Wide Spots 0 6 turnouts 8 wide spots Segment Segment Segment Segment Segment Segment Segment Segment Benham East Alignment 0 6 Lava Lands Visitor Center 0 19 Total Number of Trees Restroom Facilities at Lava Lands Visitor Center 0 1 Parking Spaces at Segment Roads (miles) Close Convert to Trail Decommission PROJECT DESIGN ELEMENTS In order to minimize potential resource impacts from project activities, project design criteria have been incorporated into the action alternatives unless otherwise specified. Project design criteria are devised in the pre-analysis and analysis phases to reduce environmental impacts and comply with applicable laws and regulations. They include, but are not limited to best management practices (BMPs), standards and guidelines, and standard operating procedures. 25

35 Chapter 2 Alternatives RESOURCE PROTECTION MEASURES Recreation Analysis of the effects of the action alternative is based on assumptions that the following recreational resource project design criteria would be incorporated. To maintain the natural appearances of the setting and maintain ROS: Limit leaving dead and down material to intermittent locations where necessary for wildlife purposed only, rather than leaving obvious multi-tree accumulations visible from a point along the trail. Restore existing minor riparian vegetation damage at Benham bridge caused by user created travel off of trail. Restore areas impacted or denuded of vegetation as a result of project activities. To facilitate public safety: Ensure American Association of State Highway and Transportation Officials (AASHTO) standards are met with regard to trail surfacing, grade and turning radius. Incorporate adequate distance buffer or a trail-side horizontal rail on proposed FSR 9702 guardrail uprights at the corner near Benham bridge. Re-align the existing compact aggregate trail at the gauging station segment. Do not open Segment 8 to the public until all standard railroad prescribed safety systems are functioning at the tracks on FSR Regarding blasting and major excavation activities near Benham bridge along FSR 9702, ensure standard safety and visitor awareness signing is installed at Benham Bridge, Blackrock trail and at key points on FSR Prior to any construction activities near Benham bridge that would impede use of the existing Blackrock trail, close the affected alignment and detour trail users from the railroad right-of-way area to FSR 9702 and post bikes and hikers on roadway temporary signage. Post the closure and detour information at Lava Lands and Benham East Day Use Area as well as at key points on the trail. Prior to any construction activities at Lava Lands that would impede use of the Blackrock trail, close the Blackrock trail from Lava Lands to beyond the affected segment. Post the closure information at Lava Lands and Benham East Day Use Area as well as at key points on the trail. To incorporate accessibility and universal design features, as well as reduce conflicts between users: Incorporate pullouts at regular intervals along the trail alignments. Include benches at some pullouts to provide rest points during long segments for mobility challenged visitors. 26

36 Chapter 2 Alternatives Include accessible trail connectivity from Benham bridge to the restroom at Benham East Day Use Area. Ensure two parking spaces at the Lava Lands trailhead parking lot are defined as accessible. Allow motorized mobility devices on the paved path in pursuant to 36 CFR Prohibit recreational use of Class I, II, and II all-terrain vehicles and equestrian use on all paved trail alignments. To minimize impact to federal tax-based or fee-based recreation and facilities funding: Wildlife Explore partnership agreements for construction and future maintenance of Sunriver parking area. Explore a partnership with the Sunriver Owners Association or other partners/volunteers, especially for path segments 1 thru 5. Such plan should describe routine litter maintenance; trail condition, hazard and visitor monitoring; light vegetation control; and clearing the trail surface of obstructions which limit accessibility. Inform the public about volunteer and donation-to-partner opportunities at key locations. Project Design Criteria Currently, there are no known nests or roosts within the project area. If raptor or eagle nests are located within ¼ mile of the trail, seasonal disturbance (construction, not trail use) restrictions may be applied as per the Deschutes Forest Plan. Species-specific dates are as follow: Osprey Red-tailed hawk Bald eagle Northern goshawk Cooper s hawk Sharp-shinned hawk Golden eagle Great gray owl Great blue heron April 1 st August 31 st March 1 st August 31 st Jan. 1 st August 31 st March 1 st August 31 st April 1 st August 31 st April 15 th August 31 st February 1 st July 31 st March 1 st June 30 th March 1 st August 31 st Mitigation Measures Due to the current road density in the Ryan Ranch KEA and within deer summer range, as part of the mitigation measure of the proposed trail, posted signs would be placed at each entrance of the and roads to deter vehicle traffic from entering. Posted signs would indicate that these roads are closed to motorized use to minimize human disturbance to deer and elk. 27

37 Chapter 2 Alternatives Do not clear the path of snow to encourage winter use. Fisheries and Water Project design features for this project have incorporated the following Forest Service National Best Management Practices (USDA, 2012): Within riparian habitat conservation area (RHCA) trail segment, out slope corners and crown trail to disperse water run-off and prevent overland flow into the Deschutes River. (BMP Rec- 4). Place sediment fence between edge of water and construction area during construction of paved trail near Benham Falls footbridge. (BMP Fac-2) Remove all surplus excavated materials and dispose of off-site. (BMP Fac-2). Refuel equipment in parking lot 100 feet or more from edge of river. (BMP Road-10). Place downed wood and/or boulders to limit access to riparian area near footbridge to avoid damage. Plant vegetation in presently disturbed area near footbridge to stabilize soils and aid in limiting overland flow of sediment to the river. Monitor site to evaluate effectiveness of structures in protecting riparian area, see monitoring requirements in the below monitoring section. (BMP Rec-2). For gravel trail section near Benham Falls footbridge to be widened by one foot, widen trail to the side away from river toward parking lot, to the extent practicable. (BMP Rec-4). Scenery Design criteria for the paved path should consider the following to meet Forest Plan Standards and Guidelines for Scenic Views: Retain features in the landscape such as large trees or tree groupings and lava rock outcrops. Locate viewpoints and design interpretive sites that take advantage of any panoramic views or points of interest. Provide shaded rest stops or pull-outs at least every mile along the route. Provide signing that is minimal and low key by avoiding shiny or metallic materials and bright or white colors. Allow curvature in the trail layout and alignment so the rider experience is enhanced and views to the surrounding landscape are captured. Use topography and existing vegetation to create a path that invites non-motorized use and limits access to motorized vehicles. Restore disturbed native vegetation to edges of path and provide landscape screens around parking areas so vehicles are not visible from surrounding areas. 28

38 Chapter 2 Alternatives Use materials on the trail that blend with the surrounding landscape character and avoid white or light colored aggregate on the shoulders of the trail. Maintain as many trees as possible so recreationists travel through a natural-appearing setting. Noxious Weeds The following project design criteria would be incorporated into all action alternatives: Soils The known knapweed population near the end of FSR 9702 will be treated and flagged prior to project initiation. To reduce but not eliminate the risk of spreading weeds from the know site to un-infested areas, wash equipment, including trucks, before and after constructing the portion of trail near the Benham East Day Use area, adjacent to FS road 9702 at the weed site. Wash all equipment after hauling contaminated soil. Any fill material brought into the project will be examined by the district botanist or designee for the presence of invasive plants. Machinery involved in project activities must be washed prior to entry into the project area. Although there are no standards and guidelines relative to soils and dedicated recreational use, appropriate Best Management Practices (BMPs) are typically applied to all ground-disturbing activities, as described in General Water Quality Best Management Practices (USDA, 2012). Specific BMPs commonly used to minimize the effects on the soil resource of road systems, recreation, and administrative sites are briefly described for the activities that would be associated with the construction, use, and maintenance of the paved path. Minimize the extent of new soil disturbance from equipment by implementing appropriate design elements for avoiding or reducing the disturbance footprint to only that which is needed. Prepare an erosion control plan prior to construction. Apply appropriate erosion control measures to all ground disturbing activities associated with the construction and development of the path. Refrain from construction operations when soils are wet or during periods of high runoff or snow melt. Provide for drainage so that runoff is dissipated on site and infiltrated into the soil. Pathway design should minimize interception and prevent the concentration of runoff. Utilize swales and vegetated filtering structures placed at key drainage sites to dissipate runoff. Maintain drainage structures or features so that they remain functional at dispersing runoff adequately. Re-establish and maintain native vegetation on bare soil surfaces immediately after construction. 29

39 Chapter 2 Alternatives Foundation, underlayment, and pavement materials should be of a design and grade that withstands settling, frost heave, and weathering so that surface deformation and cracking are minimized over time. Utilize mulch, top soil or another type of top cover that will help retain soil moisture and support the re-establishment of vegetation where bare soil has been exposed. Prevent the introduction of invasive species if using off-site mulch or topsoil. Engineering/Roads Vehicles with a gross vehicle weight rating (GVWR) of 10,000 or less will be allowed to drive on the path for administrative or emergency purposes. Roads that are categorized as maintenance level 1, (Roads that are blocked to all traffic) will be utilized to the extent necessary to support project needs. Upon project completion these roads will be returned to level 1 status and condition for future needs. Trees along all travel ways and around the project areas that can be considered a safety risk and identified as a hazard will be evaluated and felled in accordance to FSM (Forest Service Manual) All felled danger trees will be evaluated for removal. Temporary, un-inventoried, unauthorized user created roads along the new paved path would be removed and restored to a condition suitable for a productive return to the land base. The preferred method for achieving this goal is by subsoiling these areas to reduce compaction and encourage new growth. Utility installation within the roadway shall conform to the following requirements: Existing roadway surfacing within the excavation limits of trenching operations shall be conserved and reapplied on the roadway trenching locations after backfilling is complete. The minimum cover between the top of a buried utility and road or ground surface shall be 30 inches. The trench shall be backfilled with the excavated or other suitable materials and the entire backfill shall be compacted in layers of not to exceed six inches by use of a mechanical tamper. All backfilled material shall be compacted to 95 percent of its relative maximum density when within the roadway to 90 percent when between the shoulder (or curb) and the right of way line. Except at locations where the utility line is entering or leaving the roadbed, utilities to be installed in the roadway shall be installed at the centerline of the travel way. Upon completion of backfilling, the roadbed shall be finished to be smooth, uniform, and shaped to conform to typical sections. The subgrade shall be visibly moist during shaping and dressing, and compaction shall be performed using a vibratory grid roller or approved equal with a minimum weight of 10 tons. The surface shall be rolled with at least 5 full-width passes or until there is no visible evidence of further consolidation. 30

40 Chapter 2 Alternatives Cultural Resources Several archaeological sites are known to exist within the project area. The project archaeologist would work with the project team leader in order to protect these resources during implementation of the construction of the trail. If during construction work, previously unknown items of prehistoric or historical value are discovered or disturbed, activities would cease in the area affected and the project archaeologist would be notified. A mitigation plan would be created in order to protect the artifacts from project implementation. An interpretative sign at the benchmark stump, which identifies a small section of the old Huntington road within the project area, would enhance the trail experience for the public MONITORING Fisheries and Water Monitor planted vegetation near Benham bridge every two years for a five year period after vegetation has been planted. The District fisheries biologist or recreation staff will conduct the monitoring. Cultural Resources During project implementation an Archeologist will be on-site to ensure the protection of known resources that need to be avoided. Recreation To determine use patterns, reduce conflicts, raise public awareness or mitigate potential or continued resource damage from occurring related to visitation within the Upper Deschutes Wild and Scenic River corridor: Consider tracking use with a trail counter from Memorial Day thru Labor Day just north of the trail junction at FSR Track prior to construction should opportunity to be realized. Benham bridge kiosk should be recognized to serve as an Upper Deschutes Wild and Scenic River Corridor information and orientation portal rather than a Monument focused station. Identify expanding trail braiding and stream bank damage between Benham bridge and Benham Falls overlook along the Deschutes River Trail. Consider developing a restoration action plan to address conditions of concern identified. 31

41 CHAPTER 3 ENVIRONMENTAL CONSEQUENCES 3.1 INTRODUCTION This chapter discusses the existing condition of resources in the Sunriver to Lava Lands project area and discloses the direct, indirect, and cumulative effects each of the alternatives (including the no action) would be expected to have on the resources. The duration of these effects may vary depending on the resource in question. The chapter concludes with a discussion of specifically required disclosures. 3.2 CUMULATIVE ACTIONS AND ACTIVITIES Cumulative effects are analyzed in this chapter. All known present and reasonably foreseeable future activities used by the Interdisciplinary team for their cumulative effects analyses, are located in Table 3-1 below. The duration of direct, indirect, and cumulative effects varies, and is addressed by each resource and subject area to follow. The effects will be discussed by resource or subject area. In general, the analysis area will be the project area. If the resource being analyzed necessitates extending the analysis area outside the project area for an appropriate analysis, then the extent of the analysis area is documented under each resource area in Chapter 3 of the EA and specialist reports. The project area is within the North Unit Diversion Dam-Deschutes River watershed. For the purposes of this EA, the cumulative impacts are the sum of the existing condition (which represents all past actions), present actions, and reasonably foreseeable future actions. Reasonably foreseeable as defined in 36 CFR are those Federal or non-federal activities not yet undertaken, for which there are existing decisions, funding, or identified proposals. Identified proposals for the Forest Service is that the Forest Service has a goal and is actively preparing to make a decision on one or more alternative means of accomplishing that goal and the effects can be meaningfully evaluated (36 CFR (a)(1). The purpose of the cumulative effects analysis in the EA is to evaluate the significance of the no action s and action alternatives contributions to cumulative impacts. A cumulative impact is defined under federal regulations as follows: "...the impact on the environment which results from the incremental impact of the action when added to other past, present, and reasonably foreseeable future actions regardless of what agency (federal or non-federal) or person undertakes such other actions. Cumulative impacts can result from individually minor but collectively significant actions taking place over a period of time" (40 CFR ). In order to understand the contribution of past actions to the cumulative effects of the alternatives, this analysis relies on current environmental conditions as a proxy for the impacts of past actions. This is because existing conditions reflect the aggregate impact of all prior human actions and natural events that have affected the environments and might contribute to cumulative effects. CEQ regulations do not require the consideration of the individual effects of all past actions to determine the present effects of past actions (40 CFR ). This cumulative effects analysis does not attempt to quantify the effects of past human actions by adding up all prior actions on an action by action basis. One reason for taking this approach is because focusing on past individual actions would be less accurate than looking at the existing condition, because there is limited information on environmental impacts of individual past actions and no one can reasonable identify each and every action over the last century 32

42 that has contributed to the existing condition. This chapter includes a description of the existing conditions for each resource area. Table 3-1 Past, Present and Future Activities Activity Project Name and/or Site Location Size of Project Area or Activity Past Activities 6,368 acres commercial thinning Vegetation Management Sunriver Hazardous Fuels Reduction Kelsey EA, Katalo East & West EA East Tumbull OZ Research 9,815 acres mowing to reduce fuel loading 3,450 acres precommercial thinning 12,262 acres prescribed fire to reduce fuel loading Roads/Wildlife Highway 97 Expansion 120 acres, highway widening and two big game underpasses, including high fence Recreation Lava River Cave Circulation EA 2 acres Wildfire Green Mountain Fire of acres Ongoing or Planned Activities Railroad Oregon railroad Recreation Vegetation management Private Lava River Cave Lava Lands Visitor Center/Lava Butte Benham East Parking area/boat ramp, Slough, Dillon Falls, Lava Island & Aspen boat ramps, Ryan Ranch Meadow & trail Benham West trailhead, Big Eddy TH, Black Rock trail, Sunriver horse trail Various in the western part of the watershed Potential paved trail connection from proposed path to Highway 46 Welcome Station and on to Bend, Oregon West Bend EA (ongoing) Rocket EA (planning stages) Sunriver, OR Day Use/Hiking Day Use/Hiking Developed Recreation Day Use areas along the Deschutes River Designated Trails hiking and biking Designated snowmobile trails Biking and walking 25,700 acres and 22, 682 acres commercial thin, precommercial thin, fuels reductions and prescribed fire Sunriver resort and community activities 33

43 3.3 BEST AVAILABLE SCIENCE Forest Service policy is that proposed projects must be consistent with the Forest Plan and show consideration of best available science (Dillard 2007). Science is not absolute or irrefutable and much of what we know in a science context is constantly evolving (Moghissi et.al. 2008). This means what constitutes best available science might vary over time and across scientific disciplines (Dillard 2007). An objective of considering best available science is for scientists to provide a meaningful context to scientific information so that its validity might be judged and therefore useful to the policymaker (Moghissi et.al. 2008). Analysis information provided in this EA was based on a variety of methodologies, models, and procedures (depending on the resource) all of which are derived from scientific sources. This environmental assessment and the accompanying project file identify methods used, reference reliable scientific sources, discuss responsible opposing views, and disclose incomplete or unavailable information, scientific uncertainty, and risk (40 CFR (b), , and ). Personal opinions were generally judged not to be best available science. Peer-reviewed science was evaluated, and we recognized the value to independent peer review. All Forest Service research literature is peer reviewed following USDA Information Quality Scientific Research Guidelines. 3.4 PROJECT RECORD This EA hereby incorporates by reference the Project Record (40 CFR ). The Project Record references all scientific information that was considered for the analysis, including reports, literature reviews, review citations, academic peer reviews, science consistency reviews, and results of groundbased observations to validate best available science. This chapter provides a summary of the specialist reports, biological assessments, and biological evaluations in adequate detail to support the decision rationale. The Project Record is available for review at the Bend-Fort Rock District Office, Deschutes Market Road, Bend, Oregon 97701, Monday through Friday 7:45 a.m. to 4:30 p.m. 3.5 ALTERNATIVE EVALUATION RECREATION Introduction This section addresses the effects of the proposed Sunriver to Lava Lands Paved Path on recreational activities, setting, and experience which collectively comprise the recreational opportunities of the analysis area. The analysis area is located on the Bend-Fort Rock Ranger District approximately 18 miles south of the City of Bend and directly northeast of Sunriver. The project area is a linear trail corridor alignment utilizing existing roads and adjacent area between Sunriver, Benham East Day Use Area, and Lava Lands Visitor Center. Existing Condition The visitor s recreation opportunity is described by the Recreation Opportunity Spectrum (ROS, see project record) as a combination of activities, setting and experience. The existing condition discussion 34

44 has been organized into those same groupings. The project area has been divided into eight trail segments and for analysis purposes, those eight segments have been organized into three analysis areas. The areas each contain a trail corridor and associated destinations or termini. Segments are displayed in figure 2-7 on page 23 of this document. Segment 1 through 5 Sunriver The Sunriver segment spans from the Sunriver community boundary with the Deschutes National Forest to the paved FSR Activities This corridor is an established travel route for Sunriver visitors and residents. This route is used largely to access the Benham Falls and the Deschutes River Trail heading north. Visitors walk, bike, jog, walk dogs and drive through this corridor. While most people walk or bike to this travel way from elsewhere in the Sunriver community, some drive to the forest boundary for quick access. Class I, II or III OHV s may use this corridor on open authorized roads subject to travel management regulations. Recreation in the adjacent area is dispersed and no developed opportunities exist. Complaints and inquiries regarding shooting near Sunriver segment have been received in the past. Shooting is prohibited across Forest development roads or bodies of water and within 150 yards of a residence, building, developed recreation site or occupied area pursuant to 36 CFR (d). Camping is prohibited in segments 1 through 5 pursuant to Forest Order DES From the community, a high volume of motorized traffic runs immediately parallel to the.15 mile segment of existing trail on the FSR to access the Deschutes River. Visitors use the route on a year round basis with the largest volume of travel occurring during the summer season from Memorial Day to Labor Day. Setting and Experience The ROS classification for the area is Roaded Natural. There are no signs, information or management controls where visitors travel a combination of a 0.15 miles single track and unimproved forest roads to gain access to the Benham area from Sunriver. Contact with other visitors may be common and frequent during peak season. The surrounding forest maintains its natural character with evidence of past vegetation management or timber harvest. The roads are open to motorized use subject to the Deschutes National Forest travel management rule. Road surfacing is largely native material and receives little road maintenance. During dry periods, extremely dusty conditions prevail especially when motorized vehicles pass thru. During wet and thaw periods, sections of the road become slippery and riddled with pooling. The short segment spanning approximately ¼ mile and connecting to FSR 9702 is a former roadbed accommodating the existing non-motorized use. The FSR 9702 is surfaced with asphalt and is the only motorized access route to Benham East Day Use area. Visitors to the Forest from Sunriver are comprised of homeowners, vacationing guests and general public. Existing uncontrolled Forest access is assumed to be a desirable amenity for Sunriver parties who contribute to the Sunriver economy. Sunriver, a private community, is open to the public. 35

45 Segment 6 Benham East The Benham segment includes the currently undeveloped proposed trail alignment immediately connecting Benham bridge and Benham Day Use Area to the proposed segments of trail terminating at Sunriver and Lava Lands. Activities The Benham East Day Use Area provides opportunities for fishing, paddling, picnicking, trail-based interpretive learning, mountain biking and hiking the Deschutes River trail #2.1 towards Bend and the single track Blackrock trail #3935 to Lava Lands. Forest visitors originating from Sunriver via the proposed trail alignment or the Deschutes River trail or parking on-site at Benham East, enjoy access to the remarkably outstanding Upper Deschutes Wild and Scenic / State Scenic Waterway. The most popular destination is the Benham Falls Day Use Area and Viewpoint approximately ½ mile from Benham East. Benham Falls parking is located about a ½ mile downstream from the Benham East Trailhead and has motorized accessed from FSR 41. Shooting is prohibited across Forest development roads or bodies of water and within 150 yards of a residence, building, developed recreation site or occupied area pursuant to 36 CFR (d). Camping is prohibited in segment 6 pursuant to Forest Order DES Setting and Experience The ROS classification for the area is Roaded Natural. Benham East Day Use Area is located on the southeastern bank of the Deschutes River in a grove of large, old, Ponderosa Pine. Existing signage at Highway 97 directing visitors to this area is misleading ( Benham Falls ) as Benham Falls is over ½ mile from the parking. Key signage and information lacking at this site is both a standard Monument site identification, Wild and Scenic River information and a map of the vicinity s trails. Other site regimentation includes standard traffic parking signs and physical barriers defining the edge of the aggregate parking area. There is a self-service recreation fee station and information board on site. Other amenities include a double-vault toilet, garbage dumpster, and five picnic units comprised of new concrete tables and the undesirable angle style fire pits. There is a compact fines Outdoor Recreation Access Route (ORAR) from the parking area to the restroom and first picnic unit where the route to the picnic unit is less than standard width. There is a short accessible cultural history interpretive loop that extends southwest from this site along the edge of the river. Obvious cautionary signs are placed at the concrete boat ramp access to the Deschutes River and trailhead signs are seen at intersections of the trail. Near the boat ramp at the parking area is a large information board identified as a Boy Scout project and incorrectly titled Benham Recreation Area. Benham East does not have a regulated open season and day use regulations apply. Use increases during the summer in conjunction with the increased number of visitors when the Lava Lands Visitor Center opens. According to fee compliance data in recent years, an average of 11 vehicles are parked at this trailhead during the peak season of May to October. Persons at one time (PAOT) is currently set at 25 visitors. Development Scale (see project record) for the site is 3. FSR 9702 provides vehicular access to Benham East. The road is paved then turns to dirt and gravel just before the parking area. Hikers and bikers may access the area from the Deschutes River trail, which follows the river corridor to another parking area known as Benham West Day Use Area. There 36

46 are several other trailheads farther downstream from Benham West that may also be used for parking to access the project area. It has a boat launch ramp used by rafters, paddlers and fishermen. The trailhead also provides the main access to the Deschutes River Trail from the east side of the river. The trail extends the length of the river all the way downstream to the City of Bend. The trail accommodates hikers, bikers and stock users. Fees are collected by authority of the Recreation Enhancement Act and are used to maintain and operate the Benham East Day Use Area during established fee seasons. Segment 7 through 8 Lava Lands The Newberry National Volcanic Monument Comprehensive Management Plan (NNVM Plan) identifies segments 7 and 8 of the project area as the Lava Butte Zone, which serves as the primary interpretive, day-use and information hub of the Monument. Objectives include providing a large number of visitors with various recreation opportunities. The Planning Criteria set forth in the NNVM Plan designates this area as Rural and Roaded Natural within the ROS system. Activities The Lava Lands Visitor Center is the main information hub and interpretive center of the Monument. Majority of users come to this location seeking information and day-use recreation relatively short in duration. The Visitor Center has many resources about the surrounding area, which users can access at the information desk and a bookstore. During operating hours, visitors can watch films at various times during the day. The interactive exhibit hall offers detailed information about the volcanic, natural and cultural history of the area in a variety of experiential methods. A large topographical model provides an overview of the entire Monument s landscape. There are several paved paths in the area immediately surrounding the Visitor Center. The trail of the Molten Land is a mile long paved path that crosses the 7,000-year-old lava flow. In 2012, approximately 1/3 of the path was reconstructed to comply with accessibility standards. New interpretive panels with colorful designs and detailed information were also added at intervals along the entire duration of the path in The trail of Whispering Pines is a ¼ mile paved path also accessed from the Visitor Center parking area and has been updated to be a self-guided interpretive loop described by a tri-fold handout. When the visitor center is closed, 39 parking spaces remain open for visitors to access all facilities described above. This parking area serves as a day use area providing visitors the opportunity to picnic, bike and hike with direct access to Blackrock Trail, Trail of Whispering Pines, Trail of the Molten Land and Lava Butte road walk. The Blackrock Trail #3935 offers 4.4 miles of outstanding single track biking and hiking opportunity with termini at Lava Lands and Benham East Day Use Area which accesses the Deschutes River Trail. Shooting is prohibited across Forest development roads or bodies of water and within 150 yards of a residence, building, developed recreation site or occupied area pursuant to 36 CFR (d). Camping is prohibited in segment 7 pursuant to Forest Order DES Lava Lands Visitor Center is a day use facility. Public reports and physical evidence suggest that camping occurs at some points in segment 8. There is a memorial near the trail adopted from the period of history when the county held jurisdiction and ownership of a portion of the project area. The Annette Dodds Cross Memorial plaque access via 37

47 road or trail is to be preserved by name and stipulated as such on maps. The actions are recognized in a Memorandum of Agreement between the Deschutes County and Deschutes National Forest in 1990 and is located at SW ¼ NE ¼ Sec. 22, T. 19 S. R. 11 E., W.M.. The plaque is not visible from the FSR 200 and the proposed trail alignment. FSR 9702 and 9703 serve as motorized access to the key destinations in the Monument as well as a loop or one-way route for road or mountain bikes between the Deschutes River Trail, Sunriver and Lava Lands. Fees are collected by authority of the Recreation Enhancement Act and are used to maintain and operate the Lava Lands complex during established fee seasons. Setting and Experience Motor vehicle access to the Visitor Center is from Highway 97 South and FSR The Visitor Center s operating season is May thru September. The Visitor Center is open 5 days a week (Thursday Monday) from 09:00 to 17:00. During the peak season (mid-june Labor Day weekend) the Visitor Center is open 7 days a week from 09:00 to 17:00. There is a high volume of visitors to the area when the Visitor Center is open. In 2012, an average of 459 visitors per day were recorded entering the site from May thru September spanning 146 days. The total number of visitors to Lava Lands as recorded by the counts conducted at the welcome station for the 2012 season was 66,995. The area received continued visitation at much lesser volume when the visitor center is closed on a year round basis. The number of visitors per year has increased by nearly 10,000 from 58,013 in Persons at one time (PAOT) is currently set at 350 visitors. Development Scale (see project record) for the site is 5. The Visitor Center was constructed in 1970 with a major reconstruction and grand re-opening completed in Within the visitor center is a bookstore, an extensive interpretive exhibit hall and a theatre room. An information and sales desk is staffed throughout the operating hours center. Several days a week, Rangers and volunteers provide interpretive talks and walks in the area. The Lava Lands parking area is a striped asphalt surface with 65 single vehicle striped spaces on the south zone and a lot designated for buses, RVs and trailers with additional striped spaces in the north zone. The parking areas have extensive small to large cracks and breaks and the paint striping has faded dramatically. There are two accessible parking spaces with one being van accessible. 38

48 Figure 3-1 Existing parking at Lava Lands and stakes showing proposed path connection point. There are ten concrete picnic tables across the Lava Lands grounds and one on Lava Butte. There are eight wooden benches at multiple points along pathways, two drinking fountains functioning during summer and one vault toilet at the top of Lava Butte. The Lava Lands grounds around the visitor center has flush toilets open typically only when the visitor center is open and no other toilet facilities are present. There is one floating rebar bike rack near the visitor center. The Lave Butte scenic viewpoint is accessed from the Visitor Center area. The summit of Lava Butte has an active fire lookout and a ¼ mile loop trail follows the crater of the cinder cone. The road and parking area on the summit are paved and have a red cinder cosmetic surfacing. There are ten parking spaces, one being van accessible, on the summit and access is regulated by a time pass system when the visitor center is open. Lava River Cave is approximately one mile from the Visitor Center and may be accessed via an underpass by visitors when the cave is open from May thru September. This site has a one mile underground trail, seven concrete picnic tables, a visitor welcome station and two double vault toilets. Tours are offered on a daily basis when the cave is open. The FSR road (proposed trail alignment) corridor to Benham East currently has no developed recreation facilities and the area is occasionally patrolled by USFS field rangers. Effects Analysis Direct, Indirect Effects Alternative 1 No Action Access 39